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What Is Speech? 103 What Drives Participation? 183
Commercial and Youthful Speech 106 Political Participation Among Young People 185
5-3 The First Amendment and Freedom
of Religion 107 Chapter 9: Political Parties 189
The Free-Exercise Clause 108
9-1 What Is a Party? 190
The Establishment Clause 109
Political Parties at Home and Abroad 191
5-4 Crime and Due Process 111
9-2 The Rise and Decline of the Political
The Exclusionary Rule 111
Party 192
Search and Seizure 112
The Founding 192
Confessions and Self-Incrimination 114
The Jacksonians 193
Relaxing the Exclusionary Rule 115
The Civil War and Sectionalism 193
Terrorism and Civil Liberties 115
The Era of Reform 195
Searches Without Warrants 117
Polarization and Resurgence 195
Chapter 6: Civil Rights 121 Party Realignments 197
9-3 The Functions of Political Parties 197
6-1 Race and Civil Rights 122 Recruiting Candidates 197
The Campaign in the Courts 125 Nominating Candidates 198
The Campaign in Congress 131 Helping Candidates Win Elections 201
6-2 Women and Equal Rights 134 9-4 Parties as Organizations 201
Women’s Rights and the Supreme Court 136 The National Parties 202
Sexual Harassment 137 State and Local Parties 202
Privacy and Sex 137 9-5 Parties in the Electorate: Partisanship 203
6-3 Affirmative Action 138 9-6 The Two-Party System 206
Equality of Results 139 Minor Parties 208
Equality of Opportunity 139
6-4 Gay Rights 143
Elections and
Chapter 10:
6-5 Looking Back—and Ahead 145 Campaigns 213

Here and Abroad 215
Part II Opinions, Interests, and Organizations 151
10-1 Presidential Elections: Winning the
Chapter 7: Public Opinion 152 Nomination 216
10-2 How Does the Campaign Matter? 217
7-1 What Is Public Opinion? 154 Assigning Credit or Blame
How Do We Measure Public Opinion? 155 for the State of the Nation 217
7-2 What Drives Opinion? 156 Activating Latent Partisanship 219
Political Socialization and the Family 156 Judging the Candidates’ Character 220
Demographic Factors 158 10-3 How Do Voters Learn About the Candidates? 221
Political Partisanship and Ideology 163 Campaign Communications 221
7-3 Political Information and Public Opinion 166 Campaign Events 225
7-4 Public Opinion and Public Policy 167 10-4 Building a Winning Coalition 227
10-5 Congressional Elections 229
Chapter 8: Political Participation 171 The Incumbency Advantage 229
8-1 A Close Look at Nonvoting 172 Redistricting and Gerrymandering 230

8-2 The Rise of the American Electorate 176 On-Year and Off-Year Elections 231
From State to Federal Control 177 10-6 Campaign Finance: Regulating the Flow of
Political Money 232
Voter Turnout 180
The Sources of Campaign Money 232
8-3 Who Participates in Politics? 182
Campaign Finance Rules 233
Forms of Participation 183
Copyright 2017 Cengage Learning. All Rights Reserved. May not be copied, scanned, or duplicated, in whole or in part. Due to electronic rights, some third party content may be suppressed from the eBook and/or eChapter(s).
Editorial review has deemed that any suppressed content does not materially affect the overall learning experience. Cengage Learning reserves the right to remove additional content at any time if subsequent rights restrictions require it.
10-7 The Effects of Elections on Policy 239 Part III Institutions of Government 295
Chapter 11: Interest Groups 244 Chapter 13: Congress 296

