Herzl called the first Congress in 1897 with the aim of demonstrating to the world "what Zionism is and what it wants." The Congress was also created in order to unite all Zionists under one movement, a matter that had until then been beyond the reach of Jewish nationalist sympathizers. From then on, despite the secession of the Revisionists in 1935 to 1946, Congress served this function. It was to become the highest authority of the Zionist Organization.

Initially it met annually (1897-1901), then bi-annually (1903-13, 1921-39) and, following the end of the Second World War, irregularly. According to the Constitution of the WZO (1960), Congress should meet once every four years. However, it may be postponed by the Zionist General Council by reason of special or extraordinary circumstances. Since the creation of the State of Israel all Congresses have been held in Jerusalem.

An examination of the history of the Zionist Congress illuminates the ideological issues that confronted the movement, in particular the struggle over the realization of the Jewish national home. Following the creation of the State, Congress reflects the efforts of the Zionist Organization to find a new role for itself. In particular, problems of structure, democracy and ideology dominate its proceedings.