The Rove Presidency

Karl Rove had the plan, the power, and the historic chance to remake American politics. What went wrong?
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With more than a year left in the fading Bush presidency, Karl Rove’s worst days in the White House may still lie ahead of him. I met Rove on one of his best days, a week after Bush’s reelection. The occasion was a reporters’ lunch hosted by The Christian Science Monitor at the St. Regis Hotel in Washington, a customary stop for the winning and losing campaign teams to offer battle assessments and answer questions. Kerry’s team had glumly passed through a few days earlier. Afterward his chief strategist, Bob Shrum, boarded a plane and left the country. Rove had endured a heart-stopping Election Day (early exit polls indicated a Kerry landslide) but had prevailed, and plainly wasn’t hurrying off anywhere. “The Architect,” as Bush had just dubbed him, had spent the week collecting praise and had now arrived—vindicated, secure of his place in history—to hold court before the political press corps.

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"The World According to Rove"
Atlantic senior editor Joshua Green discusses Karl Rove's political fantasies and fatal mistakes.

When Rove entered the room, everyone stood up to congratulate him and shake his hand. Washington journalism has become a kind of Cult of the Consultant, so the energy in the room was a lot like it might have been if Mickey Mantle had come striding into the clubhouse after knocking in the game-winning run in the World Series. Rove was pumped.

Before taking questions, he removed a folded piece of paper from his pocket and rattled off a series of numbers that made clear how he wanted the election to be seen: not as a squeaker but a rout. “This was an extraordinary election,” Rove said. “[Bush won] 59.7 million votes, and we still have about 250,000 ballots to count. Think about that—nearly 60 million votes! The previous largest number was Ronald Reagan in 1984, sweeping the country with 49 states. We won 81 percent of all the counties in America. We gained a percentage of the vote in 87 percent of the counties in America. In Florida, we received nearly a million votes more in this election than in the last one.” Rove was officially there to talk about the campaign, but it was clear he had something much bigger in mind. So no one missed his point, he invoked Franklin Roosevelt’s supremacy in the 1930s and suggested that something similar was at hand: “We’ve laid out an agenda, we’ve laid out a vision, and now people want to see results.”

One of the goals of any ambitious president is to create a governing coalition just as Roosevelt did, one that long outlasts your presidency. It’s the biggest thing you can aim for, and only a few presidents have achieved it. As the person with the long-term vision in the Bush administration, and with no lack of ambition either, Rove had thought long and hard about achieving this goal before ever arriving in the White House, and he has pursued it more aggressively than anyone else.

Rove has always cast himself not merely as a campaign manager but as someone with a mind for policy and for history’s deeper currents—as someone, in other words, with the wherewithal not just to exploit the political landscape but to reshape it. At the Christian Science Monitor lunch, he appeared poised to do just that. It was already clear that Social Security privatization, a longtime Rove enthusiasm, was the first thing Bush would pursue in his second term. When things are going well for Rove, he adopts a towel-snapping jocularity. He looked supremely sure of his prospects for success.

But within a year the administration was crumbling. Social Security had gone nowhere. Hurricane Katrina, the worsening war in Iraq, and the disastrous nomination of Harriet Miers to the Supreme Court shattered the illusion of stern competence that had helped reelect Bush. What surprised everybody was how suddenly it happened; for a while, many devotees of the Cult of Rove seemed not to accept that it had. As recently as last fall, serious journalists were churning out soaring encomiums to Rove and his methods with titles like One Party Country and The Way to Win. In retrospect, everyone should have been focusing less on how those methods were used to win elections and more on why they couldn’t deliver once the elections were over.

The story of why an ambitious Republican president working with a Republican Congress failed to achieve most of what he set out to do finds Rove at center stage. A big paradox of Bush’s presidency is that Rove, who had maybe the best purely political mind in a generation and almost limitless opportunities to apply it from the very outset, managed to steer the administration toward disaster.

Years from now, when the major figures in the Bush administration publish their memoirs, historians may have a clearer idea of what went wrong than we do today. As an exercise in not waiting that long, I spent several months reading the early memoirs and talking to people inside and outside the administration (granting anonymity as necessary), in Congress, and in lobbying and political- consulting firms that dealt directly with Rove in the White House. (Rove declined requests for an interview.) The idea was to look at the Bush years and make a first pass at explaining the consequential figure in the vortex—to answer the question, How should history understand Karl Rove, and with him, this administration?

Fifty years ago, political scientists developed what is known as realignment theory—the idea that a handful of elections in the nation’s history mattered more than the others because they created “sharp and durable” changes in the polity that lasted for decades. Roosevelt’s election in 1932, which brought on the New Deal and three decades of Democratic dominance in Washington, is often held up as the classic example. Modern American historians generally see five elections as realigning: 1800, when Thomas Jefferson’s victory all but finished off the Federalist Party and reoriented power from the North to the agrarian South; 1828, when Andrew Jackson’s victory gave rise to the modern two-party system and two decades of Jacksonian influence; 1860, when Abraham Lincoln’s election marked the ascendance of the Republican Party and of the secessionist impulse that led to the Civil War; 1896, when the effects of industrialization affirmed an increasingly urban political order that brought William McKinley to power; and Roosevelt’s election in 1932, during the Great Depression.

