SIXTEENTH EDITION & POWER Choice AN INTRODUCTION TO POLITICAL SCIENCE W. PHILLIPS SHIVELY University of Minnesota DAVID SCHULTZ Hamline University ROWMAN & LITTLEFIELD Lanham • Boulder • New York • London To Ruth Phillips Shively and Arthur W. Shively To Lorenz and Susan Schuh Acquisitions Editor: Michael Kerns Acquisitions Assistant: Elizabeth Von Buhr Senior Marketing Manager: Kimberly Lyons Credits and acknowledgments for material borrowed from other sources, and reproduced with permission, appear on the appropriate page within the text. Published by Rowman & Littlefield An imprint of The Rowman & Littlefield Publishing Group, Inc. 4501 Forbes Boulevard, Suite 200, Lanham, Maryland 20706 www.rowman.com 86-90 Paul Street, London EC2A 4NE Copyright © 2022 by The Rowman & Littlefield Publishing Group, Inc. Fifteenth edition 2019. All rights reserved. No part of this book may be reproduced in any form or by any electronic or mechanical means, including information storage and retrieval systems, without written permission from the publisher, except by a reviewer who may quote passages in a review. British Library Cataloguing in Publication Information Available Library of Congress Cataloging-in-Publication Data Names: Shively, W. Phillips, 1942– author. | Schultz, David A. (David Andrew), 1958– author. Title: Power & choice: an introduction to political science / W. Phillips Shively, University of Minnesota, David Schultz, Hamline University. Other titles: Power and choice Description: Sixteenth edition. | Lanham: Rowman & Littlefield, [2022] | “Fifteenth edition © 2019 by The Rowman & Littlefield Publishing Group, Inc.”—T.p. verso. | Includes bibliographical references and index. Identifiers: LCCN 2021050009 (print) | LCCN 2021050010 (ebook) | ISBN 9781538151860 (paperback) | ISBN 9781538151877 (epub) Subjects: LCSH: Political science—Textbooks. Classification: LCC JA66 .S47 2022 (print) | LCC JA66 (ebook) | DDC 320—dc23 LC record available at https://lccn.loc.gov/2021050009 LC ebook record available at https://lccn.loc.gov/2021050010 ∞ ™ The paper used in this publication meets the minimum requirements of American National Standard for Information Sciences—Permanence of Paper for Printed Library Materials, ANSI/NISO Z39.48-1992. Brief Contents ■ ■ ■ List of Boxes, Examples, Figures, and Tables xi Preface xiv PART I THE IDEA OF POLITICS 1 Politics: Setting the Stage 2 2 Modern Ideologies and Political Philosophy 22 PART II THE STATE AND PUBLIC POLICY 3 The Modern State 50 4 Policies of the State 75 5 Economic Policy of the State 104 6 What Lies behind Policy: Questions of Justice and Effectiveness 138 PART III THE CITIZEN AND THE REGIME 7 Democracies and Authoritarian Systems 160 8 Political Culture and Political Socialization 191 PART IV THE APPARATUS OF GOVERNANCE 9 Constitutions and the Design of Government 214 10 Elections 235 11 Parties: A Linking and Leading Mechanism in Politics 265 12 Structured Conflict: Interest Groups and Politics 289 13 Social Movements and Contentious Politics 311 14 National Decision-Making Institutions: Parliamentary Government 325 15 National Decision-Making Institutions: Presidential Government 347 iii iv ■ Brief Contents 16 Bureaucracy and the Public Sector 370 17 Law and the Courts 384 PART V INTERNATIONAL POLITICS 18 Global Politics: Politics among States (and Others) 402 Appendix: Principles of Political Analysis 433 Glossary 441 Notes 450 Index 466 Contents ■ ■ ■ List of Boxes, Examples, Figures, and Tables xi Preface xiv PART I THE IDEA OF POLITICS 1 Politics: Setting the Stage 2 Politics 3 Politics as the Making of Common Decisions 4 Politics as the Exercise of Power 5 Power and Choice 9 Politics of the State 17 Political Science 18 The Pleasures of Politics 20 Key Terms | Review Questions 21 2 Modern Ideologies and Political Philosophy 22 American Ideologies 26 Liberalism 29 The Conservative Reaction 33 Liberalism and Conservatism in the Twentieth and Twenty-First Centuries 34 The Socialist Alternative 36 Communism and Socialism 39 Fascism 40 Ideologies in the Twenty-First Century 41 Religion, Politics, and Political Philosophy 43 Political Philosophy in Other Historical Eras 45 Key Terms | Review Questions 48 PART II THE STATE AND PUBLIC POLICY 3 The Modern State 50 The Development of the Modern State 52 The Origin of States: Power or Choice? 