Whose “political gospel” inspired the framers to adopt the concept of the separation of powers?

We the People AN INTRODUCTION TO AMERICAN POLITICS

E L E V E N T H E S S E N T I A L S E D I T I O N

THE PRESIDENTIAL ELECTION OF 2016

Hillary Clinton (Democrat) margin of victory

Total electoral votes: 232

Donald Trump (Republican) margin of victory

Total electoral votes: 306

<5% 5–10% >10% <5% 5–10% >10%

Alaska (3)

Hawaii (4)

Washington (12)

Oregon (7)

California (55)

Nevada (6)

Utah (6)

New Mexico (5)

Texas (38)

Kansas (6)

Nebraska (5)

Wyoming (3)

Colorado (9)

Arizona (11)

Mississippi (6)

Alabama (9)

South Dakota (3)

Iowa (6)

Wisconsin (10)

Minnesota (10)

Illinois (20)

North Dakota (3)

Montana (3)

Idaho (4)

Kentucky (8)

Indiana (11)

Michigan (16)

Tennessee (11)

Virginia (13)

Florida (29)

Maine (3 votes to Clinton, 1 vote to Trump)

New York (29)

West Virginia

(5)

Louisiana (8)

Arkansas (6)

Missouri (10)

South Carolina

(9)

Georgia (16)

North Carolina

(15)

Pennsylvania (20)

Ohio (18)

Oklahoma (7)

Maryland (10)

District of Columbia (3)

Delaware (3)

New Jersey (14)

Vermont (3)

Rhode Island (4)

Connecticut (7)

Massachusetts (11)

New Hampshire (4)

NOTE: As of December 1, 2016, the Democrats were pursuing recounts in Michigan, Pennsylvania, and Wisconsin. NOTE: As of December 1, 2016, the Democrats were pursuing recounts in Michigan, Pennsylvania, and Wisconsin.

THE PRESIDENTIAL ELECTION OF 2016

Hillary Clinton (Democrat) margin of victory

Total electoral votes: 232

Donald Trump (Republican) margin of victory

Total electoral votes: 306

<5% 5–10% >10% <5% 5–10% >10%

Alaska (3)

Hawaii (4)

Washington (12)

Oregon (7)

California (55)

Nevada (6)

Utah (6)

New Mexico (5)

Texas (38)

Kansas (6)

Nebraska (5)

Wyoming (3)

Colorado (9)

Arizona (11)

Mississippi (6)

Alabama (9)

South Dakota (3)

Iowa (6)

Wisconsin (10)

Minnesota (10)

Illinois (20)

North Dakota (3)

Montana (3)

Idaho (4)

Kentucky (8)

Indiana (11)

Michigan (16)

Tennessee (11)

Virginia (13)

Florida (29)

Maine (3 votes to Clinton, 1 vote to Trump)

New York (29)

West Virginia

(5)

Louisiana (8)

Arkansas (6)

Missouri (10)

South Carolina

(9)

Georgia (16)

North Carolina

(15)

Pennsylvania (20)

Ohio (18)

Oklahoma (7)

Maryland (10)

District of Columbia (3)

Delaware (3)

New Jersey (14)

Vermont (3)

Rhode Island (4)

Connecticut (7)

Massachusetts (11)

New Hampshire (4)

NOTE: As of December 1, 2016, the Democrats were pursuing recounts in Michigan, Pennsylvania, and Wisconsin.

CONTENTS V

We the People AN INTRODUCTION TO AMERICAN POLITICS

B W. W. NORTON & COMPANY

NEW YORK LONDON

Benjamin Ginsberg THE JOHNS HOPKINS UNIVERSITY

Theodore J. Lowi CORNELL UNIVERSITY

Margaret Weir BROWN UNIVERSITY

Caroline J. Tolbert UNIVERSITY OF LOWA

Robert J. Spitzer SUNY CORTLAND

E L E V E N T H E S S E N T I A L S E D I T I O N

01_WTP_28364_fm_i-1.indd 5 06/12/16 11:42 am

W. W. Norton & Company has been independent since its founding in 1923, when William Warder Norton and Mary D. Herter Norton first published lectures delivered at the People’s Institute, the adult education division of New York City’s Cooper Union. The firm soon expanded its program beyond the Institute, publishing books by celebrated academics from America and abroad. By mid- century, the two major pillars of Norton’s publishing program—trade books and college texts— were firmly established. In the 1950s, the Norton family transferred control of the company to its employees, and today—with a staff of four hundred and a comparable number of trade, college, and professional titles published each year—W. W. Norton & Company stands as the largest and oldest publishing house owned wholly by its employees.

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The Library of Congress has cataloged the full edition as follows:

Library of Congress Cataloging-in-Publication Data

Ginsberg, Benjamin, author. | Lowi, Theodore J., author. | Weir, Margaret, 1952- author. | Tolbert, Caroline J., author. We the people : an introduction to American politics / Benjamin Ginsberg, the Johns Hopkins University, Theodore J. Lowi, Cornell University, Margaret Weir, Brown University, Caroline J. Tolbert, University of Iowa. Eleventh Edition. | New York : W.W. Norton & Company, [2017] Tenth edition: 2015. Includes bibliographical references and index. LCCN 2016050517 | ISBN 9780393283624 (hardcover) LCSH: United States—Politics and government—Textbooks. LCC JK276.G55 2017 | DDC 320.473—dc23 LC record available at https://lccn.loc .gov/2016050517

This edition: ISBN: 978-0-393-28364-8 (pbk.)