11-1 The Rise of Interest Groups 246 13-1 Congress Versus Parliament 299
11-2 Kinds of Organizations 247 13-2 The Evolution of Congress 301
Institutional Interests 248 13-3 Who Is in Congress? 305
Membership Interests 249 Gender and Race 305
Upper-Class Bias? 252 Incumbency 306
11-3 Interest Groups and Social Movements 253 Party 309
The Feminist Movement 254 Representation and Polarization 310
11-4 The Activities of Interest Groups 255 Organizational View 311
Lobbying and Providing Information 256 Attitudinal View 312
Earmarks 257 13-4 The Organization of Congress: Parties and
Public Support: The Rise of the New Politics 257 Interests 312
Money and PACs 258 Party Organizations 313
The “Revolving Door” 260 Party Voting 314
Civil Disobedience 261 The Organization of Congress: Committees 315
Which Groups and Strategies Are Most Effective? 262 The Organization of Congress: Staffs and Specialized
Offices 317
11-5 Regulating Interest Groups 263
13-5 How a Bill Becomes Law 319
Chapter 12: The Media 268 Introducing a Bill 319
Study by Committees 320
12-1 The Media and Politics 269 Floor Debate 321
Journalism in American Political History 271 Methods of Voting 322
Covering Politicians 274 Legislative Productivity 324
12-2 Where Do Americans Get Their News? Does 13-6 Reforming Congress 325
This Matter? 276
Media Choice and Political Knowledge 278 Chapter 14: The Presidency 331
Do People Hear Both Sides of the Issues? 278
Can People Get Local News? 279 14-1 Presidents and Prime Ministers 332
12-3 Media Effects 280 Presidents Are Often Outsiders 333
Setting the Public Agenda 280 Presidents Choose Cabinet Members from Outside
Congress 333
Framing 281
Presidents Have No Guaranteed Majority in the
The Media as Watchdog: Political
Legislature 333
Accountability 281
Presidents May Face Divided Government 334
Can the Media Lead Us Astray? 282
14-2 The Powers of the President 336
Are There Limits to Media Power? 284
Constitutional Powers 336
12-4 Is the Media Trustworthy and
Unbiased? 284 The Evolution of the Presidency 338
Is the Media Biased? 285 Concerns of the Founders 338
12-5 Government Regulation of the The First Presidents 340
Media 286 The Jacksonians 341
Confidentiality of Sources 287 The Reemergence of Congress 342
Regulating Broadcasting and Ownership 289 14-3 The Power to Persuade 344
Regulating Campaigning 291 The Three Audiences 344
Popularity and Influence 345
vi
The Decline in Popularity 348 16-4 The Supreme Court in Action 416
The Power to Say No 348 The Power of the Federal Courts 417
14-4 Presidential Character, Organization, Checks on Judicial Power 421
and Policymaking 352
Presidential Personality and Leadership Style 352 Part IV Public Policy and American Democracy 427
The Office of the President 354
Chapter 17: Domestic Policy 428
The President’s Program 360
14-5 Presidential Transition 363 17-1 Policymaking Politics Revisited 430
The Vice President 364 17-2 Social Welfare Policy 431
Problems of Succession 365 From the New Deal to the New Health Care Law 432
Impeachment 365 Two Kinds of Social Welfare Programs 435
How Powerful Is the President? 366 17-3 Business Regulation Policy 445
Antitrust Laws: Majoritarian Politics 445
Chapter 15: The Bureaucracy 371 Labor and Occupational Health and Safety: Interest-Group
Politics 446
15-1 Distinctiveness of the American Agriculture Subsidies: Client Politics 447
Bureaucracy 372
Consumer and Environmental Protection: Entrepreneurial
American Constitutionalism
Politics 449
and the Federal Bureaucracy 373
17-4 Environmental Policy 452
Proxy Government 373
The Politics of “Cap and Trade” 452
15-2 The Evolution of the Federal Bureaucracy 374
Environmental Policy in America: Three Distinctive
The Appointment of Officials 375
Features 453
A Service Role 375
17-5 Beyond Domestic Policy 458
A Change in Role 376
15-3 The Federal Bureaucracy Today 377 Chapter 18: Economic Policy 461
Recruitment and Retention 380
18-1 The Economy and Elections 463
Personal Attributes 382
What Politicians Try to Do 464
Do Bureaucrats Sabotage Their Political Bosses? 384
Public Opinion and Government Spending 465
Culture and Careers 385
18-2 Economic Theories and Political Needs 467
Constraints 385
Monetarism 467
15-4 Checks, Problems, and Possibilities for
Reform 387 Keynesianism 467
Checks 387 Planning 467
Bureaucratic “Pathologies” 391 Supply-Side Economics 468
Reforming the Bureaucracy 393 18-3 The Machinery of Economic Policymaking 468
The Federal Reserve System 469
Chapter 16: The Judiciary 398 Congress 469
Globalization 472
16-1 Judicial Review 401 Income Inequality 472
16-2 The Development of the Federal Courts 402 18-4 The Budget, Spending, and Taxes 473
National Supremacy and Slavery 402
Reducing Spending 474
Government and the Economy 403
Levying Taxes 476
Government and Political Liberty 404
The Revival of State Sovereignty 406 Foreign and Military
Chapter 19:
16-3 The Structure, Jurisdiction, and Operation Policy 481
of the Federal Courts 407
Selecting Judges 408 19-1 Kinds of Foreign Policy 483
The Jurisdiction of the Federal Courts 411 19-2 The Constitutional and Legal Context 484
Getting to Court 413 Presidential Box Score 484
vii
Evaluating the Power of the President 486 20-2 Government Growth: Influences and
Checks on Presidential Power 487 Consequences 517
19-3 Making Foreign Policy 489 The Influence of Structure 517
Political Elites 489 The Influence of Ideas 518
Public Opinion 490 Consequences of Government Growth 519
Mass Versus Elite Opinion 492 20-3 American Democracy—Then, Now, and Next 521
Cleavages Among Foreign Policy Elites 493 Then 521
19-4 The Politics of Foreign Affairs: Military Action, Now 521
Defense Policy, and the Future 497
Military Action 497
Appendixes
Building Support for U.S. Military Action 503 The Declaration of Independence A1
Defense Policy 503 The Constitution of the United States A3
The Structure of Defense Decision Making 508 A Brief Guide to Reading the Federalist Papers A18
The Future of American Foreign Policy 509 The Federalist No. 10 A20
American Democracy,
Chapter 20: The Federalist No. 51 A25
Then and Now 511 Glossary G1

20-1 The Old Versus the New System 514 Notes N1
The Old System 514
The New System 515 Index I1
viii
Letter to Instructors...
Dear American Government Instructor:
We wrote American Government: Institutions and Policies, 15e not only to explain to students how
the federal government works, but also to clarify how its institutions have developed over time and
describe their effects on public policy. Within this distinguishing framework, we explain the history of
Congress, the presidency, the judiciary, and the bureaucracy because the politics we see today are dif-
ferent from those we would have seen a few decades ago. Likewise, we also explain how public opinion,
elections, interest groups, and the media shape and contribute to policy, and how that influence has
evolved over time.
American Government: Institutions and Policies, 15e is written around certain key ideas that help
students understand not simply American government, but the reasons why the government in this coun-
try is different from those in other democracies. These ideas are the U.S. Constitution, America’s adver-
sarial political culture, and a commitment to freedom and limited government. This book is an attempt to
explain and give the historical and practical reasons for these differences.
New to This Edition

