Category Archives: populism

the New Institutionalism, deliberative democracy, and the rise of the New Right

In public debates about issues and problems, we typically consider institutions in two ways. On the one hand, we discuss their explicit purposes and missions, as reflected in the laws that create and govern them or (if they are autonomous) their mission statements and express goals. We ask whether these purposes are good and, if not, how we should change them. On the other hand, we discuss the institutions’ outcomes: what they actually achieve.

For instance, in public debates about public schools, we debate what they explicitly strive for (producing citizens? boosting the economy?) and what they really accomplish in terms of outcomes for students.

We are then frustrated because institutions do not seem to produce their intended outcomes, nor do reforms move them in the intended directions. This may be because of a set of well-known phenomena:

  • Path-dependence: Once an institution has developed in a certain way, shifting it is expensive and difficult.
  • Principal/agent problems: People in institutions have their own interests and agendas (which need not always be selfish); and there is a gap between their assigned roles and their actual goals.
  • Institutional isomorphism: Even when institutions are set up to be self-governing, they come to resemble each other. Witness the striking similarities among America’s 50 state governments or more than 5,000 colleges and universities.
  • Rent-seeking: People within existing institutions often extract goods from others just by virtue of their positions. Economists call these payments “rents.”
  • Bounded rationality: The individuals who operate within institutions have limited information about relevant topics, including the rest of their own institution. Information is costly, and it’s rational not to collect too much.
  • Voting paradoxes: No system for aggregating individual choices by voting yields consistently defensible results.
  • The Iron Law of Oligarchy: Even in organizations explicitly devoted to egalitarian democracy (the classic examples are socialist parties), a few highly-committed and tightly networked leaders almost always rule.
  • Epistemic Injustice: Knowledge is produced by institutions–not (for the most part) by individuals–and institutions favor knowledge that is in their own interests.

New Institutionalists emphasize and explore these phenomena. Their findings suggest either that citizens (meaning everyone who deliberates about how to improve the social world) should become much more attentive to these features of institutions, or else that we are incapable of social analysis because it is just too hard for millions of people to deconstruct millions of institutions. In the latter case, we should abandon ambitious theories of public deliberation and democracy.

New Institutionalism is heterogeneous. For one thing, it is ideologically diverse. Scholars who write about rent-seeking and voting paradoxes are often coded as right-wing, and sometimes they attribute rents mainly to governmental entities as opposed to markets. (Still, those of us on the left should take this issue seriously if we want to design governments that work for people). Scholars who write about Epistemic Injustice are often coded as left-wing; this idea emerged in feminism. The Iron Law of Oligarchy originated on the left, too, with Robert Michels.

New Institutionalism is diverse in other ways apart from ideology. For instance, the version that emerged from Rational Choice Theory is methodologically individualist. It models institutions as the result of interactions among individuals who have distinct goals and limited information. Some other versions of New Institutionalism are explicitly critical of methodological individualism. They attribute causal roles to institutions as opposed to individuals.

There is also a debate about determinism versus chance and choice. Historical institutionalists often emphasize the contingency of outcomes. Due to a random confluence of circumstances at a pivotal moment, an institution gets on a “path” that persists. In contrast, institutionalists who use rational-choice analysis often try to demonstrate that a given institution is in equilibrium, which implies that it almost had to take the form that it does.

Given this heterogeneity, we might begin to wonder whether New Institutionalism is a thing at all. Here is an alternative view: Institutions matter, but so do ideas, values, climates of opinion, identities, technologies, demographic changes, and biophysical feedback (e.g., climate change). Because many factors are relevant, there is often a moment when someone needs to say, “We have been neglecting institutions!” This person usually fails to find adequate resources in the “old” institutionalist authors: Weber, Veblen, Michels, et al. So she naturally calls herself a “New Institutionalist.”

