Marketing Fragment 6 x 10.5 - Cambridge University Pressassets.cambridge.org/97805216/81285/frontmatter/...The Politics of Regulatory Reform (2007). In addition to teaching undergradu-ates

American Government

The essence of the story of American politics and government is the relation-ship between liberalism and democracy. American Government demonstratesthat the tensions and complementarities between liberalism and democracyare crucial for understanding each and all of the central governing institutionsand political elements of American public life. The book provides all the infor-mation and breadth of coverage required of an introductory text but does so ina manner that highlights the drama of politics. It shows that the crucial featuresof the American political system were established through difficult decisionsmade under enormous pressure and often agonizing, even bloody, conflict. Byplacing such critical choices in specific times throughout American history, itis the first textbook to adopt an American political development approach.

Marc Landy is Professor of Political Science at Boston College, Co-Directorof Boston College’s Initiative on Constitutional Democracy, and Faculty Chairof the Boston College Irish Institute. He has a B.A. from Oberlin College anda Ph.D. in government from Harvard University. He and Sidney Milkis pre-viously co-authored Presidential Greatness (2000). He is an author of The Envi-ronmental Protection Agency: Asking the Wrong Questions: From Nixon to Clinton(1994) and Civic Environmentalism in Action: A Field Guide to Regional and LocalInitiatives (1999). Landy has been an editor of six books, including The NewPolitics of Public Policy (1995) and, most recently, Creating Competitive Markets:The Politics of Regulatory Reform (2007). In addition to teaching undergradu-ates and graduate students, he regularly teaches public officials from Irelandand Northern Ireland about American politics through a series of executiveprograms run by the Irish Institute. He is also Director of Encountering JohnAdams: Braintree and Boston, a Landmarks Workshop for Community CollegeTeachers sponsored by the National Endowment for the Humanities.

Sidney M. Milkis is the White Burkett Miller Professor of Politics and Assis-tant Director for Academic Programs at the Miller Center of Public Affairsat the University of Virginia. He has a B.A. from Muhlenberg College anda Ph.D. in political science from the University of Pennsylvania. His booksinclude The President and the Parties: The Transformation of the American PartySystem since the New Deal (1993); Political Parties and Constitutional Government:Remaking American Democracy (1999); Presidential Greatness (2000), co-authoredwith Marc Landy; and The American Presidency: Origins and Development, 1776–2007, 5th edition (2007), co-authored with Michael Nelson. He is co-editorwith Jerome Mileur of three volumes on twentieth-century political reform:Progressivism and the New Democracy (1999); The New Deal and the Triumph ofLiberalism (2002); and The Great Society and the High Tide of Liberalism (2005).During the 2005–2006 academic year, he served as the President of the Amer-ican Political Science Association’s Politics and History Section.

© Cambridge University Press www.cambridge.org

Cambridge University Press978-0-521-68128-5 - American Government: Balancing Democracy and Rights, Second EditionMarc Landy and Sidney M. MilkisFrontmatterMore information

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AmericanGovernment

Balancing Democracy and Rights

Second Edition

Marc LandyBoston College

Sidney M. MilkisUniversity of Virginia






cambridge university pressCambridge, New York, Melbourne, Madrid, Cape Town, Singapore, Sao Paulo, Delhi

Cambridge University Press32 Avenue of the Americas, New York, NY 10013-2473, USA

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C© Marc Landy and Sidney M. Milkis 2008

This publication is in copyright. Subject to statutory exceptionand to the provisions of relevant collective licensing agreements,no reproduction of any part may take place withoutthe written permission of Cambridge University Press.

First published 2008

Printed in the United States of America

A catalog record for this publication is available from the British Library.

Library of Congress Cataloging in Publication Data

Landy, Marc Karnis.American government : balancing democracy and rights / Marc Landy, Sidney M. Milkis. – 2nd ed.

p. cm.Includes bibliographical references and index.ISBN 978-0-521-86275-2 (hardback) – ISBN 978-0-521-68128-5 (pbk.)1. United States – Politics and government. I. Milkis, Sidney M. II. Title.JK276.L36 2008320′.973–dc22 2007024846

ISBN 978-0-521-86275-2 hardbackISBN 978-0-521-68128-5 paperback

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We dedicate this book to our teachers at Oberlin College,Muhlenberg College, Harvard University, and the

University of Pennsylvania, who kindled and sustained ourinterest in American politics and government and instilled in

us the desire to pass their wisdom on to a new generation.






