Public policy changes in very large leaps, as in the New Deal of the 1930's, the Great Society of the mid-1960's, and the Reagan revolution of 1981. These spasms of reform are interspersed with periods of rest and stasis, as if the participants are exhausted from their exertion and catching their breath. But in any event, this does not look like Darwinian, gradualistic evolution.

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Participants perceive swings in national mood, elections bring new administrations to power and new partisan or ideological distributions to Congress, and interest groups of various descriptions press (or fail to press) their demands on government.