American Pluralism

What is pluralism? According to a standard definition it is a theory by which a multitude of groups govern the United States meaning, that people as a whole cannot run the government.

Perhaps the key characteristic of American government, according to pluralists, is that it is dominated not by a single elite but rather by a multiplicity of relatively small groups, some of which are well organized and funded, some of which are not. Although a few are larger and more influential than the others, the scope of their power, far from being universal, is restricted to relatively narrow areas such as defense, agriculture, or banking.

A second characteristic is that the groups are politically autonomous, or independent. They have the right and freedom to do business in the political marketplace. How well they fare depends not on the indulgence of a higher authority but on their own skill in rallying political resources. Because a diverse society like ours contains so many potential factions, political autonomy guarantees constant, widespread, and spirited competition among these organizations.

Third, inter group competition leads to countervailing influence: The power of one group tends to cancel that of another so that a rough equilibrium results. Group memberships overlap as well. Members of one association, in other words, might belong to another, even competing, group. Overlapping memberships reduce the intensity of conflicts because loyalties are often spread among many organizations.

A fourth characteristic is the openness of the system. It is open in two senses. First, most organizations are seldom if ever completely shut off from the outside. They continuously recruit new members from all walks of life. Second, the availability of unused resources constantly encourages the formation of new groups. Stimulated by threats to their interests or sensitized to injustices, or for whatever reason, individuals frequently unite for political action. In the process groups mine untapped resources. This happened in 1989 when a Supreme Court decision gave states greater latitude in restricting abortions. The Court's action so scared and angered pro-choice groups that they accelerated their organizing efforts to prevent states from enacting stiffer antiabortion laws.

Pluralists judge society not by its actual equality but by its equality of political opportunity. Americans, they contend, have a comparatively equal chance to participate in government. By mobilizing resources (collecting signatures on a petition, for example) they can make existing groups share their influence, or they can create new organizations that will compete with established ones.

The fifth characteristic of the system is the endless quest by groups and office seekers for public support. Even though the masses do not govern directly, their opinions are a resource that can be used by one organization against another. In a country where the belief in popular control of government is so deeply ingrained, people feel compelled to sell their causes to the public, and are frequently judged winners or losers by their standings in the polls. What else explains the millions of dollars spent on advertising? What else accounts for the demand for public relations consultants? Why else is so much attention lavished on public opinion surveys? The answers lie in the widely shared belief that a group with popular backing has an important advantage over one that lacks it, even if the masses do not actually take part in decision making.

The public also exerts influence by choosing leaders, most of whom back and are backed by organized groups. So important is this responsibility that one scholar defined democracy as "an institutional arrangement for arriving at political decisions in which [groups] acquire power to decide by means of a competitive struggle for the people's vote."

The final characteristic of pluralism is consensus on the "rules of the game." Consensus, or widespread agreement, among political activists and leaders on democratic principles and values holds the system together. These people accept regular and open elections, the right to vote, majority rule, political equality, free speech, the right to assemble, and the other rules that make peaceful and orderly politics possible. They tolerate differences of opinion. And, of utmost significance, they abide by the outcomes of elections.

Some pluralists contend that, since this acceptance of democratic norms is higher among leaders than the general public, political disagreements are best settled at the top, where they can be dealt with fairly and dispassionately. Keeping the intolerant and shortsighted masses at bay helps ensure the system's safety and stability. The theory, in short, argues that American government stays free because its main participants, the individuals who actually make policy, agree on a code of conduct that is not always shared by the public at large.

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