And as always, the book is thoroughly revised to excite students’ interest about the latest in American pol-
itics and encourage critical thinking. Updates reflect the latest scholarship and current events, including
2015 Supreme Court rulings on gay marriage and health care; the 2014 elections and the 2016 presiden-
tial race; ongoing debates about the federal budget, immigration, taxes, and other key issues in Ameri-
can politics; and foreign-policy decisions on Iran, Russia, and Syria. Reworked Learning Objectives open,
organize, and close each chapter, serving as a road map to key concepts and helping students assess their
comprehension. Each chapter now contains a “Constitutional Connections” box to help students connect
the topic to the nation’s founding, “What Would You Do?” to deal with a real-life controversy, and “Policy
Dynamics: Inside/Outside the Box” to apply our framework for understanding public policy to various
issues. More visual aids are included throughout, including infographic inside covers, new figures, and a
striking new design.
We are also excited to have Matthew S. Levendusky of the University from Pennsylvania onboard as
a new coauthor. Matt’s expertise in areas including political polarization and the mass media, public opin-
ion, and campaigns and elections has been a great asset to this edition.
MindTap
MindTap™ Political Science for Wilson, American Government: Institutions and Policies, 15e is the
digital learning solution that helps instructors engage and transform today’s students into critical think-
ers. Through paths of dynamic assignments and applications that you can personalize, real-time course
analytics, and an accessible reader, MindTap helps you turn cookie cutter into cutting edge, apathy into
engagement, and memorizers into higher-level thinkers. Access to this product is valid for 6 months of
usage. The product can be used fully online with its interactive eBook, or in conjunction with the print
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Code (9781305575868) for the product.
ix
We hope this book helps your students grapple with the fundamental questions of American
overnment, and understand who governs and to what ends. And we hope it inspires them to continue
g
their engagement with the exciting and dynamic world of American politics.
Sincerely,
John J. DiIulio, Jr.
Meena Bose
Meena.Bose@hofstra.edu
Matthew S. Levendusky
mleven@sas.upenn.edu
Letter To Students...
Dear Student:
Welcome to American Government: Institutions and Policies, 15e! We wrote the textbook to help you
grapple with two of the fundamental questions of American government and politics: who governs and
to what ends? The textbook will help you to answer these questions, and to better understand how the
structure of American government determines the policies that we see. The features we include—from
learning objectives, to constitutional connections, to policy dynamics, and what would you do—will help
you to master key concepts and topics, and apply them from the classroom to everyday political life.
• Learning Objectives open and close each chapter, serving as a road map to the book’s key concepts
and helping you to assess your understanding.
• Now and Then chapter-opening vignettes offer attention-grabbing looks at a particular topic in the
past and in the present, reinforcing the historical emphasis of the text and applying these experiences
to the world around you today.
• Constitutional Connections features raise analytical issues from the constitutional debates that
remain relevant today.
• Policy Dynamics: Inside/Outside the Box features present policy dynamics and encourage you to
think about where they belong within American Government’s classic politics of policymaking frame-
work, which is introduced in Chapter 1.
• Landmark Cases provide brief descriptions of important Supreme Court cases.
• How We Compare features show how other nations around the world structure their governments and
policies, and ask you to think about the consequences of these differences with American democracy.
• How Things Work boxes summarize key concepts and important facts that facilitate your comprehen-
sion of the political process.
• What Would You Do? features place you in the role of a decision maker on realistic contemporary
policy debates.
• To Learn More sections close each chapter with carefully selected Web resources and classic and
contemporary suggested readings to further assist you in learning about American politics.
In addition, MindTap is new.
The Benefits of Using MindTap As a Student

MindTap™ Political Science for Wilson, American Government Institutions and Policies, 15e provides you with the
tools you need to better manage your limited time. You can complete assignments whenever and wherever
you are ready to learn with course material specially customized for you by your instructor and streamlined in
one proven, easy-to-use interface. With an array of tools and apps—from note taking to flashcards—you’ll get
a true understanding of course concepts, helping you to achieve better grades and setting the groundwork for
your future courses. Access to this product is valid for 6 months of usage.
xi
We hope all of these resources help you to master the material in the course and have a richer understand-
ing of American government and democracy. We also hope that this textbook encourages you to continue
your intellectual journey in American politics, and that understanding how the political process functions will
inspire you to become involved in some way. How will you shape who governs and to what ends?
Sincerely,
Meena Bose
Meena.Bose@hofstra.edu
mleven@sas.upenn.edu
xii
Resources for Students
and Instructors
Students…
Access your American Government: Institutions and
Policies, 15e resources by visiting www.cengage
brain.com/shop/isbn/9781305500051
If you purchased MindTap access with your book,
enter your access code and click “Register.” You can
also purchase the book’s resources here separately
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Log in using your Cengage Learning single sign-on
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MindTap for
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ISBN for Instant Access Code: 9781305575851 | ISBN
for Printed Access Code: 9781305575868
MindTap for American Government: Institutions and
Policies, 15e is a highly personalized, fully online learn-
ing experience built upon Cengage Learning content and
correlating to a core set of learning outcomes. MindTap
guides students through the course curriculum via an
innovative Learning Path Navigator where they will
complete reading assignments, challenge themselves
with focus activities, and engage with interactive quiz-
zes. Through a variety of gradable activities, MindTap
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events through RSS feeds. The product can be used fully online with
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xiii
Instructor Companion Website and a chapter summary. Additionally, the Instructor’s Manual
features a critical thinking question, lecture-launching sug-
for American Government: gestion, and an in-class activity for each Learning Objective.
The Microsoft® PowerPoint® presentations are ready-
Institutions and Policies, 15e— to-use, visual outlines of each chapter. These presenta-
for instructors only tions are easily customized for your lectures and offered
along with chapter-specific Microsoft® PowerPoint®
ISBN: 9781305504684 Image Slides. Access the Instructor Companion Website
This Instructor Companion Website is an all-in-one multi- at www.cengage.com/login.
media online resource for class preparation, presentation,
and testing. Accessible through Cengage.com/login with IAC Cognero for American Government:
your faculty account, you will find available for download: Institutions and Policies, 15e
book-specific Microsoft® PowerPoint® presentations; a ISBN: 9781305500099
Test Bank compatible with multiple learning management
systems (LMSs); an Instructor Manual; and Microsoft® Cengage Learning Testing Powered by Cognero is a
PowerPoint® Image Slides. flexible, online system that allows you to author, edit,
The Test Bank—offered in Blackboard, Moodle, and manage Test Bank content from multiple Cengage
Desire2Learn, Canvas, and Angel formats—contains Learning solutions; create multiple test versions in an
Learning Objective–specific multiple-choice and essay instant; and deliver tests from your LMS, your class-
questions for each chapter. Import the Test Bank into your room, or wherever you want. The Test Bank for American
LMS to edit and manage questions, and to create tests. Government: Institutions and Policies, 15e, contains
The Instructor’s Manual contains chapter-specific Learning Objective–specific multiple-choice and essay
Learning Objectives, an outline, key terms with definitions, questions for each chapter.
xiv
Acknowledgments
Additional thanks go to Marc Siegal, Jesse Crosson, and Taylor Nefussy for their research assistance;
Matthew Howell of Eastern Kentucky University for his revision of the Test Bank; Robert Carroll of
East-West University for his revision of the Instructor’s Manual and PowerPoint lecture; and Eugene Chase
of Edmond Public Schools for creating the AP Edition’s Fast Track to a Five.
We would also like to thank our team at Cengage Learning: Carolyn Merrill, Product Team M anager;
Joanne Dauksewicz, Managing Developer; Rebecca Green and Laura Hildebrand, Senior Content Developers;
Cathy Brooks, Senior Content Project Manager; Valerie Hartman, Marketing Manager; Milica G olubovic,
Digital Content Designer; Emily Hickey, Senior Learning Design Author; Jessica Wang-Strykowski, Associate
Content Developer; and Michelle Forbes, Product Assistant.
Reviewers
We would also like to thank the instructors who have contributed their valuable feedback through reviews
of this text:
New Reviewers: Ethan Fishman, University of South Alabama