Brief Contents

Preface page xvii

Acknowledgments xxv

Credits xxvii

1. Introduction: American Government: Rights and Democracy,Consensus and Conflict 2

Part One: Formative Experiences

2. Political Culture 32

3. Contesting the Constitution: A Lovers’ Quarrel 76

4. Political Development: Crucial Episodes 126

Case Study: Is There a Culture War in America? 183

Part Two: Pivotal Relationships

5. Federalism 190

6. Political Economy 242

Case Study: Katrina as a Test of Pivotal Relationships 300

Part Three: Governing Institutions

7. Congress: The First Branch of Government 306

8. The Presidency: First Citizen of American Democracy 372






viii Brief Contents

9. The Judiciary: The Guardians of America’s Liberal Tradition 438

10. Bureaucracy 500

Case Study: American Foreign Policy: Empire of Liberty orMerely Empire? 556

Part Four: Political Forces

11. Parties and Elections 564

12. Public Opinion and Political Participation 630

Case Study: The Dog That Did Not Bark: No Child LeftBehind and Advocacy Politics 686

13. Conclusion: Liberalism and Democracy in the Twenty-firstCentury 692

Appendices 719

Glossary 759

Annotated Bibliography 773

Index 799






Contents

Preface page xviiAcknowledgments xxvCredits xxvii

1. Introduction: American Government: Rightsand Democracy, Consensus and Conflict 2

Chapter Overview 2“I Have A Dream” 3Rights 6

Contemporary Politics: Illegal Immigration 8The Constitution 10

Nuts and Bolts: Individual Rights Protected by theConstitution 12

Equality and Democracy 13Nuts and Bolts: Foundations of American Government:

Perspectives, Principles, and People 18Liberals and Conservatives in Contemporary American

Politics 19American Political Development 21Chapter Summary 27Major Concepts 27Suggested Readings 28

Part One: Formative Experiences2. Political Culture 32

Chapter Overview 32The Origins of “We the People” 34

ix






x Contents

Nuts and Bolts: Sources of American Political Culture:Puritanism 36

America’s Creed: The Declaration of Independence 42Contemporary Politics: Exporting Democracy 44Nuts and Bolts: Of Contracts and Covenants 47

Toward the Constitution 59Contemporary Politics: Religion, Liberty, and

Democracy 62From Democracy to Republican Government 66Conclusion: The Meaning of the American Republic 71Chapter Summary 73Major Concepts 74Suggested Readings 74

3. Contesting the Constitution: A Lovers’Quarrel 76

Chapter Overview 76Democracy, Liberalism, and the Constitution 79Leadership and Deliberation at the Constitutional

Convention 86Nuts and Bolts: The Commerce Clause 94

Agenda Setting, Conflict, and Compromise 95Nuts and Bolts: Amending the Constitution 104Contemporary Politics: Was the 2000 Presidential

Election a Popular Loss? 107The New Science of Politics 109Ratification 116

Nuts and Bolts: The Bill of Rights 120Conclusion: The Enduring Contest 121Chapter Summary 123Major Concepts 124Suggested Readings 124

4. Political Development: Crucial Episodes 126

Chapter Overview 126The Constitutional Founding 130The First Refounding: Jefferson’s Democratization of the

Constitution 133Nuts and Bolts: The Scope of American Government in

Comparative Perspective 137






Contents xi

The Second Refounding: Jackson’s Mass Democracy 139The Third Refounding: Civil War and the Reconstruction

of the Union 146Prelude to the Fourth Refounding: The Promise and

Disappointments of Progressive Democracy 151The Fourth Refounding: The New Deal and the Triumph

of Liberalism 158The Impact of New Deal Liberalism on Contemporary

Politics 165Contemporary Politics: Pollution: Rights versus Risk 168Nuts and Bolts: Major Twentieth-Century Public

