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,

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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