The congressmen are mostly controlled by those same people, Q, meaning their major sources of funding, the corporate elite. That's done through providing campaign funds and through constant lobbying once the congressmen are in office. Money talks. Congress obeys. Congress is split into 2 "teams", just like 2 football teams, and they naturally play against one another whenever the game is on, because they both want to win, but the League owns BOTH teams, and the League is a consortium of big corporations and banks. The League doesn't particularly care which team wins the game as long as the public "buys tickets" (pays their taxes and continues believing in the bipartisan game).