John Adams became an HBO miniseries. Hamilton became a Broadway show. The Power Broker and The Years of Lyndon Johnson became such status symbols that there was a whole pandemic meme about people ostentatiously displaying them in their Zoom backgrounds. But you never hear anyone bragging about their extensive knowledge of the Carter administration.
Like most people under 70, I was more aware of Carter’s post-presidency role as America’s kindly old grandfather, pottering around holding his wife’s hand and building Houses for Humanity. I mostly knew that he liked to wear sweaters, that he owned a peanut farm, and that he lost to Ronald Reagan.
Carter was born in 1924 in Plains, Georgia, which, as you can tell from the name “Plains,” is very dull. His father was a successful farmer, which made his family wealthy by local standards. Almost every other Plains resident during Carter’s childhood was an impoverished African-American, many of whom worked on the Carter farm, a fact that is often cited as the answer to the central mystery of Carter’s childhood: how he grew up white in the Depression-era South without becoming a huge racist. It probably doesn’t tell the whole story, though, as his siblings came out just about as racist as you’d expect.
Carter attends the Naval Academy and eventually becomes a lieutenant on a nuclear submarine. At one point, he participates in a cleanup mission in which he is lowered directly into the core of an active nuclear reactor, thus causing him to develop superpowers that he will later use to win the presidency. Perhaps because of this experience—but, more likely, because he realizes that his deep-seated religious beliefs make him a poor fit for a career in an organization designed to wage war—he quits the Navy at 29 and returns home to Plains. “God did not intend for me to kill,” he says, which would have been an awesome catchphrase had those superpowers actually been real.
Searching for a new career, Carter runs for State Senate, loses due to voter fraud, then challenges the results and wins by 15 votes in a new election. A few years later, he runs for governor, and loses for real this time, to avowed segregationist (and man with a truly awesome name) Lester Maddox. Having never experienced failure in any way before, Carter is plunged into a profound spiritual crisis by this loss. Today, we would probably just say he was depressed. But as a religious Christian in the Deep South in 1966, you don’t “get depressed,” you have a spiritual crisis.
In 1970 Carter runs for governor again. This time, however, he decides to do whatever it takes to win. He runs a sleazy campaign that flies in the face of his modern-day reputation as kindly and honest. His campaign strategy has two core planks: 1) pretend to be a racist to appeal to the masses, and 2) avoid taking a stand on any other issue. Carter describes himself nonsensically as a “conservative progressive” and avoids commenting on the Vietnam War or the civil rights movement. He’s so good at pretending to be racist that the white supremacist White Citizens Council endorses him. He even wins the endorsement of his old opponent, outgoing Governor Maddox, who’s term-limited from running again. As far as anyone can tell, Carter never expresses any second thoughts about his disingenuous behavior during the campaign. Having passed through his spiritual crisis, he’s now guided by an unshakeable faith in his own goodness—a faith that justifies a victory by any means necessary.
The “fake racist” strategy works. Carter trounces his opponent, a wealthy businessman named Carl Sanders who he caricatures as “Cuff Links Carl”—when he’s not busy falsely accusing him of corruption, or hypocritically bashing him for his support of Martin Luther King. In January 1971, Carter is sworn in as the 76th Governor of Georgia.
Just a few minutes into his inaugural speech, Carter drops the pretenses of his campaign and executes on one of the most dramatic about-faces in modern-day political history when he declares that “the era of racial discrimination in Georgia is over.” The crowd gasps audibly, and outgoing Governor Maddox denounces Carter as a liar before the inauguration is even over. But Carter doesn’t care. He’s governor now, and he’s going to do what he wants.
II.
And what he wants to do is… well, honestly, not all that much. Carter’s governing style is less “bold visionary,” more “competent manager.” He appoints more minorities to civil service jobs, starts an early childhood development program, and passes a reorg that streamlines a bunch of governmental agencies, but mostly he thinks about running for president. Governors in Georgia are limited to a single term, and Carter has national ambitions. He commits privately to a presidential run only a year into his time in the governor’s office.