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To Teresa Spitzer

Sandy, Cindy, and Alex Ginsberg

Angele, Anna, and Jason Lowi

Nicholas Ziegler

David, Jackie, Eveline, and Ed Dowling

Preface xxi

Acknowledgments xxiii

PART I Foundations

1 l Introduction: The Citizen and Government 2

Government Affects Our Lives Every Day 5 Trust in Government Has Declined 7 Political Efficacy Means People Can Make

a Difference 7

Citizenship Is Based on Political Knowledge and Participation 8 “Digital Citizenship” Is the Newest Way to

Participate 9

Government Is Made Up of the Institutions and Procedures by Which People Are Ruled 9 Different Forms of Government Are Defined by Power and Freedom 9 Limits on Governments Encouraged Freedom 10 Expansion of Participation in America Changed the Political Balance 11 The Goal of Politics Is Having a Say in What Happens 11

The Identity of Americans Has Changed over Time 12 Immigration and Increasing Ethnic Diversity Have Long Caused

Intense Debate 13 Today the Country Still Confronts the Question “Who Are

Americans?” 14

l AMERICA SIDE BY SIDE Global Diversity 17

America Is Built on the Ideas of Liberty, Equality, and Democracy 19 Liberty Means Freedom 19 Equality Means Treating People Fairly 20 Democracy Means That What the People Want Matters 21

American Political Values and Your Future 21

contents

i x

l WHO PARTICIPATES? Who Participated in the 2012 Presidential Election? 23

Key Terms 26

For Further Reading 27

2 l The Founding and the Constitution 28

The First Founding: Ideals, Interests, and Conflicts 31 Narrow Interests and Political Conflicts Shaped the

First Founding 31 British Taxes Hurt Colonial Economic Interests 32 Political Strife Radicalized the Colonists 33 The Declaration of Independence Explained Why the

Colonists Wanted to Break with Great Britain 34 The Articles of Confederation Created America’s First

National Government 35

The Failure of the Articles of Confederation Made the “Second Founding” Necessary 36

The Annapolis Convention Was Key to Calling a National Convention 37

Shays’s Rebellion Showed How Weak the Government Was 37 The Constitutional Convention Didn’t Start Out to Write

a New Constitution 38

The Constitution Created Both Bold Powers and Sharp Limits on Power 41 The Legislative Branch Was Designed to Be the Most Powerful 43 The Executive Branch Created a Brand New Office 44 The Judicial Branch Was a Check on Too Much Democracy 45 National Unity and Power Set the New Constitution Apart from

the Old Articles 45 The Constitution Establishes the Process for Amendment 46 The Constitution Sets Forth Rules for Its Own Ratification 46 The Constitution Limits the National Government’s Power 46

Ratification of the Constitution Was Difficult 49 Federalists and Antifederalists Fought Bitterly over the Wisdom of the

New Constitution 50 Both Federalists and Antifederalists Contributed to the Success of the

New System 52

l AMERICA SIDE BY SIDE Comparing Systems of Government 53

Constitutional Amendments Dramatically Changed the Relationship between Citizens and the Government 54 Amendments: Many Are Called; Few Are Chosen 54 The Amendment Process Reflects “Higher Law” 55

The Constitution and Your Future 58 l WHO PARTICIPATES? Who Gained the Right to Vote through

Amendments? 59

x CONTENTS

Key Terms 62

For Further Reading 63

3 l Federalism 64

Federalism Shapes American Politics 67 Federalism Comes from the Constitution 67

The Definition of Federalism Has Changed Radically over Time 71 Federalism under the “Traditional System” Gave Most

Powers to the States 71 The Supreme Court Paved the Way for the End of the

“Traditional System” 73 FDR’s New Deal Remade the Government 75 Changing Court Interpretations of Federalism Helped

the New Deal While Preserving States’ Rights 76 Cooperative Federalism Pushes States to Achieve

National Goals 78 National Standards Have Been Advanced through Federal Programs 79

l AMERICA SIDE BY SIDE Government Spending in Federal and Unitary Systems 81

New Federalism Means More State Control 83 There Is No Simple Answer to Finding the Right National–State

Balance 84

Federalism and Your Future 88 l WHO PARTICIPATES? Who Participates in State and Local Politics? 89

Key Terms 91

For Further Reading 93

4 l Civil Liberties and Civil Rights 94

The Origin of the Bill of Rights Lies in Those Who Opposed the Constitution 97 The Fourteenth Amendment Nationalized

the Bill of Rights through Incorporation 98

The First Amendment Guarantees Freedom of Religion 101 Separation between Church and State Comes from the

First Amendment 101 Free Exercise of Religion Means You Have a Right to

Your Beliefs 102

The First Amendment and Freedom of Speech and of the Press Ensure the Free Exchange of Ideas 103 Political Speech Is Consistently Protected 103 Symbolic Speech, Speech Plus, Assembly, and Petition Are

Highly Protected 104

CONTENTS x i

Freedom of the Press Is Broad 106 Some Speech Has Only Limited Protection 106

The Second Amendment Now Protects an Individual’s Right to Own a Gun 109

Rights of the Criminally Accused Are Based on Due Process of Law 111 The Fourth Amendment Protects against Unlawful Searches

and Seizures 111 The Fifth Amendment Covers Court-Related Rights 113 The Sixth Amendment’s Right to Counsel Is Crucial for a Fair Trial 115 The Eighth Amendment Bars Cruel and Unusual Punishment 115

The Right to Privacy Means the Right to Be Left Alone 116

Civil Rights Are Protections by the Government 118 Plessy v. Ferguson Established “Separate but Equal” 118 Lawsuits to Fight for Equality Came after World War II 119 The Civil Rights Struggle Escalated after Brown v. Board

of Education 121 The Civil Rights Acts Made Equal Protection a Reality 122

The Civil Rights Struggle Was Extended to Other Disadvantaged Groups 126 Americans Have Fought Gender Discrimination 126 Latinos and Asian Americans Fight for Rights 129 Native Americans Have Sovereignty but Still Lack Rights 130 Disabled Americans Won a Great Victory in 1990 131 Gay Men and Lesbians Have Gained Significant Legal Ground 131

l AMERICA SIDE BY SIDE Same-Sex Marriage around the World 133

Affirmative Action Attempts to Right Past Wrongs 134 The Supreme Court Shifts the Burden of Proof in Affirmative Action 134

