In just a third of a century, Americans have dramatically changed their style of civic and political association. A civic world once centered in locally rooted and nationally active membership associations is a relic. Today, Americans volunteer for causes and projects, but only rarely as ongoing members. They send checks to service and advocacy groups run by professionals, often funded by foundations or professional fundraisers. Prime-time airways echo with debates among their spokespersons: the National Abortion Rights Action League debates the National Right to Life Committee; the Concord Coalition takes on the American Association of Retired Persons; and the Environmental Defense Fund counters business groups. Entertained or bemused, disengaged viewers watch as polarized advocates debate.
The largest membership groups of the 1950s were old-line and well-established, with founding dates ranging from 1733 for the Masons to 1939 for the Woman's Division of Christian Service (a Methodist women's association formed from "missionary" societies with nineteenth-century roots). Like most large membership associations throughout American history, most 1950s associations recruited members across class lines. They held regular local meetings and convened periodic assemblies of elected leaders and delegates at the state, regional, or national levels. Engaged in multiple rather than narrowly specialized pursuits, many associations combined social or ritual activities with community service, mutual aid, and involvement in national affairs. Patriotism was a leitmotif; during and after World War II, a passionate and victorious national endeavor, these associations sharply expanded their memberships and renewed the vigor of their local and national activities.
To be sure, very large associations were not the only membership federations that mattered in postwar America. Also prominent were somewhat smaller, elite-dominated civic groups-including male service groups like Rotary, Lions, and Kiwanis, and longstanding female groups like the American Association of University Women and the League of Women Voters. Dozens of ethnically based fraternal and cultural associations flourished, as did African-American fraternal groups like the Prince Hall Masons and the Improved Benevolent and Protective Order of Elks of the World.
For many membership federations, this was a golden era of national as well as community impact. Popularly rooted membership federations rivaled professional and business associations for influence in policy debates. The AFL-CIO was in the thick of struggles about economic and social policies; the American Legion and the Veterans of Foreign Wars advanced veterans' programs; the American Farm Bureau Federation (AFBF) joined other farmers' associations to influence national and state agricultural policies; and the National Congress of Parents and Teachers (PTA) and the General Federation of Women's Clubs were influential on educational, health, and family issues. The results could be decisive, as exemplified by the pivotal role of the American Legion in drafting and lobbying for the GI Bill of 1944.
Then, suddenly, old-line membership federations seemed passé. Upheavals shook America during "the long 1960s," stretching from the mid-1950s through the mid-1970s. The southern Civil Rights movement challenged white racial domination and spurred legislation to enforce legal equality and voting rights for African Americans. Inspired by Civil Rights achievements, additional "rights" movements exploded, promoting equality for women, dignity for homosexuals, the unionization of farm workers, and the mobilization of other nonwhite ethnic minorities. Movements arose to oppose U.S. involvement in the war in Vietnam, champion a new environmentalism, and further other public causes. At the forefront of these groundswells were younger Americans, especially from the growing ranks of college students and university graduates.
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The great social movements of the long 1960s were propelled by combinations of grassroots protest, activist radicalism, and professionally led efforts to lobby government and educate the public. Some older membership associations ended up participating and expanding their bases of support, yet the groups that sparked movements were more agile and flexibly structured than pre-existing membership federations.
The upheavals of the 1960s could have left behind a reconfigured civic world, in which some old-line membership associations had declined but others had reoriented and reenergized themselves. Within each great social movement, memberships could have consolidated and groups coalesced into new omnibus federations able to link the grass roots to state, regional, and national leaderships, allowing longstanding American civic traditions to continue in new ways.
But this is not what happened. Instead, the 1960s, 1970s, and 1980s brought extraordinary organizational proliferation and professionalization. At the national level alone, the Encyclopedia of Associations listed approximately 6,500 associations in 1958. This total grew by 1990 to almost 23,000. Within the expanding group universe, moreover, new kinds of associations came to the fore: relatively centralized and professionally led organizations focused on policy lobbying and public education.
Another wave of the advocacy explosion involved "public interest" or "citizens'" groups seeking to shape public opinion and influence legislation. Citizens' advocacy groups espouse "causes" ranging from environmental protection (for example, the Sierra Club and the Environmental Defense Fund), to the well-being of poor children (the Children's Defense Fund), to reforming politics (Common Cause) and cutting public entitlements (the Concord Coalition).
