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Because most of the important bills are too complicated for the average voter to understand and make a rational decision about. Overhauling Social Security? The average publik skool grad couldn't begin to figure out which of various proposed programs would actually be an improvement over the current unsustainable mess. How many of them can even perform a simple discounted cash flow valuation? Much less comprehend and realistically evaluate the larger economic projections which would be necessary to determine the likely cash inflows and appropriate discount rate. Just listen to the shallow babblings of the various presidential candidates on this topic (including Bush), and you'll get a very clear picture of the level the average voter is capable of thinking at.