Study Outline
Chapter 1: The Study of American Government

  1. What is political power?
  2. Two great questions about politics
  3. Who governs: the people who govern affect us
  4. To which ends: in which ways government affects our lives
  5. And then how the government makes decisions on a variety of issues
  6. Power
  7. Definition: the ability of one person to cause another person to act in accordance with the first person's intentions
  8. Text's concern: power as it is used to affect who will hold government office and how government will behave
  9. Authority: the right to use power; not all who exercise political power have it
  10. Legitimacy: what makes a law or constitution a source of right
  11. Struggles over what makes authority legitimate
  12. Necessity to be in some sense democratic in the United States today
  13. What is democracy?
  14. Aristotelian "rule of the many" (participatory democracy)
  15. Fifth-century B.C. Greek city-state
  16. New England town meeting
  17. Community control in self-governing neighborhood
  18. Citizen participation in formulating programs
  19. Acquisition of power by leaders via competitive elections (representative democracy)
  20. Sometimes disapprovingly referred to as the elitist theory
  21. Justifications of representative democracy
  22. Direct democracy is impractical.
  23. The people make unwise decisions based on fleeting emotions.
  24. Direct versus representative democracy
  25. Text uses the term democracy to refer to representative democracy.
  26. The Constitution does not contain the word democracy but the phrase "republican form of government."
  27. Representative democracy requires leadership competition if the system is to work.
  28. Individuals and parties must be able to run for office.
  29. Communication must be free.
  30. Voters perceive that a meaningful choice exists.
  31. Many elective national offices
  32. Most money for elections comes from special interests
  33. Virtues of direct democracy should be reclaimed through
  34. Community control
  35. Citizen participation
  36. Framers: "will of people" not synonymous with the "common interest" or the "public good"
  37. They strongly favored representative over direct democracy.
  38. Direct democracy minimized chances of abuse of power by tyrannical popular majority or self-serving office holders.
  39. How is power distributed in a democracy?
  40. Majoritarian politics
  41. Leaders constrained to follow wishes of the people very closely
  42. Applies when issues are simple, clear, and feasible
  43. Elitism
  44. Rule by identifiable group of persons who possess a disproportionate share of political power
  45. Four theories of Elite Influence
  46. Marxism: government merely a reflection of underlying economic forces
  47. C. Wright Mills: power elite composed of corporate leaders, generals, and politicians
  48. Max Weber: bureaucracies based on expertise, specialized competence
  49. Pluralist view: no single elite has a monopoly on power; hence must bargain and compromise
  50. Cynical view that politics is self-seeking
  51. Good policies may result from bad motives
  52. Self-interest is an incomplete guide to actions (Alexis de Tocqueville on America)
  53. September 11 and self interest
  54. AFL-CIO and civil rights
  55. Some act against long odds and without the certainty of benefit
  56. Political change
  57. Necessary to refer frequently to history because no single theory is adequate
  58. Government today influenced by yesterday
  59. Government today still evolving and responds to changing beliefs
  60. Politics about the public interest, not just who gets what
  61. Finding out who governs
  62. We often give partial or contingent answers.
  63. Preferences vary, and so does politics.
  64. Politics cannot be equated with laws on the books.
  65. Sweeping claims are to be avoided.
  66. Judgments about institutions and interests should be tempered by how they behave on different issues.
  67. The policy process can be an excellent barometer of change in who governs.

Study Outline
Chapter 2: The Constitution