Policies 170Conclusion: Religion, Homeland Security, and the

Renewal of Party Conflict in American PoliticalDevelopment 173

Chapter Summary 179Major Concepts 180Suggested Readings 181

Case Study: Is There a Culture War inAmerica? 183

Part Two: Pivotal Relationships5. Federalism 190

Chapter Overview 190The Decentralized Republic 193

Nuts and Bolts: Key Constitutional Clauses Relating toFederalism 194

The Struggle for Federal Supremacy 199Contemporary Politics: Taxing the Internet 201

The Limits to Federal Supremacy 206Federalism Redefined 211

Nuts and Bolts: Forms of Federalism 213The New State of the States 228

Contemporary Politics: Smart Growth 232Conclusion 235Chapter Summary 238Major Concepts 240Suggested Readings 240






xii Contents

6. Political Economy 242

Chapter Overview 242The Creation of Economic Liberalism 243

Contemporary Politics: The Fragile Underpinning of aLiberal Economy 246

Contemporary Politics: The Pharmaceutical Industry 250The Economic Impact of the Civil War 254Laissez Faire and the Attack on Laissez Faire 257Reining in the Market 266The New Deal Legacy 271

Nuts and Bolts: The Current Income Tax 273The Political Economy of Prosperity 277Disillusionment with Big Government 282Contemporary Political Economy 287Conclusion: Economic Liberty, Political Freedom,

Religious Scruples 294Chapter Summary 296Major Concepts 297Suggested Readings 298

Case Study: Katrina as a Test of PivotalRelationships 300

Part Three: Governing Institutions7. Congress: The First Branch of Government 306

Chapter Overview 306Congress and the Constitution 309

Nuts and Bolts: How a Bill Becomes a Law 310Congressional Dominance 315

Nuts and Bolts: Life on the Floor of Congress 323The Emergence of Congressional Professionalism 328

Contemporary Politics: The Role of Senate Insurgents 332Contemporary Politics: Congressional Redistricting and

the African-American Vote 339The Resurgence of Congress 341

Nuts and Bolts: Legislative Hearings 346Nuts and Bolts: Apportioning the House of

Representatives 358






Contents xiii

Conclusion: The First Branch of Government –Representation, Democracy, and Rights 364

Chapter Summary 367Major Concepts 369Suggested Readings 369

8. The Presidency: First Citizen of AmericanDemocracy 372

Chapter Overview 372Democracy, Liberalism, and Executive Power 374The Constitutional Presidency 376

Nuts and Bolts: The President’s Cabinet 379Presidential Responsibility and Party Conflict 381Presidents, Mass Democracy, and the Union 385Progressive Democracy and the Rise of the Modern

Presidency 389Contemporary Politics: Nationalizing the Primary

Process 395The Flowering of the Modern Presidency 397The Ambivalence of Modern Executive Power 402

Nuts and Bolts: The President’s War Powers 406Conservatism and the Modern Presidency 410

Nuts and Bolts: The Intelligence Community 421Conclusion: Whither the Modern Presidency? 430Chapter Summary 434Major Concepts 436Suggested Readings 436

9. The Judiciary: The Guardians of America’sLiberal Tradition 438

Chapter Overview 438Judicial Review and Republican Government 441

Nuts and Bolts: Essential Legal Concepts 441Nuts and Bolts: The Courts 443

The Judiciary in Defense of the Constitution 446Nuts and Bolts: How the Supreme Court Considers a

Case 451The Court and Property Rights 457






xiv Contents

The Judiciary in Defense of Programmatic Rights 464Nuts and Bolts: The Department of Justice 473

Has the Rights Revolution Run Its Course? 477Nuts and Bolts: Judicial Confirmation 478Contemporary Politics: Obscenity and the Internet 482

The Judiciary in a Partisan Era 485Conclusion: The People’s Court 494Chapter Summary 497Major Concepts 498Suggested Readings 498

10. Bureaucracy 500

Chapter Overview 500Administering a Limited Government 503

Contemporary Politics: The Military: Liberty,Democracy, Equality, Efficiency 508

Nuts and Bolts: Administrative Transitions 512Nuts and Bolts: The Federal Workforce 515

Toward a Modern Public Service 515Administering Big Government 522Administrative Reform 528

Contemporary Politics: The Costs and Benefits of theClean Air Act 534

Nuts and Bolts: The Regulatory Process 543Conclusion 550Chapter Summary 552Major Concepts 553Suggested Readings 554

