The Rise and Decline of Presidential Populism

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The Rise and Decline of Presidential Populism Studies in American Political Development, 18 (Fall 2004), 136–159. The Rise and Decline of Presidential Populism Terri Bimes, Harvard University Quinn Mulroy, Columbia University At a Democratic Leadership Council meeting in the By highlighting the prominence of populist ap- summer of 2002, centrist leaders of the Democratic peals among nineteenth-century Democratic presi- Party took Al Gore to task for his use of populist dents, our account of the development of executive rhetoric during the 2000 presidential campaign. Ed leadership departs from scholarship emphasizing the Rendell, the current governor of Pennsylvania and “modern-traditional divide.”3 Operating within the the former Democratic National Committee Chair- modern-traditional divide framework, many scholars man, bemoaned: “We wish Al had refined the message depict nineteenth-century presidents as passive stew- and not used the ‘poor people versus the rich’.” Strik- ards constrained from taking on the role of the pop- ing a similar note, Joseph Lieberman charged that ular leader while portraying their twentieth-century Gore’s populist language made it difficult for the counterparts as strong and active presidents who use Democratic ticket to gain the support of middle-class, their popular authority to push for their program- independent voters who did not see America as “us matic goals. Examples of such views include Elmer versus them,” and that these verbal attacks were to Cornwell, who describes nineteenth-century presi- blame for Gore’s failure to win the popular vote by a dents as “passive and inarticulate” and Keith Whit- more convincing margin.1 The apparent backlash tington, who argues that in the nineteenth-century, against Gore’s use of populism is the latest manifesta- “the presidential message was dignified, the message tion of a transformation that has characterized presi- uncontroversial, the rhetoric principled.”4 Similarly, dential rhetoric over the past several decades. Put James W. Ceaser, Glen E. Thurow, Jeffrey Tulis, and simply, the language of populism, which in the nine- teenth century constituted one of the most formida- ble rhetorical weapons in the arsenal of Democratic 3. For instance, see Theodore Lowi, The Personal President: Pow- er Invested, Promise Unfulfilled (Ithaca, NY: Cornell University Press, presidents, has faded and been displaced by a more 1985); Elmer E. Cornwell, Presidential Leadership of Public Opinion 2 consensual language. This trend contrasts with the (Bloomington: Indiana University Press, 1965); and James Mac- striking, though limited, embrace of populism by such Gregor Burns, The Deadlock of Democracy: Fourth-Party Politics in Republicans as Richard Nixon and Ronald Reagan. America (Englewood Cliffs, NJ: Prentice Hall, Inc., 1963). Recent work by Karen Hoffman (“Misunderstanding Executive Represen- tation: Causes and Consequences” Congress & The Presidency 28 1. Donald Lambro, “Gore Sends DLC his regrets,” The Wash- [2001]: 185–207): Michael Korzi (A Seat of Popular Leadership: The ington Times, July 31, 2002; Dan Balz, “Democrats Assessing the New Presidency, Political Parties, and Democratic Leadership [Amherst: Uni- Climate,” Washington Post, July 29, 2002. versity of Massachusetts, 2004]): Mel Laracey (Presidents and the Peo- 2. Democrats continue to draw upon populist appeals in their ple: The Partisan Story of Going Public [College Station, TX: Texas campaigns. Bill Clinton campaigned against special interest- A&M Press, 2002), and David Zarefsky (“The Presidency Has Al- induced gridlock in 1992, and four years earlier, Michael Dukakis ways Been a Place for Rhetorical Leadership,” in The Presidency and attacked “fast operators” on Wall Street and defended the people Rhetorical Leadership [College Station, TX: Texas A&M University “who don’t have any special friends at the bank or special interest Press, 2002], 20–41) are important exceptions. See also the im- lobbyists in Washington, D.C.” However, we find that Democratic portant edited volume, Richard J. Ellis, Speaking to the People: The presidents have moved away from using such populist appeals in Rhetorical Presidency in Historical Perspective (Amherst: University of their major formal governing addresses. (William J. Clinton, Massachusetts Press, 1998). speech delivered in Columbus, Ohio, Sept. 29, 1992, Michael 4. Elmer E. Cornwell, Presidential Leadership of Public Opinion, Dukakis, speech given in Peoria, Illinois, Sept. 27, 1988; and 7–8. Keith E. Whittington, “The Rhetorical Presidency, Presiden- Michael Dukakis, speech given in Peoria, Illinois, Sept. 27, 1988. tial Authority, and Bill Clinton,” in The Presidency Then and Now, ed. All speeches are taken from the Annenberg/Pew Archive of Pres- Phillip G. Henderson (Lanham, MD: Rowman and Littlefield Pub- idential Campaign Discourse CD-ROM.) lishers, 2000), 202. 