The Fortunes of Membership Associations
As the associational explosions of 1960 to 1990 took off, America's once large and confident membership federations were not only bypassed in national politics; they also dwindled as locally rooted participant groups. To be sure, some membership associations have been founded or expanded in recent decades. By far the largest is the American Association of Retired Persons (AARP), which now boasts more than 33 million adherents, about one-half of all Americans aged 50 or older. But AARP is not a democratically controlled organization. Launched in 1958 with backing from a teachers' retirement group and an insurance company, the AARP grew rapidly in the 1970s and 1980s by offering commercial discounts to members and establishing a Washington headquarters to monitor and lobby about federal legislation affecting seniors. The AARP has a legislative and policy staff of 165 people, 28 registered lobbyists, and more than 1,200 staff members in the field. After recent efforts to expand its regional and local infrastructure, the AARP involves about 5 to 10 percent of its members in (undemocratic) membership chapters. But for the most part, the AARP national office-covering an entire city block with its own zip code-deals with masses of individual adherents through the mail.
Four additional recently expanded membership associations use modern mass recruitment methods, yet are also rooted in local and state units. Interestingly, these groups are heavily involved in partisan electoral politics. Two recently launched groups are the National Right to Life Committee (founded in 1973) and the Christian Coalition (founded in 1989). They bridge from church congregations, through which they recruit members and activists, to the conservative wing of the Republican Party, through which they exercise political influence. Two old-line membership federations-the National Education Association (founded in 1857) and the National Rifle Association (founded in 1871)-experienced explosive growth after reorienting themselves to take part in partisan politics. The NRA expanded in the 1970s, when right-wing activists opposed to gun control changed what had traditionally been a network of marksmen's clubs into a conservative, Republican-leaning advocacy group fiercely opposed to gun control legislation. During the same period, the NEA burgeoned from a relatively elitist association of public educators into a quasi-union for public school teachers and a stalwart in local, state, and national Democratic Party politics.
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Although they fall short of enrolling 1 percent of the adult population, some additional chapter-based membership associations were fueled by the social movements of the 1960s and 1970s. From 1960 to 1990, the Sierra Club (originally created in 1892) ballooned from some 15,000 members to 565,000 members meeting in 378 "local groups." And the National Audubon Society (founded in 1905) went from 30,000 members and 330 chapters in 1958 to about 600,000 members and more than 500 chapters in the 1990s. The National Organization for Women (NOW) reached 1,122 members and 14 chapters within a year of its founding in 1966, and spread across all 50 states with some 125,000 members meeting in 700 chapters by 1978. But notice that these "1960s" movement associations do not match the organizational scope of old-line membership federations. At its post–World War II high point in 1955, for example, the General Federation of Women's Clubs boasted more than 826,000 members meeting in 15,168 local clubs, themselves divided into representative networks within each of the 50 states plus the District of Columbia. By contrast, at its high point in 1993, NOW reported some 280,000 members and 800 chapters, with no intermediate tier of representative governance between the national center and local chapters. These membership associations certainly matter, but mainly as counterexamples to dominant associational trends-of organizations without members.
After nearly a century of civic life rooted in nation-spanning membership federations, why was America's associational universe so transformed? A variety of factors have contributed, including racial and gender change; shifts in the political opportunity structure; new techniques and models for building organizations; and recent transformations in U.S. class relations. Taken together, I suggest, these account for civic America's abrupt and momentous transition from membership to advocacy.
Society Decompartmentalized
Until recent times, most American membership associations enrolled business and professional people together with white-collar folks, farmers, and craft or industrial workers. There was a degree of fellowship across class lines-yet at the price of other kinds of exclusions. With only a few exceptions, old-line associations enrolled either men or women, not both together (although male-only fraternal and veterans' groups often had ties to ladies' auxiliaries). Racial separation was also the rule. Although African Americans did manage to create and greatly expand fraternal associations of their own, they unquestionably resented exclusion by the parallel white fraternals.
Given the pervasiveness of gender and racial separation in classic civic America, established voluntary associations were bound to be shaken after the 1950s. Moreover, changing gender roles and identities blended with other changing values to undercut not just membership appeals but long-standing routes to associational leadership. For example, values of patriotism, brotherhood, and sacrifice had been celebrated by all fraternal groups. During and after each war, the Masons, Knights of Pythias, Elks, Knights of Columbus, Moose, Eagles, and scores of other fraternal groups celebrated and memorialized the contributions of their soldier-members. So did women's auxiliaries, not to mention men's service clubs and trade union "brotherhoods." But "manly" ideals of military service faded after the early 1960s as America's bitter experiences during the war in Vietnam disrupted the intergenerational continuity of male identification with martial brotherliness.