Civil Liberties, Civil Rights, and Your Future 135 l WHO PARTICIPATES? Religious Affiliation and Freedom

of Religion 137

Key Terms 140

For Further Reading 141

x i i CONTENTS

PART II Politics

5 l Public Opinion 142

Public Opinion Represents Attitudes about Politics 145 Americans Share Common Political Values 146 America’s Dominant Political Ideologies Are Liberalism

and Conservatism 148 Americans Exhibit Low Trust in Government 149

Political Socialization Shapes Public Opinion 150

Political Knowledge Is Important in Shaping Public Opinion 156

The Media and Government Mold Opinion 158 The Government Leads Public Opinion 159 Private Groups Also Shape Public Opinion 159 The News Media’s Message Affects Public Opinion 159 Government Policies Also Respond to Public Opinion 160

Measuring Public Opinion Is Crucial to Understanding What It Is 161 Public-Opinion Surveys Are Accurate If Done Properly 161

l AMERICA SIDE BY SIDE Public Opinion on Climate Change 162 Why Are Some Polls Wrong? 165

Public Opinion, Democracy, and Your Future 168 l WHO PARTICIPATES? Who Expresses Their Political Opinions? 169

Key Terms 172

For Further Reading 173

6 l The Media 174

Traditional Media Have Always Mattered in a Democracy 177 Print Media 177 Broadcast Media 179 More Media Outlets Are Owned by Fewer

Companies 180

The Rise of New Media Has Strongly Influenced How Americans Get Their News 182 Online News Takes Many Forms 183 New Media Have Many Benefits 187 But New Media Raise Several Concerns 188

CONTENTS x i i i

x i v CONTENTS

The Media Affect Power Relations in American Politics 189 The Media Influence Public Opinion through Agenda-Setting, Framing,

and Priming 189 Leaked Information Can Come from Government Officials or Independent

Sources 191 Adversarial Journalism Has Risen in Recent Years 192 Broadcast Media Are Regulated but Not Print Media 193

l AMERICA SIDE BY SIDE Press Freedom around the world 195

The Media, Democracy, and Your Future 196 l WHO PARTICIPATES? Who Participates via Social Media? 197

Key Terms 200

For Further Reading 201

7 l Political Parties, Participation, and Elections 202

Parties and Elections Have Been Vital to American Politics and Government 205

Political Parties Arose from the Electoral Process 205 Parties Recruit Candidates 206 Parties Organize Nominations 206 Parties Help Get Out the Vote 206 Parties Organize Power in Congress 208 Presidents Need Political Parties 208

America Is One of the Few Nations with a Two-Party System 209

Electoral Realignments Define Party Systems in American History 215 American Third Parties Sometimes Change the Major Parties and

Election Outcomes 216 Group Affiliations Are Based on Voters’ Psychological Ties to One

of the Parties 218

Political Participation Takes Both Traditional and Digital Forms 218 Voting Is the Most Important Form of Traditional Participation 218 Digital Political Participation Is Surging 219 Voter Turnout in America Is Low 221 Why Do People Vote? 222

l AMERICA SIDE BY SIDE Voter Turnout in Comparison 224

Voters Decide Based on Party, Issues, and Candidate 225 Party Loyalty Is Important 225 Issues Can Shape an Election 226 Candidate Characteristics Are More Important in the Media Age 226

The Electoral Process Has Many Levels and Rules 227 The Electoral College Still Organizes Presidential Elections 228

The 2016 Election 229 The 2016 Primaries Reflected Divisions within Both Parties 230 The General Election Was Bitterly Fought 230 White Working-Class Voters Were Key to Trump’s Victory 232 The 2016 Election Raised Important Questions About the Future 233

Money Is the Mother’s Milk of Politics 235 Campaign Funds Come from Direct Appeals, the Rich, PACs,

and Parties 235

Political Parties, Elections, and Your Future 238 l WHO PARTICIPATES? Who Voted in 2012? 239 Key Terms 242

For Further Reading 243

8 l Interest Groups 244

Interest Groups Form to Advocate for Different Interests 247 What Interests Are Represented? 248

l AMERICA SIDE BY SIDE Labor Union Membership in Global Decline 249 Some Interests Are Not Represented 250 Group Membership Has an Upper-Class Bias 250

The Organizational Components of Groups Include Money, Offices, and Members 251 The Internet Has Changed the Way Interest Groups

Foster Participation 254

The Number of Groups Has Increased in Recent Decades 255 The Expansion of Government Has Spurred the Growth of Groups 255 Public Interest Groups Grew in the 1960s and ’70s 256

Interest Groups Use Different Strategies to Gain Influence 256 Direct Lobbying Combines Education, Persuasion, and Pressure 257 Cultivating Access Means Getting the Attention of Decision Makers 258 Using the Courts (Litigation) Can Be Highly Effective 260 Mobilizing Public Opinion Brings Wider Attention to an Issue 261 Groups Often Use Electoral Politics 263

Groups, Interests, and Your Future 265 l WHO PARTICIPATES? How Much Do Major Groups Spend? 267

Key Terms 270

For Further Reading 271

CONTENTS x v

x v i CONTENTS

PART III Institutions

9 l Congress 272

Congress Represents the American People 275 The House and Senate Offer Differences in

Representation 275 Representation Can Be Sociological or Agency 276 The Electoral Connection Hinges on Incumbency 279 Direct Patronage Means Bringing Home the

