Congress meets for three days in January every year to determine any additions and/or changes to the Cadet ministry, and set the course for the future of the organization. The primary business of Congress is to discuss and vote on proposals that come from the counselors (via their councils).
Who are the congressmen? They are counselors who are elected by their local council to represent their council at Congress. They are the "men in the trenches" who know how the tools and training of the ministry is utilized in the local club. Perhaps these men do not get a lot of recognition by worldly standards for their dedication to serving Him, but the Lord rejoices at their heart for bringing young men and boys before Him.