(government)in the nineteenth century, otto von bismarck, chancellor of germany, compared the making of "laws and sausages" because: presidents and prime ministers are inevitably less popular than legislatures. constitutions rarely serve a useful function in modern democracies. the conflict and compromise inherent in the legislative process make legislatures unattractive to most citizens. both sausage-making and the legislative process are difficult, but produce results pleasing to citizens.