[ed. Video interview with Dwarkesh Patel. In preparation for this interview Mr. Patel provides a short overview of two of Mr. Caro's subjects: Robert Moses (The Power Broker), and Lyndon Johnson (Master of the Senate): What I learned about power from LBJ and Robert Moses:]
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I recently interviewed Robert Caro. He’s spent the last 50 years writing a four volume biography of Lyndon Johnson, and he spent another 7 years before that writing the biography of Robert Moses, the master builder of New York. His books are widely regarded as the best explorations of political power that have ever been written. [...] I’ve spent so much time trying to make this interview happen: chasing his agent, calling his publisher, contacting the museums that have his archives, and even sending him handwritten letters.
I finally got to sit down with him, and I’m very happy with how it turned out. It’ll be out this Friday.
In the meantime, as I was preparing for the interview, and rereading these biographies, I wrote down the lessons they laid out about how to accumulate and use power.
Robert Moses
Robert Moses was the master builder of New York. He built more of the physical city than anyone before or since: the Triborough and Verrazano bridges, the Cross Bronx Expressway, Jones Beach, Lincoln Center, Shea Stadium, two giant power dams upstate, in addition to hundreds of parks and dozens of pools. Of the 899 miles of highways completed in New York State by 1964, Moses had built 672 of them. His projects collectively cost hundreds of billions of dollars in today’s money.
For more than 30 years, Robert Moses was the most powerful person in New York (more powerful than any elected mayor or governor, despite not being elected to anything). How did he get and keep that much power?
Exploits in law
Part of the answer is that Moses wrote the laws that governed him. He was called ‘the best bill drafter in Albany,’ and he used that skill to write himself powers that the legislators voting on his bills didn’t know they were granting. [...] [ed. Example: Triborough Bridge Authority Act of 1933. Moses snuck a few small clauses and seemingly insignificant words into the Act that no one noticed.]
So, with just a few minor tweaks, Moses turned an act meant to allow the construction of two bridges into the basis of an institution that could build basically anything it wanted anywhere in New York (and whose authority to do so was protected by the U.S. Constitution).
For more than 30 years, Robert Moses was the most powerful person in New York (more powerful than any elected mayor or governor, despite not being elected to anything). How did he get and keep that much power?
Exploits in law
Part of the answer is that Moses wrote the laws that governed him. He was called ‘the best bill drafter in Albany,’ and he used that skill to write himself powers that the legislators voting on his bills didn’t know they were granting. [...] [ed. Example: Triborough Bridge Authority Act of 1933. Moses snuck a few small clauses and seemingly insignificant words into the Act that no one noticed.]
So, with just a few minor tweaks, Moses turned an act meant to allow the construction of two bridges into the basis of an institution that could build basically anything it wanted anywhere in New York (and whose authority to do so was protected by the U.S. Constitution).
The indispensable man
These bond covenants had turned Triborough Authorities’ power into granite, but nothing in them guaranteed that Robert Moses would remain as chairman. So how did Moses retain his position for 30 years?
Part of the answer is, again, the law. Moses drafted the Triborough act so that its commissioners could be removed mid-term only “on stated charges after a formal hearing.” But any differences he had with a mayor or governor were more about what he decided to build and whom he displaced to build it, rather than personal conduct.
As Caro says, “Robert Moses was not himself corrupt. He was, in fact, as uninterested in obtaining payoffs for himself as any public servant who ever lived. In the politicians’ phrase, he was ‘money honest.’”
So, there were never any formal charges to bring. But this only explains why he wasn’t fired in the middle of his term. Why was he reappointed every six years? Well, at his peak, Moses was a hydra with a dozen heads. He held 12 different government posts at the same time: city construction coordinator, chairman of the State Council of Parks, chairman of the State Power Authority, and so on. Some of these positions were appointed by the mayor, some by the governor, so no single person could cut off all his heads simultaneously. And removing him from any one position meant making an enemy of the man who would still be the most powerful person in New York.
The coalition for yes
And the power that Moses derived from his popularity with the masses was nothing compared to the power he derived from his connections with New York’s powerful private interests.
We are very used today to NIMBY, where powerful but concentrated interest groups manage to stymie projects despite their broad popularity. Moses built a concentrated faction for YIMBY. He built a graft machine that greased the wheels for new construction, because it ensured the most influential people in the state would all benefit whenever a project got underway.
The banks got to buy his bonds at a steep discount without competitive bidding, the unions got more jobs, politically connected lawyers got legal fees, and party bosses got paid to broker insurance policies on bridges that had no plausible risk of falling down. Moses could then rely on these beneficiaries to call up anyone who stood in the way of one of his projects, whether that was a borough president or the governor himself. [...]
Lyndon Johnson’s story, on the other hand, is kind of the opposite. For most of his career, there was little evidence he had a coherent political ideology - he was a ruthless power-seeker who embraced whatever happened to be most expedient at the time. When Johnson first entered the U.S. Senate, he realized that the most powerful men there were conservative Southern Dixiecrats. And the Johnson that they encountered was one who had molded himself to their form.
While writing Master of the Senate, Caro interviewed former Georgia Senator Herman Talmadge. He asked Talmadge what impression he got from freshman Senator Lyndon Johnson about the proper relationship between white people and black people.