Bacon 284

The Organization of Congress Is Shaped by Party 286

Party Leadership in the House and the Senate Organizes Power 286 The Committee System Is the Core of Congress 287 The Staff System Is the Power behind the Power 289

l AMERICA SIDE BY SIDE Legislatures in Comparison 290

Rules of Lawmaking Explain How a Bill Becomes a Law 291 The First Step Is Committee Deliberation 291 Debate Is Less Restricted in the Senate Than in the House 291 Conference Committees Reconcile House and Senate Versions

of Legislation 294 The President’s Veto Controls the Flow of Legislation 294

Several Factors Influence How Congress Decides 295 Constituents Matter 295 Interest Groups Influence Constituents and Congress 295 Party Leaders Rely on Party Discipline 296 Partisanship Has Thwarted the Ability of Congress to Decide 300

Much Congressional Energy Goes to Tasks Other Than Lawmaking 301 Congress Oversees How Legislation Is Implemented 302 Special Senate Powers Include Advice and Consent 302 Impeachment Is the Power to Remove Top Officials 303

Congress and Your Future 303 l WHO PARTICIPATES? Who Elects Congress? 305 Key Terms 308

For Further Reading 311

10 l The Presidency 312

Presidential Power Is Rooted in the Constitution 315 Expressed Powers Come Directly from the Words

of the Constitution 316 Delegated Powers Come from Congress 321 Modern Presidents Have Claimed Inherent Powers 322

l AMERICA SIDE BY SIDE Executive Branches in Comparison 323

Institutional Resources of Presidential Power Are Numerous 324 The Cabinet Is Often Distant from the President 325 The White House Staff Constitutes the President’s Eyes

and Ears 326 The Executive Office of the President Is a Visible Sign of the Modern

Strong Presidency 326 The Vice Presidency Has Become More Important since the 1970s 327 The First Spouse Has Become Important to Policy 327

Party, Popular Mobilization, and Administration Make Presidents Stronger 328 Going Public Means Trying to Whip Up the People 329 The Administrative Strategy Increases Presidential Control 331 Presidential Power Has Limits 334

The Presidency and Your Future 336 l WHO PARTICIPATES? Who Voted for Donald Trump in 2016? 337

Key Terms 340

For Further Reading 341

11 l Bureaucracy 342

Bureaucracy Exists to Improve Efficiency 345 Bureaucrats Fulfill Important Roles 346 The Size of the Federal Service Has Actually

Declined 348 The Executive Branch Is Organized Hierarchically 350

Federal Bureaucracies Promote Welfare and Security 351 Federal Bureaucracies Promote the Public Welfare 351

l AMERICA SIDE BY SIDE Bureaucracy in Comparison 353 Federal Agencies Provide for National Security 355 Federal Bureaucracies Help to Maintain a Strong National

Economy 357

Several Forces Control Bureaucracy 359 The President as Chief Executive Can Direct Agencies 359

CONTENTS x v i i

x v i i i CONTENTS

Congress Promotes Responsible Bureaucracy 361 Can the Bureaucracy Be Reformed? 363

Bureaucracy, Democracy, and Your Future 364 l WHO PARTICIPATES? Getting Information from the Bureaucracy 365

Key Terms 368

For Further Reading 369

12 l The Federal Courts 370

The Legal System Settles Disputes 373 Court Cases Proceed under Criminal and

Civil Law 373 Types of Courts Include Trial, Appellate,

and Supreme 374

The Federal Courts Hear a Small Percentage of All Cases 377

The Lower Federal Courts Handle Most Cases 377 The Appellate Courts Hear 20 Percent of Lower-Court

Cases 378 The Supreme Court Is the Court of Final Appeal 379 Judges Are Appointed by the President and Approved

by the Senate 380

The Power of the Supreme Court Is Judicial Review 382 Judicial Review Covers Acts of Congress 382

l AMERICA SIDE BY SIDE Judicial Review across the Globe 383 Judicial Review Applies to Presidential Actions 384 Judicial Review Also Applies to State Actions 385

Most Cases Reach the Supreme Court by Appeal 386 The Solicitor General, Law Clerks, and Interest Groups Also Influence the

Flow of Cases 387 The Supreme Court’s Procedures Mean Cases May Take Months

or Years 389

Supreme Court Decisions Are Influenced by Activism and Ideology 392

The Federal Judiciary and Your Future 395 l WHO PARTICIPATES? Influencing the Supreme Court? 397

Key Terms 400

For Further Reading 401

PART IV Policy

13 l Domestic Policy 402

The Tools for Making Policy Are Techniques of Control 405 Promotional Policies Get People to Do Things by

Giving Them Rewards 405 Regulatory Policies Are Rules Backed by Penalties 407 Redistributive Policies Affect Broad Classes

of People 409 Should the Government Intervene in the Economy? 411

Social Policy and the Welfare System Buttress Equality 412 The History of the Government Welfare System Dates

Only to the 1930s 412 The Social Security Act of 1935 Was the Foundation of the

Welfare System 413 Welfare Reform Has Dominated the Welfare Agenda

in Recent Years 416

The Cycle of Poverty Can Be Broken by Education, Health, and Housing Policies 418 Education Policies Provide Life Tools 418 Health Policies Mean Fewer Sick Days 420

l AMERICA SIDE BY SIDE U.S. Education Policy: Lagging or Leading? 421 Housing Policies Provide Residential Stability 425

Social Policy Spending Benefits the Middle Class More Than the Poor 426 Senior Citizens Receive over a Third of All Federal Dollars 426 The Middle and Upper Classes Benefit from Social Policies 428 The Working Poor Receive Fewer Benefits 428 Spending for the Nonworking Poor Is Declining 429 Minorities, Women, and Children Are Most Likely to Face Poverty 430