Academics debate many aspects of this theory, such as whether realignment comes in regular cycles, and whether it is driven by voter intensity or disillusionment. But historians have shown that two major preconditions typically must be in place for realignment to occur. First, party loyalty must be sufficiently weak to allow for a major shift—the electorate, as the political scientist Paul Allen Beck has put it, must be “ripe for realignment.” The other condition is that the nation must undergo some sort of triggering event, often what Beck calls a “societal trauma”—the ravaging depressions of the 1890s and 1930s, for instance, or the North-South conflict of the 1850s and ’60s that ended in civil war. It’s important to have both. Depressions and wars throughout American history have had no realigning consequence because the electorate wasn’t primed for one, just as periods of electoral unrest have passed without a realignment for lack of a catalyzing event.

Before he ever came to the White House, Rove fervently believed that the country was on the verge of another great shift. His faith derived from his reading of the presidency of a man most historians regard as a mediocrity. Anyone on the campaign trail in 2000 probably heard him cite the pivotal importance of William McKinley’s election in 1896. Rove thought there were important similarities.

“Everything you know about William McKinley and Mark Hanna”—McKinley’s Rove—“is wrong,” he told Nicholas Lemann of The New Yorker in early 2000. “The country was in a period of change. McKinley’s the guy who figured it out. Politics were changing. The economy was changing. We’re at the same point now: weak allegiances to parties, a rising new economy.” Rove was suggesting that the electorate in 2000, as in 1896, was ripe for realignment, and implying, somewhat immodestly, that he was the guy who had figured it out. What was missing was an obvious trigger. With the economy soaring (the stock-market collapse in the spring of 2000 was still months away) and the nation at peace, there was no reason to expect that a realignment was about to happen.

Instead, Rove’s idea was to use the levers of government to create an effect that ordinarily occurs only in the most tumultuous periods in American history. He believed he could force a realignment himself through a series of far-reaching policies. Rove’s plan had five major components: establish education standards, pass a “faith-based initiative” directing government funds to religious organizations, partially privatize Social Security, offer private health-savings accounts as an alternative to Medicare, and reform immigration laws to appeal to the growing Hispanic population. Each of these, if enacted, would weaken the Democratic Party by drawing some of its core supporters into the Republican column. His plan would lead, he believed, to a period of Republican dominance like the one that followed McKinley’s election.

Rove’s vision had a certain abstract conceptual logic to it, much like the administration’s plan to spread democracy by force in the Middle East. If you could invade and pacify Iraq and Afghanistan, the thinking went, democracy would spread across the region. Likewise, if you could recast major government programs to make them more susceptible to market forces, broader support for the Republican Party would ensue. But in both cases the visionaries ignored the enormous difficulty of carrying off such seismic changes.

The Middle East failure is all too well-known—the vaulting ambition coupled with the utter inability of top administration figures to bring about their grand idea. What is less appreciated is how Rove set out to do something every bit as audacious with domestic policy. Earlier political realignments resulted from historical accidents or anomalies, conditions that were recognized and exploited after the fact by talented politicians. Nobody ever planned one. Rove didn’t wait for history to happen to him—he tried to create it on his own. “It’s hard to think of any analogue in American history,” says David Mayhew, a Yale political scientist who has written a book on electoral realignments, “to what Karl Rove was trying to do.”

Rove’s style as a campaign consultant was to plot out well in advance of a race exactly what he would do and to stick with it no matter what. But he arrived in the White House carrying ambitions at striking variance with those of a president whose stated aims were modest and who had lost the popular vote. The prevailing view of Bush at the time seems impossibly remote today. But the notion that he wanted nothing more than “to do a few things, and do them well,” as he claimed, seemed sensible enough. Nothing suggested that radical change was possible, much less likely, and the narrow margins in Congress meant that any controversial measure would require nearly flawless execution to prevail.

And yet at first it appeared that Bush might be capable of achieving big things. His first initiative, the No Child Left Behind Act, unfolded as a model of how to operate in a narrowly divided environment. Bush had made education a central theme of his campaign, an unlikely choice given that the issue strongly favors Democrats. Accountability standards had been one of his signature accomplishments as governor of Texas, and he made a persuasive pitch for them on the campaign trail. Rove likes to point out that people who named education as their top issue voted for the Democrat over the Republican 76–16 percent in the 1996 presidential election, but just 52–44 in 2000. His point is that Bush moved the electorate.

As the top political adviser in the White House, Rove orchestrated the rollout of Bush’s legislative agenda. In December, even before the inauguration, he put together a conference in Austin that included key Democrats who went on to support the education bills that sailed through Congress and became the first piece of Rove’s realignment. At the time, everybody assumed this was how Bush would operate—“as a uniter, not a divider,” his method in Texas, where he left behind a permanent-seeming Republican majority.

It’s not clear why Bush abandoned the moderate style that worked with No Child Left Behind. One of the big what-ifs of his presidency is how things might have turned out had he stuck with it (education remains the one element of Rove’s realignment project that was successfully enacted). What did become clear is that Rove’s tendency, like Bush’s, is always to choose the most ambitious option in a list and then pursue it by the most aggressive means possible—an approach that generally works better in campaigns than in governing. Instead of modest bipartisanship, the administration’s preferred style of governing became something much closer to the way Rove runs campaigns: Steamroll the opposition whenever possible, and reach across the aisle only in the rare cases, like No Child Left Behind, when it is absolutely necessary. The large tax cut that Bush pursued and won on an almost party-line vote just afterward is a model of this confrontational style. Its limitations would become apparent.

