Washington

REP. ABNER J. Mikva's congressional tenure hangs by a thread the width of the minuscule margin of votes that sends him to Washington representing a suburban Cook County district. He is a liberal Democrat who has had to contend with an unceasing series of uncertainties — party leaders who wanted to redistrict him into early retirement; and now the constant challenge of commanding the support of his wealthy constituency.

Yet, contrary to all the customs of Capitol Hill, Mikva made a striking impression on the House in a relatively short period of time. Advancement is more easily accomplished by representatives of the many safe, one-party districts. Members build influence by patiently compiling seniority, making friends, and learning the system. But Mikva distinguished himself early on with an uncommon blend of intellect, superb lawyer's mastery of legislative details and tactics, and an ability to get along with members from other parts of the country.

Not being a regular organization insider, Mikva naturally became active in the Democratic Study Group (DSG), the liberal reformers' club. He also aligned himself with an emerging ambitious new leader. Rep. Phillip Burton of San Francisco. Two years ago, the DSG combined with the many younger Democratic members to put through several procedural reforms. Power was wrested from the senior committee chairmen. Some of it went to the caucus of all Democrats over which Burton presided. Some went to the speaker.

Most important, in terms of the internal politics of the Illinois delegation, control over other committee assignments was transferred from the Democratic members of the Ways and Means Committee (Dan Rostenkowski in Illinois) to the Democratic Steering and Policy Committee. The last speaker, Carl Albert, delegated one of his appointed seats on the steering committee to the Black Caucus, which gave it to a Chicagoan out of favor with the organization (Ralph Metcalfe), who helped put a second Illinoisan on the sought after Ways and Means Committee — none other than Mikva. This so upset the late Mayor Daley that he made another attempt to have Mikva redistricted out of business.

When the new Congress organized, Albert had retired and the former majority leader, Rep. Thomas P. O'Neill of Massachusetts, succeeded him. Burton ran for the floor leader's job that had been held by O'Neill.

But the seeds of institutional reform seem to grow better in a bed of adversity. When there is more at stake, the resistance to "democratizing" a place like the House is greater. With a Democratic administration in the White House there would be patronage and other prizes channeled through the congressional leadership.

This time the old guard hung together. No significant new internal reforms were adopted. And, by a single vote, Burton lost the leadership to Rep. Jim Wright of Texas. Wright and O'Neill then deputized Rep. John Brademas of Indiana and Rostenkowski of Illinois as the assistant party whips. Had one Democrat switched, making Burton the victor, Mikva and not Rostenkowski would have benefited.

Some of the seats on the steering committee are filled by regional elections. The Illinois region also takes in Indiana and Kentucky. Before the Burton-Wright contest was settled, Mikva decided to try for the seat on the steering committee. The regulars from Illinois put up Rep. Morgan Murphy of Chicago, a member of the Rules Committee and highly regarded by Daley. Illinois history has demonstrated that Democratic mavericks gain the respect of the machine only with a poke in the ribs every now and then, which is presumably what Mikva had in mind. He was also gambling on Burton. To prevail, Mikva had to capture most of the Democrats from the other two states. That might have happened if Burton had succeeded.

Instead, the Illinois regulars arranged with Brademas to have a third candidate, from Indiana, enter the competition. Mikva saw his support splintered — and Murphy won. Rostenkowski serves on the steering committee too by virtue of his deputy whip's title. So Rostenkowski and Murphy are in a position to outvote Metcalfe. Illinois Democratic committee assignments are once again safely back in the hands of the machine.

Wright pulled through with the assistance not only of the Chicago regulars but with many of the New York City Democrats as well. The new Democratic leadership team in the House could be a force to funnel more federal aid into the older central cities.

On the Republican side, the election of Rep. Tom Corcoran over Democrat Tim Hall in the 15th district (LaSalle-DeKalb-Aurora) reinforces Rep. Robert Michel's domination of the Illinois delegation. Michel of Peoria is the assistant Republican floor leader. The moderate wing of the state delegation, led by Rep. John Anderson of Rockford, who is chairman of the GOP caucus, constitutes a threat to Michel's control. Michel is a conservative, but he spreads the honors around enough to please the troops and retain his supremacy. For example, he rewarded Rep. Tom Railsback of Moline, one of his few Illinois supporters who is a moderate, by making him chairman of the delegation this year.