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AM GOV 6e
LOSCO BAKER
 Political Science
21st Century Tools, for 21st Century Politics

Connect Government is an application-based assignment platform containing engaging, user-friendly

tools that help students better understand and connect with the concepts and language used in the
American Government course. Political Scientists have reported deeper critical thinking, improved
student performance, and increased classroom efficiency as a result of using Connect Government,
which includes innovative tools that are often auto-gradable, such as:

SmartBook®
Described as a “textbook for the 21st century” by a political scientist,
SmartBook gives students a road map to success through an adaptive
reading experience that changes the way students read. It creates a
personalized, interactive reading environment by highlighting important
concepts, while helping students identify their strengths and weaknesses.
This ensures that he or she is focused on the content needed to close specific
knowledge gaps, while it simultaneously promotes long-term learning.

NewsFlash
Responding to the need for currency in the American Government
course, this new Connect assignment pairs fresh content on a rolling
basis with auto-grade questions that allow instructors to assess student
understanding of the important news of the day.

Applied Critical Thinking

Nicknamed ACT!, these new activities encourage students to apply
critical thinking skills to core course content through political research
and reflection. First, students assess their understanding of content,
then gather applicable political research, and lastly, critically reflect on
the results.

Practice Government Missions

Practice Government, McGraw-Hill’s educational game focused on
the American political system, can now be played inside of Connect
American Government! Two introductory missions have now been
paired with auto-grade and critical thinking questions that harness the
power of “learning by doing” right within Connect. Additional missions
are available through mhpractice.com.
 Concept Clips
Expanded to now include audio, Concept Clips are engaging
videos that walk students through the more difficult concepts in
the American government course (such as the Electoral College,
Supreme Court procedures, or how to evaluate a public opinion poll).

Interactive Data Analysis

Help your students consume political data in a meaningful way.
Students in the American Government course now have the ability
to interact with political data visualizations to gain insight into
important factors that shape our political process. Students can
review electoral turnout over time or contemplate how demographic
shifts in the American population will impact future elections. These
interactive charts and maps are paired with auto-grade and critical
thinking questions to enhance student understanding.

“I can honestly say that he first time I

87%of college
75% used SmartBook after reading a
chapter I understood what I had just
read better than I ever had
in the past.”
students report – Nathan Herrmann, Oklahoma State University
that access to of students using adaptive
learning analytics technology report that it
can positively is “very helpful” or
impact their “extremely helpful” in
learning experience. aiding their ability to
retain new concepts. “I really enjoy how it has gotten me
engaged in the course and it is a
great study tool without having to
carry around a heavy textbook.”
Professors spend: – Madeline Uretsky, Simmons College

Less time on
administrative
tasks 90% “Connect keeps my students engaged
More time and motivated. Requiring Connect
assignments has improved student
75% on active
learning exam grades.”
– Sophia Garcia, Tarrant County College

To learn more about American Government visit the McGraw-Hill Education

American Government page: bit.ly/MHEAmGov
AM GOV SIXTH EDITION

JOSEPH LOSCO
Ball State University and Loyola University Chicago

RALPH BAKER
State College of Florida
AM GOV, SIXTH EDITION
Published by McGraw-Hill Education, 2 Penn Plaza, New York, NY 10121. Copyright © 2019 by McGraw-Hill
Education. All rights reserved. Printed in the United States of America. Previous editions © 2017, 2015, 2013,
and 2011. No part of this publication may be reproduced or distributed in any form or by any means, or
stored in a database or retrieval system, without the prior written consent of McGraw-Hill Education, including,
but not limited to, in any network or other electronic storage or transmission, or broadcast for distance learning.

Some ancillaries, including electronic and print components, may not be available to customers outside the
United States.

This book is printed on acid-free paper.

1 2 3 4 5 6 7 8 9 QVS 21 20 19 18

ISBN 978-1-259-91244-3 (bound edition)

MHID 1-259-91244-2 (bound edition)
ISBN 978-1-260-16597-5 (loose-leaf edition)
MHID 1-260-16597-3 (loose-leaf edition)

Portfolio Manager: Jason Seitz

Product Development Manager: Dawn Groundwater
Marketing Manager: Will Walter
Content Project Managers: Rick Hecker/George Theofanopoulos
Buyer: Sandy Ludovissy
Design: Matt Diamond
Content Licensing Specialist: Ann Marie Jannette
Cover Image: © Pixtal/AGE Fotostock.

Compositor: Aptara®, Inc.

All credits not appearing on page or at the end of the book are considered to be an extension of the copyright page.

Library of Congress Cataloging-in-Publication Data

Names: Losco, Joseph, author. | Baker, Ralph, 1942- author.

Title: Am gov 2019-2020 / Joseph Losco, Ball State University and Ralph
Baker, State College of Florida.
Other titles: American government 2019-2020
Description: Sixth edition. | New York : McGraw-Hill Education, [2019]
Identifiers: LCCN 2018036948| ISBN 9781259912443 (alk. paper) | ISBN
1259912442 (alk. paper)
Subjects: LCSH: United States—Politics and government—Textbooks.
Classification: LCC JK276 .L67 2019 | DDC 320.473—dc23 LC record available at
https://lccn.loc.gov/2018036948

The Internet addresses listed in the text were accurate at the time of publication. The inclusion of a website
does not indicate an endorsement by the authors or McGraw-Hill Education, and McGraw-Hill Education
does not guarantee the accuracy of the information presented at these sites.

mheducation.com/highered
AM GOV Brief Contents
1 Citizenship: In Our Changing Democracy 1