Glenn David Garrison, Collin County Community
James Brent, Arkansas State University–Beebe
College–Spring Creek Campus
Teddy Davis, Arkansas State University–Beebe
Richard Grubbs, R.L. Paschal High School
Cyril Ghosh Wagner College
Jeff Harmon, University of Texas at San Antonio
Vanessa Lal, Adlai E. Stevenson High School
Kathleen C. Hauger, Abington Senior High School
Elizabeth Prough, Madonna University
Stephen Kerbow, Southwest Texas Junior College
Greg Rabb, Jamestown Community College
Halima Asghar Khan, Massasoit Community College
Lelia Roeckell, Molloy College
Young-Choul Kim, University of Evansville
Brian Stevens, Coldwater High School
Junius H. Koonce, Edgecombe Community College
Linda Trautman, Ohio University–Lancaster
William Lester, Jacksonville State University
Previous Edition Reviewers: Brad Lockerbie, University of Georgia
Philip Aka, Chicago State University Randall McKeever, Forney ISD
Lucas Allen, Michigan State University Marvin Overby, University of Missouri
Roger Ashby, Peace College Anne F. Presley, McKinney High School
Michael Baranowski, Northern Kentucky University Gayle Randolph, Neosho County Community
Chuck Brownson, Stephen F. Austin High School College
Dr. Robert Carroll, East-West University Donald Ranish, Antelope Valley College
Jack Citrin, University of California, Berkeley Jonathan Roberts, Portland, Oregon, schools
Zach Courser, Boston College P. S. Ruckman, Rock Valley College
Albert Cover, Stony Brook University Erich Saphir, Pima Community College
Stan Crippen,Riverside County Office of Education Rebecca Small, Herndon High School
Gregory Culver, University of Southern Indiana Randall Smith, Naperville Central High School
Nicholas Damask, Scottsdale Community College Greg Snoad, Mauldin High School
Virgil H. Davis, Pellissippi State Community College Jennifer Walsh, Azusa Pacific University
Jenna P. Duke, Lehigh Carbon Community College David Wigg, St. Louis Community College
Matthew Eshbaugh-Soha, University of North Texas Teresa Wright, California State University–Long
Terri Fine, University of Central Florida Beach
xv
About the Authors
James Q. Wilson
James Q. Wilson most recently taught at Boston College and Pepperdine University. He was Professor
Emeritus of Management and Public Administration at the University of California Los Angeles and was
previously Shattuck Professor of Government at Harvard University. He had written more than a dozen
books on the subjects of public policy, bureaucracy, and political philosophy. Dr. Wilson was president of
the American Political Science Association (APSA), and he is the only political scientist to win three of the
four lifetime achievement awards presented by the APSA. He received the Presidential Medal of Freedom,
the nation’s highest civilian award, in 2003. Dr. Wilson passed away in March 2012 after battling cancer.
His work helped shape the field of political science in the United States. His many years of service to his
American Government book remain evident on every page and will continue for many editions to come.

John J. DiIulio, Jr. is a Professor of Political Science at the University of Pennsylvania and has won each
of Penn’s most prestigious teaching awards. He was previously Professor of Politics and Public Affairs at
Princeton University. Dr. DiIulio received his Ph.D. in Political Science from Harvard University. He has
been a senior fellow and directed research programs at several leading think tanks, including the Brook-
ings Institution, and has won awards from the Association of Public Policy Analysis and Management, the
APSA, and other bodies. Dr. DiIulio has advised presidential candidates in both parties, served on biparti-
san government reform commissions, and worked as a senior staff member in the White House.
Meena Bose
Meena Bose is director of the Peter S. Kalikow Center for the Study of the American Presidency,
Peter S. Kalikow Chair in Presidential Studies, and Professor of Political Science at Hofstra University. She
received her Ph.D. (1996) from Princeton University. Dr. Bose teaches such courses as American Presi-
dency, Presidential Leadership and Policy Making, and A merican Politics. She is the author or editor of
several volumes in presidency studies and American politics. Dr. Bose taught for six years at the United
States Military Academy at West Point.
Matthew S. Levendusky is Associate Professor of Political Science at the University of Pennsylvania.
He received his Ph.D. from Stanford University (2006). Dr. Levendusky teaches courses in public opinion,
campaigns and elections, policymaking, and political polarization. He has written two books on political
polarization and the mass media, both published with the University of Chicago Press.
xvi
Pa r t
1
The American System

1 The Study of American Government 2
2 The Constitution 21
3 Federalism 49
4 American Political Culture 76
5 Civil Liberties 95
6 Civil Rights 121
In framing a government which is to be administered by men over men,

