2. 1 Introducing Government in America
Government and politics matter. Government affects every aspect of your daily life. As Barack Obama said when he first ran for public office in 1993, “Politics does matter. It can make the difference in terms of a benefits check. It can make the difference in terms of school funding. Citizens can’t just remove themselves from that process. They actually have to engage themselves and not just leave it to the professionals.”
Young people participate in politics at lower rates than older generations, for a variety of reasons. After completing this course, you should be convinced of participating in politics and your ability to make a difference.

3. 1
Video: The Big Picture
President Obama has stated why politics should matter to you. Now let’s hear from author Martin P. Wattenberg, who explains why having an interest in the political system can help you decide which issues you care about the most, and then evaluate the way that the government is handling and prioritizing those issues.
TO THE INSTRUCTOR: To access the videos in this chapter, please enter your Pearson or MyPoliScilab username and password after clicking on the link on the slide.

4. Learning Objectives
1. Identify the key functions of government and explain why they matter.
2. Define politics in the context of democratic government
3. Assess how citizens can have an impact on public policy and how policies can impact people
4. Identify the key principles of democracy and outline theories regarding how it works in practice and the challenges democracy faces today
5. Outline the central arguments of the debate in America over the proper scope of government
In this chapter we'll discover the differences between government and politics.
We’ll look at the ways you as a citizen can get involved in the policymaking system.
We'll next examine democracy in theory and practice and, finally, consider debates about the appropriate scope of government.
Keep these learning objectives in mind as you complete this chapter.

5. 1
Video: The Basics
Before we begin, let’s watch this video to learn what function government serves. In this video, you’ll analyze this question and explore the core values that shape our political system and how the growing diversity of our population is changing – and reaffirming -- the definition of what it means to be American.

6. Government 1.1 What is government? How should we govern?
Government is the institutions that make public policy decisions for a society. What are these institutions in the United States?
One fundamental question to ask ourselves about government is: How should we govern? Our government is democratic, but that is not the only form government can take.
Another question to ask ourselves is: What should government do? Debates over the scope of government are fierce in America today, but there is agreement in a few areas of government responsibility, including:
• national defense
• providing public goods and services
• preserving order
• socializing the young
• and collecting taxes.
Activity: How we should be governed? What are the strengths and weaknesses of our democracy in the contemporary era? What are its weaknesses? Why? What can we do about them? This could also be used for a reading and writing connection, asking students to keep a journal that focuses on these questions throughout the semester.
What is government?
How should we govern?
What should government do?
Maintain a national defence
Provide public goods and services
Preserve order
Socialize the young
Collect taxes

7. Activity How we should e Governed?
What are the strengths and weaknesses of our democracy in the contemporary era? What are its weaknesses? Why?
What can we do about them?

8. 1.1
Transfer of Power
We see in this photo a peaceful transfer of power in Congress. When Republicans won a majority of seats, Democrat Nancy Pelosi handed the gavel over to the new Speaker of the House, Republican John Boehner.

9. 1.1
Afghanistan
National defense is a key public service. The United States spends over $650 billion a year on national defense.
As we learn from the caption, these troops are guarding the road in Afghanistan against explosive devices planted by Taliban insurgents.

10. 1.1 Which of the following is not a duty of government?
Now that we’ve discussed what government does, can you answer this question?
Collecting taxes
Proving for national defense
Promoting religion
Preserving order 10

11. 1.1 Which of the following is not a duty of government?
As we'll learn in this course, the promotion of a religion was not intended to be a duty of government.
Collecting taxes
Proving for national defense
Promoting religion
Preserving order 11 11

12. Politics 1.2 What is politics? Political participation
Politics determines whom we select as our governmental leaders and what policies these leaders pursue. Or, more succinctly, politics is who gets what, when, and how.
Political participation comprises the ways people get involved in politics. Most people think first of voting when they consider political participation. This is an important form of political participation. The voter turnout rate in the U.S. is one of the lowest in the world.
What is politics?
Who gets what, when, and how
Political participation
More than just voting

13. FIGURE 1.1: Political apathy among young and old Americans, 1972–2008
1.2
FIGURE 1.1: Political apathy among young and old Americans, 1972–2008
In every presidential election from 1972 to 2008, the American National Election Studies has asked a cross-section of the public the following question: “Would you say you follow what’s going on in government and public affairs most of the time, some of the time, only now and then, or hardly at all?”
The graph shows the percentage who said they only followed politics “only now and then” or “hardly at all.” Lack of political interest among young people hit a record high during the 2000 campaign between Bush and Gore, when over two-thirds said they rarely followed public affairs. Compared to senior citizens, young people are twice as likely to report low political interest.

