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The Efficiencies and Pathologies of Special Interest Partisanship

Published online by Cambridge University Press:  26 October 2017

Katherine Krimmel*
Affiliation:
Department of Political Science, Barnard College, Columbia University

Abstract

Why have group-party alliances become more common since the mid-twentieth century? To address this question, I develop a continuum of group-party relationships, running from fluid, unstructured interactions, akin to political pluralism, to highly institutionalized alliances, as we might see in a firm. Drawing on pluralist scholarship and theories of firm formation and evolution, I explore the costs and benefits of different arrangements and explain why we might expect to see movement along the continuum over time. On the one hand, pluralism offers flexibility to parties and groups, and alliances have little value when parties are too weak to discipline their members in Congress. On the other, institutionalized alliances offer significant efficiency and security gains, which are especially valuable during periods of growth. I demonstrate the plausibility of this organizational theory by examining the evolution of group-party relations in the executive branch from the Nixon through Reagan administrations using archival documents collected at four presidential libraries.

Type
Research Article
Copyright
Copyright © Cambridge University Press 2017 

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Footnotes

Many thanks to Ira Katznelson, Robert Lieberman, Nolan McCarty, and Gregory Wawro for their guidance on this project. Thanks also to Brian Balogh, Alan Brinkley, Paul Frymer, Daniel Galvin, Fredrick Harris, Jeffrey Jenkins, David Karol, Seth Masket, David Mayhew, Sidney Milkis, Daniel Stid, my co-fellows at the Miller Center for Public Affairs at the University of Virginia, and the editors and anonymous reviewers for their helpful feedback.

References

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22. This may happen, for example, if appealing to the group could reduce the party's appeal to other groups.

23. I have not included Key's last category of “parties-in-the-electorate.” As Aldrich argued persuasively, even strong partisans tend to view parties as something separate from themselves. Thus, people in the electorate are better viewed as consumers rather than elements of parties. Since I am concerned with party agency, I focus on the two parts of the tripartite framework over which party elites have direct control. Aldrich, Why Parties?; Key, Politics, Parties, and Pressure Groups.

24. As noted earlier, in Party Position Change in American Politics, Karol departed from the classic group-centered theory by arguing that politicians manage the coalition of groups. He also acknowledged that groups vary significantly in the strength of their attachment to parties, and that such attachments can change over time. Examining this variation is beyond the scope of the book, however.

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29. Ibid.

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31. Truman, The Governmental Process, 285.

32. Ibid., 296–97.

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34. Schlozman, When Movements Anchor Parties, 35.

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45. Hansen, Gaining Access.

46. Ibid. Hansen also argued that a group is more likely to become allied with a party when there exists an opposing group that would appeal to the opposing party. This argument is not emphasized here because it is orthogonal to the logic of firm expansion, and explaining variation across groups is not the focus of the present analysis.

47. Schlozman, When Movements Anchor Parties, 3.

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50. As Joseph Pika noted, responsibility for group liaison was “unsystematically scattered among staff members” from the Roosevelt through Johnson administrations. Joseph A. Pika, “The White House Office of Public Liaison,” White House Transition Project, (2009), 2, www.whitehousetransitionproject.org.

51. One might be concerned that reliance on party archives could bias the analysis, and that materials from group archives might tell a different story. In particular, one might worry that members of the party in government would exaggerate their own agency in transforming group-party relations. They might not want to acknowledge that they were acquiescing to group pressure. While this might be the case to some degree, this problem is unlikely to undermine the argument that parties contributed to the evolution of group-party relationships. First, most of the materials buttressing this analysis were not public documents at the time of their creation. Most are internal memoranda, notes, and planning materials, not press releases or other public statements. While the authors of these materials were likely aware that their work would ultimately be available to the public through archives, it seems unlikely that this would have strongly affected their plans or communications with one another. Surely other concerns were more salient, especially considering that presidential libraries do not open until years after the administration has left office. Thus, it seems they would have little incentive to downplay the degree to which they were acquiescing to group pressure. Moreover, I am not arguing that parties were the sole or even necessarily the primary drivers of the transformation of group-party relationships; I am arguing simply that they had incentives to play a proactive role, and that they followed these incentives. While it would of course be ideal to have archival materials from a range of groups as well, the high costs associated with collecting archival materials make this ideal very difficult to achieve. And the administration's archives still provide valuable information about what the party in government was thinking and doing with respect to group-party relationships. I am confident that this is sufficient to show that groups were not the sole drivers of change.

