When a state agency becomes controlled by its constituency interest group, it is referred to as

interest group, also called special interest group, advocacy group, or pressure group, any association of individuals or organizations, usually formally organized, that, on the basis of one or more shared concerns, attempts to influence public policy in its favour. All interest groups share a desire to affect government policy to benefit themselves or their causes. Their goal could be a policy that exclusively benefits group members or one segment of society (e.g., government subsidies for farmers) or a policy that advances a broader public purpose (e.g., improving air quality). They attempt to achieve their goals by lobbying—that is, by attempting to bring pressure to bear on policy makers to gain policy outcomes in their favour.

Interest groups are a natural outgrowth of the communities of interest that exist in all societies, from narrow groups such as the Japan Eraser Manufacturers Association to broad groups such as the American Federation of Labor–Congress of Industrial Organizations (AFL–CIO) and to even broader organizations such as the military. Politics and interests are inseparable. Interests are a prevalent, permanent, and essential aspect of all political systems—democratic, authoritarian, and totalitarian regimes alike. Furthermore, interest groups exist at all levels of government—national, state, provincial, and local—and increasingly they have occupied an important role in international affairs.

The common goals and sources of interest groups obscure, however, the fact that they vary widely in their form and lobbying strategies both within and across political systems. This article provides a broad overview that explains these differences and the role that interest groups play in society.

Definition

As defined above, an interest group is usually a formally organized association that seeks to influence public policy. This broad definition, increasingly used by scholars, contrasts with older, narrower ones that include only private associations that have a distinct, formal organization, such as Italy’s Confindustria (General Confederation of Industry), the United States’s National Education Association, and Guatemala’s Mutual Support Group (human rights organization). One problem with such a narrow definition is that many formally organized entities are not private. The most important lobbying forces in any society are the various entities of government: national, regional, and local government agencies and institutions such as the military. Another reason to opt for a broad definition is that in all societies there are many informal groups that are, in effect, interest groups but would not be covered by the narrower definition. For example, in all political systems there are influential groups of political and professional elites that may not be recognized as formal groups but are nonetheless crucial in informally influencing public policy.

Some interest groups consist of individuals such as ranchers or fruit growers who may form farm commodity organizations. In other instances, an interest group consists not of individuals but of organizations or businesses, such as the Histadrut (General Federation of Labour) in Israel and Amazon Watch, which includes environmental and indigenous organizations in several South American countries. These types of organizations are called peak associations, as they are, in effect, the major groups in their area of interest in a country.

The term interest rather than interest group is often used to denote broad or less-formalized political constituencies, such as the agricultural interest and the environmental interest—segments of society that may include many formal interest groups. Similarly, interest is often used when considering government entities working to influence other governments (e.g., a local government seeking to secure funding from the national government). In authoritarian and developing societies, where formal interest groups are restricted or not as well developed, interest is often used to designate broader groupings such as government elites and tribal leaders.

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Learning Objectives

By the end of this section, you will be able to:

• Explain how interest groups differ from political parties
• Evaluate the different types of interests and what they do
• Compare public and private interest groups

WHAT ARE INTEREST GROUPS AND WHAT DO THEY WANT?

Definitions abound when it comes to interest groups, which are sometimes referred to as special interests, interest organizations, pressure groups, or just interests. Most definitions specify that interest group indicates any formal association of individuals or organizations that attempt to influence government decision-making and/or the making of public policy. Often, this influence is exercised by a lobbyist or a lobbying firm.

Formally, a lobbyist is someone who represents the interest organization before government, is usually compensated for doing so, and is required to register with the government in which they lobby, whether state or federal. The lobbyist’s primary goal is usually to influence policy. Most interest organizations engage in lobbying activity to achieve their objectives. As you might expect, the interest hires a lobbyist, employs one internally, or has a member volunteer to lobby on its behalf. For present purposes, we might restrict our definition to the relatively broad one in the Lobbying Disclosure Act.2 This act requires the registration of lobbyists representing any interest group and devoting more than 20 percent of their time to it.3 Clients and lobbying firms must also register with the federal government based on similar requirements. Moreover, campaign finance laws require disclosure of campaign contributions given to political candidates by organizations.