Domestic Policy and Your Future 431 l WHO PARTICIPATES? Who Pays Taxes? 433

Key Terms 436

For Further Reading 437

CONTENTS x i x

14 l Foreign Policy 438

Foreign Policy Goals Are Related 441 Security Is Based on Military Strength 441 Economic Prosperity Helps All Nations 445 America Seeks a More Humane World 445

l AMERICA SIDE BY SIDE Trade in Comparison 446

American Foreign Policy Is Shaped by Government and Nongovernment Actors 448

The President Leads Foreign Policy 449 The Bureaucracy Implements and Informs Policy

Decisions 450 Congress’s Legal Authority Can Be Decisive 450

Interest Groups Pressure Foreign Policy Decision Makers 452 Putting It Together 453

Tools of American Foreign Policy Include Diplomacy, Force, and Money 453 Diplomacy Is the Master Policy Tool 454 The United Nations Is the World’s Congress 454 The International Monetary Structure Helps Provide Economic

Stability 455 Economic Aid Has Two Sides 455 Collective Security Is Designed to Deter War 456 Military Force Is “Politics by Other Means” 457 Arbitration Resolves Disputes 458

Foreign Policy, Democracy, and Your Future 458 l WHO PARTICIPATES? Public Opinion on Security Issues 459

Key Terms 462

For Further Reading 463

l Appendix

The Declaration of Independence A1

The Articles of Confederation A5

The Constitution of the United States of America A11

Amendments to the Constitution A22

The Federalist Papers A31

The Anti-Federalist Papers A40

Presidents and Vice Presidents A48

Glossary A51

Endnotes A65

Answer Key A95

Credits A97

Index A99

x x CONTENTS

x x i

T his book has been and continues to be dedicated to developing a satisfactory response to the question more and more Americans are asking: Why should we be engaged with government and politics? Through the first ten editions, we sought to answer this question by making the text directly relevant to the lives of the students who would be reading it. As a result, we tried to make politics interesting by demonstrating that students’ interests are at stake and that they therefore need to take a personal, even selfish, interest in the outcomes of government. At the same time, we realized that students needed guidance in how to become politically engaged. Beyond providing students with a core of political knowledge, we needed to show them how they could apply that knowledge as par- ticipants in the political process. The “Who Participates?” sections in each chapter help achieve that goal.

As events from the last several years have reminded us, “what government does” inevitably raises questions about political participation and political equality. The size and composition of the electorate, for example, affect who is elected to public office and what policy directions the government will pursue. Hence, the issue of voter ID laws became important in the 2016 election, with some arguing that these laws reduce voter fraud and others contending that they decrease participation by poor and minority voters. Other recent events have underscored how Americans from different backgrounds experience politics. Arguments about immigration be- came contentious during the 2016 election as the nation once again debated the question of who is entitled to be an American and have a voice in determining what the government does. And charges that the police often use excessive vio- lence against members of minority groups have raised questions about whether the government treats all Americans equally. Reflecting all of these trends, this new Eleventh Edition shows more than any other book on the market (1) how students are connected to government, (2) why students should think critically about gov- ernment and politics, and (3) how Americans from different backgrounds experi- ence and shape politics. These themes are incorporated in the following ways:

• Chapter introductions focus on “What Government Does and Why It Matters.” In recent decades, cynicism about “big government” has domi- nated the political zeitgeist. But critics of government often forget that governments do a great deal for citizens. Every year, Americans are the beneficiaries of billions of dollars of goods and services from government programs. Government “does” a lot, and what it does matters a great deal to everyone, including college students. At the start of each chapter, this

preface

x x i i PREFACE

theme is introduced and applied to the chapter’s topic. The goal is to show students that government and politics mean something to their daily lives.

• A twenty-first-century perspective on demographic change moves beyond the book’s strong coverage of traditional civil rights content with expanded coverage of contemporary group politics.

• New “Who Participates?” infographics at the end of every chapter show students how different groups of Americans participate in key aspects of politics and government. Each concludes with a “What You Can Do” section that provides students with specific, realistic steps they can take to act on what they’ve learned and get involved in politics.

• “America Side by Side” boxes in every chapter use data figures and tables to provide a comparative perspective. By comparing political institutions and behavior across countries, students gain a better understanding of how specific features of the American system shape politics.

• Up-to-date coverage, with more than 10 pages and numerous graphics on the 2016 elections, including a five-page section devoted to analysis of the 2016 elections in Chapter 8, as well as updated data, examples, and other information throughout the book.

• Built-in study guides at the end of each chapter offer valuable learning tools. A practice quiz and glossary definitions help students review the chapter material. Each chapter also includes a list of recommended readings to help students get started on research projects.

• “Politics and Your Future” chapter conclusions give students direct, personal reasons to care about politics. These sections focus on the political oppor- tunities and challenges that students will face in their lives as a result of emerging social, political, demographic, and technological change. The con- clusions reprise the important point made in the chapter introductions that government matters and prompt students to consider how political change will impact their futures.

• This Eleventh Edition is accompanied by InQuizitive, Norton’s award-winning formative, adaptive online quizzing program. The InQuizitive course for We the People, Essentials Edition, guides students through questions orga- nized around the text’s chapter learning objectives to ensure mastery of the core information and to help with assessment. More information and a demonstration are available at digital.wwnorton.com/wethepeople11ess.