By late summer of his first year, the early burst of achievement had slowed and Bush’s approval ratings were beginning to sag. Ronald Brownstein of TheLos Angeles Times dubbed him the “A4 president,” unable even to make the front page of the newspaper. He did not seem the likely leader of a realignment.

That September 11 was both a turning point for the Bush administration and an event that would change the course of American history was immediately clear. It was also clear, if less widely appreciated, that the attacks were the type of event that can instantly set off a great shifting of the geological strata of American politics. In a coincidence of epic dimensions, 9/11 provided, just when Rove needed it, the historical lever missing until then. He had been presented with exactly the sort of “societal trauma” that makes realignment possible, and with it a fresh chance to pursue his goal. Bob Woodward’s trilogy on the Bush White House makes clear how neoconservatives in the administration recognized that 9/11 gave them the opening they’d long desired to forcefully remake the Middle East. Rove recognized the same opening.

After 9/11, any pretense of shared sacrifice or of reaching across the aisle was abandoned. The administration could demand—and get—almost anything it wanted, easily flattening Democratic opposition, which it did with increasing frequency on issues like the PATRIOT Act and the right of Department of Homeland Security workers to unionize. The crisis atmosphere allowed the White House to ignore what normally would have been some of its most basic duties—working with Republicans in Congress (let alone Democrats) and laying the groundwork in Congress and with the American public for what it hoped to achieve. At the time, however, this didn’t seem to matter.

Rove’s systematic policy of sharply contrasting Republican and Democratic positions on national security was a brilliant campaign strategy and the critical mechanism of Republican victory in the 2002 midterms. But he could not foresee how this mode of operating would ultimately work at cross-purposes with his larger goal. “What Bush went out and did in 2002,” a former administration official told me, “clearly at Karl’s behest, with an eye toward the permanent Republican majority, was very aggressively attack those Democrats who voted with him and were for him. There’s no question that the president helped pick up seats. But all of that goodwill was squandered.”

From the outset, Rove’s style of pursuing realignment—through division—was in stark contrast to the way it had happened the last time. In Franklin D. Roosevelt and the New Deal, the historian William E. Leuchtenburg notes that Roosevelt mentioned the Democratic Party by name only three times in his entire 1936 reelection campaign. Throughout his presidency, Roosevelt had large Democratic majorities in Congress but operated in a nonpartisan fashion, as though he didn’t. Bush, with razor-thin majorities—and for a time, a divided Congress—operated as though his margins were insurmountable, and sowed interparty divisions as an electoral strategy.

Rove never graduated from college. He dropped out of the University of Utah and campaigned for the chairmanship of the College Republicans, a national student organization whose leaders often go on to important positions in the party. He won, placing himself on a fast track to a career in politics. But he was and remains an autodidact, and a large part of his self-image depends on showing that his command of history and politics is an order of magnitude greater than other people’s. Rove has a need to outdo everybody else that seems to inform his sometimes contrarian views of history. It’s not enough for him to have read everything; he needs to have read everything and arrived at insights that others missed.

This aspect of Rove was on fuller-than-usual display during a speech he gave at the University of Utah, titled “What Makes a Great President,” just after the Republicans swept the 2002 elections. The incumbent presidential party typically loses seats in the off-year election, so winning was a big deal to Rove, who actively involved himself in many of the campaigns. Overcoming historical precedent seemed to feed his oracular sense of himself, and during his speech and the question-and-answer period that followed he revealed a lot about how he thinks and where he imagined his party was going.

In his speech, he described a visit to the White House by the revisionist historian Forrest McDonald, who spoke about presidential greatness. Rove expressed delight at discovering a fellow McKinley enthusiast , and said that McDonald had explained in his talk, “Nobody knows McKinley is great, because history demanded little of him. He modernized the presidency, he modernized the Treasury to deal with the modern economy, he changed dramatically the policies of his party by creating a durable governing coalition for 40 years”—this last part clearly excited Rove—“and he attempted deliberately to break with the Gilded Age politics. He was inclusive, and he was the first Republican candidate for president to be endorsed by a leader in the Catholic hierarchy. The Protestant Anglo-Saxon Republicans were scandalized by his 1896 campaign, in which he paraded Portuguese fishermen and Slovak coal miners and Serbian iron workers to Canton, Ohio, to meet him. He just absolutely scandalized the country.”

In this way of telling it, McKinley alone understood what everybody else was missing: A political realignment was under way, and by harnessing it, though it might “scandalize” conventional thinking, McKinley would not only carry the presidency but also bring about an un-precedented period of dominance for his party. The subtext seemed to be that Rove, too, recognized something everybody else had missed—the chance for a Republican realignment—just as he recognized the overlooked genius of William McKinley. He joked to the audience, “This tripled the size of the McKinley caucus in Washington—it was Bob Novak, me, and now Forrest McDonald.”

After the speech a member of the audience asked a question that took as its premise the notion that America was evenly divided between Republicans and Democrats. Rove insisted this was not the case, pouring forth a barrage of numbers from the recent midterm elections that seemed to lay waste to the notion. “Something is going on out there,” Rove insisted. “Something else more fundamental … But we will only know it retrospectively. In two years or four years or six years, [we may] look back and say the dam began to break in 2002.”