54 The State as a Device to Provide Public Goods and Address Externalities 56 “State,” “Nation,” and the “Nation-State” 58 State-Building 63 v vi ■ Contents Government and the State 64 Challenges to the State 67 Example 3.1 ■ State-Building in Nigeria 69 Example 3.2 ■ State-Building in the European Union 71 Key Terms | Review Questions 74 4 Policies of the State 75 The Role of Government in the Third World 78 Why Are the World’s States Expanding? 79 Constraints and Conditions for Policy 80 Defense Policy 83 Education 84 Research and Development 85 Health and Social Welfare 86 Human Rights 88 Progress Across the Last Century and a Half 89 The Place of Power in Policy Analysis 91 Example 4.1 ■ The Demographic Challenge 91 Example 4.2 ■ Economic Development Compared with “Human Development” 92 Example 4.3 ■ Rwanda’s War on Plastic Bags 98 Example 4.4 ■ Female Economic Development 99 Key Terms | Review Questions 103 5 Economic Policy of the State 104 Economic Performance I: Growth 106 Economic Performance II: Controlling Inflation and Unemployment 111 Distribution and Economic Inequality 115 Independent Central Banks 120 Corruption 122 Other Measures Available to Government 127 Globalization: Are States Losing Their Ability to Make Economic Policy? 128 Political Economy 130 Example 5.1 ■ Economic Policy in Germany 131 Labor Policy 132 Ordnungspolitik 132 Anti-Inflation Policy 133 The Challenge of Globalization 133 Example 5.2 ■ Economic Policy in Indonesia 134 Key Terms | Review Questions 137 6 What Lies behind Policy: Questions of Justice and Effectiveness 138 The Problem of Justice 139 Other Aspects of Justice: Procedural Justice 141 Effectiveness 145 A Basic Question of Effectiveness: Authority Versus the Market 148 Power and Choice 154 The Need to Act, Even under Uncertainty 154 Example 6.1 ■ Political Choice 155 Key Terms | Review Questions 157 Contents ■ vii PART III THE CITIZEN AND THE REGIME 7 Democracies and Authoritarian Systems 160 The History and Evolution of Democracy 160 Democracy Today 162 The Coming and Going of Democracy 164 Possible Explanations 167 What Did We Learn from the Third Wave? 168 Why Are Prosperous Countries Likely to Be Democracies? 170 Democracy and Freedom 172 Democracy and Capitalism 173 Authoritarian Systems 174 Military Government 176 Why Aren’t There More Military Governments? 178 One-Party States 179 Monarchies and Theocracies 181 Democracy Versus Authoritarianism: Material Considerations 181 “Power and Choice” Again 182 Example 7.1 ■ Authoritarian Drift in Venezuela? 183 Example 7.2 ■ Theocracy in Iran 185 Example 7.3 ■ The “Arab Spring”: A Failed Wave of Democratization 186 Example 7.4 ■ The European Colors Revolutions 189 Key Terms | Review Questions 190 8 Political Culture and Political Socialization 191 Analyzing Political Cultures 193 Religion and Political Culture 195 Political Socialization 197 Media as Agents of Political Socialization 200 Political Culture and the “Democratic Citizen” 201 How Well Do Citizens Meet These Requirements? 203 Social Capital 206 Example 8.1 ■ Building Authority and Legitimacy in West Germany after World War II 207 Example 8.2 ■ Declining Democratic Legitimacy in the United States 209 Key Terms | Review Questions 211 PART IV THE APPARATUS OF GOVERNANCE 9 Constitutions and the Design of Government 214 Variations in Formality 215 The Virtue of Vagueness 216 Other Principles of Constitutional Design 217 Constitution Writing 220 The Geographic Concentration of Power 222 “Federal” and “Unitary” States 223 The Distinction between “Unitary” and “Centralized” States 224 How Much Centralization Is Good? 226 Constitutions