Case Study: American Foreign Policy: Empireof Liberty or Merely Empire? 556

Part Four: Political Forces11. Parties and Elections 564

Chapter Overview 564Contemporary Politics: Go to the Polls or Vote at Home 568

The Birth of Parties 570The Enduring Two-Party System 584Populism, Progressivism, and Parties 587






Contents xv

The New Deal Party System 593Republican Resurgence 596

Nuts and Bolts: The Political Party PresidentialNominating Conventions 599

Parties: Present and Future 612Suburbia 616

Contemporary Politics: Fifty States versus MarginalSeats 622

Conclusion: Political Parties, Democracy, and Liberty 625Chapter Summary 627Major Concepts 628Suggested Readings 629

12. Public Opinion and Political Participation 630

Chapter Overview 630The Awakening of American Democracy 634

Contemporary Politics: Ex-Felons and the Right to Vote 637The Emergence of Modern Democracy 650

Contemporary Politics: Free Association: Women,Gays, and Expressed Values 659

The Rise of Rights Consciousness 661Public Opinion 669

Nuts and Bolts: The Surveying of Opinion 670Nuts and Bolts: Social Capital 673

The Crisis of Citizenship, the Challenge of September 11,and Partisan Rancor 675

Conclusion: The Virtues of Partisanship 679Chapter Summary 682Major Concepts 683Suggested Readings 684

Case Study: The Dog That Did Not Bark: NoChild Left Behind and Advocacy Politics 686

13. Conclusion: Liberalism and Democracy in theTwenty-first Century 692

Chapter Overview 692Democracy and Liberalism in Contemporary America:

The Case of Affirmative Action 695






xvi Contents

The Future of Self-Government 701The Enduring Constitutional Legacy 703The Absence of Class Conflict 704New Factionalism 709The Expansion of National Administrative Power 711Can We Keep It? 715Chapter Summary 717

Appendix One: The Declaration of Independence 719Appendix Two: The Constitution of the United States

of America 724Appendix Three: Federalist No. 10 ( James Madison) 747Appendix Four: Federalist No. 51 ( James Madison) 754Glossary 759Annotated Bibliography 773Index 799






Preface

The Story of the Book: The American PoliticalDevelopment Approach

Encouraged by the response to the first edition of American Government:Balancing Democracy and Rights, we have undertaken a second edition withthree major objectives in mind. First, we wanted to take account of theimportant developments that have taken place since the publication of thefirst edition, especially the 2004 and 2006 elections, the Iraq War and itsdifficult aftermath, and the intense partisan conflict that has characterizedGeorge W. Bush’s second term. Second, we wanted to refine the writingand analysis throughout the book. In doing so, we have made a specialeffort to better connect the conceptual framework and historical narrativeto contemporary developments in American politics. Third, we wanted toincorporate new scholarship and our own revised thinking about Ameri-can political development. Most important, having stressed the decline oftraditional patronage-based parties in the first edition, we have added a lotof new text in the second edition that takes account of the emergence ofa “new” national programmatic party system, allied to broader changes inideas, institutions, and policies, which has led to major changes in contem-porary American politics and governance.

The hard work that went into accomplishing these tasks reaffirmed ourcommitment to the objectives that informed the first edition of this book. Itgrew out of a friendship that developed from a deep intellectual affinity. Wemet in 1984 when we were put on the same panel at the American PoliticalScience Association meeting. We found that we were both preoccupied bythe New Deal. Sid was trying to understand how it gave rise to the modernadministrative state. Marc was trying to figure out how Franklin Rooseveltboth embraced the labor movement and staved off the transformation ofthe Democratic party into a British-style Labour party. Soon after, Sid cameto Brandeis University, where Marc had become a Fellow of the GordonPublic Policy Center. We had adjoining offices at the center and were able

xvii






xviii Preface

to continue our conversations over lunch and coffee and at the center’sseminars. We discovered that our common interests were not limited toFranklin Roosevelt and the New Deal; we had both come to believe thatthe study of political science had been severed from its historical roots andthat our job was to graft the study of contemporary politics back on tothose roots. Both of us were already doing this in our American politicsteaching with very good results. We saw that students developed a muchkeener and firmer grasp of current matters when they became aware of theintellectual and institutional connections that the contemporary issues andevents had with the past. Sid applied this approach to his book The Presidentand Parties and to the textbook he co-authored with Michael Nelson, TheAmerican Presidency: Origins and Development. Marc applied the approachto essays about the labor movement’s impact on the development of Amer-ican politics. Together, we drew on the American political developmentframework in our investigations for our book Presidential Greatness. In themeantime, our devotion to connecting past and present came to appearless eccentric; many other scholars also began to find greater meaning andinterest in bringing history to bear on the study of American politics. Amer-ican political development (APD) has now established itself as one of themost active and intellectually vibrant movements within political science.

