Republicans appear unlikely to coalesce around a major legislative agenda ahead of the midterm elections, a dynamic underscored by a State of the Union speech this week that was light on congressional action items.

Congress always struggles to pass major bills in election years, and several factors make legislating more difficult for the GOP, which controls the House and Senate. One is the razor-thin majority in the House. Another is that President Donald Trump is not personally lobbying for ambitious legislation.

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