In the past third of a century, female civic leadership has changed as much or more than male leadership. Historically, U.S. women's associations-ranging from female auxiliaries of male groups to independent groups like the General Federation of Women's Clubs, the PTA, and church-connected associations-benefited from the activism of educated wives and mothers. Although a tiny fraction of all U.S. females, higher-educated women were a surprisingly substantial and widespread presence-because the United States was a pioneer in the schooling of girls and the higher education of women. By 1880, some 40,000 American women constituted a third of all students in U.S. institutions of higher learning; women's share rose to nearly half at the early twentieth-century peak in 1920, when some 283,000 women were enrolled in institutions of higher learning. Many higher-educated women of the late 1800s and early 1900s married immediately and stayed out of the paid labor force. Others taught for a time in primary and secondary schools, then got married and stopped teaching (either voluntarily or because school systems would not employ married women). Former teachers accumulated in every community. With skills to make connections within and across communities-and some time on their hands as their children grew older-former teachers and other educated women became mainstays of classic U.S. voluntary life.
Of course, more American women than ever before are now college-educated. But contemporary educated women face new opportunities and constraints. Paid work and family responsibilities are no longer separate spheres, and the occupational structure is less sex-segregated at all levels. Today, even married women with children are very likely to be employed, at least part-time. Despite new time pressures, educated and employed women have certainly not dropped out of civic life. Women employed part-time are more likely to be members of groups or volunteers than housewives; and fully employed women are often drawn into associations or civic projects through work. Yet styles of civic involvement have changed-much to the disadvantage of broad-gauged associations trying to hold regular meetings.
The Lure of Washington, D.C.
The centralization of political change in Washington, D.C. also affected the associational universe. Consider the odyssey of civil rights lawyer Marian Wright Edelman. Fresh from grassroots struggles in Mississippi, she arrived in Washington, D.C. in the late 1960s to lobby for Mississippi's Head Start program. She soon realized that arguing on behalf of children might be the best way to influence legislation and sway public sympathy in favor of the poor, including African Americans. So between 1968 and 1973 Edelman obtained funding from major foundations and developed a new advocacy and policy research association, the Children's Defense Fund (CDF). With a skillful staff, a small national network of individual supporters, ties to social service agencies and foundations, and excellent relationships with the national media, the CDF has been a determined proponent of federal antipoverty programs ever since. The CDF has also worked with Democrats and other liberal advocacy groups to expand such efforts; and during periods of conservative Republican ascendancy, the CDF has been a fierce (if not always successful) defender of federal social programs.
Activists, in short, have gone where the action is. In this same period, congressional committees and their staffs subdivided and multiplied. During the later 1970s and 1980s, the process of group formation became self-reinforcing-not only because groups arose to counter other groups, but also because groups begot more groups. Because businesses and citizens use advocacy groups to influence government outside of parties and between elections, it is not surprising that the contemporary group explosion coincides with waning voter loyalty to the two major political parties. As late as the 1950s, U.S. political parties were networks of local and state organizations through which party officials often brokered nominations, cooperated with locally rooted membership associations, and sometimes directly mobilized voters. The party structure and the associational structure were mutually reinforcing.
Then, demographic shifts, reapportionment struggles, and the social upheavals of the 1960s disrupted old party organizations; and changes in party rules led to nomination elections that favored activists and candidate-centered efforts over backroom brokering by party insiders. Such "reforms" were meant to enhance grassroots participation, but in practice have furthered oligarchical ways of running elections. No longer the preserve of party organizations, U.S. campaigns are now managed by coteries of media consultants, pollsters, direct mail specialists, and-above all-fundraisers. In this revamped electoral arena, advocacy groups have much to offer, hoping to get access to elected officials in return for helping candidates. In low-turnout battles to win party nominations, even groups with modest mail memberships may be able to field enough (paid or unpaid) activists to make a difference. At all stages of the electoral process, advocacy groups with or without members can provide endorsements that may be useful in media or direct mail efforts. And PACs pushing business interests or public interest causes can help candidates raise the huge amounts of money they need to compete.