2 The Constitution: The Foundation of Citizens’ Rights 16

3 Federalism: Citizenship and the Dispersal of Power 41

4 Civil Liberties: Citizens’ Rights Versus Security 67

5 Civil Rights: Toward a More Equal Citizenry 102

©Zach Gibson/Getty Images
6 Public Opinion 135

7 Political Participation: Equal Opportunities

and Unequal Voices 160

8 Interest Groups in America 186

9 Parties and Political Campaigns: Putting Democracy

into Action 213

10 Media: Tuning in or Tuning Out 240

11 Congress: Doing the People’s Business 271

©Robert W. Kelley/The LIFE Images Collection/Getty Images

12 The Presidency: Power and Paradox 307

13 Bureaucracy: Citizens as Owners and Consumers 342

14 The Courts: Judicial Power in a Democratic Setting 365

15 Public Policy: Responding to Citizens 392

16 Foreign and Defense Policy: Protecting

American Interests in the World 414 ©Corbis/PunchStock

Brief Contents • v
Contents
Citizenship: In Our Changing THE BIRTH OF A NATION 21
1 Democracy 1 The Articles of Confederation: A Document Whose Time
Had Come and Gone 21
Millennials: You’re in Charge Now. Where Will You
Take Us? 1 The Road to Philadelphia 23

POLITICS, POWER, AND PARTICIPATION 3 Constitutional Convention 23

Types of Government 4 Regional Tensions: Slavery and the Three-Fifths

Compromise 24
Political Power 5
CONSTITUTIONAL PRINCIPLES 26
Participation and Democracy 6
Liberal Democratic Principles 26
AMERICAN POLITICAL IDEALS 8
Separation of Powers and Checks and Balances 26
THE CHANGING FACE OF THE AMERICAN CITIZENRY 9
Federalism 27
Growing Diversity 10
CONSTITUTIONAL CONSTRUCTION 28
Growing Older 10
THE FIGHT FOR RATIFICATION 29
Growing Apart 11
Antifederalist Opposition 29
THE FUTURE OF CITIZENSHIP 13
The Battle in the States 30
The Constitution: The Foundation of
2 Citizens’ Rights 16
Making Good on a Promise: The Bill of Rights 32
CONSTITUTIONAL CHANGE 33
Our Constitution: Time for a Change? 16
Amending the Constitution 34
THE FOUNDATIONS OF AMERICAN DEMOCRACY 18 Institutional Adaptation 34
Early Colonization 18 Judicial Review 36
The Colonists Respond to Economic Pressures 19 Expanding the Franchise 36
Colonists Mobilize for Action: The Continental Congress 20 THE CONSTITUTION AND CIVIC ENGAGEMENT TODAY 38
Declaration of Independence 20 Federalism: Citizenship
©Sandy Macys/Alamy Stock Photo
3 and the Dispersal of Power 41
At Odds Over Immigration 41

THE DIVISION OF POWER 43

Prevailing Models for Dispersing Power 43
The Federalist Solution 44
THE EVOLUTION OF INTERGOVERNMENTAL
RELATIONS 46
The National Government Asserts Itself: 1789–1832 46
Dual Federalism, Disunion, and War: 1832–1865 48
Federalism in the Age of Commerce: 1865–1932 48
The New Deal and the Growth of National Power:
1932–1937 49
 Cooperative Federalism: 1937–1960s 50 Establishment Clause 73
Creative Federalism: 1960s–1970s 51 Religion and Public Schools 75
New Federalism and the Devolution Religious Use of Public School Facilities
of Power: 1980–Present 52 and Funds 76
FEDERAL–STATE RELATIONS 54 Prayer in School 76
Fiscal Relations 55 Aid to Religious Schools 76
Political Relations 56 Government Endorsement of Religion 77
Constitutional Issues 58 FREEDOM OF SPEECH 77
INTERSTATE RELATIONS 61 Political Speech 78
Cooperation and Competition 61 Campaign Speech 79
Innovation in the States 62 Commercial Speech 80
FEDERALISM AND CIVIC ENGAGEMENT TODAY 64 Symbolic Speech 80
Boundaries of Free Speech 81
Civil Liberties: Citizens’ Rights
4 Versus Security 67 Obscenity 81

Civil Liberties Versus Civil Rights: A Sweet Dispute 67 Defamation 82

Hate Speech 82
HERITAGE OF RIGHTS AND LIBERTIES 69
FREEDOM OF THE PRESS 83
The Constitution and Rights 69
Prior Restraint 83
The Bill of Rights 69
Government Control of Media Content 84
Incorporation 69
Special Rights 84
The Modern Emphasis on Rights 71
FREEDOM OF ASSEMBLY AND ASSOCIATION 85
FREEDOM OF RELIGION 71
Freedom of Assembly 85
Free Exercise Clause 72
Freedom of Association 86
Congress and Religious Freedom 73

©Amos Aikman/Getty Images

Contents • vii
RIGHT TO KEEP AND BEAR ARMS 87 The Civil War and Reconstruction 107
RIGHTS OF THE ACCUSED 88 Segregation 108
The Fourth Amendment: Searches and Seizures 89 Voting Barriers 108
The Fifth Amendment: Self-Incrimination 90 NAACP 109
The Sixth Amendment: Right to Counsel 91 Modern Era of Civil Rights 109
The Sixth Amendment: Trial by Jury 92 Civil Rights Mobilization 110
The Eighth Amendment: Cruel and Unusual Civil Rights Legislation 111
Punishment 93 Retrospective 112
RIGHT TO PRIVACY 96 INTERPRETING EQUALITY 113
Abortion 96 Judicial Tests 113
The Right to Die 97 Affirmative Action 114
CIVIC LIBERTIES AND CIVIC ENGAGEMENT TODAY 99 Racial Classifications 114

Civil Rights: Toward a More Equal Current Impact on Education 115

5 Citizenry 102 Continuing Controversy 116
Sexual Assaults on College Campuses 102 OTHER MINORITY GROUPS 117
Native Americans 118
AFRICAN AMERICANS AND CIVIL RIGHTS 105
Hispanic Americans 118
Slavery 105
Asian Americans 119
Dred Scott 106
Disabled Americans 121

©Bettmann/Getty Images

viii • AM GOV
 American Seniors 121
Gay and Lesbian Americans 122
WOMEN AND CIVIL RIGHTS 126
Early Women’s Movement: 1840–1875 126
The Suffrage Movement: 1890–1920 126
The Second Women’s Rights Movement: 1961–Present 127
Current Issues 128
CIVIL RIGHTS
AND CIVIC ENGAGEMENT TODAY 133