Like his hero McKinley, he alone was the true visionary. Everyone else looked at the political landscape and saw a nation at rough parity. Rove looked at the same thing and saw an emerging Republican majority.

From Rove’s vantage point after the 2002 elections, everything seemed to be on track. He had a clear strategy for achieving realignment and the historical conditions necessary to enact it. His already considerable influence within the administration was growing with the Republican Party’s rising fortunes, which were credited to his strategy of aggressive divisiveness on the issues of war and terrorism. But what Rove took to be the catalyst for realignment turned out to be the catalyst for his fall.

September 11 temporarily displaced much of what was going on in Washington at the time. The ease with which Republicans were able to operate in the aftermath of the attacks was misleading, and it imbued Rove, in particular, with false confidence that what he was doing would continue to work. In reality, it masked problems—bad relationships with Congress, a lack of support for Bush’s broader agenda—that either went unseen or were consciously ignored. Hubris and a selective understanding of history led Rove into a series of errors and misjudgments that compounded to devastating effect.

He never appreciated that his success would ultimately depend on the sustained cooperation of congressional Republicans, and he developed a dysfunctional relationship with many of them. This wasn’t clear at first. Several of the administration’s early moves looked particularly shrewd, one of them being to place the White House congressional liaisons in the office suite of the majority whip, Tom DeLay of Texas. At the time, DeLay was officially third in the Republican House leadership hierarchy, but as everyone knew, he was the capo of House Republicans and the man to see if you wanted to get something done.

Things never clicked. Republicans on the Hill say that Rove and DeLay, both formidable men who had known each other in Texas, had a less-than-amiable relationship. When I asked DeLay about their history, he let out a malevolent chuckle and told me that his very first race had pitted him against one of Rove’s candidates. “They were nasty to me,” DeLay recalled. “I had some payroll tax liens against me, as most small businessmen do, and I was driving a red Eldorado at the time. The taxes were paid, but they were running radio ads saying I was a deadbeat who didn’t pay my taxes.” DeLay still remembered the ad: “He wants to drive his red Cadillac to Washington on the backs of the taxpayers.”

DeLay made a point of saying he didn’t hold a grudge. (“That wouldn’t be Christian of me.”) But he did allow that Rove had been extremely aggressive in trying to impose his ideas on Congress. “Karl and I are sort of the same personality,” he explained, “so we end up screaming at each other. But in the end you walk out of the room with an agenda.” DeLay insists he didn’t mind Rove’s screaming, but if that’s true, he belongs to a truly Christian group.

Rove’s behavior toward Congress stood out. “Every once in a while Rove would come to leadership meetings, and he definitely considered himself at least an equal with the leaders in the room,” a Republican aide told me. “But you have to understand that Congress is a place where a certain decorum is expected. Even in private, staff is still staff. Rove would come and chime in as if he were equal to the speaker. Cheney sometimes came, too, and was far more deferential than Rove—and he was the vice president.” Other aides say Rove was notorious for interrupting congressional leaders and calling them by their first name.

Dick Armey, the House Republican majority leader when Bush took office (and no more a shrinking violet than DeLay), told me a story that captures the exquisite pettiness of most members of Congress and the arrogance that made Bush and Rove so inept at handling them. “For all the years he was president,” Armey told me, “Bill Clinton and I had a little thing we’d do where every time I went to the White House, I would take the little name tag they give you and pass it to the president, who, without saying a word, would sign and date it. Bill Clinton and I didn’t like each other. He said I was his least-favorite member of Congress. But he knew that when I left his office, the first schoolkid I came across would be given that card, and some kid who had come to Washington with his mama would go home with the president’s autograph. I think Clinton thought it was a nice thing to do for some kid, and he was happy to do it.” Armey said that when he went to his first meeting in the White House with President Bush, he explained the tradition with Clinton and asked the president if he would care to continue it. “Bush refused to sign the card. Rove, who was sitting across the table, said, ‘It would probably wind up on eBay,’” Armey continued. “Do I give a damn? No. But can you imagine refusing a simple request like that with an insult? It’s stupid. From the point of view of your own self-interest, it’s stupid. I was from Texas, and I was the majority leader. If my expectations of civility and collegiality were disappointed, what do you think it was like for the rest of the congressmen they dealt with? The Bush White House was tone-deaf to the normal courtesies of the office.”

Winning the 2002 elections earned Rove further distinction as an electoral strategist. But it didn’t change the basic dynamic between the White House and Congress, and Rove drew exactly the wrong lesson from the experience, bringing the steamroller approach from the campaign trail into his work in government. Emboldened by triumph, he grew more imperious, worsening his relations with the Hill. With both houses now in Republican hands, he pressed immigration reform and Social Security privatization. A congressional aide described a Republican leadership retreat after the midterms where Rove whipped out a chart and a sheaf of poll numbers and insisted to Republican leaders that they pursue a Social Security overhaul at once. Making wholesale changes to a beloved entitlement program in the run-up to a presidential election would have been a difficult sell under the best of circumstances. Lacking goodwill in Congress and having laid no groundwork for such an undertaking, Rove didn’t get a serious hearing on the issue—or on immigration, either.