and Guarantees of Rights 227 Written Constitutions Can Do Only So Much: The Importance of Norms 228 viii ■ Contents Constitutionalism and the Rule of Law 229 Example 9.1 ■ Constitutional Government in Great Britain 230 Example 9.2 ■ Constitution Writing in South Africa 232 Key Terms | Review Questions 234 10 Elections 235 Elections as a Means of Building Support 236 Elections as a Means of Selecting Leaders and Policies 238 Electoral Systems 238 Ranked Choice Voting 243 Referendums 246 Electoral Participation 247 Effects of Choice and Information on Turnout 250 The Paradox of Voting 252 The Bases of Individuals’ Electoral Choices 253 Example 10.1 ■ Proportional Representation Elections in Israel 255 Example 10.2 ■ Elections in Nigeria 256 Example 10.3 ■ Gender Quotas 258 Key Terms | Review Questions 264 11 Parties: A Linking and Leading Mechanism in Politics 265 The Political Party 265 Origins of the Modern Party 266 Political Parties and the Mobilization of the Masses 267 Political Parties and the Recruitment and Socialization of Leaders 269 Political Parties as a Source of Political Identity 270 Political Parties as a Channel of Control 272 Striking a Balance in Partisanship 273 Party Organization 273 Michels’s “Iron Law of Oligarchy” 275 Party Finance 276 The Digital Challenge to Parties 277 Political Party Systems 278 Party Change and Dynamics 281 Power and Choice 284 Example 11.1 ■ The Communist Party of China 284 Example 11.2 ■ Canada’s Political Parties 286 Key Terms | Review Questions 288 12 Structured Conflict: Interest Groups and Politics 289 Interest Groups and Representation 290 Interest Groups and the Problem of Public Goods 295 Types of Interest Groups 296 Tactics of Interest Groups 297 The Choice of Tactics 303 Patterns of Organized Interest-Group Activity 304 Pluralism 304 Neocorporatism 305 Pluralism and Neocorporatism: Power and Choice 307 Example 12.1 ■ Interest Groups in France 308 Contents ■ ix Example 12.2 ■ Attenuated Interest Groups in Bangladesh 309 Key Terms | Review Questions 310 13 Social Movements and Contentious Politics 311 Why Now? 313 Advantages (and Disadvantages) of Informal Organization 315 Example 13.1 ■ Two Uprisings in Iran 319 Example 13.2 ■ The “Orange Revolution” in Ukraine 320 Example 13.3 ■ George Floyd, Police Reform, and Black Lives Matter 322 Key Terms | Review Questions 324 14 National Decision-Making Institutions: Parliamentary Government 325 Head of State 328 Head of Government 328 Cabinet Control 330 What Does a Parliament Do? 330 Parliamentary Committees 333 Upper Houses 334 Advantages and Disadvantages of Parliamentary Government 335 Let’s Make Sure We Haven’t Made This Sound Too Simple 337 “Consensus” Parliamentarism 338 Parliaments in Authoritarian Systems 339 Example 14.1 ■ Parliamentary Government in India 340 Example 14.2 ■ Parliamentary Government in Germany 343 Example 14.3 ■ Should the United States Change to a Parliamentary System? 345 Key Terms | Review Questions 346 15 National Decision-Making Institutions: Presidential Government 347 Political Parties and Presidential Government 349 Presidential Leadership 350 Presidential and Parliamentary Systems Compared 351 Responsibility for Policy 351 Presidential Systems and Comprehensive Policy 352 Recruitment of Executive Leaders 352 Review and Control of the Executive 355 “Court” Politics 355 Flexibility of the Political Process 356 The Split Executive of Parliamentary Systems 357 Why Aren’t All Democracies Parliamentary Systems? 358 Democracy and the Question of Accountability 359 A Note on Institutions and Power 362 Example 15.1 ■ Presidential Hybrid in France 364 Example 15.2 ■ Presidential Government in Mexico 366 Example 15.3 ■ U.S. Presidential Selection 367 Key Terms | Review Questions 369 16 Bureaucracy and the Public Sector 370 Public Administration as a Political Problem 372 Characteristics of Good Public Administration 373 “Bureaucracy”: A Reform of the Nineteenth Century 375 Bureaucracy Versus Flexibility 376