Public Opinion 135

6
Changing Tides of Public Opinion 135
©Chris Pizzello/AP Images

UNDERSTANDING PUBLIC OPINION IN THE CONTEXT OF

AMERICAN POLITICS 137
The Nature of Public Opinion 137
Support for Democratic Values 154
Changes in Assessing and Using Public Opinion 138
Political Ideologies 154
HOW POLITICAL OPINIONS ARE FORMED 139
PUBLIC OPINION AND PUBLIC POLICY 156
The Process of Socialization 139
PUBLIC OPINION AND CIVIC ENGAGEMENT TODAY 157
Agents of Political Socialization 140
Political Participation: Equal
GROUP DIFFERENCES IN POLITICAL OPINIONS 143
Racial and Ethnic Identity 143
7 Opportunities and Unequal
Gender 144
Voices 160
Millennials Rising 160
Geography 145
MEASURING PUBLIC OPINION 146 POLITICAL PARTICIPATION: OPPORTUNITIES, COSTS,
AND BENEFITS 162
Dimensions of Public Opinion 146
CHARACTERISTICS OF POLITICAL PARTICIPATION 163
Types of Polls 147
Amount of Information Conveyed 164
POLLING TECHNIQUES 147
Variation in Frequency and Strength of Messages
Who Is Asked? Selecting the Sample 149
Conveyed 164
What Is Asked? Paying Attention to the
INGREDIENTS FOR INVOLVEMENT 165
Questions 151
Access to Resources 165
THE CONTENT OF AMERICAN
PUBLIC OPINION 151 Political Engagement 167
Political Knowledge 151 Mobilization 169
Confidence in Government Institutions 152 VOTING 170
Trust in Government 153 Who Votes? 170
Political Efficacy 153 Who Doesn’t? And Why? 171

Contents • ix
VOTERS IN THE ELECTORAL PROCESS: HOW AMERICANS THE ROOTS OF INTEREST GROUP POLITICS
DECIDE 174 IN AMERICA 190
Party Choice 174 Interest Groups on the Rise 190
Issues 175 The Advocacy Explosion 191
Candidate Characteristics 177 WHOSE INTERESTS ARE REPRESENTED? 192
OTHER FORMS OF POLITICAL PARTICIPATION 177 Who Has the Numbers? 192
Beyond Voting: Activities That Require More Time 178 Who Has the Money? 193
Beyond Voting: Activities That Require More Skill 181 Whose Interests Are Not Represented? 193
Beyond Voting: Activities That Require Money 181 WHY JOIN? 195
THE IMPACT OF PARTICIPATION PATTERNS Monetary Incentives 195
ON POLICY 182
Social Incentives 195
PARTICIPATION AND CIVIC ENGAGEMENT Idealist Incentives 196
TODAY 183
Assessing Motives 196
Interest Groups in America 186
8 INTEREST GROUP STRATEGIES 196
LOBBYING AND OTHER TACTICS 198
The National Rifle Association and the Status
Quo 186 Lobbying 198
Financing Campaigns 202
ORGANIZED INTERESTS: WHO ARE THEY? 189
Accessing the Courts 206
Neighbors or Adversaries? 189
Grassroots Mobilization 207
Distinctive Features 189
Coalition Formation 208
Protests 209
INTEREST GROUPS AND CIVIC ENGAGEMENT
TODAY 210

Parties and Political

9 Campaigns: Putting Democracy
into Action 213
Separate Tables, Please 213

POLITICAL PARTIES AND

ELECTORAL POLITICS 214
The Nature of Parties in America 215
Why Two Parties? 215
GROWTH AND DEVELOPMENT
OF OUR TWO-PARTY SYSTEM 217
The Evolution of American Political Parties:
Five Party Systems 218
Shifting Tides: 1968 to Present 220
©Bettmann/Getty Images

x • AM GOV
 Party Realignment 221 Media: Tuning in or
Parties Today: Poles Apart 222 10 Tuning Out 240
BUILT TO WIN: PARTY STRUCTURE 223 How to Restore Confidence 240
National Committees 223
EVOLVING CIVIC LIFE AND MEDIA CHANGES 243
Congressional and Senatorial Campaign
Early Days 243
Committees 226
Partisan Press 243
State Committees 226
Penny Press 243
Local Party Organizations 227
Yellow Journalism 244
Working Together 227
Broadcast Media 245
THIRD PARTIES AND INDEPENDENT
CANDIDACIES 228 The Media Today 246
CANDIDATES AND ELECTORAL POLITICS 230 THE MEDIA ENVIRONMENT IN AMERICA 248
Show Me the Money 230 Private Ownership 249
Where Does All the Money Go? 232 Government Regulation 249
Candidates and the Parties 233 Ownership Limits 249
Party and Candidate: Working Together but the Candidate Content Regulation 250
Is in Charge 235 Emphasis on Entertainment 250
PARTIES, POLITICAL CAMPAIGNS, AND Adversarial Journalism 251
CIVIC ENGAGEMENT TODAY 237
Political Bias? 252

©Spencer Platt/Getty Images

Contents • xi
 GETTING ELECTED 277
Resources 277
The Incumbency Factor 277
Midterm Elections 278
Redistricting 279
DOING THE JOB: RESPONSIBILITIES AND BENEFITS 281
Representing the People 281
Pay and Perks 283
Keeping in Touch with Voters: Home-Style Politics 284
WORKING WITH OTHERS 284
Dealing with Organized Interests 285
Personal Staff 286
©Robert Emerson/Alamy Stock Photo
Professional Congressional Committee and Agency Staff 286
MEDIA AND POLITICAL CAMPAIGNS 254 Colleagues 286
Free Media 254 Getting Along 288
Presidential Debates 255 KEYS TO POLITICAL POWER: PARTY, POSITION,
PROCEDURES 288
Paid Media 257
Party 288
The Internet 257
Position 289
Game Coverage 260
Procedures 295
Character Issues: Probing Personal Lives 260
EXERCISING CONGRESSIONAL POWER 296
Election Night Coverage 261
Lawmaking 296
GOVERNMENT COVERAGE IN THE MEDIA 261
Declaring War 299
Covering the President 262
Impeachment 300
Covering Congress 264
Investigation and Oversight 300
Covering the Supreme Court 265
Budgeting 301
THE MEDIA AND CIVIC ENGAGEMENT TODAY 266
Senatorial Powers 302
Congress: Doing the People’s
11 Business 271
CONGRESS AND CIVIC ENGAGEMENT TODAY 304

