380 Chapter 11 | CongressAlthough descriptive representation is important, it goes only so far. More important
than a member’s race, gender, or religion, many argue, is the substance of what that
person does. The fact that a representative shares some characteristics with you does not
necessarily mean that he or she will represent your interests. However, extensive research
demonstrates a link between descriptive representation and how our elected leaders
represent us: minority members of Congress are more likely to pay attention to racial
issues than white members are, and female members are more committed to women’s
issues than male members are. For example, political scientist Michele Swers finds that
women senators are more active than male senators on women’s issues, playing a key role
on fair pay, abortion, women’s rights, and representation on the Supreme Court.^8
Substantive representation involves how the member serves constituents’
interests. Two long-standing models of this kind of representation are (1) the trustee,
who represents the interests of constituents from a distance, weighing numerous
national, collective, local, and moral concerns; and (2) the delegate, who carries out
the direct desires of the voters. In a sense, trustees are more concerned with being
responsible and delegates are more interested in being responsive.
One of the most famous examples of a representative acting as a trustee was
Marjorie Margolies-Mezvinsky (D-PA) in a crucial 1993 vote on President Clinton’s
budget, which included controversial tax increases and spending cuts to balance
the budget. Hours before the vote, she told reporters that she would vote against the
budget, in accordance with her constituents’ wishes. But she had also promised Clinton
she would support the bill if her vote was needed. As she cast the critical vote in the
218–216 cliff-hanger (in which she fulfilled her promise to the president), she did what
she thought was in the best long-term interests of her constituents and the nation, even
though it meant voting against their wishes, which led to her defeat in the next election.
More recently, in 2008, bipartisan majorities in the House and Senate voted for the
hugely unpopular Troubled Asset Relief Program (TARP or, as its critics called it, the
Wall Street bailout) because President Bush and congressional leaders convinced them
it was necessary to prevent a complete economic meltdown.
In contrast, a delegate does not have to worry about angering voters because he or
she simply does what voters want. Examples are so numerous it is pointless to single out
one member for attention: when it comes to tax cuts, agricultural subsidies, increasessubstantive representation
Representation in which a member
of Congress serves constituents’
interests and shares their policy
concerns.
trustee
A member of Congress who
represents constituents’ interests
while also taking into account
national, collective, and moral
concerns that sometimes cause
the member to vote against
the preference of a majority of
constituents.
delegate
A member of Congress who loyally
represents constituents’ direct
interests.Members of Congress spend a
good deal of time in their districts,
developing relationships with
constituents. Here, Representative
Elis Stefanik (R-NY) speaks with
constituents in a town hall meeting in
South Glens Falls, NY.Full_12_APT_64431_ch11_374-417.indd 380 16/11/18 10:30 AM