This book reflects our understanding of what the APD approach meansand how it can best be deployed to educate students about the fundamentalsof American politics and government. It is premised on the principle thatthe structure and dynamics of contemporary politics and government canbest be made intelligible by an examination of their origins and the trans-formations they have undergone. We greatly admire the work of historians,but this book is about political science, not history. Despite its extensivediscussions of the past, its central objective is to explain and clarify thepolitical present.

This book provides the full array of information about contemporaryAmerican government and politics that students need to know, but it doesso in a developmental context that makes that information more compre-hensible and meaningful. For example, we do not simply discuss publicopinion in terms of the current, and therefore transitory, state of opinionon various issues of the day. We examine how the very idea of public opin-ion came into being in reaction to the Federalist efforts to limit politicalparticipation and how this concept was understood and used by Lincolnand subsequently transformed by the Progressives. Thus, students do notmerely learn about current public opinions, which may well have shiftedby the time they read this book; they also learn about the efforts to restrictand expand the role of public opinion that have affected the political insti-tutions and dynamics with which they live. Likewise, the discussion of the






Preface xix

media’s role in politics is informed by an understanding of how that rolehas evolved, beginning with the creation of a party press in the 1790s.The discussion also includes Theodore Roosevelt’s use of the newly cre-ated mass circulation national newspapers to popularize his messages toCongress, Franklin Roosevelt’s mastery of radio in his fireside chats, andJohn F. Kennedy’s ingenious use of television to expand the audience forhis news conferences – to appeal over the heads of journalists and speakdirectly to the tuned-in public.

Balancing Liberty and Democracy

Like the hangman’s noose, writing a textbook concentrates the mind. Itforces one to focus on the essentials. What do students absolutely need toknow, and what is the fundamental set of questions that an introductory textmust address? As we contemplated the complex interrelationships betweenideas, institutions, and political forces that constitute APD, we decided toorganize our presentation of these diverse matters around the theme of thecentral task of American government: balancing liberalism and democracy.Each chapter traces the political development of some specific aspect ofAmerican political life in terms of the interplay between liberalism, whichchampions individual liberty and natural rights over community, and democ-racy, which stresses the importance of self-governing political communitiesthat shape the moral character of individuals and provide for the commongood. We give equal weight to both the compatibilities and the tensionsbetween these two powerful political principles. We make clear that liber-alism supports democracy through its commitment to equal opportunity,and that democracy rests on liberal principles that ensure the liberty ofeach citizen to actively participate in civic life. But we also stress liberal-ism’s tendency to elevate rights above duties and individual liberty abovemajoritarianism, and we acknowledge that democracy values obligation tothe community more than individual autonomy and the well-being of thewhole above the rights of the individual.

As we make clear repeatedly throughout the book, this relationshipbetween liberty and democracy is not the only important dynamic in Amer-ican politics. We do not shy away from discussing those powerful forcesthat are neither liberal nor democratic, most notably racial, religious, andsexual bigotry. But we maintain that the core principles and institutions thatshape American political culture work against beliefs and practices that areboth illiberal and antidemocratic. As Abraham Lincoln and Martin LutherKing, Jr., showed, the Declaration of Independence and the Constitutionappeal to the American sense of justice. This is not to say that these char-ters of freedom triumph automatically over prejudice and oppression. In






xx Preface

fact, the authors of both the Declaration and the Constitution sought tosidestep, rather than condemn, the institution of slavery. Like any idealsworth preserving, the principles of liberty and democracy cannot prevailwithout militant champions and jarring struggles. A major aim of this bookis to depict the words and deeds of those champions and the epochal char-acter of those struggles.