The Presidency: Power and

Last Man Standing? 271
12 Paradox 307
ORIGIN AND POWERS OF CONGRESS 272 The Unprecedented President 307
CIVIC LIFE AND CONGRESSIONAL CHANGE 274
ORIGIN AND POWERS OF THE PRESIDENCY 308
Building the Institution 274
Constitutional Provisions 309
The Era of Reform 275
Crafting the Office: From Washington to Roosevelt 309
The Resurgent Executive Branch 275
The Modern Presidency 310
The Rights Revolution and Partisan Polarization 276

xii • AM GOV
THE PATH TO THE PRESIDENCY 311 THE VICE PRESIDENCY 338
GETTING ELECTED 311 THE PRESIDENCY AND CIVIC ENGAGEMENT TODAY 340
Fundraising 311 Bureaucracy: Citizens as Owners
Primary Sweepstakes 313 13 and Consumers 342
Party Conventions 314 Student Loans, Debt, and Bureaucracy 342
The General Election 315
BUREAUCRATIC CHANGES AND EVOLVING CIVIC LIFE 345
PRESIDENTIAL POWER 319
Growth of Bureaucracy 345
Chief Executive 320
The Early Bureaucracy 346
Commander in Chief 323
The Reform Era 347
Chief Diplomat 324
Bureaucracy Today 347
Chief of State 325
THE NATURE OF BUREAUCRACY 348
Lawmaker 327
FEDERAL BUREAUCRATS AND THEIR WORK 349
PRESIDENTIAL ROLES 330
Who Are They? 349
Party Leader 330
What Do They Do? 351
Economic Leader 330
Organization of the Federal Bureaucracy 352
Opinion Leader 330
SOURCES OF BUREAUCRATIC POWER 357
THE EXECUTIVE BRANCH 331
External Support 357
Cabinet 332
Expertise and Discretion 357
Executive Office of the President 333
Longevity and Vitality 358
PRESIDENTIAL STYLE 336
Leadership 358
ASSESSING PRESIDENTIAL POWER AND ITS LIMITS 337

©Stephen Chernin/Getty Images

Contents • xiii
 SUPREME COURT DECISION MAKING 374
Agenda Decisions 375
Voting Decisions 376
Explaining Decisions 378
Implementing Decisions 378
Understanding Decisions 379
SUPREME COURT SELECTION 381
©Andrew Harrer/Bloomberg via Getty Images
Nomination 381
Nomination Criteria 382
CONTROLLING BUREAUCRATIC POWER 359 Senate Confirmation 384
Congressional Controls 359 LOWER COURT SELECTION 385
Presidential Controls 359 THE JUDICIARY AND CIVIC ENGAGEMENT
TODAY 388
Judicial Controls 362
Public Policy: Responding to
Whistle-Blowing 363
THE BUREAUCRACY AND CIVIC ENGAGEMENT
15 Citizens 392
TODAY 363 The Widening Gap 392

14 The Courts: Judicial Power in

a Democratic Setting 365
THE NATURE AND SCOPE OF
PUBLIC POLICY 393
The Tortuous Selection of a Supreme Court POLICYMAKING AND EVALUATION 394
­Justice 365
Problem Recognition 394
NATIONAL COURT STRUCTURE 367 Agenda Setting 394
District Courts 367 Policy Formation 395
United States Courts of Appeals 368 Policy Adoption 395
United States Supreme Court 369 Policy Implementation 395
Specialized Courts 369 Policy Evaluation 396
NATURE OF THE JUDICIAL PROCESS 369 Explaining Policy Outcomes 396
Common Law 369 DOMESTIC POLICY 397
Judicial Review 370 Protecting the Environment 397
Civil and Criminal Law 370 Helping the Poor and the Elderly 401
Judicial Requirements 371 ECONOMIC POLICY 404
Real Cases and Controversies 372 Fiscal Policy 405
CHANGING NATURE OF Monetary Policy 408
THE SUPREME COURT 373
Global Economic Policy 411
The Early Court 373
PUBLIC POLICY AND CIVIC
The Court, Business, and Social Welfare 374 ENGAGEMENT TODAY 412
The Court and Personal Rights 374

xiv • AM GOV
 Foreign and Defense Policy: TOOLS OF FOREIGN POLICY 427
16 Protecting American Interests in Military Power 427
the World 414 Diplomacy 429
Flight and Fight 414 Foreign Aid 429
Working with International Partners 430
DEFENSE AND FOREIGN POLICY
IN HISTORICAL PERSPECTIVE 415 CONFRONTING THE FUTURE 431
Finding Our Place in the World 416 The Nuclear Threat 432
Becoming an International Power 416 The Terrorist Threat 433
The Nuclear Age 417 Threats Posed by Regional Conflicts 434
The Growing Threat of Terrorism 419 The Rise of China 436

DEFENDING U.S. INTERESTS IN A CONSTANTLY FOREIGN POLICY AND CIVIC ENGAGEMENT TODAY 437
CHANGING WORLD 420
Appendices
Defining National Interests 420
The Constitution of the United States of America 439
Understanding Nation-State Dynamics: Foreign Policy
Theories 421 The Declaration of Independence
Federalist Paper No. 10 (James Madison)
MAKING FOREIGN POLICY 421
Federalist Paper No. 51 (James Madison)
The Primacy of the Executive Branch 422
All Appendices assignable online in Connect.
Congress’s Role 425
Glossary 455
Other Actors 426
Endnotes 465
The Public’s Role 427 Index 483

©Tony Comiti/Corbis via Getty Images

Contents • xv
What’s in AM GOV

AM GOV was created with one simple premise in mind:

