The Passage of Power

by Robert A. Caro

  Civil rights had always crystallized liberals’ doubts about Lyndon Johnson. What they knew about him—besides his southern roots and accent, the “magnolia drawl” that raised the hackles on liberal necks—was his southern record, a twenty-year record that had begun with his arrival in Congress in 1937 and lasted through 1956, on civil rights: a perfect 100 percent record of voting against every civil rights bill that had ever made it to the floor, even bills aimed at ending lynching, and a record, moreover, as a southern strategist, protégé of the chieftain of the mighty Southern Caucus, Richard Brevard Russell, who had helped Russell ensure that most civil rights bills never made it to the floor. In 1957, in a dramatic reversal of that record, Majority Leader Johnson had rammed through the first civil rights bill to pass Congress since 1875. Significant though that breakthrough was, however, and though he passed another civil rights bill in 1960, liberal antagonism toward him had been softened scarcely at all since the bills were weak, only meagre advances toward social justice, and because his championing of them was regarded by most liberals as mere political opportunism: an attempt to lessen northern opposition to his presidential candidacy.

  But although the cliché says that power always corrupts, what is seldom said, but what is equally true, is that power always reveals. When a man is climbing, trying to persuade others to give him power, concealment is necessary: to hide traits that might make others reluctant to give him power, to hide also what he wants to do with that power; if men recognized the traits or realized the aims, they might refuse to give him what he wants. But as a man obtains more power, camouflage is less necessary. The curtain begins to rise. The revealing begins. When Lyndon Johnson had accumulated enough power to do something—a small something—for civil rights in the Senate, he had done it, inadequate though it may have been. Now, suddenly, he had a lot more power, and it didn’t take him long to reveal at least part of what he wanted to do with it. On the evening of November 26, the advisers gathered around the dining room table in his home to draft the speech he was to deliver the following day to a joint session of Congress were arguing about the amount of emphasis to be given to civil rights in that speech, his first major address as President. As Johnson sat silently listening, most of these advisers were warning that he must not emphasize the subject because it would antagonize the southerners who controlled Congress, and whose support he would need for the rest of his presidency—and because a civil rights bill had no chance of passage anyway. And then, in the early hours of the morning, as one of those advisers recalls, “one of the wise, practical people around the table” told him to his face that a President shouldn’t spend his time and power on lost causes, no matter how worthy those causes might be.

  “Well, what the hell’s the presidency for?” Lyndon Johnson replied.

  IN HIS SPEECH the next day, sympathy for the martyred President was enlisted to advance the cause, as was America’s desire for continuity, for stability, for reassurance that the government was holding to a firm course despite the loss of the man who had sat at its head. Invoking Kennedy’s name, he said that “No words are strong enough to express our determination to continue the forward thrust of America that he began,” that “This is our challenge … to continue on our course,” and that “no memorial oration or eulogy could more eloquently honor President Kennedy’s memory than the earliest possible passage of the civil rights bill for which he fought so long. We have talked long enough in this country about equal rights. We have talked for one hundred years or more. It is time now to write the next chapter, and to write it in the books of law.”

  Writing it into these books would require more than sympathy, always a highly fungible emotion in politics anyway, and, as will be seen, one that had no influence whatsoever on the southern committee chairmen who ruled Congress. Strategy was necessary, too, a strategy on the grand scale, and, as will be seen, Johnson had one, a brilliant overview of a means of getting a civil rights bill passed, that he had urged on Kennedy, only to be ignored. As he had demonstrated in the Senate, moreover, it was not only strategy but tactics of which he was a master. Identifying and throwing his weight behind a seldom-used procedural lever—perhaps the only lever that could have worked—within a month after he had taken office he had broken the civil rights bill free of the congressional logjam. The bill wouldn’t be passed until 1964. It would be passed then only after a half year of struggle (whose heroes included not only liberal congressmen and senators, but the men, women and children who marched and protested, and who, many of them, were beaten and tortured—and, some of them, murdered—on the streets of the South. But it was a struggle whose strategy and day-by-day tactics were laid out and directed by him, and by the end of that first month it was at least on the road to passage.

