Facing a threat of imminent government shutdown, nine Democrats joined GOP Senate colleagues to defeat a filibuster, moving a six-month government funding bill to final passage in a late-day vote on March 14, 2025.
Since January 2025, Republicans in Washington have enjoyed what’s commonly known as a governing “trifecta”: control over the executive branch via the president, combined with majorities for their party in both the House and the Senate.
You might think that a trifecta, which is also referred to as “unified government” by political scientists, is a clear recipe for easy legislative success. In theory, when political parties have unified control over the House, the Senate and the presidency, there should be less conflict between them. Because these politicians are part of the same political party and have the same broad goals, it seems like they should be able to get their agenda approved, and the opposing minority party can do little to stop them.
But not all trifectas are created equal, and not all are dominant. And several weaknesses in the Republicans’ trifecta made passing their six-month stopgap spending bill so difficult, and they help explain why the federal government came so close to shutting down completely.
Research shows that political gridlock can still happen even under a unified government for reasons that have been on display ever since Republicans assumed leadership of Congress and the presidency in January.
A unified government clearly makes President Donald Trump’s ability to enact his agenda much easier than if, for example, Democrats controlled the U.S. House, as they did during the second half of his first term, from 2021-2022. But tight margins in both congressional chambers have meant that, even with a trifecta, it hasn’t been an easy.
Trump was the sixth consecutive president with a trifecta on Day 1 of his second term. But history – and simple math – show that presidents with trifectas have an easier time passing partisan legislation with bigger majorities. Bigger majorities mean majority-party defections won’t easily sink controversial or partisan legislation. A bigger majority also means that individual members of Congress from either party have less leverage to water down the president’s policy requests.
Trump also held a trifecta during the beginning of his first term in office; in particular, a big Republican majority in the House, which passed major legislation with relative ease and put pressure on Senate colleagues to comply. Trump signed a major tax reform package in 2017 that was the signature legislative achievement of his first term.
But Trump has a much smaller advantage this time.
Every president since Bill Clinton has entered office with a trifecta, but Trump’s seat advantage in the House on Day 1 of his second term was the smallest of all of them. This slim House margin meant that Republicans could afford to lose only a handful of their party’s votes on their spending bill in order for it to pass over unanimous Democratic opposition.
And Trump’s relatively small advantage in the Senate meant that Republicans needed at least eight Democratic votes to break a filibuster. Nine Democrats ultimately voted to advance the bill to final passage.
In addition to opposition from Democrats in Congress, Trump and other Republican leaders have continued to confront internal divisions within their own party.
In a closely divided House or Senate, there are plenty of tools that Democrats, even as the minority party, can use to stymie Trump’s agenda. This most notably includes the filibuster, which would have forced Republicans to garner 60 votes for their short-term spending bill. A small proportion of Democrats ultimately bailed out Senate Republicans in this case; but any major defections within the GOP would have required even more Democratic support, which Republicans were unlikely to get.**
Even dominant legislative trifectas, again like the one former President Barack Obama enjoyed when he took office in 2009, can’t prevent divisions within political parties, as different politicians jockey for control of the party’s agenda.
Despite entering office with a 17-vote advantage in the Senate, 11 more than Trump enjoys now, Obama’s signature legislative achievement – the Affordable Care Act, also sometimes known as Obamacare – had to be watered down significantly to win a simple majority after backlash from conservative Democrats.
Obama’s trifecta was bigger in size; but in a polarized America, a large majority also means an ideologically diverse one.
Just as Republican leaders did in the last Congress, Trump has faced similar pushback behind the scenes and in public from members of his own party in his second term. For the past two years, the Republican-led House has been repeatedly riven by leadership struggles and an often aimless legislative agenda, thanks to a lack of cooperation from the the party’s far-right flank.
This group of ideologically driven lawmakers remains large enough to stall any party-line vote that Speaker Mike Johnson hopes to pass, and the spending bill very nearly fell victim to this kind of defection.
Even though the GOP squeaked out a win on this spending bill, the potential for continued chaos is monumental, especially if Trump pursues more major reform to policy areas such as immigration.
Despite Congress’ reputation as a polarized partisan body, members of Congress ultimately serve multiple masters. The lingering Republican divisions that made it so difficult to pass this resolution reflect the competing pressures of national party leaders in Washington and the local politics of each member’s district, which often cut against what party leaders want.
For example, some Republicans represent heavily Republican districts and will be happy to go along with Trump’s agenda, regardless of how extreme it is. Others represent districts won by Kamala Harris in 2024 and might be more inclined to moderate their positions to keep their seats in 2026 and beyond. There admittedly aren’t many of this latter group; but likely enough to sink any party-line legislation Speaker Johnson has in mind.
Republicans managed to pass a hurried, stopgap spending bill on March 14, 2025 only by the skin of their teeth. Failing to do so would have driven the federal government into shutdown mode. Small margins, internal divisions and conflicting electoral pressures will continue to make legislating difficult over the next two years or more.
Thanks to these complications, it may be that congressional Republicans will continue to rely on the executive branch, including Elon Musk and the efforts at the Department of Government Efficiency, or DOGE, to do the policymaking for them, even if it means handing over their own legislative power to Trump.
This is an updated version of a story first published on Nov. 19, 2024.
This article is republished from The Conversation, a nonprofit, independent news organization bringing you facts and trustworthy analysis to help you make sense of our complex world. It was written by: Charlie Hunt, Boise State University
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Charlie Hunt does not work for, consult, own shares in or receive funding from any company or organization that would benefit from this article, and has disclosed no relevant affiliations beyond their academic appointment.
