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SUB Hamburg
B/107883
DEMOCRACY TenthEdition
Texas Edition
Thomas E. PattersonBradlee Professor of Government and the PressJohn F. Kennedy School of GovernmentHarvard University
Gary M. HalterProfessor of Political ScienceTexas A&M University
MeGrawHill
"XConnect\ LearnI Succeed"
Contents in BriefPreface xx | Supplements Package xxiv | Acknowledgments xxv
PART 1 Foundations
1 Political Thinking: Becoming a Responsible Citizen 3
2 Constitutional Democracy: Promoting Liberty and Self-Government 25
3 Federalism: Forging a Nation 57
4 Civil Liberties: Protecting Individual Rights 87
5 Equal Rights: Struggling toward Fairness 121
PART 2 Mass Politics
6 Public Opinion and Political Socialization: Shaping the People's Voice 153
7 Political Participation, Activating the Popular Will 179
8 Political Parties, Candidates, and Campaigns: Defining the Voter's Choice 191
9 Interest Groups: Organizing for Influence 233
10 The News Media: Communicating Political Images 261
PART 3 Governing Institutions
11 Congress: Balancing National Goals and Local Interests 287
12 The Presidency: Leading the Nation 323
13 The Federal Bureaucracy: Administering the Government 355
14 The Federal Judicial System: Applying the Law 385
PART 4 Public Policy
15 Economic and Environmental Policy: Contributing to Prosperity 411
16 Welfare and Education Policy: Providing for Personal Security and Need 441
17 Foreign Policy: Protecting the American Way 467
CONTENTS IN BRIEF
5 Texas Government and Politics
18 Introduction to Texas Government 493
IS The State Constitution 511
20 Participation and Interest Groups in Texas Politics 529
21 Political Parties and Elections in Texas 547
12 The Texas Legislature 577
23 The Office of Governor and State Agencies in Texas 609
24 The Court System in Texas 639
21 Public Policy in Texas 661
25 Local Governments in Texas 679
Appendixes 708
Glossary 730
Notes 743
Credits 761
Index 763
ContentsPreface xx | Supplements Package xxiv | Acknowledgments xxv
PAIT 1 Foundations
1 Political Thinking: Becoming a Responsible Citizen 3Learning to Think Politically 4
Barriers to Political Thinking 6
What Political Science Can Contribute to Political Thinking 8
Politics and Power in America 11
A Democratic System 12
A Constitutional System 13
A Free-Market System 16
Who Does Govern? 18
The Text's Organization 18Summary 19Study Corner 19
2 Constitutional Democracy: Promoting Libertyand Self-Government 25Before the Constitution: The Colonial and Revolutionary Experiences 27
The Declaration of Independence 28
The Articles of Confederation 28
A Nation Dissolving 31
Negotiating toward a Constitution 32The Great Compromise: A Two-Chamber Congress 32
The Three-Fifths Compromise: Issues of Slavery and Trade 33
A Strategy for Ratification 34
The Ratification Debate 35
The Framers' Goals 37
Protecting Liberty: Limited Government 37Grants and Denials of Power 38
Using Power to Offset Power 39
Separated Institutions Sharing Power: Checks and Balances 40
The Bill of Rights 43
Judicial Review 43
VII
viii CONTENTS
Providing for Self-Government 44
Democracy versus Republic 45
Limited Popular Rule 45
Altering the Constitution: More Power to the People 46
Constitutional Democracy Today 50Summary 51Study Corner 57
K S S A Y 8.