In that case, New Institutionalism is not a movement or a phase in intellectual history. It is a recurrent stance or trope in debates since ca. 1900. As Elizabeth Sanders writes:

Attention to the development of institutions has fluctuated widely across disciplines, and over time. Its popularity has waxed and waned in response to events in the social/economic/political world and to the normal intradisciplinary conflicts of ideas and career paths. … Some classic works that analyze institutions in historical perspective have enjoyed a more or less continuous life on political science syllabi. Books by Max Weber, Maurice Duverger, Alexis de Tocqueville, John Locke, Woodrow Wilson, Robert McCloskey, and Samuel Beer are prominent examples.

Elizabeth Sanders, “Historical Institutionalism,” in The Oxford Handbook of Political Institutions (2008)

Still, a case can be made that we are in the midst (or perhaps the wake) of a New Institutionalist Movement. Sanders observes that classic theories of institutions were “increasingly sidelined … with the rise of behaviorism after the Second World War, particularly with the emergence of survey research and computer technology. …. However, after a hiatus of several decades, the study of institutions in historical perspective reemerged in political science in the 1970s, took on new, more analytical, epistemological characteristics, and flowered in the 1980s and 1990s. Why this reemergence?”

I’d give a slightly different answer from hers. I would note that several ideologies were influential from ca. 1945-1980. Here I don’t define an “ideology” as a form of invidious bias, nor as a mere basket of ideals. It is a more-or-less harmonious combination of ideals, causal theories, grand narratives, exemplary cases and models, and favored institutions. It makes sense of the world and motivates change, including positive change.

By that definition, liberalism, wealth-maximizing utilitarianism, democratic socialism, deliberative or participatory democracy, and Leninism were all ideologies. But none took sufficient account of the phenomena listed above. None was Institutionalist, in that sense. And all have been set back on their heels by the increasing strength and plausibility of Institutionalist research.

This my basis for claiming that New Institutionalism is a movement with consequences. Almost all of the ideological options available in 1968 or 1980 are less confident, less coherent, and less prominent today, thanks in significant measure to Institutionalist analysis conducted since then.

This account applies strongly to the stance that I grew up with: deliberative democracy. It originated in normative political philosophy plus small-scale voluntary experiments that succeeded in their own terms. It never attended enough to Institutionalism, and it now looks increasingly naive.

The main exception is classical liberalism/libertarianism. In the political domain, this ideology faces at least as much trouble as the others do. The libertarian-leaning (but never consistent) Republican Party has been taken over by authoritarian nationalists. However, in the intellectual domain–in the classroom–libertarianism has offered a coherent answer to New Institutionalism. It holds that all the flaws of institutions are worse in monopolistic state organizations than in markets. It can even explain why this insight is not more broadly understood: state schools and nonprofit colleges are run by rent-seekers who oppose libertarian ideas.

I dissent on several grounds (as do thoughtful classical liberals), but I’d still venture that classical liberals weathered New Institutionalism better than their rivals did, which explains a certain confidence in their ranks from ca. 1980-2008.

But now classical liberalism faces the same threat as all the other ideologies. The movement that is being called Populism (although I’d apply that word to other traditions, too) is perfectly calibrated for a world explained by New Institutionalism. Populism begins by denouncing all the institutions around us as corrupt because they unaccountably fail to generate their promised outcomes. It attributes this failure to the treason of elites: people well situated within existing institutions. It describes a homogeneous “us” (usually a racial or national group) that has been betrayed by “them,” the elites and foreigners. And it endorses a strong leader who fights for us against them. It dismisses specific institutional analyses as mere excuses and envisions a simple system that avoids all such Institutionalist problems. In this system, the authentic citizens constitute a unified majority; they select a leader in an occasional vote; and the leader rules.

In the face of this challenge, what are our options?