the great difficulty lies in this: You must first enable the government to
control the governed; and in the next place oblige it to control itself.
— Federalist No. 51
Orhan Cam/ShutterStock.com
Chapter 1
The Study of American
Government
Learning Objectives
1-1 Explain how politics drives democracy.
1-2 Discuss five views of how political power is distributed in the
United States.
1-3 E xplain why “who governs” and “to what ends” are fundamental
questions in American politics.
1-4 Summarize the key concepts for classifying the politics of
different policy issues.
1-1 Politics and Democracy 3
Today, Americans and their elected leaders are hotly arithmetic: either spend
debating the federal government’s fiscal responsibilities, and borrow less, or tax issue A conflict, real or
apparent, between the
for both spending and taxation. more, or both. But now
interests, ideas, or beliefs
Some things never change. ask: Spend or borrow
of different citizens.
less for what, and raise
Then taxes on whom, when,
In 1786, a committee of Congress reported that since how, and by how much? For example, should we cut
the Articles of Confederation were adopted in 1781, the the defense budget but continue to fund health care pro-
state governments had paid only about one-seventh grams, or the reverse? Or should we keep defense and
of the monies requisitioned by the federal government. health care funding at current levels but reduce spend-
The federal government was broke and sinking deeper ing on environmental protection or homeland security?
into debt, including debt owed to foreign governments. Should we perhaps increase taxes on the wealthy (define
Several states had financial crises, too. wealthy) and cut taxes for the middle class (define middle
In 1788, the proposed Constitution’s chief architect, class), or . . . what?
James Madison, argued that while the federal govern- Then, as now, the fundamental government finance
ment needed its own “power of taxation” and “collectors problems were political, not mathematical. People dis-
of revenue,” its overall powers would remain “few and agreed not only over how much the federal government
defined” and its taxing power would be used sparingly.1 should tax and spend, but also over whether it should
In reply, critics of the proposed Constitution, including the involve itself at all in various endeavors. For example,
famous patriot Patrick Henry, mocked Madison’s view in 2011, the federal government nearly shut down, not
and predicted that if the Constitution were ratified, there mainly over disagreements between the two parties about
would over time be “an immense increase of taxes” spent how much needed to be cut from the federal budget (in
by an ever-growing federal government.2 the end, the agreed-to cuts totaled $38.5 billion), but pri-
marily over whether any federal funding at all should go
Now to certain relatively small-budget federal health, environ-
mental, and other programs.
The federal budget initially proposed for 2016 called for Fights over taxes and government finances; battles
spending almost $4 trillion, with close to a $500 billion over abortion, school prayer, and gay rights; disputes
deficit (i.e., spending nearly half a trillion more than pro- about where to store nuclear waste; competing plans
jected government revenues). An expected national debt on immigration, international trade, welfare reform, envi-
of more than $19 trillion, much of it borrowed from foreign ronmental protection, or gun control; and contention
nations, was projected to balloon to $26 trillion by 2025. surrounding a new health care proposal. Some of these
Projected interest on the national debt in 2016 would be matters are mainly about money and economic interests;
nearly $300 billion, and was expected to triple by 2025.3 others are more about ideas and personal beliefs. Some
The Budget Control Act of 2011 had called for long- people care a lot about at least some of these matters;
term deficit reduction, but when the White House and others seem to care little or not at all.
Congress could not reach agreement in 2013, automatic Regardless, all such matters and countless others
spending cuts—known as “sequestration”—went into have this in common: each is an issue, defined as a con-
effect, and the federal government even shut down for flict, real or apparent, between the interests, ideas, or
16 days in October 2013. The two branches ultimately beliefs of different citizens.4
produced the Bipartisan Budget Act of 2013, but could An issue may be more apparent than real; for exam-
not find common ground on questions about long-term ple, people might fight over two tax plans that, despite
revenue and spending goals. superficial differences, would actually distribute tax bur-
So, in the 1780s, as in the 2010s, nearly everyone dens on different groups in exactly the same way. Or an
agreed that government’s finances were a huge mess issue may be as real as it seems to the conflicting par-
and that bold action was required, and soon; but in each ties, as, for example, it is in matters that pose clear-cut
case, then and now, there was no consensus about what choices (high tariffs or no tariffs; abortion legal in all cases
action to take, or when. or illegal in all cases).
And an issue might be more about conflicts over
1-1 Politics and Democracy means than over ends. For example, on health care reform
or other issues, legislators who are in the same party and
This might seem odd. After all, it may appear that the have similar ideological leanings (like a group of liberal
government’s financial problems, including big budget Democrats, or a group of conservative Republicans)
deficits and revenue shortfalls, could be solved by simple might agree on objectives but still wrangle bitterly with
4 Chapter 1 The Study of American Government
each other over differ- and government. Our goal in this textbook is to develop,
politics The activity by ent means of achiev- enliven, and inform that interest through examining con-
which an issue is agitated or
ing their goals. Or they cepts, interests, and institutions in American politics from
settled.
might agree on both a historical perspective as well as through current policy
power The ability of one ends and means but dif- debates.
person to get another person fer over priorities (which
to act in accordance with the goals to pursue first),
first person’s intentions. timing (when to pro-

Power, Authority, and Legitimacy
authority The right to use ceed), or tactics (how to Politics, and the processes by which issues are normally
power. proceed). agitated or settled, involves the exercise of power. By
Whatever form issues power we mean the ability of one person to get another
take, they are the raw person to act in accordance with the first person’s inten-
materials of politics. By politics we mean “the activity— tions. Sometimes an exercise of power is obvious, as
negotiation, argument, discussion, application of force, when the president tells the Air Force that it cannot build
persuasion, etc.—by which an issue is agitated or set- a new bomber, or orders soldiers into combat in a for-
tled.”5 There are many different ways that any given issue eign land. Other times an exercise of power is subtle, as
can be agitated (brought to attention, stimulate conflict) when the president’s junior speechwriters, reflecting
or settled (brought to an accommodation, stimulate con- their own evolving views, adopt a new tone when writing
sensus). And there are many different ways that govern- about controversial issues such as education policy. The
ment can agitate or settle, foster or frustrate p olitical speechwriters may not think they are using power—
conflict. after all, they are the president’s subordinates and may
As you begin this textbook, this is a good time to ask see their boss face-to-face infrequently. But if the presi-
yourself which issues matter to you. Generally speaking, dent speaks the phrases that they craft, then they have
do you care a lot, a little, or not at all about economic used power.
issues, social issues, or issues involving foreign policy Power is found in all human relationships, but we are
or military affairs? Do you follow any particular, ongoing concerned here only with power as it is used to affect
debates on issues such as tightening gun control laws, who will hold government office and how government
expanding health care insurance, regulating immigration, will behave. We limit our view here to government, and
or funding antipoverty programs? chiefly to the American federal government. However,
As you will learn in Part II of this textbook, some citi- we pay special attention repeatedly to how things once
zens are quite issue-oriented and politically active. They thought to be “private” matters become “public”—that
vote and try to influence others to vote likewise; they join is, how they manage to become objects of governmen-
political campaigns or give money to candidates; they tal action. Indeed, as we discuss more later, one of the
keep informed about diverse issues, sign petitions, advo- most striking transformations of American politics has
cate for new laws, or communicate with elected leaders; been the extent to which, in recent decades, almost
and more. every aspect of human life has found its way onto the
But such politically attentive and engaged citizens are political agenda.
the exception to the rule, most especially among young People who exercise political power may or may not
adult citizens under age 30. According to many experts, have the authority to do so. By authority we mean the
ever more young Americans are closer to being “politi- right to use power. The exercise of rightful power—that is,
cal dropouts” than they are to being “engaged citizens” of authority—is ordinarily easier than the exercise of
(a fact that is made no less troubling by similar trends power not supported by any persuasive claim of right.
in the United Kingdom, Canada, Scandinavia, and else- We accept decisions, often without question, if they are
where).6 Many high school and college students believe made by people who we believe have the right to make
getting “involved in our democracy” means volunteer- them; we may bow to naked power because we cannot
ing for community service, but not voting.7 Most young resist it, but by our recalcitrance or our resentment we
Americans do not regularly read or closely follow political put the users of naked power to greater trouble than the
news; and most know little about how government works wielders of authority. In this book, we on occasion speak
and exhibit no “regular interest in politics.”8 In response to of “formal authority.” By this we mean that the right to
such concerns, various analysts and study commissions exercise power is vested in a governmental office. A pres-
have made proposals ranging from compulsory voting to ident, a senator, and a federal judge have formal authority
enhanced “civic education” in high schools.9 to take certain actions.
The fact that you are reading this textbook tells us What makes power rightful varies from time to time
that you probably have some interest in American politics and from country to country. In the United States, we
1-1 Politics and Democracy 5
usually say a person has political authority if his or her

