“I think anything that has a significant expansion or role for the federal government is going to be problematic,” South Dakota Sen. John Thune, a top Republican message strategist, told POLITICO. “Because I just think there’s going to be such a cynicism and skepticism attached to any promises made with regard to the federal government’s role.”

There are top tier bills for 2014 that even a divided Congress should pass. A new farm bill, another debt limit extension and appropriations to keep the government from shutting down again are already lined up for action early in the year. But none is expected to be a blockbuster.

“Some things are big enough that they have to happen,” said Sen. Jim Inhofe, an Oklahoma Republican at the center of several policy bills considered “must pass” that deal with the Pentagon, water infrastructure and highways.

But beyond those few imperatives, expectations are beyond low that President Barack Obama’s second term agenda will have much to do with legislating on anything comprehensive and much more to do with his own executive powers.