14. FIGURE 1.2: Age and political knowledge, 1972 and 2008
This figure shows the percentage of correct answers to questions asked in 1972 and 2008 by age group. One question was Which party currently had more seats in the House of Representatives?
In 1972, the relationship between age and political knowledge was basically flat: Each age group displayed roughly the same level of information about basic political facts. By 2008, the picture had changed quite dramatically, with young people being substantially less likely to know the answer to such questions than older people.

15. 1.2
FIGURE 1.3: Election turnout rates of young and old Americans, 1972–2010
This graph shows the turnout gap between young and old Americans in all presidential and midterm elections from 1972 through The sawtooth pattern of both lines illustrates how turnout always drops off between a presidential election and a midterm congressional election.
In 2008, turnout among young people rose to the highest level since 1972, spurred by a surge of participation by minority youth. Record rates of turnout were set by young African- Americans, who for the first time had a higher turnout rate than young whites, and by young Hispanics and Asian-Americans. What happened in 2010?

16. Politics 1.2 Single-issue groups e.g., abortion
Voting is not the only way to get involved in politics.
Single-issue groups consist of voters so concerned with one issue that members often cast their votes on the basis of that issue only, ignoring a politician’s stand on everything else. Groups of activists dedicated to outlawing abortion are a good example of a single-issue group.
Single-issue groups
e.g., abortion

17. 1.2
Abortion rally
Anti-choice and pro-choice groups are single-minded and usually uncompromising. Few issues stir up as much passion as whether abortion should be permitted and, if so, under what conditions.

18. 1.2 Which is true of single-issue groups?
Now I want to check your comprehension of single-interest groups and their effect on politics.
They increase voter participation.
They negatively affect voter turnout.
They vote just for politicians who support their issue.
They force politicians to consider compromises. 18

19. 1.2 Which is true of single-issue groups?
Single-issue voters cast votes only for politicians who support their stand on an issue.
They increase voter participation.
They negatively affect voter turnout.
They vote just for politicians who support their issue.
They force politicians to consider compromises. 19 19

20. Policymaking System 1.3 People Shape Policy Politics Impact People
The policymaking system is in effect a cycle. Citizens’ interests and concerns are transmitted through political parties and elections, interest groups, and the media. These concerns shape the government’s policy agenda. Congress, the presidency, and the courts choose the issues on the agenda they will address. The policies that are made, such as laws, executive orders, regulations, and court judgments, then influence people’s lives.
People Shape Policy
Politics Impact People

21. FIGURE 1.4: The policymaking system
1.3
FIGURE 1.4: The policymaking system
Let’s look at this graphic that shows the cycle of the policymaking system.
Policymaking begins with people. We all have problems, interests, and concerns that we expect the government to act on. How are these transmitted to government policymakers? Usually by parties, elections, interest groups, and the media, so-called linkage institutions.
These institutions help to shape the government’s policy agenda, which comprises the issues that public officials address.

22. People Shape Policy 1.3 Linkage institutions Policy agenda
People, of course, do not always agree on what government should do. A political issue is the result of people disagreeing about a problem or about the public policy needed to fix it. The current health care policy debate is a perfect example.
The U.S. Constitution created three policymaking institutions: Congress, the presidency, and the courts. Few policies are made by a single policymaking institution but rather by some combination, as intended by our system of checks and balances, which you'll learn more about later.
Linkage institutions
Policy agenda
Political issue
Policymaking institutions
Congress
Presidency
Courts

23. Politics Impact People
1.3
Politics Impact People
Every decision that government makes is public policy, and there are many forms that policy can take. Once policies are made and implemented, they should be effective, that is, they should address whatever problem they were designed to solve. Policy impacts are the effects that a policy has on people and on society’s problems. To be effective, a policy must have a goal, such as cutting crime or ensuring clean water.
Public policy
Statute
Presidential action
Court decision
Budgetary choice
Regulation
Policies should be effective
Policies must have a goal

24. Table 1.1: Types of public policies
1.3
Table 1.1: Types of public policies
This table lists five types of public policies. Which government institution makes each type?

