First Principles Foundational Concepts to Guide Politics and Policy
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FIRST PRINCIPLES FOUNDATIONAL CONCEPTS TO GUIDE POLITICS AND POLICY NO. 70 | SEptEMBER 30, 2018 The Rise and Fall of Political Parties in America Joseph Postell Abstract Political parties are not mentioned in the U.S. Constitution. Nevertheless, America’s founders understood that the republic they were founding requires parties as a means for keeping government accountable to the people. Throughout America’s history, the power of political parties has risen and fallen, reaching their nadir in the last few decades. Americans today attribute to parties the very maladies from which great parties would save us if only we would restore them. Great political parties of the past put party principles above candidate personalities and institutionalized resources to maintain coalitions based on principle. They moderated politics and provided opportunities for leadership in Congress instead of shifting all power to the executive, enabling the republic to en- joy the benefits of checks and balances while avoiding excessive gridlock. Parties also encouraged elected officials to put the national interest ahead of narrow special interests. f there is one thing about politics that unites perceived as “the establishment.” Americans are IAmericans these days, it is their contempt for bipartisan in their condemnation of partisanship. political parties and partisanship. More Americans Americans have always viewed political parties with today identify as independents than with either of skepticism. The Constitution does not mention parties the two major political parties. Citizens boast that and did not seem to anticipate their emergence. In spite of they “vote for the person, not for the party,” and this, however, parties play an essential role in our repub- denounce fellow citizens or representatives who lican form of government and have done so throughout blindly toe the party line. Party leaders in Con- American history. Our contemporary contempt for par- gress are held in disrepute, criticized by one side ties is the product of three distinct periods in our history for being too soft and condemned by the other for that have brought them to where they are today. being too partisan. Insurgent, outsider candidates In the first period, during the first decades after the are increasingly successful against those who are founding, influential statesmen such as James Madi- son laid the groundwork for strong parties as an anti- dote to the factionalism and gridlock to which our con- This paper, in its entirety, can be found at http://report.heritage.org/fp70 stitutional system is susceptible. In the second period, The Heritage Foundation 214 Massachusetts Avenue, NE throughout the 19th century, parties were strength- Washington, DC 20002 ened, and their positive features were openly praised. (202) 546-4400 | heritage.org Parties were dramatically weakened, however, in the Nothing written here is to be construed as necessarily reflecting the views of The Heritage Foundation or as an attempt to aid or hinder the passage of past century, and this has coincided with profound any bill before Congress. cynicism about the state of our political system today. FIRST PRINCIPLES | NO. 70 SEptEMBER 30, 2018 The history of political parties reveals that they Parties are composed of a variety of differ- are the critical mediating institutions that make the ent parts, none of which has an exclusive right to American Constitution function well. They trans- declare itself to be the party. The Republican Party late majority will into public policy by focusing elec- today, for example, is composed of millions of voters tions on policies rather than personalities. They who call themselves Republicans. In a sense, then, a moderate politics by encouraging elected officials party is a collection of voters who tend to support a to bargain and compromise instead of engaging in common set of candidates for office. Some of these endless conflict. They reinforce the separation of loyal partisan voters may also be donors to political powers by strengthening the legislative branch and parties. But a party is also composed of candidates checking the accumulation of power in the executive. for office and officials who were elected or appointed The brief period in American history in which par- in some manner through their affiliation with the ties did not exist, known as the “Era of Good Feel- party. Thus, a party is also a collection of elected and ings,” was in fact a disastrous period of party infight- appointed officials who become representatives as ing based on personal and geographic allegiances a result of their common affiliation. In addition to rather than a time of political peace and moderation. this, a party is composed of party officials, such as As political parties rose to prominence in Amer- those who work for the Republican National Com- ica throughout the 19th century, they served their mittee or the various state party organizations, who purposes relatively well. Over the past century, how- do not hold office but work within the party organi- ever, they have been hollowed out and weakened. As zation itself. a result, we have replaced the politics of party con- It is critical to differentiate these three parts of flict with the executive-centered, administrative American political parties: the loyal voters and sup- state. The renewal of self-government in the 21st porters, the candidates and elected officials, and the century will require the concomitant renewal of our party organization itself. All three of them together political parties. compose the party, but none of them speaks exclu- sively for the party. What Is a Political Party? What about what parties do? We often think of In order to understand the role and purpose of parties as focused exclusively on elections, over- political parties in our constitutional system, we looking the significant role they play after an elec- must first define and understand the different ele- tion occurs. After an election, members of parties in ments of party organization. It is helpful to begin the government form caucuses and work together to with Edmund Burke’s definition: “Party is a body of pass and implement laws that advance their agreed- men united, for promoting by their joint endeavors upon policy agenda. the national interest, upon some particular prin- ciple in which they are all agreed.”1 While specific parties throughout history have been merely com- By understanding how they have posed of various interest groups, parties in their functioned throughout American ideal form should be united on a set of principles rather than alliances of mere convenience. Alliances history, we can see that parties are based on political convenience lack the loyalty, per- much less effectively organized to manence, and cohesion that define parties proper- accomplish their aims today than they ly understood. were a century ago. As a result, we Burke’s definition is a good starting point, but it no longer enjoy the benefits that they needs to be supplemented to apply to the American context. Most important, Burke’s definition tells us once brought to our political system. nothing about how a party functions: what it does to advance its principles in the political system. We In other words, parties do not merely nominate must specify what parties do as well as what they are. candidates and support them in campaigning for 1. Edmund Burke, Thoughts on the Cause of the Present Discontents (London: J. Dodsley, 1770), p. 110. 2 FIRST PRINCIPLES | NO. 70 SEptEMBER 30, 2018 office. They also work together to enact and carry permanent parties aligned with particular classes out policies. In short, they help to campaign as well would be needed to engage in the kinds of conflicts as to govern. Political parties, in the American con- that would occur in their popular form of government. text, are organizations composed of voters, party Experience, however, quickly proved them wrong. officials, candidates, and elected officials. A strong The Constitution did not create a mixed regime, so party will be united on general principles and will parties pitting the aristocracy against the people advance these principles by articulating a clear party were not formed, but in the 1790s, parties did emerge: platform, nominating candidates, supporting those the Federalists and the “Democratic-Republicans.”2 candidates for election, and working together to pass The Framers soon understood that conflicts would policies that advance its members’ shared principles. continue to divide people into different parties, even By understanding how they have functioned in popular forms of government, because there throughout American history, we can see that par- would still be differences of opinion about the best ties are much less effectively organized to accom- way to promote the common good. Some of them still plish their aims today than they were a century ago. warned about excessive partisanship. As a result, we no longer enjoy the benefits that they George Washington, for instance, pleaded with once brought to our political system. Americans in his Farewell Address to resist parti- san conflict, warning “in the most solemn manner Grappling with the “Baneful Effects” against the baneful effects of the Spirit of Party.” He of Parties granted that “[t]his Spirit, unfortunately, is insepa- It is generally believed that the American Found- rable from our nature” because human beings will ers hated political parties and were deeply hostile to inevitably disagree about political issues. Excessive them. The reality is much more complicated. While partisanship, however, “serves always to distract the all of them were skeptical of political parties at some Public Councils and enfeeble the Public Adminis- point in their careers, most of them, through experi- tration. It agitates the Community with ill founded ence, came to realize their usefulness. Jealousies and false alarms, kindles the animosity of Before the writing and ratification of the Consti- one part against another, foments occasionally riot tution, most of the Founders were distrustful of par- & insurrection.” Finally, it “opens the door to for- ties.