A New Model of Association-Building
Classic American association-builders took it for granted that the best way to gain national influence, moral or political, was to knit together national, state, and local groups that met regularly and engaged in a degree of representative governance. Leaders who desired to speak on behalf of masses of Americans found it natural to proceed by recruiting self-renewing mass memberships and spreading a network of interactive groups. After the start-up phase, associational budgets usually depended heavily on membership dues and on sales of newsletters or supplies to members and local groups. Supporters had to be continuously recruited through social networks and person-to-person contacts. And if leverage over government was desired, an association had to be able influence legislators, citizens, and newspapers across many districts. For all of these reasons, classic civic entrepreneurs with national ambitions moved quickly to recruit activists and members in every state and across as many towns and cities as possible within each state.
Today, nationally ambitious civic entrepreneurs proceed in quite different ways. When Marian Wright Edelman launched a new advocacy and research group to lobby for the needs of children and the poor, she turned to private foundations for funding and then recruited an expert staff of researchers and lobbyists. In the early 1970s, when John Gardner launched Common Cause as a "national citizens lobby" demanding governmental reforms, he arranged for start-up contributions from several wealthy friends, contacted reporters in the national media, and purchased mailing lists to solicit masses of members giving modest monetary contributions. Patron grants, direct mail techniques, and the capacity to convey images and messages through the mass media have changed the realities of organization building and maintenance.
The very model of civic effectiveness has been upended since the 1960s. No longer do civic entrepreneurs think of constructing vast federations and recruiting interactive citizen-members. When a new cause (or tactic) arises, activists envisage opening a national office and managing association-building as well as national projects from the center. Even a group aiming to speak for large numbers of Americans does not absolutely need members. And if mass adherents are recruited through the mail, why hold meetings? From a managerial point of view, interactions with groups of members may be downright inefficient. In the old-time membership federations, annual elections of leaders and a modicum of representative governance went hand in hand with membership dues and interactive meetings. But for the professional executives of today's advocacy organizations, direct mail members can be more appealing because, as Kenneth Godwin and Robert Cameron Mitchell explain, "they contribute without 'meddling'" and "do not take part in leadership selection or policy discussions." This does not mean the new advocacy groups are malevolent; they are just responding rationally to the environment in which they find themselves.
Associational Change and Democracy
This brings us, finally, to what may be the most civically consequential change in late-twentieth-century America: the rise of a very large, highly educated upper middle class in which "expert" professionals are prominent along with businesspeople and managers. When U.S. professionals were a tiny, geographically dispersed stratum, they understood themselves as "trustees of community," in the terminology of Stephen Brint. Working closely with and for nonprofessional fellow citizens in thousands of towns and cities, lawyers, doctors, ministers, and teachers once found it quite natural to join-and eventually help to lead-locally rooted, cross-class voluntary associations. But today's professionals are more likely to see themselves as expert individuals who can best contribute to national well-being by working with other specialists to tackle complex technical or social problems.
Cause-oriented advocacy groups offer busy, privileged Americans a rich menu of opportunities to, in effect, hire other professionals and managers to represent their values and interests in public life. Why should highly trained and economically well-off elites spend years working their way up the leadership ladders of traditional membership federations when they can take leading staff roles at the top, or express their preferences by writing a check?
If America has experienced a great civic transformation from membership to advocacy-so what? Most traditional associations were racially exclusive and gender segregated; and their policy efforts were not always broad-minded. More than a few observers suggest that recent civic reorganizations may be for the best. American public life has been rejuvenated, say the optimists, by social movements and advocacy groups fighting for social rights and an enlarged understanding of the public good.
Local community organizations, neighborhood groups, and grassroots protest movements nowadays tap popular energies and involve people otherwise left out of organized politics. And social interchanges live on in small support groups and occasional volunteering. According to the research of Robert Wuthnow, about 75 million men and women, a remarkable 40 percent of the adult population, report taking part in "a small group that meets regularly and provides caring and support for those who participate in it." Wuthnow estimates that there may be some 3 million such groups, including Bible study groups, 12-step self-help groups, book discussion clubs, singles groups, hobby groups, and disease support groups. Individuals find community, spiritual connection, introspection, and personal gratification in small support groups. Meanwhile, people reach out through volunteering. As many as half of all Americans give time to the community this way, their efforts often coordinated by paid social service professionals. Contemporary volunteering can be intermittent and flexibly structured, an intense one-shot effort or spending "an evening a week on an activity for a few months as time permits, rather than having to make a long-term commitment to an organization."
In the optimistic view, the good civic things Americans once did are still being done-in new ways and in new settings. But if we look at U.S. democracy in its entirety and bring issues of power and social leverage to the fore, then optimists are surely overlooking the downsides of our recently reorganized civic life. Too many valuable aspects of the old civic America are not being reproduced or reinvented in the new public world of memberless organizations.