  By the end of that month, the tax cut bill was also on the road to passage. And by the end of that month, by the time he left Washington for a Christmas vacation on his Texas ranch, he had won another victory, on a third bill—defeating a seemingly innocuous measure, involving the sale of wheat to Russia, that would have curtailed the President’s authority in foreign affairs. Grasping the instant he heard about the bill that it had been introduced because conservatives, emboldened by their victories over Kennedy, were confident that they could defeat a President—that, as he put it, “They’ve got the bit in their teeth,” and thought they “could bully me” the way they believed they had bullied Kennedy—he decided in that instant that the way to yank out the bit was to make the bill a test of strength with Congress, and to win the test. A simple majority wasn’t going to be enough to teach Congress a lesson. “I hope that [bill] gets murdered,” he snarled, and, sitting in the Oval Office, he kept telephoning senator after senator, cajoling, bullying, threatening, charming, long after he had the majority, to make the vote overwhelming enough to ensure the lesson was clear. The vote was overwhelming, and when, a week later, conservatives attempted a maneuver that would have overturned it, Johnson had a maneuver of his own ready. His tactic was so risky that congressional leaders warned him not to use it; he used it—and murdered the bill once and for all. “At that moment the power of the federal government began flowing back to the White House,” he was to say—and boastful though that statement might be, it was true. To watch Lyndon Johnson deal with Congress during the transition—to watch him break the unbreakable conservative coalition—is to see a President fighting not merely with passion and determination but with something more: with a particular talent, a talent for winning the passage of legislation (in this case legislation that would write into the books of law a measure of justice for millions of people to whom justice had been too long denied) that was more than talent, that was a gift, and a very rare one. To watch Lyndon Johnson during the transition is to see political genius in action.

  He handled all the problems—the Kennedy men’s antipathy, the Kennedy brother’s hatred, the rumors over the assassination that, had they not been defused, might have escalated into international crisis—with the same sureness of touch. If the story of the five years is a story of failure, the story of the seven weeks is a story of what rose out of failure: triumph. So on one level, the bio-graphical level, the recounting of the life of Lyndon Baines Johnson, the two stories in this book are really one story: a narrative with a single, sweeping arc. It rises from the depths of a man’s life, a period in which utterly without power he stands naked to his enemies, a period in which a man who dreads above all else what he calls “humiliation” suffers what he dreads day after day. It sweeps up to the heights of that life, as he is catapulted in an instant, in a gunshot, into the power he had always wanted—and he proceeds to demonstrate, almost in the instant he attains that power, how much he is capable of accomplishing with it.

  IF IT IS to succeed in its purposes, however, this book must explore another level as well.

  This is the fourth in a series of volumes that I call The Years of Lyndon Johnson because it attempts to portray not only his life but his years: the era in
which he lived, rose to the presidency and finally abandoned the presidency—America in the middle decades of the twentieth century, in other words. It tries most particularly to focus on and examine a specific, determinative aspect of that era—political power; to explore, through the life of its protagonist, the acquisition and use of various forms of that power during that half century of American history, and to ascertain also the fundamental realities of that power; to learn what lay, beneath power’s trappings, at power’s core.

  The transition period covered in this book is particularly well suited to that purpose, for a way to gain insight into the most fundamental realities of any form of power is to observe it during its moments of deepest crisis, during its most intense struggles, when, under maximum stress, its every resource must be brought to bear—with the undiluted pragmatism born of absolute necessity—if the challenges facing it are to be met. It is at such moments that every one of those resources, every component of that power, is not only visible but, being used to its utmost, can be observed in all its facets. In trying to understand presidential power, one would find that the transition of 1963—the seven-week-long passage of power between John Fitzgerald Kennedy and Lyndon Baines Johnson—is one of those moments. Because of the difficult—in some ways unique—challenges facing the incoming chief executive, it was a moment in which the use of presidential power to the limits of its practical, pragmatic possibilities was necessary if the transition was to be successful. Johnson used that power to those limits. To watch him deal with Congress, deal with the Kennedys, confront a dozen other challenges for which there was no precedent—for which he had to create his own precedents—is to watch a President, in very difficult circumstances, triumph over them, and it is therefore a means of gaining new insight into some fundamental realities about the pragmatic potential in the American presidency.