Narrative Style

A great advantage of the APD approach is that it lends itself to a narrativestyle that is livelier than the topical style of most textbooks. Politics is notjust storytelling, but it is largely about arguments and conflicts that areinherently vivid and dramatic. We try to capture the drama of political lifewithout sacrificing analytic rigor. The essence of drama is choice. The nar-rative approach highlights the crucial choices that have shaped America’spolitics. For example, our chapter on the Constitution pays careful attentionnot only to the arguments of the Federalists, who championed the Consti-tution, but also those of the Anti-Federalists, who opposed it. We do so toshow just how rich the array of alternatives were for the design of Americanpolitical institutions and how the particular choices made by the Constitu-tion’s Framers were therefore fraught with great consequences. The crit-ical episodes discussed in Chapter 4 – Jefferson’s Revolution of 1800, theJacksonian period, the Civil War, the Progressive Era, and the New Deal –focus on the stakes involved and the powerful arguments offered by thecontending parties.

Religion and Localism

Framing the book in terms of the tension between liberalism and democ-racy is particularly helpful for illuminating the political importance of twokey features of American political life that contemporary political sciencetoo often neglects: religion and localism. For example, Chapter 2 describeshow the Puritans conceived of America as a country with a special mission,a “city upon a hill” whose utopianism and democratic zeal were at odds withthe view of America as a secular nation dedicated to individual rights. Chap-ter 6 describes the religious roots of the Populist attack on laissez faire assymbolized by William Jennings Bryan’s evocation of the “Cross of Gold.”Chapter 12 discusses the religious sources of abolitionism and the impactof the social gospel movement on Progressivism. Several chapters considerthe importance of the Christian Right in contemporary politics and howreligion currently animates conflicts over abortion, stem cell research, andsame-sex marriage.






Preface xxi

The book shows how the centrality of local self-rule to the idea of Amer-ican democracy, rooted in the relationship between size and democracy, hascreated greater resistance to the centralization of power in the United Statesthan in other nations that have representative governments. Chapter 4 dis-cusses the Jeffersonian and Jacksonian eras in terms of their intertwinedcommitments to localism and democracy. Chapter 5 explains that becausethe Constitution does not fully clarify the dividing line between state andfederal power, disputes over what the government ought to do frequentlyturn into disputes over where the decision should be made, with decisiveimplications for both the protection of individual rights and the exercise ofmajority rule.

Outline of the Book

We adhere to a conventional table of contents that devotes a separate chap-ter to each of the most important topics that a basic textbook needs to cover.The three chapters of Part 1, “Formative Experiences,” provide the gen-eral intellectual framework of the book with regard to political culture,development, and institutional design. The two chapters of Part 2, “Piv-otal Relationships,” look at two of the most important consequences of theliberal doctrine of limited government – federalism and the free economy.The four chapters of Part 3, “Governing Institutions,” examine the threebranches of national government and the bureaucracy as well. The twochapters of Part 4, “Political Forces,” focus on the most important polit-ical phenomena that exist outside the formal governing structures and onhow these forces shape political debate and governmental decision making.These forces include political parties, social movements, interest groups,and the media.

In preparing this edition, we added an essay at the end of each major sec-tion on an important contemporary event, each of which illustrates the con-nection between the larger themes of that section and current developmentsin American government. “Formative Experiences” (Part 1) ends with adiscussion of the so-called culture war that purportedly divides Americanstoday. The “Pivotal Relationships” (Part 2) section is capped by an essayon Hurricane Katrina that sheds light on the enduring challenges of main-taining America’s federal democracy. “Governing Institutions” (Part 3) endsin a discussion of how current controversies in foreign policy, especiallythe War on Terror, extended with such profound consequences to Iraq,provide a new test of the enduring challenge of balancing national secu-rity, civil liberties, and self-government. “Political Forces” (Part 4) con-cludes with a discussion of advocacy politics, considering how partisancompetition combined with the rights revolution to bring about major






xxii Preface

education reform in 2001, the No Child Left Behind Act, which has trans-formed the politics of education in the United States.

The first and last chapters of the book highlight the foundational princi-ples and never-ending struggles that animate America political life. Chap-ter 1 clarifies the key concepts that the book employs, most especially libertyand democracy; it explains why these two profound principles are often intension, and it acquaints the students with the APD approach. Chapter 13reviews the central aspects of the American constitutional order to high-light its enduring strengths and grave weaknesses. It ends by returning tothe question that Benjamin Franklin asked more than two hundred yearsago: can a republic such as ours endure?