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Lobbying is not limited to Washington, DC, however, and many interests lobby there as well as in one or more states. Each state has its own laws describing which individuals and entities must register, so the definitions of lobbyists and interests, and of what lobbying is and who must register to do it, also vary from state to state. Therefore, while a citizen contacting a lawmaker to discuss an issue is generally not viewed as lobbying, an organization that devotes a certain amount of time and resources to contacting lawmakers may be classified as lobbying, depending on local, state, or federal law.

Largely for this reason, there is no comprehensive list of all interest groups to tell us how many there are in the United States. Estimates of the number vary widely, suggesting that if we use a broad definition and include all interests at all levels of government, there may be more than 200,000.4 Following the passage of the Lobbying Disclosure Act in 1995, we had a much better understanding of the number of interests registered in Washington, DC; however, it was not until several years later that we had a complete count and categorization of the interests registered in each of the fifty states.5

Political scientists have categorized interest groups in a number of ways.6 First, interest groups may take the form of membership organizations, which individuals join voluntarily and to which they usually pay dues. Membership groups often consist of people who have common issues or concerns, or who want to be with others who share their views. The National Rifle Association (NRA) is a membership group consisting of members who promote gun rights (Figure 10.2). For those who advocate greater regulation of access to firearms, such as background checks prior to gun purchases, the Brady: United Against Gun Violence is a membership organization that weighs in on the other side of the issue.7

Figure 10.2 A Florida member of the NRA proudly displays his support of gun rights (a). After the mass shooting at Marjory Stoneman Douglas High School in Parkland, Florida, on February 14, 2018, which resulted in seventeen deaths, massive demonstrations were quickly organized. On March 24, 2018, in Washington DC (b), San Francisco (c), and 880 sister sites, young Americans gathered and marched to highlight the need for gun control reform. (credit a: modification of work by Daniel Oines/Flickr, CC BY; credit b: modification of "March for Our Lives" by Phil Roeder/Wikimedia Commons, CC BY; credit c: modification of "March for Our Lives SF" by Roger Jones/Flickr, Public Domain)

Interest groups may also form to represent companies, corporate organizations, and governments. These groups do not have individual members but rather are offshoots of corporate or governmental entities with a compelling interest to be represented in front of one or more branches of government. Verizon and Coca-Cola will register to lobby in order to influence policy in a way that benefits them. These corporations will either have one or more in-house lobbyists, who work for one interest group or firm and represent their organization in a lobbying capacity, and/or will hire a contract lobbyist, individuals who work for firms that represent a multitude of clients and are often hired because of their resources and their ability to contact and lobby lawmakers, to represent them before the legislature.

Governments such as municipalities and executive departments such as the Department of Education register to lobby in an effort to maximize their share of budgets or increase their level of autonomy. These government institutions are represented by a legislative liaison, whose job is to present issues to decision-makers. For example, a state university usually employs a lobbyist, legislative liaison, or government affairs person to represent its interests before the legislature. This includes lobbying for a given university’s share of the budget or for its continued autonomy from lawmakers and other state-level officials who may attempt to play a greater oversight role.

In 2015, thirteen states had their higher education budgets cut from the previous year, and nearly all states have seen some cuts to higher education funding since the recession began in 2008.8 In 2015, as in many states, universities and community colleges in Mississippi lobbied the legislature over pending budget cuts.9 These examples highlight the need for universities and state university systems to have representation before the legislature. On the federal level, universities may lobby for research funds from government departments. For example, the Departments of Defense and Homeland Security may be willing to fund scientific research that might better enable them to defend the nation.