52. Galvin, Presidential Party Building.

53. Ibid.

54. Frymer and Skrentny, “Coalition-Building and the Politics of Electoral Capture during the Nixon Administration.”

55. Pika, “The White House Office of Public Liaison,” 3.

56. For more on group-party relationships in the pre-Nixon era, see Pika, “The White House Office of Public Liaison.”

57. Jeb S. Magruder to the Attorney General and H. R. Haldeman (memo), January 21, 1971, Republican National Committee folder [7 of 10], Box 25, Committee for the Re-Election of the President Collection: Jeb Stuart Magruder Papers, Richard Nixon Presidential Library and Museum, Yorba Linda, CA.

58. C. W. Colson to H. R. Haldeman (memo), November 6, 1969, HRH Memos 1969–1970 (complete) folder [2 of 3], Box 1, White House Special Files: Staff Member and Office Files: Charles W. Colson, Richard Nixon Presidential Library and Museum, Yorba Linda, CA.

59. Handwritten notes, HRH Memos 1969–1970 (complete) folder [1 of 3], Box 1, White House Special Files: Staff Member and Office Files: Charles W. Colson, Richard Nixon Presidential Library and Museum, Yorba Linda, CA.

60. Video oral history interview with Charles Colson, August 17, 2007.

61. Draft presentation with notes, Notes on Voter Blocs and Voter Bloc Presentation, Voter Bloc Presentation folder, Box 30, Committee for the Re-Election of the President Collection (CRP): Frederic Malek Papers, Richard Nixon Presidential Library and Museum, Yorba Linda, CA.

62. Thomas B. Evans, Jr. to Jeb S. Magruder (memo), March 17, 1971, JSM Republican National Committee folder [5 of 10], Box 25, Committee for the Re-Election of the President Collection (CRP): Jeb Stuart Magruder Papers, Richard Nixon Presidential Library and Museum, Yorba Linda, CA.

63. Jeb S. Magruder to the Attorney General (memo), December 16, 1971, JSM Republican National Committee folder [1 of 10], Box 24, Committee for the Re-Election of the President Collection (CRP): Jeb Stuart Magruder Papers, Richard Nixon Presidential Library and Museum, Yorba Linda, CA.

64. Jon M. Huntsman to Gordon Strachan (memo), November 19, 1971, JSM Republican National Committee folder [3 of 10], Box 24, Committee for the Re-Election of the President Collection (CRP): Jeb Stuart Magruder Papers, Richard Nixon Presidential Library and Museum, Yorba Linda, CA.

65. Barry Mountain to Tom Evans (memo), June 10, 1971, JSM Republican National Committee folder [4 of 10], Box 24, Committee for the Re-Election of the President Collection (CRP): Jeb Stuart Magruder Papers, Richard Nixon Presidential Library and Museum, Yorba Linda, CA.

66. Ibid.

67. Budget Recommendations to Nelson Gross for the Catholic Campaign, Citizens—Catholic Vote folder [1 of 2], Box 27, Committee for the Re-Election of the President Collection (CRP): Frederic Malek Papers: Series III: Citizen Groups, Richard Nixon Presidential Library and Museum, Yorba Linda, CA.

68. George T. Bell to Charles W. Colson (memo), January 19, 1972, Aging folder, Box 29, White House Special Files: Staff Member and Office Files: Charles W. Colson: Subject Files, Richard Nixon Presidential Library and Museum, Yorba Linda, CA.

69. Barry Mountain to Tom Evans (memo), June 10, 1971; L. J. Evans, Jr. to Chuck Colson (memo), February 28, 1972, Aging folder, Box 29, White House Special Files: Staff Member and Office Files: Charles W. Colson: Subject Files, Richard Nixon Presidential Library and Museum, Yorba Linda, CA.