  1. The problem of liberty
  2. The colonial mind
  3. Belief that because British politicians were corrupt, the English constitution was inadequate
  4. Belief in higher law of natural rights
  5. Life
  6. Liberty
  7. Property (Jefferson notwithstanding)
  8. A war of ideology, not economics
  9. Specific complaints against George III for violating unalienable rights
  10. The "real" revolution
  11. The "real" revolution was the radical change in belief about what made authority legitimate and liberties secure.
  12. Government by consent, not by prerogative
  13. Direct grant of power: written constitution
  14. Human liberty before government
  15. Legislature superior to executive branch
  16. Weaknesses of the confederation
  17. Could not levy taxes or regulate commerce
  18. Sovereignty, independence retained by states
  19. One vote in Congress for each state
  20. Nine of thirteen votes in Congress required for any measure
  21. Delegates picked, paid for by legislatures
  22. Little money coined by Congress
  23. Army small; dependent on state militias
  24. Territorial disputes between states
  25. No national judicial system
  26. All thirteen states' consent necessary for any amendments
  27. The Constitutional Convention
  28. The lessons of experience
  29. State constitutions
  30. Pennsylvania: too strong, too democratic
  31. Massachusetts: too weak, less democratic
  32. Shays's Rebellion led to the fear the states were about to collapse.
  33. The Framers
  34. Who came: men of practical affairs
  35. Who did not come
  36. Intent to write an entirely new constitution
  37. Lockean influence
  38. Doubts that popular consent could guarantee liberty
  39. Results: "a delicate problem"; need strong government for order but one that would not threaten liberty
  40. Democracy of that day not the solution
  41. Aristocracy not a solution either
  42. Government with constitutional limits no guarantee against tyranny
  43. The challenge
  44. The Virginia Plan
  45. Design for a true national government
  46. Two houses in legislature
  47. Executive chosen by legislature
  48. Council of revision with veto power
  49. Two key features of the plan
  50. National legislature with supreme powers
  51. One house elected directly by the people
  52. The New Jersey Plan
  53. Sought to amend rather than replace the Articles
  54. Proposed one vote per state
  55. Protected small states' interests
  56. The compromise
  57. House of Representatives based on population
  58. Senate of two members per state
  59. Reconciled interests of big and small states
  60. Committee of Detail
  61. The Constitution and democracy
  62. Founders did not intend to create pure democracy
  63. Physical impossibility in a vast country
  64. Mistrust of popular passions
  65. Intent instead to create a republic with a system of representation
  66. Popular rule only one element of the new government
  67. State legislators to elect senators
  68. Electors to choose president
  69. Two kinds of majorities: voters and states
  70. Judicial review another limitation
  71. Amendment process
  72. Key principles
  73. Separation of powers
  74. Federalism
  75. Government and human nature
  76. Aristotelian view: government should improve human nature by cultivating virtue
  77. Madisonian view: cultivation of virtue would require a government too strong, too dangerous; self-interest should be freely pursued
  78. Federalism enables one level of government to act as a check on the other
  79. The Constitution and liberty
  80. Whether constitutional government was to respect personal liberties is a difficult question; ratification by conventions in at least nine states a democratic feature but a technically illegal one