We continue to hope that our book will itself be accepted as a form of enlight- ened political action. This Eleventh Edition is another chance. It is an advancement toward our goal. We promise to keep trying.

http://digital.wwnorton.com/wethepeople11ess

x x i i i

We are especially pleased to acknowledge the many colleagues who had a direct and active role in criticism and preparation of the manuscript. Our thanks go to:

acknowledgments

First Edition Reviewers

Sarah Binder, Brookings Institution Kathleen Gille, Office of Representative

David Bonior Rodney Hero, University of Colorado

at Boulder Robert Katzmann, Brookings Institution Kathleen Knight, University of Houston Robin Kolodny, Temple University Nancy Kral, Tomball College Robert C. Lieberman, Columbia University David A. Marcum, University of Wyoming Laura R. Winsky Mattei, State University

of New York at Buffalo Marilyn S. Mertens, Midwestern State

University Barbara Suhay, Henry Ford Community

College Carolyn Wong, Stanford University Julian Zelizer, State University of New

York at Albany

Second Edition Reviewers

Lydia Andrade, University of North Texas John Coleman, University of Wisconsin

at Madison Daphne Eastman, Odessa College Otto Feinstein, Wayne State University Elizabeth Flores, Delmar College James Gimpel, University of Maryland

at College Park

Jill Glaathar, Southwest Missouri State University

Shaun Herness, University of Florida William Lyons, University of Tennessee

at Knoxville Andrew Polsky, Hunter College, City

University of New York Grant Reeher, Syracuse University Richard Rich, Virginia Polytechnic Bartholomew Sparrow, University

of Texas at Austin

Third Edition Reviewers

Bruce R. Drury, Lamar University Andrew I. E. Ewoh, Prairie View A&M

University Amy Jasperson, University of Texas

at San Antonio Loch Johnson, University of Georgia Mark Kann, University of Southern

California Robert L. Perry, University of Texas

of the Permian Basin Wayne Pryor, Brazosport College Elizabeth A. Rexford, Wharton County

Junior College Andrea Simpson, University of

Washington Brian Smentkowski, Southeast Missouri

State University Nelson Wikstrom, Virginia Common-

wealth University

x x i v ACKNOWLEDGMENTS

Fourth Edition Reviewers

M. E. Banks, Virginia Commonwealth University

Lynn Brink, North Lake College Mark Cichock, University of Texas

at Arlington Del Fields, St. Petersburg College Nancy Kinney, Washtenaw Community

College William Klein, St. Petersburg College Dana Morales, Montgomery College Christopher Muste, Louisiana State

University Larry Norris, South Plains College David Rankin, State University of New

York at Fredonia Paul Roesler, St. Charles Community

College J. Philip Rogers, San Antonio College Greg Shaw, Illinois Wesleyan University Tracy Skopek, Stephen F. Austin State

University Don Smith, University of North Texas Terri Wright, Cal State, Fullerton

Fifth Edition Reviewers

Annie Benifield, Tomball College Denise Dutton, Southwest Missouri State

University Rick Kurtz, Central Michigan University Kelly McDaniel, Three Rivers Community

College Eric Plutzer, Pennsylvania State University Daniel Smith, Northwest Missouri State

University Dara Strolovitch, University of Minnesota Dennis Toombs, San Jacinto College–

North Stacy Ulbig, Southwest Missouri State

University

Sixth Edition Reviewers

Janet Adamski, University of Mary Hardin–Baylor

Greg Andrews, St. Petersburg College Louis Bolce, Baruch College Darin Combs, Tulsa Community College

Sean Conroy, University of New Orleans Paul Cooke, Cy Fair College Vida Davoudi, Kingwood College Robert DiClerico, West Virginia University Corey Ditslear, University of North Texas Kathy Dolan, University of Wisconsin,

Milwaukee Randy Glean, Midwestern State University Nancy Kral, Tomball College Mark Logas, Valencia Community College Scott MacDougall, Diablo Valley College David Mann, College of Charleston Christopher Muste, University of Montana Richard Pacelle, Georgia Southern

University Sarah Poggione, Florida International

University Richard Rich, Virginia Tech Thomas Schmeling, Rhode Island College Scott Spitzer, California State

University–Fullerton Robert Wood, University of North Dakota

Seventh Edition Reviewers

Molly Andolina, DePaul University Nancy Bednar, Antelope Valley College Paul Blakelock, Kingwood College Amy Brandon, San Jacinto College Jim Cauthen, John Jay College Kevin Davis, North Central Texas College Louis DeSipio, University of California–

Irvine Brandon Franke, Blinn College Steve Garrison, Midwestern State

University Joseph Howard, University of Central

Arkansas Aaron Knight, Houston Community

College Paul Labedz, Valencia Community College Elise Langan, John Jay College Mark Logas, Valencia Community College Eric Miller, Blinn College Anthony O’Regan, Los Angeles Valley

College David Putz, Kingwood College Chis Soper, Pepperdine University Kevin Wagner, Florida Atlantic University Laura Wood, Tarrant County College

ACKNOWLEDGMENTS x x v

Eighth Edition Reviewers

Brian Arbour, John Jay College, CUNY Ellen Baik, University of Texas–Pan

American David Birch, Lone Star College–Tomball Bill Carroll, Sam Houston State University Ed Chervenak, University of New Orleans Gary Church, Mountain View College Adrian Stefan Clark, Del Mar College Annie Cole, Los Angeles City College Greg Combs, University of Texas at Dallas Cassandra Cookson, Lee College Brian Cravens, Blinn College John Crosby, California State

University–Chico Scott Crosby, Valencia Community College Courtenay Daum, Colorado State

University, Fort Collins Peter Doas, University of Texas–Pan

American John Domino, Sam Houston State University Doug Dow, University of Texas–Dallas Jeremy Duff, Midwestern State University Heather Evans, Sam Houston State University Hyacinth Ezeamii, Albany State University Bob Fitrakis, Columbus State Community

College Brian Fletcher, Truckee Meadows

Community College Paul Foote, Eastern Kentucky University Frank Garrahan, Austin Community College Jimmy Gleason, Purdue University Steven Greene, North Carolina State

University Jeannie Grussendorf, Georgia State University M. Ahad Hayaud-Din, Brookhaven College Alexander Hogan, Lone Star College–