“Master and servant.” So I [Caro] asked, Well didn’t Johnson have any sympathy for blacks, any desire to improve their lot? My notes say “long pause.” And then I wrote [Talmadge’s] two-word reply: “None indicated.” Another pause, and then: “He was with us in his heart. I believed him. I believed him.”Of course, we know that once he became president, Johnson spearheaded the 1964 Civil Rights Act and the 1965 Voting Rights Act, the most important civil rights laws since Reconstruction.
So Moses began as a naive idealist but, in Caro’s telling, became someone seeking power for its own sake. Johnson was an ambitious opportunist from the very start, and it was only once he had real power that he used it for ideals few knew he had.
Lyndon Johnson
Lyndon Johnson was the most powerful Senate majority leader - perhaps the most powerful legislator period - in the history of this country. Here’s Caro in Master of the Senate:
A big part of the reason that Johnson became his party’s leader at just 44, in a Senate whose average age was around 60, was that hardly anyone else wanted such a thankless and useless job. And in their hands, this job would have remained useless. But they were not Lyndon Johnson.
Johnson turned himself into the second most powerful man in America (right behind the president) in three different ways.
Lyndon Johnson was the most powerful Senate majority leader - perhaps the most powerful legislator period - in the history of this country. Here’s Caro in Master of the Senate:
He was master of the Senate—master of an institution that had never before had a master, and that at the time, almost half a century later, when this book is being written, has not had one since.No leader before Johnson had wielded this kind of power, because the Senate had been deliberately set up by the founders to not be “led”. When Johnson asked the Library of Congress for a list of the Majority Leader’s formal powers, he found that there was only one: the right to be recognized first on the floor. Before Johnson, the Majority Leader was less a leader and more a lightning rod. He’d be blamed in the national press and in his home state for everything the Senate failed to do, yet he had no actual power to do anything about those failures. Being in this predicament was so politically toxic that Johnson’s two predecessors as majority leaders had both lost their own Senate seats.
A big part of the reason that Johnson became his party’s leader at just 44, in a Senate whose average age was around 60, was that hardly anyone else wanted such a thankless and useless job. And in their hands, this job would have remained useless. But they were not Lyndon Johnson.
Johnson turned himself into the second most powerful man in America (right behind the president) in three different ways.
Things to promise, things to threaten with
Johnson transformed the Senate’s rules, institutions and norms so that he alone had the power to grant important favors to his colleagues. If a senator needed a bill passed, Johnson was the one who could get it scheduled on the floor and persuade the committee chairman to report it out. If the bill needed help in the House, Johnson was the one with a direct line to Speaker Sam Rayburn. And if the senator needed money for his next campaign (to ensure that he would remain a senator), Johnson was the one who could put in a good word with oilmen from his native Texas.
Johnson also put himself in a position to control committee assignments, which are the single biggest factor that shapes how a senator’s whole career plays out. For about a century, they had been handed out by seniority. Practically overnight, Johnson changed the system so that many seats were no longer being settled by seniority but rather negotiated by the party’s Steering committee, which Johnson controlled. If you wanted a good seat, you had to do what Johnson wanted. In 1957, Estes Kefauver voted against Johnson on an important motion. That very same week, the highly coveted open seat on the Foreign Relations Committee, which Kefauver was expecting to get, was instead handed over to a far more junior senator named John F. Kennedy.
The real political genius of Lyndon Johnson was identifying and then gaining control over every possible source of leverage over his colleagues. Whatever a senator needed to survive, whether that was money, committee seats, or the passage of bills that matter to his home state, Johnson could give, and Johnson could withhold.
Setting the agenda
What the final bill that passes says depends on which one version actually comes to a vote, and with what final modifications. Whoever gets to set the agenda controls the outcome. So you won’t be surprised by who put himself in this position. Johnson’s main tool for setting the agenda was the unanimous consent agreement. By default, Senate debate is unlimited. A senator can talk about a bill for as long as he likes, and as he does so, he can also offer amendments that have nothing to do with that bill, each of which can stall the bill even further. A unanimous consent agreement sets those freedoms aside for a single bill: it fixes the allotted time for debate and constrains the opportunity to amend it. Earlier leaders rarely used such agreements, and even then, only after weeks of debate on a bill had already exhausted all the senators. Johnson made their use the norm in the Senate. He wouldn’t even allow a bill to reach the floor until such an agreement was in place.
Johnson wanted to control which bill reached the floor, and to keep the floor from changing anyone’s mind, because he wanted every vote settled in private beforehand, through the wheeling-and-dealing where his leverage worked best. The last thing he wanted was for a long, public debate on the merits of the bill to change a senator’s mind at the last minute, or for a surprise amendment to unravel a deal he had spent weeks painstakingly brokering. As Paul Douglas put it, under Johnson “all the action takes place offstage, before the play begins.”
The view from the center
Johnson made sure that as much of the Senate’s information as possible ran through him. He had every committee assign a staffer to tell him what was being drafted. His aides tracked what every senator was up to. And he spent his own days in the cloakroom and the hallways cajoling and listening to his colleagues. So he knew what each senator really wanted, what he would and wouldn’t give up to get it.
In any session, the Senate faces hundreds of possible bills and amendments. A senator’s vote on one bill can be traded for another senator’s vote on a different one, and any single bill can be amended a dozen ways to win someone over. So there’s an almost endless combination of possible deals to be made. Johnson made sure that he was the one instigating and brokering most of these deals. As a result, he could make sure that any deal left Johnson coming out ahead.
by Dwarkesh Patel, Podcast | Read more:
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