When he first enters the 1976 Democratic primary, Carter is a complete unknown, and the general consensus is that he’s the longest of long shots. (“Jimmy who?” one opponent asks.) But two things go very, very right for him. First, he’s one of the few people who fully understands the changes to the Democratic primary process that were implemented after the chaos of the 1968 convention. He stakes his campaign on the now-familiar strategy of winning the Iowa caucuses and the New Hampshire primary, which is groundbreaking at the time. More importantly, the fact that no one has ever heard of him turns out to be a huge advantage in the wake of Watergate, when voters are hungry for an outsider.
Despite the fact that his gubernatorial campaign was premised entirely on obscuring his actual beliefs, he opens his presidential campaign with the slogan “I’ll never lie to you.” He runs an Obama-esque campaign, emphasizing his personal background and outsider status rather than any specific accomplishments. By the time he wins the primary, he has a huge polling lead over the incumbent president, Gerald Ford, who’s unpopular thanks to his recent pardon of Richard Nixon and the memory of that time he slipped and fell down the stairs of Air Force One.
Carter then proceeds to squander almost his entire lead via a series of poor campaign decisions. First, he’s so overconfident that he refuses to prepare for his first debate with Ford, and completely bungles it as a result. He then sits for an interview with Playboy weeks before the election and, completely unprompted, mentions that he’s “looked on a lot of women with lust” in his life and “committed adultery in [his] heart many times.” There’s a growing perception that Carter is, in the infamous words of one journalist, “a weirdo.” (...)
Although his lead shrinks consistently up through election day, Carter nonetheless manages to squeak out a narrow victory against Ford, 49.9 to 47.9%. Had just 10,000 voters in two states flipped their votes, Carter would have lost the electoral college. But they didn’t. And now, the weirdo has become the president.
III.
You’re Jimmy Carter, and just 23 years ago you were an unemployed Navy dropout. Now, you’re the most powerful man in the world. What do you do next?
The first answer is, you micromanage to a spectacular degree. Alone among all presidents since Truman, Carter refuses to appoint a Chief of Staff. He then immediately demonstrates why he needs one by involving himself in a comical number of minor decisions, including personally deciding which magazine subscriptions his speechwriting team should get, cutting down on the amount of food served at breakfast with congressional leaders, and canceling car service for his staff because it’ll save $92,000 of the $409 billion federal budget. Oh, and he also insists that all White House thermostats be set at 65° (55° at night), though this last mandate is eventually rescinded when the staff—some of whom are so cold they’ve been typing with gloves on—rebel.
The charitable interpretation of these decisions is that, in the wake of Watergate, Carter wants to emphasize that he and his staff are servants of the American people. The uncharitable interpretation is that Carter is an obsessive egomaniac who believes there is no situation that won’t be improved by his personal involvement.
The next thing Carter tries to do is a little bit of everything. Since his campaign was mostly focused on his personality and outsider status, he doesn’t have a specific core promise to fulfill, and as a result, his time in office is a hodgepodge of different legislative priorities. Sounds like a recipe for complete gridlock, but amazingly, Carter gets a good chunk of his agenda through Congress. He deregulates the airline and trucking industries, establishes the Department of Energy, and teams up with Ralph Nader to implement vehicle safety regulations. He passes a sweeping civil service restructuring bill, reforms Social Security, and expands the Head Start program. Oh, and along the way he also legalizes craft brewing. (...)
Somehow, he does all of this while having one of the worst relationships with Congress of any modern president. Some of the conflict is personal: Carter is the anti-LBJ in that he hates dealmaking and is perpetually unwilling to compromise. Deep down, he sees the dirty business of politics as inherently sinful, and he doesn’t understand why everyone can’t just do the right thing, especially when he’s explained to them at great length why it’s the right thing to do. He has huge Democratic majorities in both houses of Congress, but they relate to each other with barely veiled contempt. (It doesn’t help that Carter is the complete personal antithesis of Speaker of the House Tip O’Neill, a classic old-school Irish Democrat who loves back-slapping, cutting deals, and being a part of the Establishment Carter ran against.) Carter repeatedly vetoes bills passed by his own party because he has minor issues with them. At one point, he petulantly vetoes a $37bn defense bill because he thinks one specific item in it, representing less than 2% of the total, is a waste of money.