CyFair Glen Hunt, Austin Community College Mark Jendrysik, University of North Dakota Krista Jenkins, Fairleigh Dickinson

University Carlos Juárez, Hawaii Pacific University Melinda Kovács, Sam Houston State

University Boyd Lanier, Lamar University Jeff Lazarus, Georgia State University Jeffrey Lee, Blinn College Alan Lehmann, Blinn College Julie Lester, Macon State College

Steven Lichtman, Shippensburg University Fred Lokken, Truckee Meadows

Community College Shari MacLachlan, Palm Beach

Community College Guy Martin, Winston-Salem State University Fred Monardi, College of Southern Nevada Vincent Moscardelli, University of

Connecticut Jason Mycoff, University of Delaware Sugumaran Narayanan, Midwestern State

University Anthony Nownes, University of Tennessee,

Knoxville Elizabeth Oldmixon, University of North

Texas John Osterman, San Jacinto College–Central Mark Peplowski, College of Southern

Nevada Maria Victoria Perez-Rios, John Jay

College, CUNY Sara Rinfret, University of Wisconsin,

Green Bay Andre Robinson, Pulaski Technical College Susan Roomberg, University of Texas at

San Antonio Ryan Rynbrandt, Collin County

Community College Mario Salas, Northwest Vista College Michael Sanchez, San Antonio College Mary Schander, Pasadena City College Laura Schneider, Grand Valley State

University Subash Shah, Winston-Salem

State University Mark Shomaker, Blinn College Roy Slater, St. Petersburg College Debra St. John, Collin College Eric Whitaker, Western Washington

University Clay Wiegand, Cisco College Walter Wilson, University of Texas at

San Antonio Kevan Yenerall, Clarion University Rogerio Zapata, South Texas College

Ninth Edition Reviewers Amy Acord, Lone Star College–CyFair Milan Andrejevich, Ivy Tech Community

College

Steve Anthony, Georgia State University Phillip Ardoin, Appalachian State

University Gregory Arey, Cape Fear Community

College Joan Babcock, Northwest Vista College Evelyn Ballard, Houston Community

College Robert Ballinger, South Texas College Mary Barnes-Tilley, Blinn College Robert Bartels, Evangel University Nancy Bednar, Antelope Valley College Annie Benifield, Lone Star College–Tomball Donna Bennett, Trinity Valley Community

College Amy Brandon, El Paso Community College Mark Brewer, The University of Maine Gary Brown, Lone Star College–Montgomery Joe Campbell, Johnson County

Community College Dewey Clayton, University of Louisville Jeff Colbert, Elon University Amanda Cook-Fesperman, Illinois Valley

Community College Kevin Corder, Western Michigan

University Kevin Davis, North Central Texas College Paul Davis, Truckee Meadows Community

College Terri Davis, Lamar University Jennifer De Maio, California State

University, Northridge Christopher Durso, Valencia College Ryan Emenaker, College of the Redwoods Leslie Feldman, Hofstra University Glen Findley, Odessa College Michael Gattis, Gulf Coast State College Donna Godwin, Trinity Valley Community

College Precious Hall, Truckee Meadows

Community College Sally Hansen, Daytona State College Tiffany Harper, Collin College Todd Hartman, Appalachian State University Virginia Haysley, Lone Star College–

Tomball David Head, John Tyler Community

College Rick Henderson, Texas State University–

San Marcos Richard Herrera, Arizona State University

Thaddaus Hill, Blinn College Steven Holmes, Bakersfield College Kevin Holton, South Texas College Robin Jacobson, University of Puget Sound Joseph Jozwiak, Texas A & M–Corpus

Christi Casey Klofstad, University of Miami Samuel Lingrosso, Los Angeles Valley

College Mark Logas, Valencia College Christopher Marshall, South Texas College Larry McElvain, South Texas College Elizabeth McLane, Wharton County Junior

College Eddie Meaders, University of North Texas Rob Mellen, Mississippi State University Jalal Nejad, Northwest Vista College Adam Newmark, Appalachian State

University Stephen Nicholson, University of

California, Merced Cissie Owen, Lamar University Suzanne Preston, St. Petersburg College David Putz, Lone Star College–Kingwood Auksuole Rubavichute, Mountain View

College Ronnee Schreiber, San Diego State University Ronald Schurin, University of Connecticut Jason Seitz, Georgia Perimeter College Jennifer Seitz, Georgia Perimeter College Shannon Sinegal,The University of New

Orleans John Sides, George Washington University Thomas Sowers, Lamar University Jim Startin, University of Texas at San

Antonio Robert Sterken, University of Texas at Tyler Bobby Summers, Harper College John Theis, Lone Star College–Kingwood John Todd, University of North Texas Delaina Toothman, The University of Maine David Trussell, Cisco College Ronald Vardy, University of Houston Linda Veazey, Midwestern State University John Vento, Antelope Valley Community

College Clif Wilkinson, Georgia College John Wood, Rose State College Michael Young, Trinity Valley Community

College Tyler Young, Collin College

x x v i ACKNOWLEDGMENTS

Tenth Edition Reviewers

Stephen P. Amberg, University of Texas at San Antonio

Juan F. Arzola, College of the Sequoias Thomas J. Baldino, Wilkes University Christina Bejarano, University of Kansas Paul T. Bellinger, Jr., University of Missouri Melanie J. Blumberg, California University

of Pennsylvania Matthew T. Bradley, Indiana University

Kokomo Jeffrey W. Christiansen, Seminole State

College McKinzie Craig, Marietta College Christopher Cronin, Methodist University Jenna Duke, Lehigh Carbon Community

College Francisco Durand, University of Texas at

San Antonio Carrie Eaves, Elon University Paul M. Flor, El Camino College Compton

Center Adam Fuller, Youngstown State University Christi Gramling, Charleston Southern