70. Cyril F. Brickfield to Charles W. Colson (letter), January 23, 1970, American Association of Retired Persons/National Retired Teachers Association folder, Box 31, White House Special Files: Staff Member and Office Files: Charles W. Colson, Richard Nixon Presidential Library and Museum, Yorba Linda, CA.

71. L. J. Evans, Jr. to Fred Malek (memo), May 24, 1972, Citizens—Older Americans folder [6 of 8] II, Box 33, Committee for the Re-Election of the President Collection (CRP): Frederic Malek Papers: Series III: Citizen Groups, Richard Nixon Presidential Library and Museum, Yorba Linda, CA.

72. Handwritten notes, March 17, 1972, Citizens—Catholic Vote folder [1 of 2], Box 27, Committee for the Re-Election of the President Collection (CRP): Frederic Malek Papers: Series III: Citizens Groups, Richard Nixon Presidential Library and Museum, Yorba Linda, CA.

73. Klinkner, The Losing Parties, 139.

74. Evans to Magruder (memo), March 17, 1971.

75. L. J. Evans, Jr. to Charles W. Colson (memo), August 7, 1972, Aging folder, Box 29, White House Special Files: Staff Member and Office Files: Charles W. Colson: Subject Files, Richard Nixon Presidential Library and Museum, Yorba Linda, CA.

76. George T. Bell to Charles W. Colson (memo), August 18, 1970, General Federation of Women's Clubs folder, Box 67, White House Special Files: Staff Member and Office Files: Charles W. Colson; Richard Nixon Presidential Library and Museum, Yorba Linda, CA; Fred Malek to Chuck Colson (memo), June 10, 1971, [Barbara] Franklin—Memos folder, Box 29, Barbara Franklin Reference File—Office File, Richard Nixon Presidential Library and Museum, Yorba Linda, CA.

77. Evans to Malek (memo), May 24, 1972.

78. L. J. Evans, Jr. to Chuck Colson (memo), January 24, 1972, Aging folder, Box 29, White House Special Files: Staff Member and Office Files: Charles W. Colson: Subject Files; Richard Nixon Presidential Library and Museum, Yorba Linda, CA.

79. Phillips-Fein, Kim, Invisible Hands: The Making of the Conservative Movement from the New Deal to Reagan (New York: W.W. Norton, 2009)Google Scholar.

80. Miscellaneous planning materials, Public Liaison Office—Concepts folder, Box 10, William Baroody Files, Gerald R. Ford Library, Ann Arbor, MI.

81. Points to be covered in Cabinet Presentation on Public Liaison Office, undated, Public Liaison Office—General folder [1], Box 10, William Baroody Files, Gerald R. Ford Library, Ann Arbor, MI.

82. Points to be covered in Cabinet Presentation on Public Liaison Office (notes), undated, Public Liaison Office—General folder [1], Box 10, William Baroody Files, Gerald R. Ford Library, Ann Arbor, MI.

83. Interview with William J. Baroody, Jr., Assistant to the President, November 1974, Public Liaison Office—General folder [2], Box 10, William Baroody Files, Gerald R. Ford Library, Ann Arbor, MI.

84. Background material on the Office of Public Liaison, undated, Public Liaison Office—Concepts folder, Box 10, William Baroody Files, Gerald R. Ford Library, Ann Arbor, MI.

85. Meeting with Selected Members of Executive Committee of the Committee on Resolutions (Platform) (notes), August 15, 1976, Republican Platform—1976: Platform Committee Negotiations folder [2], Box 23, Michael Raoul-Duval Papers, Gerald R. Ford Library, Ann Arbor, MI.

86. William J. Baroody to President Ford (memo), May 31, 1974, Office of Public Liaison folder [1], Box 19, Theodore Marrs Files, Gerald R. Ford Library, Ann Arbor, MI.

87. Background material on the Office of Public Liaison, undated, Public Liaison Office—Concepts folder, Box 10, William Baroody Files, Gerald R. Ford Library, Ann Arbor, MI; background material on ‘Tuesday Meetings,’ undated, Public Liaison Office—General folder [1], Box 10, William Baroody Files, Gerald R. Ford Library, Ann Arbor, MI.