NEW CONSTITUTION,
*» Aung now tx mi rtMu
Federalism: Forging a Nation 57Federalism: National and State Sovereignty 57
The Argument for Federalism 61
The Powers of the Nation and the States 62
Federalism in Historical Perspective 64
An Indestructible Union (1789-1865) 64
Dual Federalism and Laissez-Faire Capitalism (1865-1937) 67
Contemporary Federalism (since 1937) 71
Interdependency and Intergovernmental Relations 71
Government Revenues and Intergovernmental Relations 72
Devolution 75
The Public's Influence: Setting the Boundaries of
Federal-State Power 79
Summary 81Study Corner 81
Civil Liberties: Protecting Individual Rights 87The Constitution: The Bill of Rights and the Fourteenth
Amendment 89
Selective Incorporation of Free Expression Rights 90
Selective Incorporation of Fair Trial Rights 91
Freedom of Expression 93
The Early Period: The Uncertain Status of the Rightof Free Expression 93
The Modern Period: Protecting Free Expression 94
Freedom of Religion 99
The Establishment Clause 99
The Free-Exercise Clause 100
The Right to Bear Arms 101The Right of Privacy 102
Abortion 103
Sexual Relations among Consenting Adults 104
Rights of Persons Accused of Crimes 105
Suspicion Phase: Unreasonable Search and Seizure 105
Arrest Phase: Protection against Self-Incrimination 107
Trial Phase: The Right to a Fair Trial 108
CONTENTS • JX
Sentencing Phase: Cruel and Unusual Punishment 109
Appeal: One Chance, Usually 111
Crime, Punishment, and Police Practices 111
Rights and the War on Terrorism 113
Detention of Enemy Combatants 113
Surveillance of Suspected Terrorists 114
The Courts and a Free Society 115Summary 115Study Corner 116
5 Equal Rights: Struggling toward Fairness 121Equality through Law 122
The Fourteenth Amendment: Equal Protection 123
The Civil Rights Act of 1964 127
The Voting Rights Act of 1965 131
The Civil Rights Act of 1968 132
Affirmative Action 133
The Continuing Struggle for Equality 136
African Americans 136
Women 137
Native Americans 139
Hispanic Americans 140
Asian Americans 142
Gays and Lesbians 143
Other Disadvantaged Groups 145
Discrimination: Superficial Differences, Deep Divisions 146Summary 147Study Corner 147
PART 2 Mass Politics
6 Public Opinion and Political Socialization:Shaping the People's Voice 153Political Socialization: The Origins of Americans' Opinions 155
Primary Socializing Agents: Family, School, and Church 156
Secondary Socializing Agents: Peers, Media, and Leaders 157
Frames of Reference: How Americans Think Politically 158
Party Identification 159
Political Ideology 160
Group Orientations 162
The Measurement of Public Opinion 164Public Opinion Polls 166
Problems with Polls 167
CONTENTS
The Influence of Public Opinion on Policy 168Limits on the Public's Influence 170
Public Opinion and the Boundaries of Action 171
Leaders and Public Opinion 172
Summary 173Study Corner 173
1 Political Participation: Activatingthe Popular Will 179Voter Participation 180
Factors in Voter Turnout: The United States in ComparativePerspective 181
Why Some Americans Vote and Others Do Not 186
Conventional Forms of Participation Other Than Voting 189
Campaign and Lobbying Activities 189
Virtual Participation 190
Community Activities 191
Unconventional Activism: Social Movements and Protest Politics 193Participation and the Potential for Influence 195Summary 196Study Corner 196
.J
Political Parties, Candidates, and Campaigns:Defining the Voter's Choice 201Party Competition and Majority Rule: The History
of U.S. Parties 202The First Parties 203
Andrew Jackson and Grassroots Parties 204
Republicans versus Democrats: Realignments and the EnduringParty System 205
Today's Party Alignment and Its Origins 206
Parties and the Vote 207
Electoral and Party Systems 209The Single-Member-District System of Election 210
Politics and Coalitions in the Two-Party System 210
Minor (Third) Parties 214
Party Organizations 215
The Weakening of Party Organizations 216
The Structure and Role of Party Organizations 217
The Candidate-Centered Campaign 220
Campaign Funds: The Money Chase 220
Organization and Strategy: Political Consultants 222Voter Contacts: Pitched Battle 223
CONTENTS • Xi
Parties, Candidates, and the Public's Influence 225
Summary 227Study Corner 228
9 Interest Groups: Organizing for Influence 233The Interest-Group System 235
Economic Groups 236
Citizens' Groups 238
The Organizational Edge: Economic Groups versusCitizens' Groups 240
Inside Lobbying: Seeking Influence throughOfficial Contacts 243
Acquiring Access to Officials 243Webs of Influence: Groups in the Policy Process 246
Outside Lobbying: Seeking Influence throughPublic Pressure 248
Constituency Advocacy: Grassroots Lobbying 248Electoral Action: Votes and PAC Money 249
The Group System: Indispensable but Biased 252The Contribution of Groups to Self-Government:
Pluralism 252
Flaws in Pluralism: Interest-Group Liberalism
and Economic Bias 252
A Madisonian Dilemma 254
Summary 255Study Corner 256
10 The News Media: Communicating PoliticalImages 261Historical Development: From the Nation's Founding
to Today 263
The Objective-Journalism Era 264
The Rise of the "New" News 265
The Politics of News 266The Signaling Function 266
The Common-Carrier Function 269
The Watchdog Function 272
The Partisan Function 273
Attention to News 278
The Shrinking Audience for News 279
Age and Attention to News 280
Media and the Public in the Internet Age 281Summary 281Study Corner 282
CONTENTS
3 Governing Institutions
Congress: Balancing National Goals and Local Interests 287Congress as a Career: Election to Congress 289
Using Incumbency to Stay in Congress 289
Pitfalls of Incumbency 292
Safe Incumbency and Representation 295
