The importance of issues in deciding elections changes from one election to the next. As Key has shown, the issues of the role of the federal government in social life helped create the New Deal Democratic majority. In contrast, issues had only a marginal impact on the apolitical elections of the 1950s. Converse's technique of normal vote analysis reveals that issues were again highly related to the vote in 1968. This was particularly true of attitudes toward Vietnam, urban unrest and race, social welfare, and Johnson's performance as president.Yet, even in an election in which issues appear important, some can have very different consequences for popular control of policy than others. On some issues, the electorate exercises no effective constraints on leaders' policy choices. On others (e.g., the escalation in Vietnam), the electorate permits leaders a wide array of options when a policy is adopted and passes a retrospective judgment on such choices in subsequent elections. Finally, on still other issues, the public may limit the options of leaders at the time a policy is adopted. The paper suggests the stringent conditions necessary for this type of popular control to exist.