  • We could embrace the right-wing authoritarian populism. That is morally repugnant. Also, it won’t actually work over the long run.
  • We could ignore the findings of New Institutionalism and barrel ahead with an ideology like deliberative democracy or social democracy. I don’t think that’s smart.
  • We could count on elites to address the flaws of the institutions they lead. I don’t think that will happen, not only because elites are untrustworthy but also because these flaws are hard to fix.
  • We could beat the right-wing populists in other ways: by revealing their corruption, seizing on their missteps, or just running better candidates. This is important, but what happens after a Putin, an Orban, or a Trump?
  • We could re-engineer the institutions we care about by giving more attention to New Institutionalist insights. I think European social democrats have done so, to a degree. Social welfare programs in the Eurozone reflect concerns about path-dependence, feedback loops, principal/agent issues, etc. Deliberative democrats could, likewise, build deliberative institutions that take more account of such problems. This is a worthy approach but it requires compromises. For instance, social democratic systems may have to be less egalitarian to enlist the support of wealthy constituencies. And deliberative democratic forums may have to be made less democratic, for similar reasons.
  • We could enlist a wider range of people than just “elites” to work on the problems of specific institutions. We could make the solutions democratic. That is valuable but a long and slow process.
  • We could educate the public about the inner workings of institutions, their pathologies and solutions. That is important but hard.

I see our work in Civic Studies as a combination of the last two responses.

See also: teaching about institutions, in a prison; a template for analyzing an institution; decoding institutions; a different approach to human problems; fighting Trump’s populism with pluralist populism; separating populism from anti-intellectualism; against methodological individualism.

we are lucky with our right-wing authoritarian

(Washington, DC) At today’s Deliberative Democracy Consortium’s Research & Practice Meeting on “Deliberative Democracy and Human Cognition,” Shawn W. Rosenberg made a point that I have often considered but never expressed.

Here is the background to the point: A broad range of people in many advanced democracies are potential supporters of ethno-nationalism (which means racism in the United States), autocratic leadership, and hostility to opposition parties, a free press, and intellectual critics. In a contest with liberal democratic values, this combination has built-in advantages. It is simpler, less cognitively and emotionally demanding, and more affirming of the people who belong to the ethn0-nationalist in-group.

In the United States, the chief representative of that combination is Donald J. Trump. But he lost the popular vote in 2016 and has never surpassed 45.5% popularity in the polling average. I think this is because he combines the globally ascendant right-wing authoritarian package with: personal indiscipline and frequent incompetence, laziness, blatant small-bore corruption and nepotism, a failure to retain the loyalty of his lieutenants, ignorance of the structures of power, a superficial grasp of his own ideology, and a rhetorical style that impresses only a small minority of Americans (a subset of his own voters).

If and when we face a right-wing authoritarian “populist” who moderates his (or her?) rhetoric skillfully, deploys resources efficiently, develops and implements strategies, sacrifices some personal needs and interests for his ideology, and manages the White House competently, we will be in deep trouble.

On the other hand, we might prove lastingly fortunate if this special moment of opportunity for white nationalism in America (while the national majority is still white but perceives status threat*) is dominated by a man who happens to be very bad at his job.

See also: Trump at the confluence of populism, chauvinism, and celebrity; fighting Trump’s populism with pluralist populism; pluralist populism; is Trumpism akin to the European right? etc.

*Whether status anxiety explains the 2016 election is controversial; but even if it doesn’t, the anxiety still seems palpable.

how not to talk about The People

Maria Bartiromo (Fox News): As the commander-in-chief, as the president of this great country, what can you do to bring us together?

Donald Trump: Our people are so incredible. …  Do you know, there’s probably never been a base in the history of politics in this country like my base. I hope the other side realizes that they better just take it easy.

As Jonathan Chait notes, Trump equates “us,” the people of America, with “the people who voted for him.”

This is the rhetorical move that Jan-Werner Müller, in his globally influential book (2016), uses as the definition of “populism.” Populists “claim that they and they alone represent the people. All other political competitors are essentially illegitimate, and anyone who does not support them is not properly part of the people. … Elites are immoral, whereas the people are a moral, homogeneous entity whose will cannot err.”

Müller has previously quoted Trump–“the only important thing is the unification of the people – because the other people don’t mean anything”–as evidence that the current president is a populist, in this bad sense of the word.