Who Are the Winners in Congressional Elections? 296
Parties and Party Leadership 296
Party Unity in Congress 296
Party Leadership in Congress 298
Committees and Committee Leadership 301Committee Jurisdiction 302
Committee Membership 302
Committee Chairs 303
Committees and Parties: Which Is in Control? 304
How a Bill Becomes Law 305
Committee Hearings and Decisions 306
From Committee to the Floor 306
Leadership and Floor Action 307
Conference Committees and the President 307
Congress's Policymaking Role 308The Lawmaking Function of Congress 308
The Representation Function of Congress 311
The Oversight Function of Congress 314
Congress: Too Fragmented? 315Summary 316Study Corner 317
The Presidency: Leading the Nation 323Foundations of the Modern Presidency 325
The Changing Conception of the Presidency 326
The Need for a Strong Presidency 327
Choosing the President 329The Nominating Campaign: Primaries and Caucuses 330
The National Party Conventions 331
The General Election Campaign 332
Staffing the Presidency 337The Executive Office of the President (EOP) 337
The Cabinet and Agency Appointees 338
The Problem of Control 338
Factors in Presidential Leadership 339The Force of Circumstance 340
The Stage of the President's Term 341
CONTENTS • Xiii
The Nature of the Issue: Foreign or Domestic 342Relations with Congress 343Public Support 346
Summary 349Study Corner 350
13 The Federal Bureaucracy: Administeringthe Government 255Origin and Structure of the Federal Bureaucracy 357
Type of Federal Agencies 358Federal Employment 360
The Budgetary Process 362The President and Agency Budgets 362Congress and the Agency Budgets 363
Policy and Power in the Bureaucracy 365The Agency Point of View 366Sources of Bureaucratic Power 366
Democracy and Bureaucratic Accountability 370Accountability through the Presidency 370Accountability through Congress 372Accountability through the Courts 373Accountability within the Bureaucracy Itself 373
Summary 376Study Corner 377
14 The Federal Judicial System: Applying the Law 383The Federal Judicial System 385
The Supreme Court of the United States 385Other Federal Courts 388The State Courts 390
Federal Court Appointees 392Supreme Court Nominees 392
I Lower-Court Nominees 393I Personal Backgrounds of Judicial Appointees 394| The Nature of Judicial Decision Making 395jf Legal Influences on Judicial Decisions 395f Political Influences on Judicial Decisions 397
i" Judicial Power and Democratic Government 400
Originalism Theory vs. Living Constitution Theory 401x Judicial Restraint vs. Judicial Activism 402
What Is the Judiciary's Proper Role 404Summary 405Study Corner 405
Xiv • CONTENTS
4 Public Policy
: Don! -
PrivatizeSocial Security
Economic and Environmental Policy:Contributing to Prosperity 411The Public Policy Process 412Government as Regulator of the Economy 413
Efficiency through Government Intervention 414
Equity through Government Intervention 416
The Politics of Regulatory Policy 417Government as Protector of the
Environment 418
Conservationism: The Older Wave 418
Environmentalism: The Newer Wave 419Government as Promoter of Economic
Interests 424
Promoting Business 424
Promoting Labor 424
Promoting Agriculture 425
Fiscal Policy as an Economic Tool 425
Demand-Side Policy 426
Supply-Side Policy 428
Controlling Inflation 430Monetary Policy as an Economic
Tool 431The Fed 431
The Politics of the Fed 432
Summary 434Study Corner 435
Welfare and Education Policy: Providing forPersonal Security and Need 441Poverty in America: The Nature of the Problem 442
The Poor: Who and How Many? 443
Living in Poverty: By Choice or Chance? 445
The Politics and Policies of Social Welfare 446
Social Insurance Programs 447
Public Assistance Programs 448
Culture and Social Welfare 453
Education as Equality of Opportunity 454
Public Education: Leveling through the Schools 455
Improving America's Schools 457
The American Way of Promoting the GeneralWelfare 460
Summary 461Study Corner 461
CONTENTS • XV
17 Foreign Policy: Protecting the American Way 467The Roots of U.S. Foreign and Defense Policy 468
The Cold War Era 469
A New World Order 470
The War on Terrorism 471
The Iraq War 472
The Afghanistan Escalation 473
The Military Dimension of National Security Policy 475
Military Power, Uses, and Capabilities 476
The Politics of National Defense 480
The Economic Dimension of National Security Policy 481Promoting Global Trade 482
Maintaining Access to Oil and Other Natural Resources 485
Assisting Developing Nations 485
A Challenging World 486Summary 487Study Corner 488
IT 5 Texas Government and Politics
18 Introduction to Texas Government 493Texas Society 493
Settlement Patterns in Texas History 493
Urban and Rural Contrasts 496
Population Growth and the Changing Political Climate 496Hispanics 498
African Americans 499
Asian Americans 500
The Political Culture of Texas 500The Economy of Texas 502
Economic Regions 503
Economic Sectors 505
Consequences of Economic Changes 506
Summary 507Study Corner 507
19 The State Constitution 511Texas Constitutions 511
Constitutions under the Republic of Mexico 511The Republic of Texas Constitution of 1836 512The Statehood Constitution of 1845 512The Civil War and Reconstruction Constitutions of 1861,
1866, and 1869 513
xvi CONTENTS
The Constitution of 1876 513
The Political Culture and Constitutions 515Principles of State Constitutions 515
Separation of Powers 516
Bill of Rights 516
Supreme Law of the State 516
The Structure of State Constitutions 517Revising State Constitutions 519
Patterns of Amending 520
The Process of Amending 522
Prospect of Amending 524
Summary 526Study Corner 526
. rw-v MOT I F YOU ARE| PROUD OF TEXAS, BUT| IF YOUVE MADE TEXAS|PROUD OF YOU.
