Money is power in American politics. It always has been.

The scandalous question that hangs over modern government and excites perpetual outrage is about political money and what it buys. What exactly do these contributors get in return for the hundreds of thousands, even millions of dollars they funnel to the politicians?

A newly elected representative quickly discovers that his job in government-aside from making new laws-is to act as a broker, middleman, special pleader and finagler.

Fellow senators balked at punishing Senator Alfonse D'Amato of New York though he was caught in a series of transactions that earned him the label "Senator Sleaze." D'Amato explained their reluctance as he defended his own behavior. "There but for the grace of God go most of my colleagues," he said.

Aside from sending someone to war or to prison, government s ability to make people involuntarily give over their money is its strongest exercise of authority over private citizens and their institutions.