136 © 2004 Cambridge University Press ISSN 0898–588X/04 $12.00 THE RISE AND DECLINE OF PRESIDENTIAL POPULISM 137 Joseph Bessette collectively point out that while The expectation, then, would be to find presiden- nineteenth-century presidents were “public” figures tial populism in which presidents draw upon their in the sense of making ceremonial speeches, inau- role as a representative of the people to attack a gural addresses, and submitting annual messages to special interest (a more elaborate definition of Congress, these presidents were not at all “popular” presidential populism follows in the next section) leaders. The premodern president, in their view, was a flourishing after, but not before, the presidency of “constitutional officer who would rely for his authori- Woodrow Wilson. A systematic examination of presi- ty on the formal powers granted by the Constitution dential rhetoric from George Washington to George and on the informal authority that would flow from W. Bush, however, reveals that populist leadership does the office’s strategic position.” He was not a popular not fit neatly within the modern-traditional divide. In- leader who would “stir mass opinion by rhetoric.”5 stead, we find a strong vibrant tradition of populist Tulis, in his own work on the rhetorical presidency, leadership existed among nineteenth-century Dem- declares that “the rhetorical presidency and the un- ocratic presidents. Far from adhering to a solemn derstanding of American politics that it signifies are ceremonial format, nineteenth-century Democratic twentieth-century inventions and discoveries. Our pre- presidents, conceiving of themselves as tribunes of twentieth-century polity proscribed the rhetorical pres- the people, peppered their addresses and messages idency as ardently as we now prescribe it.”6 with images of the working classes struggling against a Within this bifurcated framework, popular presi- monied elite, as well as of workers and farmers battling dential leadership did not emerge until the presi- against manufacturing interests. While the conven- dencies of William McKinley, Theodore Roosevelt, tional wisdom concerning nineteenth-century presi- Woodrow Wilson, and Franklin Roosevelt. While dents is more accurate with respect to Whig and each of these presidents is credited with paving the Republican executives, even the latter began to ac- way for the plebiscitary presidency, it is Wilson who is cept a form of party-based popular leadership start- commonly referred to as the author and chief pro- ing with Lincoln. In short, it is difficult to confine ponent of the popular leadership doctrine. Wilson is presidential populist leadership to the twentieth cen- recognized for transforming the constitutional exec- tury and beyond. utive and setting the mold for twentieth-century pres- The trajectory of presidential populism thus serves idents. For example, Jeffery Tulis asserts that Wilson’s as a useful lens for reframing our understanding of doctrine of popular leadership represented nothing the presidency and moving beyond the modern- less than “a major shift, indeed a reversal, of the traditional divide in order to better understand the founding perspective.”7 Wilson, in Tulis’s view, estab- relationship between past practice and current gov- lished a second unwritten constitution that empha- erning challenges. In place of the modern-traditional sized presidential reliance on public opinion. This divide, we argue that populism is linked to the state- second constitution, layered on top of the first, pro- building goals of presidents and their parties. In both vides the contours for modern presidential practice. the nineteenth and twentieth century, antagonistic Arthur Link, the nation’s leading authority on Wil- and consensual models of rhetoric existed along side son, similarly remarks that his example made it “in- one another, and each was linked to a distinctive evitable that any future president would be powerful stance toward the scope of the national government. only in so far as he established intimate communica- In the nineteenth century, Democratic presidents tion with the people and spoke effectively for them.”8 generally advocated an anti-statist agenda, and they Likewise, Ceaser argues that while the Constitution adopted populist rhetoric targeting national gov- took care to provide “distance or protection for the erning institutions in their addresses and messages. executive from the immediate pressures of public Democratic presidents used populism to attack the opinion,” Wilson’s new doctrine of popular leader- legitimacy of governmental policies and institutions ship “removed all restraints” on the potential power
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