2 0 Participation and Interest Groups in Texas Politics 529Factors That Affect Voter Participation 531
A Legacy of Restricted Access 532
Socioeconomic Status, Age, and Race 534
Party Competition 535
Regional Variations 535
Timing 535
Interest Groups in Texas 536
Economic Organizations 536
Citizens' Groups 537
Government Organizations 539
Interest-Group Tactics and Their Regulation 539
Lobbying 540
Electioneering 540
Grassroots Lobbying 541
The Strength of Interest Groups in Texas 542
Economic Diversity 542
Political Party Competition 542
Professionalism of the State Legislature 543
Fragmented Government Structure 543
Summary 544Study Corner 544
2 1 Political Parties and Elections in Texas 547State Party Systems 548State Party Ideologies 549Political Parties in Texas 551
Democratic and Republican Party Strength 551
Third-Party Movements 560
CONTENTS • Xvii
Party Organization 561
Party Strength 564
Parties and Elections 564Primary Elections 564
Campaigns 569
Political Consultants 571
Money in Campaigns 571
Summary 573Study Corner 573
22 The Texas Legislature 577Methods of Election 578
Reapportionment and Redistricting Issues 579
The Impact of Redistricting 581
Getting Elected 585
Qualifications 585
Competition 587
Turnover in State Legislatures 590
Legislature Procedures 591
Leadership Roles 591
Committees 594
How a Bill Becomes a Law 594
Informal Rules, Leadership Styles, and Representational Roles 600
Rating the Texas Legislature 602
Staff Assistance 603
Salary and Building Facilities 603
Annual Sessions 604
Summary 605Study Corner 606
23 The Office of Governor and State Agencies in Texas 609The Governor's Office 610
The Role of the Governor 610
Rules of Office 611
The Governor's Powers 616Executive Powers 616
Legislative Powers 621
Judicial Powers 623
Military Powers 624
Informal Powers 624
Administrative Agencies of State Government 626
Agencies with Elected Officials 627
Single-Head Agencies 630
XViii • CONTENTS
Boards and Commissions 631
Legislative Agencies 633
Judicial Agencies 633
Ex Officio Boards and Commissions 634
Multiappointment Boards 634
Democratic Control and Sunset Review 634Summary 635Study Corner 636
The Court System in Texas 639The State Court System 640
The Structure of State Courts 640
Judicial Selection and Removal 642
Juries 648
The Civil and Criminal Justice System 650Tort Reform 652
The Effect of Punishment on Crime Rates 653
The Death Penalty 653
Summary 657Study Corner 657
Public Policy in Texas 661Economic Policies 661
Expenditures: Where Does the Money Go? 662
Revenue Sources: Where Does the Money Come From? 663
Taxation: Who Is Targeted? 663
Budgeting and Crises 666
Education Policies 669
College Tuition and Funding 669
Affirmative Action 671
Social Policies 672
Sex and Abortion 672
Equality 674
Environmental Policies 675Summary 676Study Corner 676
Local Governments in Texas 679State and Local Authority 680Municipal Governments 681
General-Law and Home Rule Cities 681
CONTENTS • XJX
Incorporation 682
Forms of Government 683
Elections and Voter Turnout 686
Challenges: Revenues and Mandates 689
County Governments 692The Structure of County Government 692
Challenges: Weak Authority 695
Suggested Reforms of County Government 696
Special District Governments 697School Districts 699
Challenges: Financing and Social/Other Issues 700
Summary 705Study Corner 705
Appendixes 708
Glossary 730
Notes 743
Credits 761
Index 763