Wilson came of age in the decades after the
American Civil War, when Congress was supreme—
"the gist of all policy is decided by the legislature"
—and corruption was rampant. Instead of focusing on individuals in explaining where American politics went wrong, Wilson focused on the American constitutional structure.
Under the influence of
Walter Bagehot's The English Constitution, Wilson saw the
United States Constitution as pre-modern, cumbersome, and open to corruption. An admirer of Parliament (though he first visited
London in 1919), Wilson favored a
parliamentary system for the United States. Writing in the early 1880s, Wilson wrote:
:"I ask you to put this question to yourselves, should we not draw the Executive and Legislature closer together? Should we not, on the one hand, give the individual leaders of opinion in Congress a better chance to have an intimate party in determining who should be president, and the president, on the other hand, a better chance to approve himself a statesman, and his advisers capable men of affairs, in the guidance of Congress?"
Wilson started
Congressional Government, his best known political work, as an argument for a parliamentary system, but Wilson was impressed by
Grover Cleveland, and
Congressional Government emerged as a critical description of America's system, with frequent negative comparisons to
Westminster. Wilson himself claimed, "I am pointing out facts—diagnosing, not prescribing remedies.".
Wilson believed that America's intricate system of
checks and balances was the cause of the problems in American governance. He said that the divided power made it impossible for voters to see who was accountable for ill-doing. If government behaved badly, Wilson asked,
:"...how is the schoolmaster, the nation, to know which boy needs the whipping? ... Power and strict accountability for its use are the essential constituents of good government.... It is, therefore, manifestly a radical defect in our federal system that it parcels out power and confuses responsibility as it does. The main purpose of the
Convention of 1787 seems to have been to accomplish this grievous mistake. The 'literary theory' of checks and balances is simply a consistent account of what our Constitution makers tried to do; and those checks and balances have proved mischievous just to the extent which they have succeeded in establishing themselves...
[the Framers] would be the first to admit that the only fruit of dividing power had been to make it irresponsible."
The longest section of
Congressional Government is on the
United States House of Representatives, where Wilson pours out scorn for the committee system. Power, Wilson wrote, "is divided up, as it were, into forty-seven signatories, in each of which a Standing Committee is the court baron and its chairman lord proprietor. These petty barons, some of them not a little powerful, but none of them within reach [of] the full powers of rule, may at will exercise an almost despotic sway within their own shires, and may sometimes threaten to convulse even the realm itself.". Wilson said that the committee system was fundamentally undemocratic, because committee chairs, who ruled by seniority, were responsible to no one except their constituents, even though they determined national policy.
In addition to their undemocratic nature, Wilson also believed that the Committee System facilitated corruption.
:"the voter, moreover, feels that his want of confidence in
Congress is justified by what he hears of the power of corrupt lobbyists to turn legislation to their own uses. He hears of enormous subsidies begged and obtained... of appropriations made in the interest of dishonest contractors; he is not altogether unwarranted in the conclusion that these are evils inherent in the very nature of Congress; there can be no doubt that the power of the lobbyist consists in great part, if not altogether, in the facility afforded him by the Committee system.
By the time Wilson finished
Congressional Government,
Grover Cleveland was President, and Wilson had his faith in the United States government restored. When
William Jennings Bryan captured the Democratic nomination from Cleveland's supporters in 1896, however, Wilson refused to stand by the ticket. Instead, he cast his ballot for
John M. Palmer, the presidential candidate of the
National Democratic Party, or Gold Democrats, a short-lived party that supported a gold standard, low tariffs, and limited government.
After experiencing the vigorous presidencies from
William McKinley and
Theodore Roosevelt, Wilson no longer entertained thoughts of parliamentary government at home. In his last scholarly work in 1908,
Constitutional Government of the United States, Wilson said that the presidency "will be as big as and as influential as the man who occupies it". By the time of his presidency, Wilson merely hoped that Presidents could be party leaders in the same way
prime ministers were. Wilson also hoped that the parties could be reorganized along ideological, not geographic, lines. "Eight words," Wilson wrote, "contain the sum of the present degradation of our political parties: No leaders, no principles; no principles, no parties."