A revealing pattern of behavior emerged from my interviews. Rove plainly viewed his standing as equal to or exceeding that of the party’s leaders in Congress and demanded what he deemed his due. Yet he was also apparently annoyed at what came with his White House eminence, complaining to colleagues when members of Congress called him to consult about routine matters he thought were beneath his standing—something that couldn’t have endeared him to the legislature.

When Bush revived immigration reform this past spring and let it be known that Rove would not take part in the negotiations, the president seemed to have belatedly grasped a basic truth about congressional relations that Armey summed up for me like this: “You can’t call her ugly all year and expect her to go to the prom with you.”

Another important misjudgment by Bush, prodded by  Rove, was giving Rove too much power within the  administration. This was partly a function of Rove’s desire to control policy as well as politics. His prize for winning the reelection campaign was a formal role and the title of deputy chief of staff for policy. But his power also grew because the senior policy staff in the White House was inept.

In an early scene in Ron Suskind’s book The Price of Loyalty, Treasury Secretary Paul O’Neill, not yet alive to the futility of his endeavor, warns Dick Cheney that the White House policy process is so ineffectual that it is tantamount to “kids rolling around on the lawn.” Had O’Neill lasted longer than he did (he resigned in 2002), he might have lowered his assessment. Before she left the White House in humiliation after conservatives blocked her nomination to the Supreme Court, White House Counsel Harriet Miers had also served as deputy chief of staff for policy. The president’s Domestic Policy Council was run by Claude Allen, until he, too, resigned, after he was caught shoplifting at Target.

The weakness of the White House policy staff demanded Rove’s constant involvement. For all his shortcomings, he had clear ideas about where the administration should go, and the ability to maneuver. “Where the bureaucracy was failing and broken, Karl got stuff done,” says a White House colleague. “Harriet was no more capable of producing policy out of the policy office she directed than you or I are capable of jumping off the roof of a building and flying to Minneapolis.”

As a result, Rove not only ran the reelection campaign, he plotted much of Bush’s second-term agenda, using the opportunity to push long-standing pet issues—health- savings accounts, Social Security privatization—that promised to weaken support for Democrats, by dismantling Medicare and Social Security. But this also meant committing the president to sweeping domestic changes that had no public favor and had not been a focus of the 2004 campaign, which had centered almost exclusively on the war.

Bush’s reelection and Rove’s assumption of a formal policy role had a bigger effect than most of Washington realized at the time. It is commonly assumed (as I assumed) that Rove exercised a major influence on White House policy before he had the title, all the time that he had it, and even after it was taken away from him in the staff shake-up last year that saw Josh Bolten succeed Andrew Card as chief of staff.

Insiders don’t disagree, but say that Rove’s becoming deputy chief of staff for policy was still an important development. For the purposes of comparison, a former Bush official cited the productiveness of the first two years of Bush’s presidency, the period that generated not just No Child Left Behind but three tax cuts and the Medicare prescription-drug benefit. At the time, Bolten was deputy chief of staff for policy, and relations with Congress had not yet soured. “Josh was not an equal of Karl’s with regard to access to the president or stature,” says the official. “But he was a strong enough intellect and a strong enough presence that he was able to create a deliberative process that led to a better outcome.” When Bolten left to run the Office of Management and Budget, in 2003, the balance shifted in Rove’s favor, and then shifted further after the reelection. “Formalizing [Rove’s policy role] was the final choke-off of any internal debate or deliberative process,” says the official. “There was no offset to Karl.”

Rove’s greatest shortcoming was not in conceptualizing policies but in failing to understand the process of getting them implemented, a weakness he never seems to have recognized in himself. It’s startling that someone who gave so much thought to redirecting the powers of government evinced so little interest in understanding how it operates. Perhaps because he had never worked in government—or maybe because his standing rested upon his relationship with a single superior—he was often ineffective at bringing into being anything that required more than a presidential signature.

As the September 11 mind-set began to lose its power over Washington, Rove still faced the task of getting  the more difficult parts of his realignment schema through Congress. But his lack of fluency in the art of moving policy and his tendency to see the world through the divisive lens of a political campaign were great handicaps. There was an important difference between the administration’s first-term achievements and the entitlement overhauls (Social Security and Medicare) and volatile cultural issues (immigration) that Rove wanted to push through next. Cutting taxes and furnishing new benefits may generate some controversy in Washington, but few lawmakers who support them face serious political risk. (Tax cuts get Republicans elected!) So it’s possible, with will and numbers alone, to pass them with the barest of majorities. Rove’s mistake was to believe that this would work with everything.

Entitlement reform is a different animal. More important than reaching a majority is offering political cover to those willing to accept the risk of tampering with cherished programs, and the way to do this is by enlisting the other side. So the fact that Republicans controlled the White House and both houses of Congress after 2002—to Rove, a clinching argument for confrontation—actually lessened the likelihood of entitlement reform. Congressional Republicans didn’t support Rove’s plan in 2003 to tackle Social Security or immigration reform because they didn’t want to pass such things on a party-line vote. History suggested they’d pay a steep price at election time.

To understand this, Rove need not have looked back any farther than the last Republican president who had attempted something on this order. Before he was president, Ronald Reagan talked about letting people opt out of the Social Security system, a precursor of the plan Rove favors. In 1981, in the full tide of victory, Reagan proposed large cuts—and the Republican Senate refused even to take them up. The mere fact that they had been put forward, however, was enough to imperil Republicans, who took significant losses in 1982.