The book offers separate chapters on immensely important and inter-esting subjects that are rarely treated comprehensively in other textbooks.To provide a theoretical framework, a set of reference points, and a com-mon analytic vocabulary for later chapters, Chapter 4 focuses on the majorpoints of transition that have occurred since the constitutional founding.It argues that the Jeffersonian Revolution of 1800, Jacksonian democracy,the Civil War, and the New Deal are truly refoundings that engaged citi-zens in debate and conflict about the meaning of the Declaration and theConstitution and required citizens to reexamine key questions about therelationship between liberty and democracy.

We devote an entire chapter to political economy (Chapter 6). If war istoo important to leave to the generals, then an understanding and appre-ciation of the interaction between economics and politics is certainly tooimportant to leave to the economists. As the name implies, this chapterhighlights the political forces that have shaped the institutional and legalframework in which economic activity takes place. It aims to show studentshow all the critical aspects of economic life are affected by the tensionsbetween liberty and democracy. In the other chapters, students are madeaware that what they are learning in their history courses complements theirpolitical science understanding, and vice versa. Chapter 6 shows them howthe study of economics and of political science inform one another as well.

This book contains no separate chapters about civil rights, civil liber-ties, or public policy because these subjects are so integral to Americanpolitics that we wanted them to permeate the entire book. In additionto extensive discussions of all three topics in the chapter narratives, eachchapter contains “Contemporary Politics” boxes that address current civilrights, civil liberties, and public policy issues. These boxes help students tounderstand the continuing relevance of key historical debates and conflictsby providing contemporary examples of these same issues and conflicts.Additional boxes, labeled “Nuts and Bolts,” enable us to provide the full






Preface xxiii

range of necessary factual information about the operations of contempo-rary politics and government without disturbing the chapter narrative orsimply tacking on all this vital information at the chapter’s end.

Each chapter begins with a chapter overview. Following the overview, ashort vignette depicts a dramatic political moment, a lively political conflict,or a vivid symbolic action. Some vignettes are very prosaic. For example, thebureaucracy chapter (Chapter 10) begins with a story of a young driver whogets a parking ticket. Some stories are memorable. Chapter 1 opens with adescription of Martin Luther King’s “I Have a Dream” speech. Some aredramatic. The chapter on Congress (Chapter 7) starts by relating SenatorJames Jeffords’s decision to leave the Republican party in May 2001, therebyhanding control of the Senate to the Democrats. In all chapters, thesevignettes are designed both to capture the student’s attention and to linkthe topic of the chapter and the pervading theme of the book. In each chap-ter, the vignette is followed by a narrative that elucidates the major argu-ments and themes of the chapter developmentally, extending through thepresent to account for contemporary developments and emerging trends.The conclusion of each chapter reconsiders the themes presented in thebeginning in light of the information and ideas presented in the narrativeand the boxes. Each chapter ends in a summary that reviews the majordevelopments that have been covered, a list of major concepts that havebeen highlighted, and a number of suggested readings that allow studentsto explore the subject further.

How to Use This Book

The organization of each chapter suggests a way to use this book as ateaching tool. For example, the vignette itself can serve as a basis for classdiscussion, or the instructor can ask students to come up with their ownconcrete examples of how issues of liberty and democracy are provoked bythe ideas, institutions, or political forces that form the subject matter of thechapter. Likewise, the boxes can be used as topics for research assignmentsand for further class discussions that are enriched by the added knowledgethe students have acquired on their own. Because the organization of eachchapter is essentially the same, the instructor can encourage the students tocompare similar stages of historical development across different chapters,which helps to integrate students’ understanding of how various politi-cal forces and institutions are developing simultaneously. The essays thatappear at the end of each major section of the book also can be used to helpstudents understand the unifying themes and general trends of differentdevelopments in American government.






xxiv Preface

The strong thematic stance of this book invites challenge and dissent ina way that a less consistent and insistent approach does not. The suggestedreadings at the end of each chapter include writings that challenge thebook’s point of view and can therefore be used to encourage a lively debateabout how central liberalism and democracy really are and what alternativeways of thinking about APD might be more persuasive.