University Sally Hansen, Daytona State College Mary Jane Hatton, Hawai’i Pacific University David Helpap, University of

Wisconsin–Green Bay Theresa L. Hutchins, Georgia Highlands

College Cryshanna A. Jackson Leftwich,

Youngstown State University Ashlyn Kuersten, Western Michigan

University Kara Lindaman, Winona State University Timothy Lynch, University of Wisconsin–

Milwaukee Larry McElvain, South Texas College Corinna R. McKoy, Ventura College Eddie L. Meaders, University of North Texas Don D. Mirjanian, College of Southern

Nevada R. Shea Mize, Georgia Highlands College Nicholas Morgan, Collin College Matthew Murray, Dutchess Community

College Harold “Trey” Orndorff III, Daytona State

College Randall Parish, University of North Georgia

Michelle Pautz, University of Dayton Michael Pickering, University of New

Orleans Donald Ranish, Antelope Valley College Glenn W. Richardson, Jr., Kutztown

University of Pennsylvania Jason Robles, Colorado State University Ionas Aurelian Rus, University of

Cincinnati–Blue Ash Robert Sahr, Oregon State University Kelly B. Shaw, Iowa State University Captain Michael Slattery, Campbell

University Michael Smith, Sam Houston State

University Maryam T. Stevenson, University of

Indianapolis Elizabeth Trentanelli, Gulf Coast State

College Ronald W. Vardy, University of Houston Timothy Weaver, University of Louisville Christina Wolbrecht, University of Notre

Dame

Eleventh Edition Reviewers

Maria J. Albo, University of North Georgia Andrea Aleman, University of Texas at San

Antonio Juan Arzola, College of the Sequoias Ross K. Baker, Rutgers University Lauren Balasco, Pittsburg State University Daniel Birdsong, University of Dayton Phil Branyon, University of North Georgia Camille D. Burge, Villanova University Matthew DeSantis, Guilford Technical

Community College Sheryl Edwards, University of

Michigan–Dearborn Lauren Elliott-Dorans, University of Toledo Heather Evans, Sam Houston State

University William Feagin, Jr., Wharton County

Junior College Glen Findley, Odessa College Heather Frederick, Slipper Rock University Jason Ghibesi, Ocean County College Patrick Gilbert, Lone Star–Tomball Rebecca Herzog, American River College Steven Horn, Everett Community College

ACKNOWLEDGMENTS x x v i i

Demetra Kasimis, California State University, Long Beach

Eric T. Kasper, University of Wisconsin– Eau Claire

Jill Kirkham, Brigham Young University– Idaho

Mary Linder, Grayson County College Johnson Louie, California State University,

Stanislaus Phil McCall, Portland State University Patrick Novotny, Georgia Southern

University Carolyn Myers, Southwestern Illinois

College–Belleville Gerhard Peters, Citrus College

Michael A. Powell, Frederick Community College

Robert Proctor, Santa Rosa Junior College

Allen K. Settle, California Polytechnic State University

Laurie Sprankle, Community College of Allegheny County

Ryan Lee Teten, University of Louisiana at Lafayette

Justin Vaughn, Boise State University John Vento, Antelope Valley College Aaron Weinschenk, University of

Wisconsin–Green Bay Tyler Young, Collin College

x x v i i i ACKNOWLEDGMENTS

We are also grateful to Melissa Michelson, of Menlo College, who contrib- uted to the “Who Participates?” infographics for this edition; Holley Hansen, of Oklahoma State University, who contributed to the “America Side by Side” boxes; and Gabrielle Ellul for research assistance.

Perhaps above all, we thank those at W. W. Norton. For its first five editions, editor Steve Dunn helped us shape the book in countless ways. Lisa McKay contrib- uted smart ideas and a keen editorial eye to the Tenth Edition. Ann Shin carried on the Norton tradition of splendid editorial work on the Sixth through Ninth Editions and on the current Eleventh Edition. As associate editor, Emily Stuart brought intel- ligence and dedication to the development of this Eleventh Edition. For our InQuizi- tive course, Coursepack, and other instructor resources, Spencer Richardson-Jones has been an energetic and visionary editor. Ashley Horna, Michael Jaoui, Shannon Jilek, and Ariel Eaton also kept the production of the Eleventh Edition and its ac- companying resources coherent and in focus. Andrew Pachuta copyedited the manu- script, and our superb project editor Christine D’Antonio devoted countless hours to keeping on top of myriad details. We thank Elyse Rieder for finding new photos and our photo editor Catherine Abelman for managing the image program. Finally, we thank Roby Harrington, the head of Norton’s college department.

Benjamin Ginsberg Theodore J. Lowi Margaret Weir Caroline J. Tolbert

October 2016

We the People AN INTRODUCTION TO AMERICAN POLITICS

E L E V E N T H E S S E N T I A L S E D I T I O N

Most Americans share the core political values of liberty, equality, and democracy and want their government and its policies to re- flect these values. However, people often disagree on the meaning of these values and what government should do to protect them.

3

Introduction: The Citizen and Government

1

WHAT GOVERNMENT DOES AND WHY IT MATTERS Americans some- times appear to believe that the government is an institution that does things

to them and from which they need protection. Students may wonder why they

have to fill in long, often complicated forms to apply for financial assistance.

They may frown when they see the payroll tax deducted from their small pay-

check. Like Americans of all ages, they may resent municipal “red-light” cam-

eras designed to photograph traffic violators—and send them tickets.

Although most people complain about something that government does

to them, most everyone wants the government to do a great deal for them.

Some of the services that people expect from government are big-ticket items,

such as providing national security and keeping the nation safe from terrorist

attacks. We all know that government pays for and directs the military. Stu-

dents attending a state university know that state and federal public dollars

help support their education.