88. Background material on the Office of Public Liaison, undated.

89. Press Conference of William J. Baroody, Jr., November 7, 1974.

90. Ibid.

91. See, e.g., “Ford Tries to Run an ‘Open’ Shop,” Denver Post, March 1, 1975, Scrapbook Materials folder [4], Box 13, William Baroody Files, Gerald R. Ford Library, Ann Arbor, MI; “Mr. Clean in the White House,” Miami Herald, February 23, 1975, Scrapbook Material folder [4], Box 13, William Baroody Files, Gerald R. Ford Library, Ann Arbor, MI.

92. See, e.g., “Selling of a President: Publicity Expands Under Ford,” New York Times, March 17, 1975, Scrapbook Material folder [4], Box 13, William Baroody Files, Gerald R. Ford Library, Ann Arbor, MI; “Selling Ford as Right for Job,” Houston Post, May 18, 1975, Public Liaison Office—General folder [4], Box 10, William Baroody Files, Gerald R. Ford Library, Ann Arbor, MI.

93. “Ford's Image Machine,” New Republic, Scrapbook Material folder [4], Box 13, William Baroody Files, Gerald R. Ford Library, Ann Arbor, MI.

94. William J. Baroody, Jr. to President Ford (memo), May 31, 1974, Office of Public Liaison folder [1], Box 19, Theodore Marrs Files, Gerald R. Ford Library, Ann Arbor, MI.

95. “Question for Today: Is the Nation Ready to be ‘Baroodied’?” Wall Street Journal, February 25, 1975, Office of Public Liaison folder [3], Box 19, Theodore Marrs Files, Gerald R. Ford Library, Ann Arbor, MI.

96. Galvin, Presidential Party Building.

97. “Remarks of the President at the 18th Biennial National Federation of Republican Women's Convention” (speech), September 13, 1975, District of Columbia 9/17/76 National Federation of Republican Women Reception folder, Box 4, Gwen Anderson Files, Gerald R. Ford Library, Ann Arbor, MI.

98. Highlighting the depth to which the party had fallen, Klinkner noted, “At the January 1977 meeting of the RNC, John East, then national committeeman and later senator from North Carolina … suggested that the Republican label had become an albatross and that the committee should consider changing the party's name” (Klinkner, The Losing Parties, 134). East was not alone in these sentiments; prominent Senator Jesse Helms and even Ronald Reagan also discussed a potential name change.

99. Points to be covered in Cabinet Presentation on Public Liaison Office, undated.

100. Anne Wexler Interview, Exit Interview Project, December 12, 1980, https://www.jimmycarterlibrary.gov/research/oral_histories#exit.]

101. Interview with Anne Wexler (with Michael Chanin, Richard Neustadt, and John Ryor), Carter Presidency Project, Miller Center of Public Affairs, Presidential Oral History Program, February 12–13, 1981; Wexler Exit Interview 1980.

102. Wexler Exit Interview 1980.

103. Ibid.

104. Ibid.

105. Wexler Oral History 1981.

106. Wexler Exit Interview 1980.

107. Wexler Oral History 1981.

108. Ibid.

109. Ibid.

110. Video oral history interview with Charles Colson, August 17, 2007.

111. Pika, “The White House Office of Public Liaison.”

112. Peterson, Mark A., “The Presidency and Organized Interests: White House Patterns of Interest Group Liaison,” American Political Science Review 86 (1992): 617 Google Scholar.

113. This includes interaction with any part of the Executive Office of the President (e.g., OPL, the Office of Management and Budget, etc.).

114. Galvin, Presidential Party Building.

115. Ibid., 123.

116. Klinkner, The Losing Parties, 147.

117. Trent Lott to The President (letter), May 21, 1981, Pro-Family—1982 folder, Box F008 (11), Elizabeth Dole Files, Ronald Reagan Library, Simi Valley, CA; Stan Parris to President Reagan (letter), May 19, 1981, Pro-Family—1982 folder, Box F008 (11), Elizabeth Dole Files, Ronald Reagan Library, Simi Valley, CA; Suggested Invitees to Small Meeting of the President and Conservative Leaders with the Most Political Clout, Conservatives—General folder, Box F001, Elizabeth Dole Files, Ronald Reagan Library, Simi Valley, CA.