Changes for the Second Edition

We have made several changes in the second edition that should enhancethe use of this book by students and instructors. Greater attention hasbeen given to basic information and contemporary issues in the “Nuts andBolts” and “Contemporary Politics” boxes. In addition, the cross-chaptercases that appear at the end of each section clarify the major themes ofthe book and link them more effectively to contemporary issues. Finally,we have added chapter overviews and chapter summaries to help studentsunderstand the major arguments and developments of each chapter. Thesechanges link the conceptual framework of the book to more contemporaryissues and make the book more student-friendly.

Companion Website

The companion website for this textbook is available for students. Itcontains a range of review and self-study material. Visit the site at:www.cambridge.org/landymilkis.






Acknowledgments

We deeply appreciate the sage counsel and generous support of our edi-tor, Ed Parsons of Cambridge University Press. His commitment to thisproject and patience with its authors resulted in a much stronger volumethan we otherwise would have produced. We received splendid help fromCambridge’s editorial assistants Faith Black and Bonnie Lee. Alison Smithof Boston College provided invaluable help with charts, tables, and figures.Jesse Rhodes of the University of Virginia offered energetic research sup-port and insightful suggestions during the preparation of the second editionof the text. The following readers offered thoughtful and keen commen-tary on the first edition of the book, helping us immeasurably in preparingthis version: Thomas Baldino, Hugh Heclo, Philip Klinkner, G. RogerMcDonald, Lucas Morel, Michael Nelson, Peter Ubertaccio, and McGeeYoung.

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Credits

Photo Credits

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Chapter 3 Page 85: C© Granger Collection, New York; page 91: Library ofCongress, Prints & Photographs Division [LC-USZ62–16960]; page 114:C© NewsCom.

Chapter 4 Page 113: C© Granger Collection, New York; page 139: C© North WindPicture Archive; page 149: Library of Congress, Prints & Photographs Divi-sion [LC-USP6–2415-A]; page 160: Library of Congress, Prints & PhotographsDivision [LC-USF34-T01–009058-C]; page 165: Library of Congress, Prints& Photographs Division [LC-USZ62–59860]; page 167: C© NewsCom.

Case Study Page 186: C© NewsCom.Chapter 5 Page 208: C© Granger Collection, New York; page 210: C© AP/Wide

World Photos; page 231: C© AP/Wide World Photos.Chapter 6 Page 244: C© NewsCom; page 260: C© Granger Collection, New York;

page 263: C© Granger Collection, New York; page 292: C© NewsCom.Case Study Page 301: C© NewsCom.Chapter 7 Page 320: C© Granger Collection, New York; page 325: C© Granger

Collection, New York; page 347: C© NewsCom; page 354: C© NewsCom.Chapter 8 Page 391: Library of Congress, Prints & Photographs Division [LC-

USZ62–95886]; page 399: Library of Congress, Prints & Photographs Divi-sion [LC-USZ62–96489]; page 404: Library of Congress, Prints & Pho-tographs Division [LC-USZ62–133060]; page 410: Library of Congress, Prints& Photographs Division [LC-U91–242–2]; page 412: C© NewsCom; page 424:C© AP/Wide World Photos.

xxvii






xxviii Credits

Chapter 9 Page 450: Library of Congress, Prints & Photographs Division[LC-USZ62–8499]; page 462: C© Granger Collection, New York; page 471:C© AP/Wide World Photos; page 474: C© AP/Wide World Photos; page 479:C© AP/Wide World Photos; page 493: Supreme Court of the United States,2006.

Chapter 10 Page 506: C© Granger Collection, New York; page 517: Library ofCongress, Prints & Photographs Division [LC-USZ62–12825]; page 524:Library of Congress, Prints & Photographs Division [LC-USW3–057017-C];page 547: C© AP/Wide World Photos.

Case Study Page 562: C© NewsCom.Chapter 11 Page 566: C© NewsCom; page 590: C© Granger Collection, New York;

page 613: C© NewsCom.Chapter 12 Page 657: C© AP/Wide World Photos; page 664: Library of Congress,

Prints & Photographs Division [LC-USZ62–109643]; page 674: C© AP/WideWorld Photos.

Case Study Page 687: C© NewsCom.Chapter 13 Page 699: C© AP/Wide World Photos; page 713: C© AP/Wide World

Photos.






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