  81. The Antifederalist view
  82. Liberty could be secure only in small republics.
  83. In big republics national government would be distant from people.
  84. Strong national government would use its powers to annihilate state functions.
  85. There should be many more restrictions on government.
  86. Madison's response: personal liberty safest in large ("extended") republics
  87. Coalitions likely more moderate there
  88. Government should be somewhat distant to be insulated from passions
  89. Reasons for the absence of a bill of rights
  90. Several guarantees in Constitution
  91. Habeas corpus
  92. No bill of attainder
  93. No ex post facto law
  94. Trial by jury
  95. Privileges and immunities
  96. No religious tests
  97. Obligation of contracts
  98. Most states had bills of rights.
  99. Intent to limit federal government to specific powers
  100. Need for a bill of rights
  101. Ratification impossible without one
  102. Promise by key leaders to obtain one
  103. Bitter ratification narrowly successful
  104. The Constitution and slavery
  105. Slavery virtually unmentioned
  106. Apparent hypocrisy of Declaration signers
  107. Necessity of compromise: otherwise no ratification
  108. Sixty percent of slaves counted for representation.
  109. No slavery legislation possible before 1808
  110. Escaped slaves to be returned to masters
  111. Legacy: Civil War, continuing problems
  112. The motives of the Framers
  113. Acted out of a mixture of motives; economic interests played modest role
  114. Economic interests of framers varied widely
  115. Economic interests of Framers varied widely
  116. Beard: those who owned governmental debt supported Constitution
  117. However, no clear division along class lines found
  118. Recent research: state considerations outweighed personal considerations; exception: slaveholders
  119. Economic interests and ratification
  120. Played larger role in state ratifying conventions
  121. In favor: merchants, urbanites, owners of western land, holders of government IOUs, non-slave owners
  122. Opposed: farmers, people who held no IOUs, slaveowners
  123. But remarkably democratic process because most could vote for delegates
  124. Federalists versus Antifederalists on ideas of liberty
  125. The Constitution and equality
  126. Critics: government today is too weak
  127. Bows to special interests
  128. Fosters economic inequality
  129. Liberty and equality are therefore in conflict
  130. Framers more concerned with political inequality; weak government reduces political privilege
  131. Constitutional reform--modern views
  132. Reducing the separation of powers to enhance national leadership
  133. Urgent problems remain unresolved
  134. President should be more powerful, accountable, to produce better policies
  135. Government agencies exposed to undue interference
  136. Proposals
  137. Choose cabinet members from Congress
  138. Allow president to dissolve Congress
  139. Empower Congress to require special presidential election
  140. Require presidential/congressional terms
  141. Establish single six-year term for president
  142. Lengthen terms in House to four years
  143. Contrary arguments: results uncertain, worse
  144. Making the system less democratic
  145. Government does too much, not too little
  146. Attention to individual wants over general preferences
  147. Proposals
  148. Limit amount of taxes collectible
  149. Require a balanced budget
  150. Grant president a true line-item veto
  151. Narrow authority of federal courts
  152. Contrary arguments: unworkable or open to evasion
  153. Who is right?
  154. Decide nothing now
  155. Crucial questions
  156. How well has it worked in history?
  157. How well has it worked in comparison with other constitutions?

Study Outline
Chapter 3: Federalism

  1. Governmental structure
  2. Federalism: good or bad?
  3. Definition: political system with local governmental units, in addition to national one, that can make final decisions
  4. Examples of federal governments: Canada, India, and Germany
  5. Examples of unitary governments: France, Great Britain, and Italy
  6. Special protection of subnational governments in federal system is the result of:
  7. Constitution of country
  8. Habits, preferences, and dispositions of citizens
  9. Distribution of political power in society
  10. National government largely does not govern individuals directly but gets states to do so in keeping with national policy
  11. Negative views: block progress and protect powerful local interests
  12. Laski: states "poisonous and parasitic"
  13. Riker: perpetuation of racism
  14. Positive view: Elazar: strength, flexibility, and liberty
  15. Federalism makes good and bad effects possible
  16. Different political groups with different political purposes come to power in different places
  17. Federalist No. 10: small political units dominated by single political faction
  18. Increased political activity
  19. Most obvious effect of federalism: facilitates mobilization of political activity
  20. Federalism lowers the cost of political organization at the local level.
  21. The Founding
  22. A bold, new plan to protect personal liberty
  23. Founders believed that neither national nor state government would have authority over the other because power derives from the people, who shift their support.
