As late as 1986, the Supreme Court upheld a state law forbidding certain homosexual acts. But, in 2003, the Court struck down state laws banning consensual sexual relations between same-sex partners. In the 2000s, while some states legalized same-sex marriage and other states outlawed it, public opinion shifted in favor of allowing gays and lesbians to marry, rising from 35 percent, a minority, in favor in 2001 to 47 percent, a plurality, in favor in 2012. In 2013, the Court struck down as unconstitutional the federal Defense of Marriage Act, declaring that the federal government must provide gay couples married in states where same-sex marriage is legal with the same health, tax, and other benefits that heterosexual married couples receive. In 2015, the Supreme Court ruled that same-sex marriage is constitutional. Some believe that political power in America is monopolized by wealthy business leaders, by other powerful elites, or by entrenched government bureaucrats. Others believe that political resources such as money, prestige, expertise, organizational position, and access to the mass media are so widely dispersed in American society, and the governmental institutions and offices in which power may be exercised so numerous and varied, that no single group truly has all or most political power. In this view, political power in America is distributed more or less widely. Still others suggest that morally impassioned leaders have at times been deeply influential in our politics. No one, however, argues that political resources are distributed equally in America. The political agenda consists of those issues that people with decision-making authority believe require government action. The behavior of groups, the workings of institutions, the media, and the actions of state governments have all figured in the expansion of America's political agenda, and understanding how those actors have expanded the agenda—that is, "who governs?"—is necessary to understand the nature of American politics. Similarly, the great shifts in the character of American government—its size, scope, institutional arrangements, and the direction of its policies— have reflected complex and sometimes sudden changes in elite or mass beliefs about what government is supposed to do—that is, "to what ends?" The federal government now has policies on street crime, the environment, homeland security, and many other issues that were not on the federal agenda a half-century (or, in the case of homeland security, just 15 years) ago.