  AND ABOUT POTENTIAL beyond the pragmatic.

  Brief though the transition period was, during it Lyndon Johnson not only rescued his predecessor’s programs but launched one of his own. Barely into his second month in office he seized on a concept that had just begun to surface—a suggestion, a gleam in the eyes of a few members of the Kennedy Administration, that the late President had endorsed in theory but had done almost nothing to push forward—seized on it the moment a Kennedy adviser mentioned it to him, seized on it with such passion (“so spontaneous … instinctive and intuitive and uncalculated”) that the adviser knew in that moment that he had been very wrong about Lyndon Johnson. Enlarging it far beyond anything previously envisioned, he pushed it forward, prodded his advisers into bringing their imagination to bear on it, and, in the second major speech of his presidency, the State of the Union address he delivered to Congress on January 8, 1964, announced it, and it was a program whose title, however hyperbolic, made clear that he viewed it—this crude, coarse, ruthless, often cruel man, who all his life had made a mantra of pragmatism (“It’s not the job of a politician to go around saying principled things”)—as nothing less than a crusade. It was a crusade for a noble end. The speech made clear on whose behalf the crusade would be launched. “Unfortunately, many Americans live on the outskirts of hope—some because of their poverty, and some because of their color, and all too many because of both,” he said in that State of the Union address. “Our task is to help replace their despair with opportunity. This administration today, here and now, declares unconditional war on poverty in America.” The speech made clear also the weapons he was going to deploy in the crusade, and the enemies—ancient enemies, hitherto invincible, whom he named by name—that he intended the crusade to conquer. “Our chief weapons … will be better schools, and better health, and better homes, and better training, and better job opportunities to help more Americans, especially young Americans, escape from squalor and misery and unemployment,” he said. And the speech announced also the crusade’s goal, which was revolutionary: “not only to relieve the symptom of poverty, but to cure it and, above all, to prevent it.” By the time Lyndon Johnson stepped down from the dais after that speech, it was apparent that the program to which he was committing his still-infant Administration was one whose purpose was to right, on a vast scale, vast wrongs, to use to an extent rare in history a great nation’s wealth to ameliorate the harshness of life for a portion of its citizens (a substantial portion: one-fifth of America’s 150 million citizens in 1964 was 30 million people) too often overlooked by government in the past. It was clear that it was a program whose aim was to launch America on a course toward social justice that, were it to be completed, would result in nothing less than a society’s transformation. If, as Martin Luther King Jr. had said, “The arc of the moral universe is long, but it bends toward justice,” during the two centuries since the United States of America had come into existence, the arc had bent slowly indeed. During those transition weeks (and, in fact, during the following years, as Lyndon Johnson widened the War on Poverty by introducing legislation on a dozen fronts to transform not just low-income America but the nation as a whole into “the Great Society”) one can see the new President trying to bend it faster. That State of the Union speech—delivered forty-seven days, just short of seven weeks, after the assassination of John Kennedy—marked the moment when Lyndon Johnson, moving beyond a continuation of Kennedy’s policies, made the presidency fully his own, so it is therefore the event that signifies the end of the transition, the moment when the passage of power from Kennedy to Johnson is completed. And to see Lyndon Johnson take hold of presidential power, and so quickly begin to use it for ends so monumental is to see, with unusual clarity, the immensity of the potential an American President possesses to effect transformative change in the nation he leads.