right to act in a certain way is conferred by a law or by
a state or national constitution. But what makes a law
or constitution a source of right? That is the question of
legitimacy. In the United States, the Constitution
today is widely, if not unanimously, accepted as a
source of legitimate authority, but that was not always
the case.
Matthew Chattle/Alamy
Defining Democracy
On one matter, virtually all Americans seem to agree:
no exercise of political power by government at any
level is legitimate if it is not in some sense democratic.
Protestors around the world express support for the pro-democracy
That wasn’t always the prevailing view. In 1787, as the
movement in Hong Kong.
Framers drafted the Constitution, Alexander Hamilton
worried that the new government he helped create The second defini-
might be too democratic, while George Mason, who tion of democracy is the legitimacy Political
authority conferred by law
refused to sign the Constitution, worried that it was not principle of governance
or by a state or national
democratic enough. Today, however, almost everyone of most nations that are
constitution.
believes that democratic government is the only proper called democratic. It was
kind. Most people believe that American government is most concisely stated democracy The rule of the
democratic; some believe that other institutions of pub- by economist Joseph many.
lic life—schools, universities, corporations, trade unions, Schumpeter: “The dem- direct or participatory
churches—also should be run on democratic principles ocratic method is that democracy A government
if they are to be legitimate; and some insist that promot- institutional arrangement in which all or most citizens
ing democracy abroad ought to be a primary purpose of for arriving at political participate directly.
U.S. foreign policy. decisions in which indi-
representative democracy
Democracy is a word with at least two different viduals [i.e., leaders] A government in which
meanings. First, the term democracy is used to acquire the power to leaders make decisions
describe those regimes that come as close as pos- decide by means of a by winning a competitive
sible to Aristotle’s definition—the “rule of the many.” 10 competitive struggle for struggle for the popular
A government is democratic if all, or most, of its the people’s vote.”11 vote.
c itizens participate directly in either holding office
Sometimes this method
or making policy. This often is called direct or is called, approvingly, representative democracy; at
p articipatory d emocracy. In Aristotle’s time— other times it is referred to, disapprovingly, as the elitist
Greece in the 4th century b . c .—such a government theory of democracy. It is justified by one or both of two
was possible. The Greek city-state, or polis, was arguments. First, it is impractical, owing to limits of time,
quite small, and within it citizenship was extended to information, energy, interest, and expertise, for the public at
all free adult male property holders. (Slaves, women, large to decide on public policy, but it is not impractical to
minors, and those without property were excluded expect them to make reasonable choices among compet-
from participation in government.) In more recent ing leadership groups. Second, some people (including, as
times, the New England town meeting approximates we shall see in the next chapter, many of the Framers of the
the Aristotelian ideal. In such a meeting, the adult citi- Constitution) believe direct democracy is likely to lead to
zens of a community gather once or twice a year to bad decisions because people often decide large issues on
vote directly on all major issues and expenditures of the basis of fleeting passions and in response to popular
the town. As towns have become larger and issues demagogues. This concern about direct democracy per-
more complicated, many town governments have sists today, as evidenced by the statements of leaders who
abandoned the pure town meeting in favor of either disagree with voter decisions. For example, voters in many
the representative town meeting (in which a large states have rejected referenda that would have increased
number of elected representatives, perhaps 200– public funding for private schools. Politicians who oppose
300, meet to vote on town affairs) or representative the defeated referenda speak approvingly of the “will of the
government (in which a small number of elected city people,” but politicians who favor them speak disdainfully
councilors make decisions). of “mass misunderstanding.”
6 Chapter 1 The Study of American Government
Whenever we refer to that form of democracy involv- (through speeches or the press, in meetings, and on
ing the direct participation of all or most citizens, we use the Internet) be free; and that the voters perceive that a
the term direct or participatory democracy. Whenever the meaningful choice exists. But what, exactly, constitutes a
word democracy is used alone in this book, it will have “meaningful choice”? How many offices should be elec-
the meaning Schumpeter gave it. Schumpeter’s defini- tive and how many appointive? How many candidates or
tion usefully implies basic benchmarks that enable us parties can exist before the choices become hopelessly
to judge the extent to which any given political system confused? Where will the money come from to finance
is democratic.12 A political system is nondemocratic to electoral campaigns? There are many answers to such
the extent that it denies equal voting rights to part of its questions. In some European democracies, for example,
society and severely limits (or outright prohibits) “the civil very few offices—often just those in the national or local
and political freedoms to speak, publish, assemble, and legislature—are elective, and much of the money for cam-
organize,”13 all of which are necessary to a truly “com- paigning for these offices comes from the g overnment.
petitive struggle for the people’s vote.” A partial list of In the United States, many offices—executive and judi-
nondemocratic political systems would include absolute cial as well as legislative—are elective, and most of the
monarchies, empires, military dictatorships, authoritarian money the candidates use for campaigning comes from
systems, and totalitarian states.14 industry, labor unions, and private individuals.
Scholars of comparative politics and government Some people have argued that the virtues of direct
have much to teach about how different types of politi- or participatory democracy can and should be reclaimed
cal systems—democratic and nondemocratic—arise, even in a modern, complex society. This can be done
persist, and change. For our present purposes, however, either by allowing individual neighborhoods in big cities
it is most important to understand that America itself to govern themselves (community control) or by requir-
was once far less democratic than it is today and that ing those affected by some government program to par-
it was so not by accident but by design. As we discuss ticipate in its formulation (citizen participation). In many
in the next chapter, the men who wrote the Constitution states, a measure of direct democracy exists when
did not use the word democracy in that document. They voters can decide on referendum issues—that is, policy
wrote instead of a “republican form of government,” but choices that appear on the ballot. The proponents of
by that they meant what we call “representative democ- direct democracy defend it as the only way to ensure that
racy.” And, as we emphasize when discussing civil liber- the “will of the people” prevails.
ties and civil rights (see Chapters 5 and 6), and again As we discuss in the nearby Constitutional Con
when discussing political participation (see Chapter 8), nections feature, and as we explore more in Chapter 2,
the United States was not born as a full-fledged repre- the Framers of the Constitution did not think that the “will
sentative democracy; and, for all the progress of the past of the people” was synonymous with the “common inter-
half-century or so, the nation’s representative democratic est” or the “public good.” They strongly favored repre-
character is still very much a work in progress. sentative democracy over direct democracy, and they
For any representative democracy to work, there believed that elected officials could best ascertain what
must, of course, be an opportunity for genuine leader- was in the public interest.
ship competition. This requires in turn that individuals
and parties be able to run for office; that communications
1-2 Political Power in America:
Five Views
Scholars differ in their interpretations of the American
political experience. Where some see a steady march
of democracy, others see no such thing; where some
emphasize how voting and other rights have been
steadily expanded, others stress how they were denied
to so many for so long, and so forth. Short of attempting
to reconcile these competing historical interpretations, let
us step back now for a moment to our definition of rep-
resentative democracy and five competing views about
how political power has been distributed in America.
Representative democracy is defined as any system
of government in which leaders are authorized to make
Immigration reform advocates organize a rally to build popular decisions—and thereby to wield political power—by
support for their cause. winning a competitive struggle for the popular vote. It is
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Not wanting to put a high poultry netting on my fence to keep my
poultry at home, I devised the method shown, and was thus enabled
to use 24-in. wire instead of 48-in., thereby effecting a saving, as
well as not marring the appearance of the fence. Chickens will not
attempt to fly over this wire but once or twice, as they endeavor to
alight on the pickets of the fence instead of the wire, and
consequently are thrown back by striking the wire. The wire should
be supported at each post, as shown in the sketch.—Roy H. Poston,
Flat River, Mo.
A Fort Built of Snow Blocks Made in Box Form
The Making of the Snow-Block Fort Is Nearly as Much Fun as Daring the
Enemy to Come and Capture It or Capturing the Enemy’s Barricade
What boy does not enjoy a regular snowball fight—a battle, in fact
—especially when he has a fort of his own building to defend, and
his friends have one which he wants to capture? A way to build a
snow fort that will not crumble easily when the enemy charges it is to
pack the snow into a box form and build the structure of the snow
blocks, as shown in the photograph. Portholes can be provided and
when the snow melts slightly, and freezes again, a very solid wall
results. The form for the block, as detailed in the sketch, is made of a
box, arranged so that it is hinged at one corner and has a catch at
the corner diagonally opposite. The form is set on a wooden board
and when the snow is packed in solidly, the catch is opened and the
form lifted away from the block. It is then carried into position and
another block made on the same board. Several boards are handy in
making the block quickly.—H. S., Chicago, Ill.
¶In applying varnish over an old wood surface, or on new wood that
has become soiled, care should be taken to remove all traces of oil
or grease with benzine.
Model Steam Tractor Made by Boy
This Model Steam Tractor Is 28 Inches Long and Drives Itself, Wood and Coal
being Used as Fuel
Boys, and others who like to make models, may be interested in a