The following year, Reagan tried again, this time co-operating with the Democratic speaker of the House, Tip O’Neill. He now understood that the only way to attain any serious change on such a sensitive issue was for both parties to hold hands and jump together. To afford each side deniability if things fell apart, the two leaders negotiated by proxy. O’Neill chose Robert Ball, a widely respected Social Security commissioner under three presidents, while Reagan picked Alan Greenspan, the future chairman of the Federal Reserve. Key senators in both parties were looped in.

As Ball and Greenspan made headway, it was really O’Neill and Reagan who were agreeing. To assure both sides political cover, the negotiations were an all-or-nothing process. The plan that was eventually settled on addressed the solvency problem by raising the retirement age (which pleased Republicans) and taxing Social Security benefits for the first time (which pleased Democrats). Unlike in 1981, Republicans in Congress weren’t left exposed. Democrats couldn’t attack them for raising the retirement age, because Tip O’Neill had signed on. Republicans couldn’t complain about higher taxes, because Democrats had supported Ronald Reagan’s plan.

At the Christian Science Monitor lunch just after the reelection, Rove, then at the apogee of his power, had no time for nostrums like bipartisanship or negotiation. Armed with his policy title and the aura of political genius, he pressed for the Social Security changes so far denied him. In many ways, this decision was the fulcrum of the Bush presidency. Had Bush decided not to pursue Social Security or had he somehow managed to pursue it in a way that included Democrats, his presidency might still have ended up in failure, because of Iraq. But the dramatic collapse of Rove’s Social Security push foreclosed any other possibility. It left Bush all but dead in the water for what looks to be the remainder of his time in office.

Rove pursued his plan with characteristic intensity, running it out of the White House from the top down, like a political campaign, and seeking to enlist the network of grassroots activists that had carried the Bush-Cheney ticket to a second term. Bush gave Social Security prominence in his State of the Union address, then set out on a national road show to sell the idea. But after an election fought over the war, Social Security drew little interest, and in contrast to the effect Bush achieved on education in the 2000 campaign, public support didn’t budge. (It actually worsened during his tour.)

Unlike Reagan, Bush did not produce a bill that could have served as a basis for negotiation—nor did he seriously consult any Democrats with whom he might have negotiated. Instead, Rove expected a bill to emerge from Congress. The strategy of a president’s outlining broad principles of what he’d like in a bill and calling on Congress to draft it has worked many times in the past. But Rove had no allies in Congress, had built no support with the American public, and had chosen to undertake the most significant entitlement reform since Reagan by having Bush barnstorm the country speaking before handpicked Republican audiences with the same partisan fervor he’d brought to the presidential campaign trail—all of which must have scared the living daylights out of the very Republicans in Congress Rove foolishly counted upon to do his bidding. The problems buried for years under the war and then the presidential race came roaring back, and Bush got no meaningful support from the Hill. He was left with a flawed, unpopular concept whose motive—political gain—was all too apparent.

Within months it was clear that the Social Security offensive was in deep trouble and, worse, was dragging down Bush’s popularity at a time when he needed all the support he could muster for Iraq. Every week, the political brain trust in the Bush White House gathers under Rove for what is known as the “Strategery Meeting” (an ironic nod to Bush’s frequent malapropisms) to plot the course ahead. What transpires is usually a closely held secret. But two former Bush officials provided an account of one meeting in the late spring of 2005, in the middle of the Social Security push, that affords a remarkable glimpse of Rove’s singularity of purpose.

He opened the meeting by acknowledging that the Social Security initiative was struggling and hurting the president’s approval ratings, and then announced that, despite this, they would stay the course through the summer. He admitted that the numbers would probably continue to fall. But come September, the president would hit Democrats hard on the issue of national security and pull his numbers back up again. Winning on Social Security was so important to Rove that he was evidently willing to gamble the effectiveness of Bush’s second term on what most people in the White House and Congress thought were very long odds to begin with. The gamble didn’t pay off. Even before Hurricane Katrina hit New Orleans on the morning of August 29, what slim hope might have remained for Social Security was gone.

Hurricane Katrina clearly changed the public perception of Bush’s presidency. Less examined is the role Rove played in the defining moment of the administration’s response: when Air Force One flew over Louisiana and Bush gazed down from on high at the wreckage without ordering his plane down. Bush advisers Matthew Dowd and Dan Bartlett wanted the president on the ground immediately, one Bush official told me, but were overruled by Rove for reasons that are still unclear: “Karl did not want the plane to land in Louisiana.” Rove’s political acumen seemed to be deserting him altogether.

An important theme of future Bush administration memoirs will be the opportunity cost of leading off the second term with the misguided plan to overhaul Social Security. “The great cost of the Social Security misadventure was lost support for the war,” says a former Bush official. “When you send troops to war, you have no higher responsibility as president than to keep the American people engaged and maintain popular support. But for months and months after it became obvious that Social Security was not going to happen, nobody—because of Karl’s stature in the White House—could be intellectually honest in a meeting and say, ‘This is not going to happen, and we need an exit strategy to get back onto winning ground.’ It was a catastrophic mistake.”