  LITTLE OF THAT potential—those possibilities—was to be realized. This book is not the story of Lyndon Johnson’s five-year presidency as a whole, but only of its brief first phase, and the longer story will not be a triumphant one. His presidency would, as I have written, be marked by victories: his great personal victory, his election, in November, 1964, to the presidency in his own right by what was then, and, as of this writing almost half a century later, is still, the greatest popular majority ever won by a candidate for the American presidency, and his great legislative victories. Taken as a whole, the bills passed between the beginning of 1964 and the end of 1968 make the Johnson presidency one which saw the legislative realization of many of the noblest aspirations of the liberal spirit in America. Not only the two great civil rights measures but Medicare and Medicaid, and the sixty separate education laws, including the Act that created Head Start—however inadequately thought through and in some cases flawed and contradictory some of these measures might have been, due to the haste with which he pushed them through, they were laws of which liberals had dreamed for decades, laws that embodied government’s responsibility to fulfill what Johnson’s father, the Populist legislator, believed was the highest duty of government: to help people caught in “the tentacles of circumstance.”

  Yet victories would not, as I have written, be the only hallmarks that would make the presidency of Lyndon Johnson vivid in history. Civil rights, the War on Poverty, Medicare, Head Start—but Vietnam. Vietnam and the credibility gap. The loss of trust in the presidency, of belief in what the President was saying, escalated under Richard Nixon, Johnson’s successor, but it began under Johnson.

  And there were other casualties. The cost of the Vietnam War had to be borne by the same national treasury that was funding the War on Poverty, and the implications of that fact for liberal dreams would be devastating. Monumental as were some of the achievements of Lyndon Johnson’s Administration, they were as nothing beside the dreams he had enunciated in that first State of the Union speech. Although there would be many reasons that the poverty war was lost, one of the main reasons was the Asian war.

  THE TRANSITION PERIOD on which we are concentrating in this volume contains the seeds of all that was to follow. Few as they were, the decisions that Lyndon Johnson made abou
t Vietnam during these seven weeks (he was, as will be seen, making every effort to keep them few, to tamp down Vietnam as a political issue until after the November, 1964, election) nonetheless display the secrecy and deceit that were to play such a large role in making Vietnam—and Johnson’s presidency—a tragic drama. But the story of Lyndon Johnson during the opening, transition, weeks of his presidency is a triumphant story, one in which it is possible to glimpse the full possibilities of presidential power—of that power exercised by a master in the use of power—in a way that is visible at only a few times in American history.

  Part I

  JOHNSON

  vs.

  KENNEDY

  1960

  1

  The Prediction

  WHEN HE WAS YOUNG—seventeen and eighteen years old—Lyndon Johnson worked on a road gang that was building a highway (an unpaved highway: roads in the isolated, impoverished Texas Hill Country weren’t paved in the 1920s) between Johnson City and Austin.

  With little mechanical equipment available, the road was being built almost entirely by hand, and his job, when he wasn’t half of a pick-and-shovel team with Ben Crider, a burly friend—six years older—from Johnson City, was “driving” a “fresno,” a heavy two-handled metal scoop with a sharpened front edge, that was pulled by four mules. Standing behind the scoop, between its handles, as the mules strained forward to force the scoop through the hard Hill Country caliche soil, he would push as they pulled. Since he needed a hand for each handle, the reins were tied together and wrapped around his back, so for this work—hard even for older men; for a tall, skinny, awkward teenager, it was, the other men recall, “backbreaking labor,” “too heavy” for Lyndon—Lyndon Johnson was, really, in harness with the mules. But at lunch hour each day, as the gang sat eating—in summer in whatever shade they could find as protection from the blazing Hill Country sun, in winter huddled around a fire (it would get so cold, Crider recalls, that “you had to build a fire to thaw your hands before you could handle a pick and shovel … build us a fire and thaw and work all day”)—Lyndon would, in the words of another member of the gang, “talk big” to the older men. “He had big ideas.… He wanted to do something big with his life.” And he was quite specific about what he wanted to do: “I’m going to be President of the United States one day,” he predicted.