small steam tractor I designed and built of scrap materials around
the farm shop. I used only the ordinary tools on hand in such a
place. The steam engine and tractor run smoothly, and the engine
propels the tractor just like a large machine of this kind. The tractor is
28 in. long and 14 in. high, and the boiler holds 1¹⁄₄ gal. The bore of
the cylinder is ⁷⁄₈ in. and its stroke 1³⁄₄ in. It was made from an old
iron window weight. I use wood and coal to fire the boiler, and steam
can be got up in a few minutes.—Albert H. Bennington, Park River,
N. D.
Toboggan Made of Old Buggy Shafts
This Toboggan with Stout Runners Made from Buggy Shafts can be Used
like One of the Ordinary Type, but Works Best on Frozen Snow
A method of making a strong toboggan sled by nailing a suitable

bottom over sections cut from old buggy shafts, as shown in the
sketch, can be adapted easily for use with poles of about the same
size. They can be steamed and bent at the ends and the
construction otherwise made as shown. The shafts were cut to the
length indicated, the curved front end being sawed off. The bottom
was carried up around the curved rear end, and a strong bracing
strip was bolted across them. One-half-inch rope with leather loops
provided handholds, and was also used as a brace at each side of
the front of the sled. Twisted wire may also be used for this purpose.
Cushions of the usual type can easily be made for the toboggan.
Bicycles Driven as Three-Wheel Tandem after
Breakdown
When the Front Wheel of One of the Bicycles Broke Down, They were
Rigged into a Tandem, and a Distance of Five Miles to Town was Covered
On a bicycle trip, when about five miles from town, the front axle of
my partner’s bicycle broke, and as neither of us wanted to walk, we
had to find some way of getting us both home. We removed the front
wheel from one of the bicycles, and set the front fork on the rear axle
of the undamaged machine, as shown in the sketch. The axle was
just long enough so that the sides of the fork could be bolted
securely. By careful riding we made the distance to town with only
the slight inconvenience of my partner having to carry the extra
wheel on his back—J. F. G., Mountain Grove, Mo.
¶Do not touch the inner surface of a tent or shelter in the rain, as the
water will drip from the spot touched.
Test Exposures for Bromide Enlargements
To avoid expensive waste of paper in making large bromide
enlargements the following device is useful: Cut an oblong sheet of
stiff cardboard, 5¹⁄₄ by 4 in., with a central opening, measuring 3³⁄₄ by
1¹⁄₂ in. Along the lower edge of the central opening mark off five
spaces of ³⁄₄ in. each, and number them from 1 to 5. Glue a strip of
cardboard, 1 in. wide, at the top and the bottom of the oblong, on the
back. Now glue a second strip of cardboard over each of those just
attached, making the second strips slightly wider to form grooves
similar to those in a sliding-top box.
Cut a piece of cardboard, wide enough to slide easily in these
grooves, and about 7 in. long. In the center of it, cut an opening, 1¹⁄₂
in. long and ³⁄₄ in. wide, with the longer dimension extending across
the strip. By inserting this slide into the grooves, the opening in it
may be shifted to correspond to any of the five ³⁄₄-in. indications at
the lower edge of the opening in the oblong frame.
Focus the enlargement on the easel and put the cap on the lens.
Then pin a 1¹⁄₂-in. strip of bromide paper where a good range of
detail will fall upon it. Pin the oblong card over the bromide strip and
make five successive exposures, of increasing duration, by sliding
the strip so that its opening is opposite the number indications on the
oblong. Note the particulars of exposure at the time and later
develop the strip of bromide paper. Suppose the exposures were of
8, 16, 24, 32, and 40 seconds’ duration, and upon development it
was found that the first and second exposures were much
underexposed and that the fifth was overexposed; the third and
fourth being only slightly under and overexposed, respectively. Then
the mean of these two, that is 24 plus 32 divided by 2, or 28
seconds, will be approximately the correct exposure. The use of this
device will effect a considerable saving.—H. J. Gray, Lewes, Sussex,
England.
Scale on Vaulting Pole Indicates Points of Grip
Indications on the Vaulting Pole Aid the Athlete in Finding the
Proper Grip
Unnecessary delay in running off the pole-vaulting events at