You’re Jimmy Carter, and just 23 years ago you were an unemployed Navy dropout. Now, you’re the most powerful man in the world. What do you do next?
The first answer is, you micromanage to a spectacular degree. Alone among all presidents since Truman, Carter refuses to appoint a Chief of Staff. He then immediately demonstrates why he needs one by involving himself in a comical number of minor decisions, including personally deciding which magazine subscriptions his speechwriting team should get, cutting down on the amount of food served at breakfast with congressional leaders, and canceling car service for his staff because it’ll save $92,000 of the $409 billion federal budget. Oh, and he also insists that all White House thermostats be set at 65° (55° at night), though this last mandate is eventually rescinded when the staff—some of whom are so cold they’ve been typing with gloves on—rebel.
The charitable interpretation of these decisions is that, in the wake of Watergate, Carter wants to emphasize that he and his staff are servants of the American people. The uncharitable interpretation is that Carter is an obsessive egomaniac who believes there is no situation that won’t be improved by his personal involvement.
The next thing Carter tries to do is a little bit of everything. Since his campaign was mostly focused on his personality and outsider status, he doesn’t have a specific core promise to fulfill, and as a result, his time in office is a hodgepodge of different legislative priorities. Sounds like a recipe for complete gridlock, but amazingly, Carter gets a good chunk of his agenda through Congress. He deregulates the airline and trucking industries, establishes the Department of Energy, and teams up with Ralph Nader to implement vehicle safety regulations. He passes a sweeping civil service restructuring bill, reforms Social Security, and expands the Head Start program. Oh, and along the way he also legalizes craft brewing. (...)
Somehow, he does all of this while having one of the worst relationships with Congress of any modern president. Some of the conflict is personal: Carter is the anti-LBJ in that he hates dealmaking and is perpetually unwilling to compromise. Deep down, he sees the dirty business of politics as inherently sinful, and he doesn’t understand why everyone can’t just do the right thing, especially when he’s explained to them at great length why it’s the right thing to do. He has huge Democratic majorities in both houses of Congress, but they relate to each other with barely veiled contempt. (It doesn’t help that Carter is the complete personal antithesis of Speaker of the House Tip O’Neill, a classic old-school Irish Democrat who loves back-slapping, cutting deals, and being a part of the Establishment Carter ran against.) Carter repeatedly vetoes bills passed by his own party because he has minor issues with them. At one point, he petulantly vetoes a $37bn defense bill because he thinks one specific item in it, representing less than 2% of the total, is a waste of money.
But some of the conflict is structural. To his credit, Carter is one of the first politicians to see that the post-New Deal consensus is fraying. Economic growth is slowing, inflation is rising, union membership is declining, all of which means that the traditional Democratic way of doing things—launching new federal programs, catering to interest groups, and accepting some waste and inefficiency as a cost of doing business—is on its way out, even if the old-school Dems don’t realize it yet. Really, Carter is less of a Democrat and more of a 1920’s-style Progressive Republican in the model of Teddy Roosevelt: focused on efficient, rational government, non-ideological problem-solving, and ethical stewardship.
Carter finds more success in the arena of foreign policy, where instead of dealing with mercurial politicians from his own country, he can deal with mercurial politicians from other countries. He starts by tackling the third rail of the Panama Canal. The United States built the Canal by essentially colonizing the part of Panama it runs through, and obviously, the Panamanians aren’t super cool with that. The U.S. government has been kicking the can down the road since the LBJ era by continually promising to return sovereignty over the canal to Panama eventually, and after over a decade of “eventually,” the Panamanians are getting impatient.