It strains belief to think that someone as highly attuned as Rove to all that goes on in politics could have missed the reason for Bush’s reelection: He persuaded just enough people that he was the better man to manage the war. But it’s also hard to fathom how the master strategist could leave his president and his party as vulnerable as they proved to be six months into the second term. The Republican pollster Tony Fabrizio says, “People who were concerned about the war, we lost. People who were concerned about the economy, we lost. People who were concerned about health care, we lost. It goes on and on. Any of those things would have helped refocus the debate or at least put something else out there besides the war. We came out of the election and what was our agenda for the next term? Social Security. There was nothing else that we were doing. We allowed ourselves as a party to be defined by—in effect, to live and die by—the war in Iraq.”

That Rove ignored a political reality so clear to everyone else can be explained only by the immutable nature of his ambition: Social Security was vital for a realignment, however unlikely its success now appeared. At the peak of his influence, the only person who could have stopped him was the one person he answered to—but the president was just as fixated on his place in history as Rove was on his own.

Moments of precise reckoning in politics are rare outside of elections. Snapshot polls don’t tell you much about whole epochs. Even voter identification can be a misleading indicator. In 1976, the post-Watergate Republican Party would have appeared to be in existential peril, when in fact it was on the verge of setting the agenda for a generation. So the question of where exactly things stand right now is more complicated than it might appear.

As he nears the end of his time in government, Rove has been campaigning for the notion that Bush has been more successful than he’s being credited for. But the necessity of adopting history’s longer perspective to make his argument says a great deal. Of the five policies in his realignment vision, Social Security and immigration failed outright; medical-savings accounts and the faith-based program wound up as small, face-saving initiatives after the original ambitions collapsed; and the lone success, No Child Left Behind, looks increasingly jeopardized as it comes up for renewal in Congress this year, a victim of Bush’s unpopularity. Rove no longer talks about realignment—though the topic is now very popular with Democrats, who have a good shot at controlling both houses of Congress and the presidency after the next election. On the face of things, the Republican Party is in trouble. In a representative example, voters in a recent NBC–Wall Street Journal poll preferred that the next president be a Democrat by 52–31 percent, and delivered the most negative assessment of the Republican Party in the survey’s two-decade history. In 2002, Americans were equally split along partisan lines. A recent Pew study shows that 50 percent of the public identifies as Democratic or leaning that way, while just 35 percent identifies with the GOP.

Rove is a great devotee of the historian Robert H. Wiebe, who also emphasizes the pivotal quality of the 1896 election. Wiebe thought industrialization had launched a great sorting-out process in the 1880s and ’90s that reached a dramatic culmination in 1896. He argues in his book The Search for Order, 1877–1920 that “a decade’s accumulated bitterness ultimately flowed into a single national election.”

It seems highly unlikely, though not impossible, that historians will one day view 2000 or 2004 as the kind of realigning election that Rove so badly wanted. Ken Mehlman, a protégé of Rove’s and one of the sharper minds in the Republican Party, is adamant that the analysis that led Rove to believe realignment was at hand remains fundamentally correct. “If you look back over the last few decades, an era of politics has run its course,” Mehlman told me. “Both parties achieved some of their highest goals. Democrats got civil rights, women’s rights, the New Deal, and recognition of the need for a cleaner environment. Republicans got the defeat of the Soviet Union, less violent crime, lower tax rates, and welfare reform. The public agrees on this. So the issues now become: How do you deal with the terrorist threat? How do you deal with the retirement of the Baby Boomers? How do you deliver health care with people changing jobs? How do you make sure America retains its economic strength with the rise of China and India? How that plays out is something we don’t know yet.” As far as what’s happened since 2000, Mehlman says, “the conditions remain where they were.” In this view, America is still in the period of great churn, and the 1896 election hasn’t happened yet.

Premised as it is on the notion that the past seven years have been a wash, Mehlman’s analysis has a self-justifying tinge. At least for now, Republicans have measurably fallen behind where they were in 2000. It’s hard to sift underlying political views from temporary rage against Bush, or to anticipate what effect his presidency will have on the Republican Party’s fortunes once he’s gone. But the effect does seem certain to be less pronounced—less disastrous—than it is now. Considered in that context, Mehlman’s analysis rings true.

When I asked Mark Gersh, one of the Democrats’ best electoral analysts, for his view of how the political landscape has shifted, he basically agreed with Mehlman, and offered his own perspective on Rove’s vision of realignment. “September 11 is what made them, and Iraq is what undermined them, and the truth lies in between the two—and that is that both parties are at parity,” Gersh told me. “There was never any indication that the Republicans were emerging as the majority party. What was happening was that partisanship was actually hardening. Fewer people in both parties were voting for candidates of the other party.” Gersh added that he doesn’t believe Democrats are the majority party, and he gives Republicans “at worst a 4-in-10 chance” of holding the presidency in 2008. Even if Rove didn’t create a generational shift to the Republican Party, so far at least he does not appear to have ushered in a Democratic one, either.

Nonetheless, certain painful, striking parallels between the presidencies of George Bush and William McKinley can’t have been lost on Rove, even if he would be the last to admit them. Both originally campaigned almost exclusively on domestic issues, only to have their presidencies dominated by foreign affairs. Neither distinguished himself. Policy inertia is the term the historian Richard L. McCormick uses to characterize McKinley’s presidency. David Mayhew, the political scientist, writes in his skeptical study Electoral Realignments, “Policy innovations under McKinley during 1897–1901 [McKinley was assassinated in 1901] probably rank in the bottom quartile among all presidential terms in American history.” Both sentiments could be applied to Bush.