athletic meets is caused by the repeated testing of vaulters for the
proper height at which to grip the vaulting pole. This was readily
overcome by marking intervals of 1 ft. on the upper end of the
vaulting poles. Vaulters judge the proper height once and thereafter
may easily take the same grip with the aid of the indications on the
pole.—A. B. Wegener, Madison, N. J.
Current of Canal Raises Irrigation Water
The Current of the Canal Causes the Wheel to Revolve, Carrying the Water
to the Trough
The current of a canal was utilized to raise water for irrigation

purposes, and other uses, by means of the homemade device
shown in the illustration. A large-size buggy wheel was set on an old
axle, and extensions were fixed to eight of the spokes. Paddles, 9 by
18 in. in size, were secured to the extensions, and uniform-size tin
cans were fixed to the paddles, as shown. The current revolved the
wheel, carrying the loaded buckets upward, and the water was thus
poured from them into a wide trough braced on the platform. A flume
led the water to the irrigation ditches, and pipes were used to
conduct some of it to the ranch house for general purposes. When
the water is not desired for useful purposes the trough is withdrawn
and the water drops into the canal.—Joseph Gray, Heber, Calif.
Protecting an Air Pump against Denting
Denting of Tire Pumps is Prevented by the Use of a Case Like That Shown
The brass cylinders of many tire pumps are made of thin metal,
and a slight blow may dent them. Such injuries interfere with the
action of the plunger, making the pump almost useless. A case which
will afford protection to the pump is shown in the sketch. It was made
of two strips of wood cored out on the inner sides to fit the pump and
provided with small hinges and hooks, to lock it into place.
A Feather as an X-Ray Lens
The outline of the bones in the hand may be seen by holding it
before a strong light and looking through a lens made of a piece cut
from the tip of a feather. The sketch shows such a lens, which is
mounted in a small piece of cardboard that may be carried in the
pocket, and which affords diversion wherever exhibited.
The device is made as follows: Procure a soft white feather from a
fowl, and cut off the tip as indicated in the upper sketch. Cut a piece
of cardboard, about 2 in. wide and 6 in. long. Fold it to form a folder,
3 in. long, and cut a hole, ¹⁄₄ in. in diameter, through both parts of it.
Glue the tip of the feather between the folder at the hole, taking care
that the fibers lie flat and that no rib is exposed. Glue the edges of
the folder, and the device is ready for use. Hold the hand, or other
object, to be examined about 15 in. from the lens, and place the
latter close to the eye. Looking through the hole toward an electric,
or other strong, light, it will be observed that the bones of the hand,
for example, may be seen clearly. They will be outlined with a band
of varicolored light. A frosted globe is better than one which exposes
a filament.—Leander L. Droesch, Chickasaw, Ohio.
¶A safety-razor blade, fitted into a wooden handle, provides a

convenient tool for ripping seams and cutting cardboard.
Guard Saves Wear on Vest
Bookkeepers and others who work close to a desk nearly all day
find that unusual wear results on the front of the vest, forcing them to
discard their suits sooner than would otherwise be necessary. By
providing a strip of cloth of a color to match the goods of which the
suit is made and buttoning it across the front of the vest from the
lower to the upper button this wear is prevented.—J. A. McGrath,
Hancock, Michigan.
Bilge Water Siphoned Through Water-Jacket
Outlet
The Small Pipe Fixed to the Water-Jacket Outlet Siphons the Bilge Water
from the Bottom of the Motorboat
The sketch shows a simple method of removing the bilge water

from a motorboat automatically while the engine is in operation. A
small pipe is fitted into the outlet from the water jacket, as shown at
A, and extended to the bottom of the boat where the bilge water
accumulates. A sack is fixed over the end of the pipe to prevent
particles of dirt from entering the pipe. The water passing out of the
water-jacket outlet causes a siphoning action in the small pipe, and
the bilge water is drawn up and passes out of the larger outlet. At the
left, in dotted outline, is shown a method of removing the bilge water

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Institutions and Policies 15th Edition

(eBook PDF) American Government: Institutions and

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(eBook PDF) American Government: Institutions and

American government : institutions and policies

American Government: Institutions and Policies 13th,

(eBook PDF) American Government: Power and Purpose

(eBook PDF) Critical Thinking and American Government

The Challenge of Democracy: American Government in

6-5 Looking Back—and Ahead 145 Campaigns 213

8-1 A Close Look at Nonvoting 172 Redistricting and Gerrymandering 230

Chapter 11: Interest Groups 244 Chapter 13: Congress 296

Then and Now 511 Glossary G1

New to This Edition

John J. DiIulio, Jr.

The Benefits of Using MindTap As a Student

John J. DiIulio, Jr.

New Reviewers: Ethan Fishman, University of South Alabama

John J. DiIulio, Jr.

The American System

4 American Political Culture 76

6 Civil Rights 121

In framing a government which is to be administered by men over men,

usually say a person has political authority if his or her

Boys, and others who like to make models, may be interested in a

A method of making a strong toboggan sled by nailing a suitable

Unnecessary delay in running off the pole-vaulting events at

The current of a canal was utilized to raise water for irrigation

¶A safety-razor blade, fitted into a wooden handle, provides a

The sketch shows a simple method of removing the bilge water

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