25. 1.3 Which of the following is an example of public policy?
Now I want to test your comprehension about public policy.
Personal conviction
Parental rule
Congressional statute
Religious edict 25

26. 1.3 Which of the following is an example of public policy?
Laws that Congress passes create public policy.
Personal conviction
Parental rule
Congressional statute
Religious edict 26 26

27. Democracy in America 1.4 Traditional Democratic Theory
According to traditional democratic theory, the ideal democracy is characterized by:
• “one person, one vote,”
• equal opportunities to participate,
• freedom of speech and the press,
• citizen control of the policy agenda,
• and inclusion.
Pluralist theory holds that American democracy works well, because competition among many organized groups means that the public interest becomes public policy.
This view is disputed by elitist theory, which claims that the powerful few dominate, and by hyperpluralist theory, which sees the excessive influence of many competing groups as leading to muddled policy or inaction.
Contemporary challenges to American and other democracies include the complexity of issues today, citizens’ limited participation, escalating campaign costs, and the policy gridlock resulting from diverse political interests.
Traditional Democratic Theory
Three Contemporary Theories of American Democracy
Challenges to Democracy
American Political Culture and Democracy
A Culture War

28. Traditional Democratic Theory
1.4
Traditional Democratic Theory
Robert Alan Dahl (December 17, 1915 – February 5, 2014) was the Sterling Professor emeritus of political science at Yale University, where he earned his Ph.D. in political science in He was past president of the American Political Science Association. Dahl was sometimes described as "the dean of American political scientists".
As previously mentioned, an ideal democratic process should satisfy certain criteria, including:
• equality in voting, which means one person, one vote
• effective participation, by which we mean that all citizens have an equal chance to influence the policy agenda
• enlightened understanding, which is predicated upon free speech and a free press
• citizen control of the policy agenda
• and inclusion, which we take to mean access to citizenship for all residents of a democratic nation.
Democracies must practice majority rule but the basic rights and liberties of minorities must also be protected.
Since it is impractical for all citizens to vote individually on every policy issue, we elect representatives to do that for us.
Key principles of the democratic process (according to Dahl):
Equality in voting
Effective participation
Enlightened understanding
Citizen control of the agenda
Inclusion
Majority rule and minority rights
Representation

29. Three Contemporary Theories of American Democracy
1.4
Three Contemporary Theories of American Democracy
Pluralism is the theory that groups with shared interests influence public policy through organized efforts. The National Rifle Association (NRA) is an example of an interest group. Pluralists claim that no group can dominate because all have equal access to institutions of decision making. Is this true? Pluralism depends upon interest group participation. Are Americans joiners?
Elitism contends that not all groups have equal access, that the wealthy have much more power and influence on government than the poor, and can therefore shape public policy to suit them. Current demographics and policy trends support elite theory.
Hyperpluralism is pluralism gone sour. In this view, the influence of so many groups cripples government’s ability to make policy. When politicians try to placate every group, the result is confusing, contradictory, and muddled policy.
Which theory do you subscribe to?
Pluralism
Groups of minorities working together
Elitism
Power is held by the wealthy
Hyperpluralism
Too many groups try to control policy

30. Challenges to Democracy
1.4
Challenges to Democracy
Traditional democratic theory holds that ordinary citizens have the good sense to reach political judgments and that government has the capacity to act on those judgments. But is that still true today when policy issues are so complex that they require intensive technical knowledge to make well-informed decisions?
Limited participation challenges the very foundation of democratic government. Low voter turnout and low levels of political activity by young people are an ongoing challenge.
The diversity of the American people can lead to each interest using its influence to thwart others, resulting in policy gridlock.
The close connection between money and politics is the major challenge to democracy in this country. Candidates must raise vast sums to run for office, and spend most of their time in office fundraising rather than governing.
Increased complexity of issues
Limited participation in government
Diverse political interests
Policy gridlock
Escalating campaign costs

31. Super PAC contributions
1.4
Super PAC contributions
Billionaires like Sheldon and Miriam Adelson (shown here) made multimillion-dollar contributions to Super PACs that supported particular presidential candidates in What effect do you think money has on fair elections? 31

32. American Political Culture and Democracy
1.4
American Political Culture and Democracy
Americans are diverse but the political culture binds us together. This set of values is widely shared, regardless of ancestry religion or heritage.
Liberty is the primary value of the American creed, far exceeding the others in its importance to Ameicans.
Political culture based on American creed
Liberty
Egalitarianism
Individualism
Laissez-faire
Populism

33. New Hampshire license plate
1.4
New Hampshire license plate
Liberty is so important that New Hampshire has even gone so far to place a slogan to this effect on all the automobile license plates in the state.
Freedoms such as speech and religion are also fundamental to the American way of life.

34. FIGURE 1.5: Pride in equal treatment
1.4
FIGURE 1.5: Pride in equal treatment
of groups in the U.S. and other established democracies
Americans rank very high in terms of being proud of their country’s fair and equal treatment of all groups. This figure shows the percentages who said “very proud” or “somewhat proud” in response to the question, “How proud are you of [country] in its fair and equal treatment of all groups—very proud, somewhat proud, not very proud, not proud at all?”

