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NOBODY in the House of Representatives has more constituents than Denny Rehberg. With some 900,000 people in his district--which encompasses the whole state of Montana--his population base is almost 50 percent larger than that of the typical House member. To complicate matters further, only Don Young of Alaska represents a larger geographical area. "It's a real balancing act," says Rehberg, a Republican. "I find that there're three sides to every two-sided issue."
It would be a lot easier representing all of these citizens if congressmen actually represented citizens. But they don't, or at least not exclusively. Under the current rules of apportionment, the 435 ...