Despite the multiplicity of voices raised within it, America's new civic universe is remarkably oligarchical. Because today's advocacy groups are staff-heavy and focused on lobbying, research, and media projects, they are managed from the top with few opportunities for member leverage from below. Even when they have hundreds of thousands of adherents, contemporary associations are heavily tilted toward upper-middle-class constituencies. Whether we are talking about memberless advocacy groups, advocacy groups with some chapters, mailing-list associations, or nonprofit institutions, it is hard to escape the conclusion that the wealthiest and best-educated Americans are much more privileged in the new civic world than their (less numerous) counterparts were in the pre-1960s civic world of cross-class membership federations.
Mostly, they involve people in "doing for" others-feeding the needy at a church soup kitchen; tutoring children at an after-school clinic; or guiding visitors at a museum exhibit-rather than in "doing with" fellow citizens. Important as such volunteering may be, it cannot substitute for the central citizenship functions that membership federations performed.
A top-heavy civic world not only encourages "doing for" rather than "doing with." It also distorts national politics and public policymaking. Imagine for a moment what might have happened if the GI Bill of 1944 had been debated and legislated in a civic world configured more like the one that prevailed during the 1993–1994 debates over the national health insurance proposal put forward by the first administration of President Bill Clinton. This is not an entirely fanciful comparison, because goals supported by the vast majority of Americans were at issue in both periods: in the 1940s, care and opportunity for millions of military veterans returning from World War II; in the 1990s, access for all Americans to a modicum of health insurance coverage. Back in the 1940s, moreover, there were elite actors-university presidents, liberal intellectuals, and conservative congressmen-who could have condemned the GI Bill to the same fate as the 1990s health security plan. University presidents and liberal New Dealers initially favored versions of the GI Bill that would have been bureaucratically complicated, niggardly with public expenditures, and extraordinarily limited in veterans' access to subsidized higher education.
But in the actual civic circumstances of the 1940s, elites did not retain control of public debates or legislative initiatives. Instead, a vast voluntary membership federation, the American Legion, stepped in and drafted a bill to guarantee every one of the returning veterans up to four years of post–high school education, along with family and employment benefits, business loans, and home mortgages. Not only did the Legion draft one of the most generous pieces of social legislation in American history, thousands of local Legion posts and dozens of state organizations mounted a massive public education and lobbying campaign to ensure that even conservative congressional representatives would vote for the new legislation.
Half a century later, the 1990s health security episode played out in a transformed civic universe dominated by advocacy groups, pollsters, and big-money media campaigns. Top-heavy advocacy groups did not mobilize mass support for a sensible reform plan. Hundreds of business and professional groups influenced the Clinton administration's complex policy schemes, and then used a combination of congressional lobbying and media campaigns to block new legislation. Both the artificial polarization and the elitism of today's organized civic universe may help to explain why increasing numbers of Americans are turned off by and pulling back from public life. Large majorities say that wealthy "special interests" dominate the federal government, and many Americans express cynicism about the chances for regular people to make a difference. People may be entertained by advocacy clashes on television, but they are also ignoring many public debates and withdrawing into privatism. Voting less and less, American citizens increasingly act-and claim to feel-like mere spectators in a polity where all the significant action seems to go on above their heads, with their views ignored by pundits and clashing partisans.
From the nineteenth through the mid–twentieth century, American democracy flourished within a unique matrix of state and society. Not only was America the world's first manhood democracy and the first nation in the world to establish mass public education. It also had a uniquely balanced civic life, in which markets expanded but could not subsume civil society, in which governments at multiple levels deliberately and indirectly encouraged federated voluntary associations. National elites had to pay attention to the values and interests of millions of ordinary Americans.
Over the past third of a century, the old civic Amer ica has been bypassed and shoved to the side by a gaggle of professionally dominated advocacy groups and nonprofit institutions rarely attached to memberships worthy of the name. Ideals of shared citizenship and possibilities for democratic leverage have been compromised in the process. Since the 1960s, many good things have happened in America. New voices are now heard, and there have been invaluable gains in equality and liberty. But vital links in the nation's associational life have frayed, and we may need to find creative ways to repair those links if America is to avoid becoming a country of detached spectators. There is no going back to the civic world we have lost. But we Americans can and should look for ways to recreate the best of our civic past in new forms suited to a renewed democratic future.