35. 1.4
A Culture War?
Some scholars are concerned that a sharp polarization into rival liberal versus conservative political cultures has taken place in recent years. They argue that the intensity of political divisions in twenty-first-century America is a major problem.
Other scholars see little evidence of this so-called culture war. If anything, they say, public opinion has grown more centrist, more tolerant of the divergent views, values, and behavior.
What do you think? Which side is correct?
We can test for a crisis of cultural values by asking if there has been a loss over time of traditional values, such as the importance of religion and family life, if we can make an unfavorable comparison with the citizens of other countries in terms of key values such as patriotism, and if our society is now divided into opposed groups with irreconcilable moral differences.
Activity: Ask students to find a political cartoon relating to a recent event or issue. Daryl Cagle’s PoliticalCartoons.com website ( may provide a useful starting point. Then ask students to bring their cartoon to class and discuss how the cartoon illustrates a central theme in American politics.
Polarization of liberal and conservative political culture
Is it happening?
Testing a crisis of values
Loss of traditional values
Less patriotism
Irreconcilable differences

36. 1
Video: In Context
Now let’s watch this video that explains more about American political culture. In this video, University of Oklahoma political scientist Allyson Shortle examines the core values that make up American political culture. She also discusses how these values gave rise to the American Dream.

37. 1.4 Which of the following illustrates hyperpluralism?
Let’s see what you understand about what we’ve learned in this section. Can you answer this question?
Use of the court system to try to set policy
Decrease in patriotism
Reliance on Congress to limit special interests
Diversity in political interests 37

38. 1.4 Which of the following illustrates hyperpluralism?
Interest groups may turn to the courts instead of Congress, turning the court system in a battleground.
Use of the court system to try to set policy
Decrease in patriotism
Reliance on Congress to limit special interests
Diversity in political interests 38 38

39. Scope of Government in America
1.5
Scope of Government in America
One of the most important issues facing modern American democracy is the proper scope of government. Politicians constantly debate whether the scope of government responsibilities is too vast, just about right, or not comprehensive enough. This debate concerns whether the goals that are agreed to be important are best achieved through government action or rather through means other than government.
How Active Is American Government?

40. 1 Video: Thinking Like a Political Scientist
Before we continue, let’s watch this video to find out how and why research on American politics has shifted. Boston University political scientist Neta C. Crawford discusses how scholars who once focused on voters and institutions are now looking at deliberation as the primary indicator of the health of a democratic system.

41. 1.5
The political debate over programs that help low-income individuals continues. Do such programs expand the scope of government too much? Or do they help people to get by during hard times?

42. How Active Is American Government?
1.5
How Active Is American Government?
The gross domestic product is the total value of all goods and services produced annually by the United States. The federal government spends about one-third of this, or $3.7 trillion a year, implementing public policies, and it employs about 24 million Americans.
The size of federal government expenditures should hardly be surprising in light of the many issues that Americans have come to expect their government to deal with.
Gross domestic product (GDP)
Government spends 1/3
Government employs 24 million people
Americans expect government to solve problems
Unemployment, terrorism, illegal immigration, energy, education, lack of access to health care

43. 1 Video: In the Real World
As we’ve just learned, Americans demand a lot from government. What is the government’s function in everyday life? Real people share their opinions on how involved the federal government should be in education by evaluating the effectiveness of the No Child Left Behind Act, which encourages standardized testing.

44. 1.5 About one-third of the GDP is spent by
Can you answer this brief question about government spending?
The federal government
State governments
Local governments
All three governments combined 44

45. 1.5 About one-third of the GDP is spent by
The national government spends close to $4 trillion a year, some of which goes to state and local governments. These governments also have their own budgets.
The federal government
State governments
Local governments
All three governments combined 45 45

46. 1 Discussion Question What are the three theories of
Pluralism is the theory that groups with shared interests influence public policy through organized efforts. Pluralists claim that no group can dominate because all have equal access to institutions of decision making. Is this true? Pluralism depends upon interest group participation. Are Americans joiners?
Elitism contends that not all groups have equal access, that the wealthy have much more power and influence on government than the poor, and can therefore shape public policy to suit them. Current demographics and policy trends support elite theory.
Hyperpluralism is pluralism gone sour. In this view, the influence of so many groups cripples government’s ability to make policy. When politicians try to placate every group, the result is confusing, contradictory, and muddled policy.
Which theory do you subscribe to?
What are the three theories of
policymaking in the United States?
Which theory seems most plausible to
you? Why?

47. 1
Video: So What?
Now that we’ve discussed the purpose of government and the importance of voting, let’s turn to the question, What can happen if you don’t vote? More than you would think. Author Martin P. Wattenberg argues that by not voting, students and other demographics are sending a message to politicians that their interests are not as important as those of the groups with higher voter turnout.