Interest groups also include associations, which are typically groups of institutions that join with others, often within the same trade or industry (trade associations), and have similar concerns. The American Beverage Association10 includes Coca-Cola, Red Bull North America, ROCKSTAR, and Kraft Foods. Despite the fact that these companies are competitors, they have common interests related to the manufacturing, bottling, and distribution of beverages, as well as the regulation of their business activities. The logic is that there is strength in numbers, and if members can lobby for tax breaks or eased regulations for an entire industry, they may all benefit. These common goals do not, however, prevent individual association members from employing in-house lobbyists or contract lobbying firms to represent their own business or organization as well. Indeed, many members of associations are competitors who also seek representation individually before the legislature.

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Finally, sometimes individuals volunteer to represent an organization. They are called amateur or volunteer lobbyists, and are typically not compensated for their lobbying efforts. In some cases, citizens may lobby for pet projects because they care about some issue or cause. They may or may not be members of an interest group, but if they register to lobby, they are sometimes nicknamed “hobbyists.”

Lobbyists representing a variety of organizations employ different techniques to achieve their objectives. One method is inside lobbying or direct lobbying, which takes the interest group’s message directly to a government official such as a lawmaker.11 Inside lobbying tactics include testifying in legislative hearings and helping to draft legislation. Numerous surveys of lobbyists have confirmed that the vast majority rely on these inside strategies. For example, nearly all report that they contact lawmakers, testify before the legislature, help draft legislation, and contact executive agencies. Trying to influence government appointments or providing favors to members of government are somewhat less common insider tactics.

Many lobbyists also use outside lobbying or indirect lobbying tactics, whereby the interest attempts to get its message out to the public.12 These tactics include issuing press releases, placing stories and articles in the media, entering coalitions with other groups, and contacting interest group members, hoping that they will individually pressure lawmakers to support or oppose legislation. An environmental interest group like the Sierra Club, for example, might issue a press release or encourage its members to contact their representatives in Congress about legislation of concern to the group. It might also use outside tactics if there is a potential threat to the environment and the group wants to raise awareness among its members and the public (Figure 10.3). Members of Congress are likely to pay attention when many constituents contact them about an issue or proposed bill. Many interest groups, including the Sierra Club, will use a combination of inside and outside tactics in their lobbying efforts, choosing whatever strategy is most likely to help them achieve their goals.

Figure 10.3 In February 2013, members of the Sierra Club joined a march on Los Angeles City Hall to demand action on climate change and protest the development of the Keystone pipeline. This was the Sierra Club's first act of civil disobedience across its 120-year history. (credit: Charlie Kaijo)

The primary goal of most interests, no matter their lobbying approach, is to influence decision-makers and public policies. For example, National Right to Life, an anti-abortion interest group, lobbies to encourage government to enact laws that restrict abortion access, while NARAL Pro-Choice America lobbies to promote the right of women to have safe choices about abortion. Environmental interests like the Sierra Club lobby for laws designed to protect natural resources and minimize the use of pollutants. On the other hand, some interests lobby to reduce regulations that an organization might view as burdensome. Air and water quality regulations designed to improve or protect the environment may be viewed as onerous by industries that pollute as a byproduct of their production or manufacturing process. Other interests lobby for budgetary allocations; the farm lobby, for example, pressures Congress to secure new farm subsidies or maintain existing ones. Farm subsidies are given to some farmers because they grow certain crops and to other farmers so they will not grow certain crops.13 As expected, any bill that might attempt to alter these subsidies raises the antennae of many agricultural interests.

INTEREST GROUP FUNCTIONS

While influencing policy is the primary goal, interest groups also monitor government activity, serve as a means of political participation for members, and provide information to the public and to lawmakers. According to the National Conference of State Legislatures, thirty-six states have laws requiring that voters provide identification at the polls.14 A civil rights group like the National Association for the Advancement of Colored People (NAACP) will keep track of proposed voter-identification bills in state legislatures that might have an effect on voting rights. This organization will contact lawmakers to voice approval or disapproval of proposed legislation (inside lobbying) and encourage group members to take action by either donating money to it or contacting lawmakers about the proposed bill (outside lobbying). Thus, a member of the organization or a citizen concerned about voting rights need not be an expert on the legislative process or the technical or legal details of a proposed bill to be informed about potential threats to voting rights. Other interest groups function in similar ways. For example, the NRA monitors attempts by state legislatures to tighten gun control laws.