The politically easy move for Carter would be to drag out the negotiations until the canal becomes the next president’s problem, just as Johnson, Nixon, and Ford all did before him. But for better or for worse, Carter almost never does the politically easy thing. “It’s obvious we cheated the Panamanians out of their canal,” he says, and he negotiates a treaty in which ownership of the canal is turned over to Panama, in exchange for the U.S.’s right to militarily ensure its “neutral operation.” It’s a clever diplomatic solution—Panama gets nominal ownership while we retain all the benefits ownership provides—but the American public hates it. To the average voter, it feels like we’re just giving some random country “our” canal.
To get the treaty approved by the Senate, Carter plays the congressional negotiating game well for the first and maybe only time in his presidency. He lobbies heavily for his treaty with every senator, cutting individual deals with each of them as needed. One even goes so far as to say that in exchange for his vote, Carter has to… wait for it… read an entire semantics textbook the senator wrote back when he was a professor. Oh, and Carter also has to tell him what he thinks of it, in detail, to prove he actually read it. Carter is appalled, but he grits his teeth and reads the book. It’s a good thing he does, because the Senate ratifies the treaty by a single vote. Although it remains unpopular with the general public (five senators later lose their seats over their yes votes), those in the know understand that Carter cut a great deal for America. Panamanian dictator Omar Torrijos knows it too. Ashamed of his poor negotiating skills, he gets visibly drunk at the signing ceremony and falls out of his chair. He also confesses that if the negotiations had broken down, he would have just had the military destroy the entire canal out of spite.
Flush with confidence from his Panama Canal victory (his canalchemy? his Panamachievement?), Carter decides he should continue tackling foreign policy problems other people think are impossible. And there’s one obvious candidate: the conflict between Israel and the Arab states. Every single one of his advisors tells him this is a huge mistake and he definitely shouldn’t get involved, but knowing Carter, this only makes him want to do it more. His strategy: bring Egyptian President Anwar Sadat and Israeli Prime Minister Menachim Begin to Camp David for a series of intense negotiations. As usual, Carter believes that if he can just get the relevant parties in a room with him, he can convince them to see things his way.
At Camp David, as with the Panama Canal, Carter reveals himself to be a masterful negotiator, which only makes his constant inability to successfully negotiate with Congress all the more infuriating. When dealing with his own country, he’s disgusted by the horse-trading inherent in politics and continually shoots himself in the foot by refusing to get in the muck. But somehow, when dealing with other countries, he’s able to accept that there’s inevitably going to be a certain amount of dirty work involved. This biography doesn’t really try to provide a theory for this discrepancy, and I wasn’t able to come up with one either. Perhaps Carter holds his own country to a higher standard—or perhaps, as president, he sees himself as above Congress and expects a subservience he doesn’t expect from other countries’ leaders.
Anyway, after two weeks of nonstop conversation between the three countries’ teams—during which negotiations almost fail more than once—they reach a deal. Essentially, the broad outlines are: 1) Egypt will officially recognize Israel and end the state of war between the two countries and 2) Israel will stop building settlements in the West Bank and transition towards self-governance for inhabitants of both the West Bank and Gaza. The Camp David Accords, as they’re known, are a phenomenal success, putting the region on a path straight to the utopia it is today: a prosperous, conflict-free Middle East in which democracy and human rights flourish and the Palestinian people have full self-determination.
Sike! Obviously, that doesn’t happen. The Camp David Accords are seen as a triumph at the time, but in the long run, the picture is more mixed. The first part of the deal holds up, even after Sadat—who ends up becoming quite close with Carter—is assassinated by fundamentalists just a few years later. But the Israelis immediately welch on the second part of the deal and continue building settlements. Today’s Israel has more than 20x the number of settlers as it did then, making the intensity of the Carter/Begin dispute seem depressingly quaint in retrospect.
Carter finds more success in the arena of foreign policy, where instead of dealing with mercurial politicians from his own country, he can deal with mercurial politicians from other countries. He starts by tackling the third rail of the Panama Canal. The United States built the Canal by essentially colonizing the part of Panama it runs through, and obviously, the Panamanians aren’t super cool with that. The U.S. government has been kicking the can down the road since the LBJ era by continually promising to return sovereignty over the canal to Panama eventually, and after over a decade of “eventually,” the Panamanians are getting impatient.
