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The Transformation in America Politics: Implications for Federalism (A-106)

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The Transformation in America Politics: Implications for Federalism (A-106) ADVISORY COMMISSION ON INTERGOVERNMENTAL RELATIONS August 1986 Private Citizens James S. Dwight, Jr., Arlington, VA Daniel J. Elazar, Philadelphia, PA Robert B. Hawkins, Jr., CHAIRMAN, San Francisco, CA Members of the United States Senate David Durenberger, Minnesota William V. Roth, Delaware James R. Sasser, Tennessee Members of the U.S. House of Representatives Sander M. Levin, Michigan Robert S. Walker, Pennsylvania Theodore S. Weiss, New York Officers of the Executive Branch, Federal Government William E. Brock, 111, Secretary, U.S. Department of Labor Mitchell E. Daniels, Jr., Assistant to the President for Political and Governmental Affairs Edwin Meese, 111, Attorney General, U.S. Department of Justice Governors John Carlin, Kansas Ted Schwinden, Montana John H. Sununu, VICE CHAIRMAN, New Hampshire Richard L. Thornburgh, Pennsylvania Mayors Ferd Harrison, Scotland Neck, North Carolina William H. Hudnut, 111, Indianapolis, Indiana Joseph P. Riley, Jr., Charleston, S.C. Vacancy State Legislators John T. Bragg, Deputy Speaker, Tennessee House of Representatives Ross 0. Doyen, Kansas State Senate David E. Nething, Majority Leader, North Dakota State Senate Elected County Officials Gilbert Barrett, Chairman of the Board, Dougherty County, Georgia Philip B. Elfstrom, County Commissioner, Kane County, Illinois Sandra R. Smoley, Supervisor, Sacramento County, California The Transformation in American Politics: Implications for Federalism ADVISORY COMMISSION ON INTERGOVERNMENTAL RELATIONS WASHINGTON,D.C. August 1986 A-106 PREFACE* By the advent of the 19808, it had become clear to virtually all observers that the traditional role of American political parties had been substantially altered. No longer did parties dominate the political landscape as they had throughout much of the republic's history. Furthermore, the most pronounced decline in party influence ocurred at the state and local levels. While the electoral and ideological effects of this change had been extensively analyzed, there was scant literature concerning the implications for federalism. There- fore, in March 1983, the Advisory Commission on Intergovernmental Relations decided to study the transformation of the political party structure and analyze its effect on intergovernmental relations. Accentuating the timeliness and significance of this topic was a 1985 Su- preme Court decision in Garcia v. san Antonio Metropolitan Transit Authority. In that case, the Court held that it is the political process, not the judici- ary interpreting the Constitution, that affords states and localities their rights in the American federal system. Because Presidents and member of Con- gress are elected by voters in the states, the Court held, those jurisdictions (and their subdivisions) derive their protection through electoral means. Yet, as a dissent in Garcia notes, while Presidents and members of Congress "are elected from the various states ... once in office they are members of the federal government." Where, then, are the institutional pressures forcing federal officials to guard the constitutional rights of the states? This report suggests that one method for restoring constraints on the na- tional government is by revitalizing state and local political parties. As the text reveals, the connection between the political process and the governing process is inseverable. No republic can flourish without enduring political instrumentalities which transform the public's wishes into governmental actions, and despite shortcomings, American political parties have historically fulfilled this vital function. Until quite recently, they also played a positive role in *Representative Ted Weiss dissents from the entire report on the basis that the subject of political parties is not an appropriate topic for Commission consideration. -iii- maintaining a balance of power among the different levels of government. Examined in the report are several intertwined phenomena which have con- tributed to the supplantation of political parties' traditional functions: de- cline in voter identification with the two major parties, the rise of the inde- pendent politician, television's nationalizing influence on politics, the pro- liferation of special interest groups, the revolution in campaign finance, and the growth of the national parties at the expense of state and local parties. A separate chapter traces the evolution of political parties throughout Ameri- can history. The report, and attendant recommendations, were adopted at the Commission's September 1985 meeting. Robert B. Hawkins, Jr. Chai man ACKNOWLEDGEMENTS This volume was prepared by the research division of the Commission