  24. New plan had no historical precedent.
  25. Tenth Amendment was added as an afterthought, to define the power of states
  26. Elastic language in Article I: necessary and proper
  27. Precise definitions of powers politically impossible because of competing interests, such as commerce
  28. Hence vague language--"necessary and proper"
  29. Hamilton's view: national supremacy because Constitution supreme law
  30. Jefferson's view: states' rights with people ultimate sovereign
  31. The debate on the meaning of federalism
  32. The Supreme Court speaks
  33. Hamiltonian position espoused by Marshall
  34. McCulloch v.Maryland settled two questions.
  35. Could Congress charter a national bank? (yes, because "necessary and proper")
  36. Could states tax such a bank? (no, because national powers supreme)
  37. Later battles
  38. Federal government cannot tax state bank
  39. Nullification doctrine led to Civil War: states void federal laws they deem in conflict with Constitution
  40. Dual federalism
  41. Both national and state governments supreme in their own spheres
  42. Hence interstate versus intrastate commerce
  43. Early product-based distinction difficult
  44. "Original package" also unsatisfactory
  45. State sovereignty
  46. Mistake today to think that doctrine of dual federalism is entirely dead
  47. Supreme Court limited congressional use of commerce clause, thus protecting state sovereignty under Tenth Amendment
  48. Supreme Court has given new life to Eleventh Amendment
  49. Not all recent Supreme Court decisions support greater state sovereignty.
  50. New debate resurrects notion of state police powers
  51. Many state constitutions open door to direct democracy through initiative, referendum, and recall.
  52. Existence of states guaranteed while local governments exist at pleasure of states
  53. Federal-state relations
  54. Grants-in-aid
  55. Grants show how political realities modify legal authority.
  56. Began before the Constitution with "land grant colleges," various cash grants to states
  57. Dramatically increased in scope in the twentieth century
  58. Were attractive for various reasons
  59. Federal budget surpluses (nineteenth century)
  60. Federal income tax became a flexible tool
  61. Federal control of money supply meant national government could print more money
  62. "Free" money for state officials
  63. Required broad congressional coalitions
  64. Meeting national needs: 1960s shift in grants-in-aid
  65. From what states demanded
  66. To what federal officials found important as national needs
  67. The intergovernmental lobby
  68. Hundreds of state, local officials lobby in Washington
  69. Purpose: to get more federal money with fewer strings
  70. Categorical grants versus revenue sharing
  71. Categorical grants for specific purposes; often require local matching funds
  72. Block grants devoted to general purposes with few restrictions
  73. Revenue sharing requires no matching funds and provides freedom in how to spend.
  74. Distributed by statistical formula
  75. Ended in 1986
  76. Neither block grants nor revenue sharing achieved the goal of giving states more freedom in spending
  77. Block grants grow more slowly than categorical grants.
  78. Desire for federal control and distrust of state government
  79. No single interest group has a vital stake in multipurpose block grants, revenue sharing
  80. Categorical grants are matters of life or death for various agencies.
  81. E. Rivalry among the states
  82. Increased competition a result of increased dependency
  83. Snowbelt (Frostbelt) versus Sunbelt states
  84. Difficulty telling where funds spent
  85. Difficulty connecting funds to growth rates
  86. Focus on formulas and their impact
  87. Census takes on monumental importance
  88. Federal aid and federal control
  89. Introduction
  90. Fear of "Washington control" and jeopardy of Tenth Amendment
  91. Failed attempts at reversal in trends (block grants and revenue sharing)
  92. Traditional and newer forms of federal controls on state governmental actions
  93. Conditions of aid tell a state government what it must do to obtain grant money
  94. Mandates tell state governments what to do, in some instances even when they do not receive grant money
  95. B. Mandates
  96. Most concern civil rights and environmental protection
  97. Administrative and financial problems often result
  98. Growth in mandates, 1981 to 1991
  99. Features of mandates
  100. Regulatory statutes and amendments of previous legislation
  101. New areas of federal involvement
  102. Considerable variation in clarity, administration, and costs
  103. 1Additional costs imposed on the states through:
  104. Federal tax and regulatory schemes
  105. Federal laws exposing states to financial liability
  106. 6. Federal courts have fueled the growth of mandates
  107. Interpretations of the Tenth Amendment have eased flow of mandates
  108. Court orders and prisons, school desegregation, busing, hiring practices, police brutality
  109. Conditions of aid
  110. Received by states voluntarily, in theory
  111. Financial dependence blurs the theory
  112. b. Civil rights generally the focus of most important conditions in the 1960's, a proliferation has continued since the 1970's
  113. c. Conditions range from specific to general
  114. 2. Divergent views of states and federal government on costs, benefits
  115. 3. Reagan's attempt to consolidate categorical grants; Congress's cooperation in name only
  116. 4. States respond by experimenting with new ways of delivering services (e.g., child care, welfare, education)
  117. A devolution revolution?
  118. Renewed effort to shift important functions to states by Republican-controlled Congress in 1994
  119. Key issue: welfare (i.e., the AFDC program)
  120. Clinton vetoes two bills, then signed the third, to give management to states
  121. These and other turn-back efforts were referred to as devolution.
  122. Old idea, but led by Congress
  123. Clinton agreed with need to scale back size and activities of federal government.
  124. Block grants for entitlements
  125. Most block grants are for operating and capital purposes (contra entitlement programs).
  126. 2. Republican efforts to make AFDC and Medicaid into block grant programs
  127. 3. Partial success and possible effects
  128. AFDC and a number of related programs are now block grants
  129. Possible triggering of second-order devolution
  130. Possible triggering of third-order devolution
  131. Dramatic decrease in welfare rolls increase in unspent dollars
  132. Surpluses and Medicaid costs, shortfalls in state revenues and funding surges
  133. What's driving devolution?
  134. Beliefs of devolution proponents
  135. Realities of budget deficit
  136. Citizen views
  137. Congress and federalism: nation far from wholly centralized
  138. Members of Congress still local representatives
  139. Members of Congress represent different constituencies from the same localities.
  140. Link to local political groups eroded
  141. Differences of opinion over which level of government works best

Study Outline
Chapter 4: American Political Culture