The politically easy move for Carter would be to drag out the negotiations until the canal becomes the next president’s problem, just as Johnson, Nixon, and Ford all did before him. But for better or for worse, Carter almost never does the politically easy thing. “It’s obvious we cheated the Panamanians out of their canal,” he says, and he negotiates a treaty in which ownership of the canal is turned over to Panama, in exchange for the U.S.’s right to militarily ensure its “neutral operation.” It’s a clever diplomatic solution—Panama gets nominal ownership while we retain all the benefits ownership provides—but the American public hates it. To the average voter, it feels like we’re just giving some random country “our” canal.
To get the treaty approved by the Senate, Carter plays the congressional negotiating game well for the first and maybe only time in his presidency. He lobbies heavily for his treaty with every senator, cutting individual deals with each of them as needed. One even goes so far as to say that in exchange for his vote, Carter has to… wait for it… read an entire semantics textbook the senator wrote back when he was a professor. Oh, and Carter also has to tell him what he thinks of it, in detail, to prove he actually read it. Carter is appalled, but he grits his teeth and reads the book. It’s a good thing he does, because the Senate ratifies the treaty by a single vote. Although it remains unpopular with the general public (five senators later lose their seats over their yes votes), those in the know understand that Carter cut a great deal for America. Panamanian dictator Omar Torrijos knows it too. Ashamed of his poor negotiating skills, he gets visibly drunk at the signing ceremony and falls out of his chair. He also confesses that if the negotiations had broken down, he would have just had the military destroy the entire canal out of spite.
Flush with confidence from his Panama Canal victory (his canalchemy? his Panamachievement?), Carter decides he should continue tackling foreign policy problems other people think are impossible. And there’s one obvious candidate: the conflict between Israel and the Arab states. Every single one of his advisors tells him this is a huge mistake and he definitely shouldn’t get involved, but knowing Carter, this only makes him want to do it more. His strategy: bring Egyptian President Anwar Sadat and Israeli Prime Minister Menachim Begin to Camp David for a series of intense negotiations. As usual, Carter believes that if he can just get the relevant parties in a room with him, he can convince them to see things his way.
At Camp David, as with the Panama Canal, Carter reveals himself to be a masterful negotiator, which only makes his constant inability to successfully negotiate with Congress all the more infuriating. When dealing with his own country, he’s disgusted by the horse-trading inherent in politics and continually shoots himself in the foot by refusing to get in the muck. But somehow, when dealing with other countries, he’s able to accept that there’s inevitably going to be a certain amount of dirty work involved. This biography doesn’t really try to provide a theory for this discrepancy, and I wasn’t able to come up with one either. Perhaps Carter holds his own country to a higher standard—or perhaps, as president, he sees himself as above Congress and expects a subservience he doesn’t expect from other countries’ leaders.
Anyway, after two weeks of nonstop conversation between the three countries’ teams—during which negotiations almost fail more than once—they reach a deal. Essentially, the broad outlines are: 1) Egypt will officially recognize Israel and end the state of war between the two countries and 2) Israel will stop building settlements in the West Bank and transition towards self-governance for inhabitants of both the West Bank and Gaza. The Camp David Accords, as they’re known, are a phenomenal success, putting the region on a path straight to the utopia it is today: a prosperous, conflict-free Middle East in which democracy and human rights flourish and the Palestinian people have full self-determination.
Sike! Obviously, that doesn’t happen. The Camp David Accords are seen as a triumph at the time, but in the long run, the picture is more mixed. The first part of the deal holds up, even after Sadat—who ends up becoming quite close with Carter—is assassinated by fundamentalists just a few years later. But the Israelis immediately welch on the second part of the deal and continue building settlements. Today’s Israel has more than 20x the number of settlers as it did then, making the intensity of the Carter/Begin dispute seem depressingly quaint in retrospect.
Image: Andy Warhol