staff under the supervision of David B. Walker, assistant director. Timothy J. Conlan served as project manager. The following staff members were chiefly responsible for individual chapters: Chapters 1, 3, and 4, Timothy Conlan; Chapter 2, Rob- ert Dilger; Chapter 5, Lori M. Henderson and David R. Beam; Chapter 6, Ann M. Martino and Cynthia Cates Colella; Chapter 7, Cynthia Cates Colella. Each of these staff members contributed to Chapter 8. Susannah Calkins, Mary Dominguez, Karen Kirkwood, and Bruce Wallin were responsible for final preparation of the manuscript. Secretarial services were rendered by Arlene Preston, Lynn Swalje, Michelle Simms, and Lori OIBier. The Commission gratefully acknowledges the valuable ideas and commentary provided by the following individuals: David Adamany, Herbert Alexander, John I?. Bibby, Walter Dean Burnham, Howard Calloway, Ballard C. Campbell, James Ceaser, Michael C. Colella, M. Margaret Conway, Marlo Cook, Lynn Cutler, Edwin Dorn, Eugene Eidenberg, Leon D. Epstein, Edward D. Feigenbaum, Ann Fishman, James Gottlieb, Doris Graber, Paul Hewitt, Robert J. Huchshorn, Randy Huwa, Gary C. Jacobson, Ruth Jones, Xandra Kaden, William Lacy, Everett Carl1 Ladd, Kay Lawson, James Lengle, Burdett Loomis, Michael Malbin, Jerome Mileur, Sarah Morehouse, Eddie Make, Jr., Jack L. Noragon, David M. Olson, Gary Orren, Gerald Pomper, David Price, Austin Ranney, Larry Sabato, Richard Sachs, Richard Smolka, Frank Sorauf, Robert Stein, and Gary D. Wekkin. Full responsibility for the content and accuracy of the report rests, of course, with the Commission and its staff. John Shannon Executive Director TABLE OF CONTENTS Preface ................................................................... iii Acknowledgements .......................................................... v Chapter 1 Federalism and American Politics: New Relationships in a Changing System ................................................ 1 Chapter 2 American Political Parties and Intergovernmental Relations in Historical Perspective. 1787-1960 .............................. 9 The Rise and Decline of the First American Parties: 1776.1828 .. 12 The Rise and Fall of the Second Party System: 1824-54 .......... 17 The Third Party Era: 1860-96 ................................... 24 A Republican Era: 1896-1932 .................................... 33 The New Deal: An Historic Turning Point ........................ 38 The War Years and Beyond: 1940-60 .............................. 42 The Changing Nature of Party and Federalism .................... 45 Chapter 3 National Parties and Politics in Transition: Decline. Evolution . and Resurnence ................................... 47 Party Decline in the Electorate ................................ 47 Evolving Party Functions and Their Intergovernmental Consequences: Recruitment. Nominations. and Campaigns ......... 58 The Changing Party Role in Presidential Nominations ....... Congressional Recruitment and Nominations ................. The Shattered Monopoly: Political Parties' Role in the Conduct of National Campaigns ........................... The National Party Organizations: Modernization. Leadership. and Nationalization .......................................... The Republican National and Congressional Committees: Expanding Resources. Activties. and Assistance .......... The National Democratic Party: Rules Before Resources ..... The National Parties in Perspective ....................... National Politics in a New Electoral System: The Consequences of Change .................................................... Intergovernmental Implications ............................ Chapter 4 State and Local Parties in Contemporary Politics: Decline. Adaptation. and Continuing Legal Constraints ................... The Nominating Process in State Politics: The Proliferation and Consequences of Primary Elections ............................ Primaries and the New Politics ............................ 100 The Use of Preprimary Conventions ......................... 101 The Changing Character of State and Local Campaigns........ 103 Campaign Activities at the Local Level .................... 108 State Party Organizations in the 1980s: Adaptation and Resurgence ................................................... 111 State Party Resources .................................. 112 Elected Officials and State Parties ....................... 116 State Parties in a National Context ....................... 118 State Regulation of Political Parties ..................... 121 State Laws Regulating Political Parties and Elections .......... 123 Party Regulation in Historical Perspective ................ 123 State Regulation of Political Partiesf Organizational Structure. Composition. and Internal Operating Procedures .............................................. 128 State Laws Governing The Role of State and Local Party
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