The term 'ADDRESS CONGRESS' can be summarized as the act of delivering a speech to Congress. ORATE, which is a five-letter solution to the crossword, means to deliver a formal speech in a public setting. This could refer to a politician or other public figure delivering a speech to Congress in order to inform them of a particular issue or to propose a new policy. It could also refer to a member of the public delivering a speech to Congress in order to express their opinion on a certain matter.