Students will learn only if the content is engaging and current,
if the design is visually attractive, and if the price is affordable.
With this premise in mind, we, the authors, set out to
discover from you—students and faculty—how best to
create a program that students would read and faculty
would eagerly assign. We interviewed dozens of faculty
and hundreds of students at colleges throughout the country.
Students told us they wanted resources with innovative
visual appeal, interactive digital technology, an integrated
approach, and relevant content designed according to the
way they learn. Instructors told us they wanted a way to
engage their students without compromising on high-quality
content.
We listened. The result is AM GOV, an American
government program that started a revolution. Our goal in
AM GOV is to engage students in the story of people’s
relationship to government and how an active and informed
Ralph Baker, State College of citizenry is essential in making democracy meaningful. We want students to
Florida, and Joseph Losco, Ball recognize how their choices about government affect their lives.
State University and Loyola
AM GOV marries our commitment to scholarly content with the value that
­University Chicago.
Courtesy of Ball State University currency, presentation, adaptive technology, and reasonable price have for students.
Frequent updates of both political events and scholarship keep the program vital
and relevant. We gave AM GOV this visually rich design because our research
taught us that, in our visual culture, it makes student learning excel and American
government memorable. Students even gave AM GOV its name.
And we continue to listen. Using the latest technology to track student usage
and comprehension, AM GOV pinpoints those content areas students find most
challenging with heat maps. This technology is used to help us rework presentations
to make the material more comprehensible and meaningful to students. Available
adaptive technologies, like LearnSmart® and SmartBook®, put students in control
of the learning experience, allowing them to learn from peer responses and create
a personal reading experience that’s all their own.
You started AM GOV. You convinced us that there had to be a better way to
get across the fundamental concepts of American democracy and what it means
to be an American citizen.
We listened. And we continue to learn from you.

xvi • AM GOV
 About the Authors

Joseph Losco is professor emeritus of political science at Ball State University,

director emeritus of the Bowen Center for Public Affairs, and currently adjunct
professor of political science at Loyola University of Chicago. He teaches courses
in political theory and American government. Losco has published in the areas of
public policy and political theory. His publications include Political Theory: Classic
and Contemporary Readings (Oxford University Press) and Human. Nature and
Politics, co-edited with Albert Somit (JAI Press). At the Bowen Center, Losco
founded and directed the annual Hoosier Survey of public opinion and shared
responsibility for the Voting System Technical Oversight Program (VSTOP), which
conducts voting system studies for the Indiana secretary of state. His research
has been funded by grants from the Pew Charitable Trusts and the U.S. Election
Assistance Commission. He serves as consultant to VSTOP and as an expert in
voting system technology. Losco received his B.A. and M.A. from Pennsylvania
State University and his Ph.D. from Temple University. He has been married to his
wife Marcia for over 40 years and has a son, Michael, who practices international
arbitration law in New York City.
Ralph Baker is an adjunct professor of political science at the State College
of Florida, where he teaches Introduction to American Government courses.
Before moving to Florida, he was a political science professor at Ball State
University, specializing in American government, constitutional law, constitutional
liberties, judicial politics, criminal justice policy, and media and politics. Raised in
central Illinois, he attended Bradley University for his undergraduate degree and
the University of Illinois for his M.A. and Ph.D.
He is the author of numerous books and articles, including The Criminal
Justice Game, Evaluating Alternative Law Enforcement Policies, Determinants of
Law Enforcement Policies, State Policy Problems, and Women Government Officials
in Indiana and articles concerning the Supreme Court, gender policy, the chilly
climate in academia, media and politics, and police professionalism. With Joe
Losco, Baker produced over twenty political science videos that resulted in Telly
Awards for “The 1996 Campaign,” “The 2000 Campaign,” and an Axiem Award
for “Case Studies in American Government.” At Ball State University, Baker won
the Outstanding Teacher Award and served several terms as the president of the
Indiana Political Science Association.

About the Authors • xvii

 Foundational Content and

AM GOV is a relatable, informative, and visual introduction to American politics.

Designed with today’s students in mind, AM GOV is a concise, magazine style
program that teaches students how to think critically, and politically. With an
emphasis on current events, AM GOV engages its readers through approachable
content and digital tools that are proven to help students better understand and
connect with the concepts and language used in the American government course.

Better Data, Smarter Revision, Improved Results

Students helped inform the revision strategy:
STEP 1. Over the course of three years, data points showing concepts that caused
students the most difficulty were anonymously collected from McGraw-Hill
Education’s Connect® American Government’s SmartBook for AM
GOV.
STEP 2. The data from SmartBook was provided to the authors in
the form of a heat map, which graphically illustrated “hot spots” in
the text that impacted student learning (see image to left).
STEP 3. The authors used the heat map data to refine the content
and reinforce student comprehension in the new edition. Additional
quiz questions and assignable activities were created for use in
Connect American Government to further support student success.
RESULT: Because the heat map gave the authors empirically
based feedback at the paragraph and even sentence level, they
were able to develop the new edition using precise student data that
pinpointed concepts that caused students the most difficulty.
Heat map data also inform the activities and assessments in
Connect American Government, McGraw-Hill Education’s assignable
and assessable learning platform. Where the heat map data show
students struggle with specific learning objectives or concepts, we
created new Connect assets—Concept Clips, Applied Critical
Thinking (ACT), and NewsFlash current event activities—to provide
another avenue for students to learn and master the content.
Fueled by LearnSmart, SmartBook is the first and only adaptive reading
experience currently available.
Make It Effective. SmartBook creates a personalized reading experience by
highlighting the most impactful concepts a student needs to learn at that moment
in time. This ensures that every minute spent with SmartBook is returned to the
student as the most value added minute possible.
Make It Informed. The reading experience continuously adapts by highlighting
content based on what the student knows and doesn’t know. Real-time reports
quickly identify the concepts that require more attention from individual students—
or the entire class. SmartBook detects the content a student is most likely to
forget and brings it back to improve long-term knowledge retention.
New to this edition, SmartBook is now optimized for mobile and tablet and is
accessible for students with disabilities. And as part of any American government

xviii • AM GOV
Digital Tools Designed for Today’s Student

course, SmartBook now focuses on the broader context for and building blocks
of the political system. Specifically, it has been enhanced with improved learning
objectives to ensure that students gain foundational knowledge while also learn-
ing to make connections for broader understanding of government institutions,
events, and behavior. SmartBook personalizes learning to individual student
needs, continually adapting to pinpoint knowledge gaps and focus learning on
topics that need the most attention. Study time is more productive and, as a
result, students are better prepared for class and coursework. For instructors,
SmartBook tracks student progress and provides insights that can help guide
teaching strategies.