Interest groups facilitate political participation in a number of ways. Some members become active within a group, working on behalf of the organization to promote its agenda. Some interests work to increase membership, inform the public about issues the group deems important, or organize rallies and promote get-out-the-vote efforts. Sometimes groups will utilize events to mobilize existing members or encourage new members to join. For example, following Barack Obama’s presidential victory in 2008, the NRA used the election as a rallying cry for its supporters, and it continues to attack the president on the issue of guns, despite the fact that gun rights have in some ways expanded over the course of the Obama presidency. Interest groups also organize letter-writing campaigns, stage protests, and sometimes hold fundraisers for their cause or even for political campaigns.

Some interests are more broadly focused than others. AARP (formerly the American Association of Retired Persons) has approximately thirty-eight million members and advocates for individuals fifty and over on a variety of issues including health care, insurance, employment, financial security, and consumer protection (Figure 10.4).15 This organization represents both liberals and conservatives, Democrats and Republicans, and many who do not identify with these categorizations. On the other hand, the Association of Black Cardiologists is a much smaller and far-narrower organization. Over the last several decades, some interest groups have sought greater specialization and have even fragmented. As you may imagine, the Association of Black Cardiologists is more specialized than the American Medical Association, which tries to represent all physicians regardless of race or specialty.

Figure 10.4 Health care is an important concern for AARP and its members, so the organization makes sure to maintain connections with key policymakers in this area, such as Xavier Becerra, then-California attorney general and current, secretary of Health and Human Services, shown here (on left) with (left to right) Blanca Castro, AARP advocacy manager, California governor Gavin Newsom, and California Assembly member Jim Wood. (credit: modification of work by AARP California)

PUBLIC VS. PRIVATE INTEREST GROUPS

Interest groups and organizations represent both private and public interests in the United States. Private interests usually seek particularized benefits from government that favor either a single interest or a narrow set of interests. For example, corporations and political institutions may lobby government for tax exemptions, fewer regulations, or favorable laws that benefit individual companies or an industry more generally. Their goal is to promote private goods. Private goods are items individuals can own, including corporate profits. An automobile is a private good; when you purchase it, you receive ownership. Wealthy individuals are more likely to accumulate private goods, and they can sometimes obtain private goods from governments, such as tax benefits, government subsidies, or government contracts.

On the other hand, public interest groups attempt to promote public, or collective, goods. Such collective goods are benefits—tangible or intangible—that help most or all citizens. These goods are often produced collectively, and because they may not be profitable and everyone may not agree on what public goods are best for society, they are often underfunded and thus will be underproduced unless there is government involvement. The Tennessee Valley Authority, a government corporation, provides electricity in some places where it is not profitable for private firms to do so. Other examples of collective goods are public safety, highway safety, public education, and environmental protection. With some exceptions, if an environmental interest promotes clean air or water, most or all citizens are able to enjoy the result. So if the Sierra Club encourages Congress to pass legislation that improves national air quality, citizens receive the benefit regardless of whether they are members of the organization or even support the legislation. Many environmental groups are public interest groups that lobby for and raise awareness of issues that affect large segments of the population.16

As the clean air example above suggests, collective goods are generally nonexcludable, meaning all or most people are entitled to the public good and cannot be prevented from enjoying it. Furthermore, collective goods are generally not subject to crowding, so that even as the population increases, people still have access to the entire public good. Thus, the military does not protect citizens only in Texas and Maryland while neglecting those in New York and Idaho, but instead it provides the collective good of national defense equally to citizens in all states. As another example, even as more cars use a public roadway, under most circumstances, additional drivers still have the option of using the same road. (High-occupancy vehicle lanes may restrict some lanes of a highway for drivers who do not car pool.)