118. Suggested Invitees to Small Meeting of the President and Conservative Leaders with the Most Political Clout.

119. Robert L. Livingston to President Reagan (letter), June 8, 1981, Pro-Family Activists folder [2], Box OA9081(12), Morton Blackwell Files, Ronald Reagan Library, Simi Valley, CA.

120. Letter from Lott to the President, May 21, 1981.

121. Proposal, January 28, 1982, Equal Rights Amendment folder [2], Box F002, F003, Elizabeth Dole Files, Ronald Reagan Library, Simi Valley, CA.

122. Schedule Proposal, Meeting with “Pro-Family” Activists, April 22, 1981, Pro-Family Activists folder [1], Box OA9081(12), Morton Blackwell Files, Ronald Reagan Library, Simi Valley, CA.

123. Morton Blackwell to Red Cavaney (memo), January 27, 1983, Conservatives—General—1982 folder [6], Box F001, Elizabeth Dole Files, Ronald Reagan Library, Simi Valley, CA; Notes on Meeting with Dr. Jerry Falwell, March 14, 1983, Moral Majority folder [3 of 9], Box 9, Morton Blackwell Files, Ronald Reagan Library, Simi Valley, CA.

124. Memo to Robert J. Thompson, July 11, 1982, Pro-Life II folder [5], Box OA9081(13), Morton Blackwell Files, Ronald Reagan Library, Simi Valley, CA.

125. Gary J. Bauer to Edwin L. Harper (memo), June 18, 1982, Pro-Life—Continued—\#2 folder [7], Box OA9081, 9082(14), Morton Blackwell Files, Ronald Reagan Library, Simi Valley, CA. Gary L. Bauer to Edwin L. Harper (memo), May 18, 1982, Pro-Life—Continued—\#2 folder [7], Box OA9081, 9082(14), Morton Blackwell Files, Ronald Reagan Library, Simi Valley, CA; Memo to Thompson, July 11, 1982.

126. Notes on various groups, Conservative Groups folder [1 of 4], Box 7, Morton Blackwell Files, Ronald Reagan Library, Simi Valley, CA.

127. Schedule Proposal, Meeting with Conservative Coalition Groups, February 11, 1981, Conservative Coalition Group Meeting folder, Box F026, F027 (31), Elizabeth Dole Files, Ronald Reagan Library, Simi Valley, CA.

128. Notes on Meeting with Dr. Jerry Falwell, March 14, 1983, Moral Majority folder [3 of 9], Box 9, Morton Blackwell Files, Ronald Reagan Library, Simi Valley, CA.

129. Jack Burgess to Elizabeth H. Dole via Red Cavaney (memo), August 6, 1981, Tuition Tax Credits 1981 folder, Box F010 (16), Elizabeth Dole Files, Ronald Reagan Library, Simi Valley, CA.

130. OPL Issues Travel Book, Travel—OPL Issues Travel Book folder [1], Box F010 (16), Elizabeth Dole Files, Ronald Reagan Library, Simi Valley, CA.

131. Gary Bauer to Edwin Harper and Roger Porter (memo), March 3, 1982, Conservatives—General—1982 folder [2], Box F001, Elizabeth Dole Files, Ronald Reagan Library, Simi Valley, CA; Elizabeth H. Dole to Edwin Meese III, James A. Baker, III, Ed Harper (memo), March 9, 1982, Conservatives—General—1982 folder [2], Box F001, Elizabeth Dole Files, Ronald Reagan Library, Simi Valley, CA.

132. McCarty, Nolan, Poole, Keith T., and Rosenthal, Howard, Polarized America: The Dance of Ideology and Unequal Riches (Cambridge, MA: MIT Press, 2006)Google Scholar.

133. Bawn et al. conceive of parties differently than Aldrich, in that Bawn et al. view parties as coalitions of groups rather than coalitions of office seekers. Nevertheless, all of these scholars characterize parties as creatures that adapt to the needs of their members.

134. Bawn et al., “A Theory of Political Parties”; Masket, Seth, The Inevitable Party: Why Attempts to Kill the Party System Fail and How They Weaken Democracy (New York: Oxford University Press, 2016)Google Scholar.

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