Informing and Engaging Students on American

Government Concepts
Using Connect American Government, students can learn the course material
more deeply and study more effectively than ever before.
At the remember and understand levels of Bloom’s taxonomy, Concept Clips
help students break down key concepts in American government. Using easy-to-
understand audio narration, visual cues, and colorful animations, Concept Clips
provide a step-by-step presentation that aids in student
retention. New Concept Clips for this edition include the
following:
■ What are the Types of Government?
■ Federalists and Antifederalists
■ What is Devolution?
■ Regulation of the Media
■ Who Participates?
■ Presidency: Going Public
■ U.S. Foreign Policy

In addition to the concept-based clips, the new edition

also offers several skills-based clips that equip students
for work within and outside the classroom. These skills-
based clips include the following:
■ Evaluating the News
■ Critical Thinking
■ How to Read a Court Case
■ How to Understand Charts and Graphs
■ Political Cartoons
■ How to Avoid Plagiarism

Also at the remember and understand levels of Bloom’s, NewsFlash exercises

tie current news stories to key American government concepts and learning
objectives. After interacting with a contemporary news story, students are
assessed on their ability to make the connections between real-life events and

Preface • xix
 course content. Examples include the 2018 midterm election results,
2017 tax reform legislation, and trade tariffs.
Deepen understanding of how politics happens in the real world
by leveraging the most popular podcasts available with our new
­Podcast Assignments. These assignments, allow you to bring greater
context and nuance to your courses while engaging students through
the storytelling power of podcasts.
At the apply, analyze, and evaluate levels of Bloom’s
­t axonomy, critical thinking activities allow students to engage
with the political process and learn by doing. Examples include
the ­following:
■ Quiz: What is your political ideology?
■ Poll: Americans’ Confidence in the Police
■ Research: Find Your Senator
■ Infographic: Compare the Courts

Practice Government, McGraw-Hill’s educational game focused on the

­American political system, is fully integrated inside of Connect American
­Government! A set of focused introductory missions are paired with auto-graded
and critical thinking assessments.

Relevant Content
AM GOV presents content in an approachable, meaningful way, designed to
engage students.
■ Thinking It Through Activities: Our discussions at the American Government
symposia conducted across the country, as well as survey feedback, made it
clear that critical thinking is an essential skill for which instructors need
­additional support. Now with additional scaffolding, every chapter concludes
with a “Thinking It Through” activity tied to a learning objective for the
chapter that challenges students to go beyond the basics to think through a
problem and formulate possible solutions. Examples include “Media and
Political Campaigns” (Chapter 10) and “The Path to the Presidency”
(Chapter 12).
■ Citizenship Quizzes: In these quizzes, students are invited to take the U.S.
Citizenship Test to check their understanding of institutions such as the
courts, behavior such as voting rights, and the number of amendments to the
Constitution.
■ Current Controversy: These features examine controversial issues, ranging
from “Attacks on Journalists and Journalism” (Chapter 10) to “Lower Federal
Courts and the Travel Bans” (Chapter 14).
■ Challenges Ahead: These features examine the political challenges following
the 2016 elections and beyond. Topics range from “The Changing American
Identity” (Chapter 1) to “Cell Phones and Civil Liberties” (Chapter 4).

xx • AM GOV
 ■ Global Perspectives: These features compare the United States to other
nations by interpreting charts and graphs. Topics include “Changing Patterns
of Political Participation” (Chapter 7) and “Defense Spending” (Chapter 16).
As mentioned earlier, the authors revised the text in response to student
heat map data that pinpointed the topics and concepts with which students
struggle the most. This heat-map-directed revision is reflected primarily in
Chapters 9, 11, 13, and 14.
Chapter 1—Citizenship in Our Changing Democracy
■ Revised opening vignette, “Millennials: You’re in Charge Now: Where Will You
Take Us?”
■ New content on government surveillance and social media
■ New poll results on power and influence in Washington
■ Updated data on trust in national governments worldwide
■ Expanded discussion of the nature and role of political ideologies
■ Expanded coverage of the relationship between economic stratification and
political engagement
■ New Challenges Ahead feature, “The Changing American Identity”
■ Expanded discussion of service learning programs
■ New figure, “Freshman Class Survey: Essential or Very Important Personal
Objectives”
Chapter 2—The Constitution: The Foundation of Citizens’ Rights
■ New opening vignette, “Our Constitution: Time for a Change?”
■ Expanded discussion of the Bill of Rights’ applicability to the states
■ New “Current Controversy” feature, “An Arcane Provision Comes to Life,”
addressing the emoluments clause and the Trump presidency
Chapter 3—Federalism: Citizenship and the Dispersal of Power
■ New opening vignette on sanctuary cities, “At Odds over Immigration”
■ Revised discussion of the evolution of federalism
■ New “Portrait of an Activist” feature, “Climate Change Activists”
■ New “Challenges Ahead” feature, “A Clash of Wills: Cities Push Back on P
­ reemption”
Chapter 4—Civil Liberties: Citizens’ Rights Versus Security
■ New opening vignette on the Masterpiece Cakeshop case, “Civil Liberties
Versus Civil Rights: A Sweet Dispute”
■ Refined explanation of selective incorporation
■ New coverage of the NFL football player protests and the right to free speech
■ Updated coverage of the role of religion in American life, the relationship
between religious and political affiliation, and the separation of church and state
■ Updated coverage of campaign contributions as free speech
■ Updated data on incarceration rates
■ Updated search and seizure cases

Preface • xxi
 ■ New Challenges Ahead feature, “Cell Phones and Civil Liberties: Can You Hear
Me Now?”
■ New “Current Controversy” feature, “More Than a Few Scraped Knees”