Perhaps the strangest irony is the foreign adventure that consumed much of McKinley’s presidency. Though he lacked Bush’s storm-the-barricades temperament, McKinley launched the Spanish-American War partly at the urging of his future vice president, Teddy Roosevelt, and other hawks. As the historian Eric Rauchway has pointed out, after American forces defeated the Spanish navy in the Philippines, the U.S. occupation encountered a bloody postwar insurgency and allegations of torture committed by U.S. troops. Roosevelt, who succeeded McKinley, was hampered by questions about improper force size and commitment of troops and eventually came to rue his plight. “While I have never varied in my feeling that we had to hold the Philippines,” he wrote in 1901, “I have varied very much in my feelings whether we were to be considered fortunate or unfortunate in having to hold them.”

To understand Rove’s record, it’s useful to think of the disaster as being divided into foreign and domestic components. Rove had little say in foreign policy. Dick Cheney understood from decades of government experience how to engineer a war he’d pressed for, and still the administration failed to reshape the Middle East. More than anyone outside the Oval Office, Rove was responsible for much of what went wrong on the domestic front—partly because he had never served in government, and he lacked Cheney’s skill at manipulating it. Both men came in believing they had superior insights into history and theoretical underpinnings so strong that their ideas would prevail. But neither man understood how to see them through, and so both failed.

Rove has proved a better analyst of history than agent of historical change, showing far greater aptitude for envisioning sweeping change than for pulling it off. Cheney, through a combination of stealth and nuance, was responsible for steering the Bush administration’s policy in many controversial areas: redirecting foreign policy, winning a series of tax cuts, weakening environmental regulations, asserting the primacy of the executive branch. But his interests seldom coincided with Rove’s overarching goal of realignment. And Rove, forever in thrall to the mechanics of winning by dividing, consistently lacked the ability to transcend the campaign mind-set and see beyond the struggle nearest at hand. In a world made new by September 11, he put terrorism and war to work in an electoral rather than a historical context, and used them as wedge issues instead of as the unifying basis for the new political order he sought.

Why did so many people get Rove so wrong? One reason is that notwithstanding his pretensions to being a world-historic figure, Rove excelled at winning elections, which is, finally, how Washington keeps score. This leads to another reason: Journalists tend to admire tactics above all else. The books on Rove from last year dwell at length on his techniques and accept the premise of Republican dominance practically on tactical skill alone. A corollary to the Cult of the Consultant is the belief that winning an election—especially a tough one you weren’t expected to win—is proof of the ability to govern. But the two are wholly distinct enterprises.

Rove’s vindictiveness has also cowed his critics, at least for the time being. One reason his standing has not yet sunk as low as that of the rest of the Bush administration is his continuing ability to intimidate many of those in a position to criticize him. A Republican consultant who works downtown agreed to talk candidly for this article, but suggested that we have lunch across the river in Pentagon City, Virginia. He didn’t want to be overheard. Working with Rove, he explained, was difficult enough already: “You’re constantly confronting the big, booming voice of Oz.”

In ways small and large, Rove has long betrayed his lack of understanding of Washington’s institutional subtleties and the effective application of policy, even for the rawest political objectives. The classic example is Rove’s persuading the president in 2002 to impose steep tariffs on foreign steel—a ploy he believed would win over union workers in Rust Belt swing states, ordinarily faithful Democrats, in the next presidential election. This was celebrated as a political masterstroke at the time. But within a year the tariffs were declared illegal by the World Trade Organization and nearly caused a trade war. The uproar precipitated their premature and embarrassing removal.

“It is a dangerous distraction to know as much about politics as Karl Rove knows,” Bruce Reed, the domestic-policy chief in Bill Clinton’s administration, told me. “If you know every single poll number on every single issue and every interest group’s objection and every political factor, it can be paralyzing to try to make an honest policy decision. I think the larger, deeper problem was that they never fully appreciated that long-term success depended on making sure your policies worked.”

Rove has no antecedent in modern American politics, because no president before Bush thought it wise to give a political adviser so much influence. Rove wouldn’t be Rove, in other words, were Bush not Bush. That Vice President Cheney also hit a historic high-water mark for influence says a lot about how the actual president sees fit to govern. All rhetoric about “leadership” aside, Bush will be viewed as a weak executive who ceded far too much authority. Rove’s failures are ultimately his.

Bush will leave behind a legacy long on ambition and short on positive results. History will draw many lessons from his presidency—about the danger of concentrating too much power in the hands of too few, about the risk of commingling politics and policy beyond a certain point, about the cost of constricting the channels of information to the Oval Office. More broadly, as the next group of presidential candidates and their gurus eases the current crew from the stage, Rove’s example should serve as a caution to politicians and journalists.

The Bush administration made a virtual religion of the belief that if you act boldly, others will follow in your wake. That certainly proved to be the case with Karl Rove, for a time. But for all the fascination with what Rove was doing and thinking, little attention was given to whether or not it was working and why. This neglect encompasses many people, though one person with far greater consequences than all the others. In the end, the verdict on George W. Bush may be as simple as this: He never questioned the big, booming voice of Oz, so he never saw the little man behind the curtain.

Joshua Green is a senior editor of The Atlantic.
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Joshua Green is a former senior editor at The Atlantic.

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