Chapter 5—Civil Rights: Toward a More Equal Citizenry

■ New opening vignette, “Sexual Assaults on College Campuses”
■ Updated information on economic disparities between racial groups in America
■ Updated information on perceptions of police and of racial privilege
■ Revised explanation of judicial tests regarding discrimination
■ Revised discussion of affirmative action, including recent court cases
■ Revised coverage of Hispanic Americans, including population growth, college
enrollment rates, and immigration
■ Update coverage on same-sex marriage
■ New “Challenges Ahead” feature, “Voter Suppression and the 2016 Election”
■ Updated coverage of pay equity for women
■ Updated coverage of sexual harassment

Chapter 6—Public Opinion

■ New opening vignette, “Changing Tides of Public Opinion,” on the Obama
­voters who voted for Trump
■ Updated discussion of partisan polarization and partisan clustering
■ Updated coverage of the political divide between urban and rural residents
■ Revised coverage of the accuracy of polling, including a new Challenges Ahead
feature, “Is Polling in Crisis?”
■ Updated discussion of trust in government in America
■ Updated coverage of support for democratic values
■ Revised discussion of ideological divisions, including ideological leanings by
generation
■ Revised discussion of deliberative polling
■ New “Current Controversy” feature on opinion persistence

Chapter 7—Political Participation: Equal Opportunities and Unequal Voices

■ New opening vignette, “Millennials Rising,” on young mayors across the nation
■ Updated coverage of factors related to political participation
■ Updated information on factors affecting voter turnout
■ Updated discussion of unconventional political participation, including a new
“Global Perspectives” feature
■ New “Portrait of an Activist” feature, “Allie Armstrong and the H-CAN
­Community Moms”
Chapter 8—Interest Groups in America
■ New opening vignette, “The National Rifle Association and the Status Quo”
■ New figure, “Lobbying Expenditures by the Pharmaceuticals and Health
­Products Industry”
■ Coverage of lobbying and the Trump administration

xxii • AM GOV
 ■ New figure, “Total Lobbying Spending and Number of Lobbyists”
■ New content on the role of outside money and dark money in the 2016 election

Chapter 9—Parties and Political Campaigns: Putting Democracy into Action

■ New opening vignette, “Separate Tables, Please,” on avoiding our partisan
adversaries
■ Revised explanation of the functions of political parties
■ Updated discussion of partisan realignment and the partisan divide
■ Updated coverage of campaign spending and campaign advertising
■ New Challenges Ahead feature, “Tamping Down the Cost of Elections”

Chapter 10—Media: Tuning In or Tuning Out

■ New opening vignette, “How to Restore Confidence,” addressing a recent study
on trust in the media
■ Updated coverage of differing news media habits across generations
■ Updated discussion of the political divide in favored news sources, including a
new figure
■ Updated polls on the public perception of media bias, including data on the
partisan divide on the issue
■ New coverage of Facebook and the 2016 election
■ Discussion of press coverage of the Trump administration
■ New Current Controversy feature, “Attacks on Journalists and Journalism”
Chapter 11—Congress: Doing the People’s Business
■ New opening vignette, “Last Man Standing,” on challenges to male dominance
in Congress
■ Complete coverage of 2018 midterm elections
■ New Portrait of an Activist feature, “Meet Jonathan Castañeda” (former
­congressional staffer)
■ Extensive revisions and updates to the section on congressional procedures
■ Updated suggestions for improving the efficacy and public image of Congress

Chapter 12—The Presidency: Power and Paradox

■ New opening vignette, “The Unprecedented President”
■ Coverage of historical continuities and discontinuities of the Trump presidency
throughout the chapter
■ Analysis of electoral factors contributing to the Trump victory
■ Coverage of how Trump exercises presidential powers including appointments,
executive orders, diplomacy and foreign policy, and Trump’s legislative success
record
■ New Challenges Ahead feature, “It’s Two Minutes ‘til Midnight.”
■ Analysis of Trump’s presidential style
■ Coverage of Russian interference in the 2016 election and the role Facebook played

Chapter 13—Bureaucracy: Citizens as Owners and Consumers

■ Updates throughout opening vignette, “Student Loans, Debt, and Bureaucracy”

Preface • xxiii
 ■ New Current Controversy feature, “The Special Counsel: Outside Regular
Bureaucratic Boundaries”
■ New Challenges Ahead feature, “The FCC and Net Neutrality”
■ Updated examples of whistle-blowing and of judicial controls on bureaucratic
power
Chapter 14—The Courts: Judicial Power in a Democratic Setting
■ New opening vignette, “The Tortuous Selection of a Supreme Court Justice,” on
the appointment of Judge Gorsuch
■ Refinements and clarifications throughout the section on Supreme Court
­decision making
■ New Current Controversy feature, “Lower Federal Courts and the Travel Bans”
■ Updated Challenges Ahead feature, “Confidence in the Supreme Court”
Chapter 15—Public Policy: Responding to Citizens
■ Updated opening vignette, “The Widening Gap,” on income inequality
■ Updates on greenhouse gas pollution
■ Material on the Trump administration’s policies on the environment, poverty,
health care, economics, and trade
■ Updated statistics on poverty levels in America
Chapter 16—Foreign and Defense Policy: Protecting American Interests
in the World
■ New opening vignette, “Flight and Fight,” on the world refugee crisis
■ Material on the Trump administration’s national security and foreign relations
policies and procedures
■ Updates on current world conflicts

American Government Symposia

Since 2006, McGraw-Hill Education has conducted several American Government
symposia for instructors from across the country. These events offered a forum
for instructors to exchange ideas and experiences with colleagues they might not
have met otherwise. They also provided an opportunity for editors from McGraw-Hill
Education to gather information about what instructors of American Government
need and the challenges they face. The feedback we have received has been
invaluable and has contributed—directly and indirectly—to the development of
AM GOV. We would like to thank the participants for their insights:

Melvin Aaron, Los Angeles City College Anita Chadha, University of Houston–Downtown
Yan Bai, Grand Rapids Community College John Clark, Western Michigan University–Kalamazoo
Robert Ballinger, South Texas College Kathleen Collihan, American River College
Nancy Bednar, Antelope Valley College Steven Collins, Oklahoma State University–
Jeffrey Birdsong, Northeastern Oklahoma A&M Oklahoma City
College John Davis, Howard University
Amy Brandon, San Jacinto College-North Kevin Davis, North Central Texas College
Jane Bryant, John A. Logan College Paul Davis, Truckee Meadows Community College
Dan R. Brown, Southwestern Oklahoma State University Vida Davoudi, Lone Star College–Kingwood
Monique Bruner, Rose State College Robert De Luna, Saint Philips College
xxiv • AM GOV
Jeff DeWitt, Kennesaw State University Kent Miller, Weatherford College
Kevin Dockerty, Kalamazoo Valley Community Charles Moore, Georgia State University
College Eduardo Munoz, El Camino College
Cecil Dorsey, San Jacinto College–South Kay Murnan, Ozarks Technical Community College
Hien Do, San Jose State University Carolyn Myers, Southwestern Illinois College
Jay Dow, University of Missouri–Columbia Blaine Nelson, El Paso Community College
Manar Elkhaldi, University of Central Florida Theresa Nevarez, El Paso Community College
Karry Evans, Austin Community College James A. Norris, Texas A&M International U ­ niversity
Pearl Ford, University of Arkansas–Fayetteville Kent Park, U.S. Military Academy at West Point
John Forshee, San Jacinto College–Central Eric Rader, Henry Ford Community College
Ben Riesner Fraser, San Jacinto College Elizabeth Rexford, Wharton County Junior College
Daniel Fuerstman, Dutchess Community College Tara Ross, Keiser University
Marilyn Gaar, Johnson County Community College Carlos Rovelo, Tarrant Community College–South
Jarvis T. Gamble, Owens Community College Ryan Rynbrandt, Collin County Community College
Michael Gattis, Gulf Coast Community College Ray Sandoval, Richland College
William Gillespie, Kennesaw State University Craig Scarpelli, California State University–Chico
Dana K. Glencross, Oklahoma City Community Louis Schubert, City College of San Francisco
College Edward Senu-Oke, Joliet Junior College
Larry Gonzalez, Houston Community College– Mark Shomaker, Blinn College
Southwest Thomas Simpson, Missouri Southern University
Nirmal Goswami, Texas A&M University–Kingsville Henry Sirgo, McNeese State University
Daniel Gutierrez, El Paso Community College Amy Smith, North Lake College
Richard Gutierrez, University of Texas, El Paso Daniel Smith, Northwest Missouri State University
Michelle Kukoleca Hammes, St. Cloud State John Speer, Houston Community College–
University Southwest
Cathy Hanks, University of Nevada, Las Vegas Jim Startin, University of Texas at San Antonio
Wanda Hill, Tarrant County Community College Sharon Sykora, Slippery Rock University
Joseph Hinchliffe, University of Illinois at Urbana– Tressa Tabares, American River College
Champaign Beatrice Talpos, Wayne County Community College
John Hitt, North Lake College Alec Thomson, Schoolcraft College
Mark Jendrysik, University of North Dakota Judy Tobler, Northwest Arkansas Community College
Brenda Jones, Houston Community College– Steve Tran, Houston Community College
Central Beth Traxler, Greenville Technical College
Franklin Jones, Texas Southern University William Turk, University of Texas–Pan American
Lynn Jones, Collin County Community College Ron Vardy, University of Houston
James Joseph, Fresno City College Sarah Velasquez, Fresno City College
Jason Kassel, Valdosta State University Ron VonBehren, Valencia Community College–
Manoucher Khosrowshahi, Tyler Junior College Osceola
Rich Kiefer, Waubonsee Community College Albert C. Waite, Central Texas College
Robert J. King, Georgia Perimeter College Van Allen Wigginton, San Jacinto College–Central
Melinda Kovacs, Sam Houston State University Charlotte Williams, Pasadena City College
Chien-Pin Li, Kennesaw State University Ike Wilson, U.S. Military Academy
Fred Lokken, Truckee Meadows Community Paul Wilson, San Antonio College
­College John Wood, University of Central Oklahoma
John Mercurio, San Diego State University Robert Wood, University of North Dakota
Janna Merrick, University of South Florida Larry Wright, Florida A&M University
Joe Meyer, Los Angeles City College Ann Wyman, Missouri Southern State University
Eric Miller, Blinn College Kathryn Yates, Richland College
Preface • xxv
 Chapter 1
Citizenship
In Our Changing Democracy

WHAT’S TO COME
3 Politics, Power, and Participation
8 American Political Ideals
9 The Changing Face of the
American Citizenry
13 The Future of Citizenship

MILLENNIALS: YOU’RE IN
CHARGE NOW. WHERE WILL
©Zach Gibson/Getty Images

YOU TAKE US?

Millennials, young adults between 18 and 34
years of age, are now the largest living genera-
tion in the United States. They have surpassed
in numbers the generation of baby boomers
(those born between 1946 and 1964) who long
Tens of thousands of students across the nation walked out of class in protest
dominated American politics and culture. The of school violence in Parkland, Florida following the shooting death of 17
millennial population, already at 83.1 million and students at Marjory Stoneman Douglas High School. The students made clear
by their actions that they will “never again” tolerate government inaction on
representing more than a quarter of the U.S. gun control and school safety
population, is projected to peak in 2036, sur-
passing the baby boom generation, which reached 78.8 million in 1999.1
The millennial generation is the most diverse generation in U.S. history, with 44.2 percent being members of a
minority race or ethnic group.2 Millennials are better educated than previous generations as well. Four in ten millennial
workers ages 25 to 29 had at least a bachelor’s degree in 2016, compared with smaller percentages of earlier gen-
erational cohorts. Women, in particular, have made substantial education gains; almost half (46 percent) of employed
millennial women ages 25 to 29 hold at least a bachelor’s degree, up substantially from previous generations.3
This group is having a substantial effect on the way the country works and lives. Young people in large numbers
are substituting bikes for cars, multiple job holding in the gig economy for full time employment, Amazon for Macy’s,
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