I agree that the slippage between Trump’s supporters and “the people” is a very bad sign. However, it is not straightforward to define populism (meaning a problematic phenomenon) in this way. Trump says many things and is inconsistent in his appeal to “the people.” Meanwhile, a wide variety of political actors also depict the public as a homogeneous entity that is on their side.

Some of them define “the people” in racial or ethno-national terms. That tendency seems more accurately described as racism or xenophobia than as populism, especially if anti-racists like Venezuela’s Hugo Chávez count as populists (as Müller would suggest).

And sometimes it is the strongest champions of democratic institutions who use rhetoric that looks populist according to Müller’s definition. For instance, Jimmy Carter presented himself as an ordinary American (a peanut farmer and a Christian, not a Washington politician) who could best reflect the values shared by all Americans (Johnstone 1978). Carter invoked a unitary public and promised to connect directly to the people, unmediated by interests and organizations. His Inaugural Address could be coded as populist rhetoric, in Müller’s sense of the word. Yet Carter was committed to constitutional limits, respected his critics and the opposition, and made the promotion of democratic freedoms a centerpiece of his agenda.

Thus it is not clear that searching for Müller-style populist language will identify actors who are hostile to democratic institutions and processes. There is an upsurge of repression around the world—and it is not limited to racists and xenophobes—but there is a better word for it than “populism.” That word is “authoritarianism.”

For the purposes of empirical research, I would dispense with “populism” in the Müller sense and look instead for authoritarianism and racism as distinct but sometimes overlapping phenomena that are ascendant in our time.

Müller is, however, right that there are pitfalls to invoking a unitary public that is on one’s side–or defining one’s side as “the people.” This is an excuse for trampling on rights, whether your opponents are demographic minorities and immigrants (the right-wing variant), or corporations and the rich (the left-wing version), or extremists (the centrist version). It’s always better to recognize the legitimacy of the actual human beings who disagree with you and who vote for the other side.

Citations: Jan-Werner Müller, What Is Populism? (Philadelphia; Universoty of Pennsylvania Press, 2016), p. 101; Christopher Lyle Johnstone, “Electing Ourselves in 1976: Jimmy Carter and The American Faith,” Western Journal of Speech Communication, vol. 42  Issue 4, *Fall 1978), p. 241-249. See also Trump at the confluence of populism, chauvinism, and celebrityfighting Trump’s populism with pluralist populismseparating populism from anti-intellectualism and two kinds of populism.

coming soon: Democracy’s Discontent and Civic Learning

Now available for pre-ordering is Charles S. White (ed.), Democracy’s Discontent and Civic Learning: Multiple Perspectives. Chapters include:

  • “The Populist Moment,” by William A. Galston.
  • “Populism, Democracy, and the Education of Citizens,” by Thomas S. Vontz and J. Spencer Clark, (with Stephen L. Schechter).
  • “Are Europe’s Democracies in Danger? A View of the Populist Challenge,” by Karlheinz Duerr.
  • “Confronting a Global Democracy Recession: The Role of United States International Democracy Support Programs,” by Liza Prendergast
  • “Democracy’s Pharmakon: Technology as Remedy and Poison,” by Charles S. White.
  • “Judicial Legitimacy in the Age of Populism,” by Alison Staudinger.
  • “Fulfilling the Promise of Democracy: How Black Lives Matter Can Foster Empowered Civic Engagement,” by Amy J. Samuels and Gregory L. Samuels.
  • “Does P–12 Educational Research Ameliorate or Perpetuate Inequity?” by Jacob S. Bennett.
  • “Democracy’s Discontent and Teacher Education: Countering Populism and Cultivating Democracy,” by Stephanie Schroeder.
  • “A Primer on Trump Economics: Populist or Something Else?” by James E. Davis.
  • “Going for Depth in Civic Education: A Design Experiment,” by Walter C. Parker. With responses:
    • “What Public Philosophy Should We Teach? A Reply to Parker,” by Peter Levine
    • “Fidelity of Implementation: A Reply to Parker,” by James E. Davis
    • “Contrasting Landscapes: A Reply to Parker,” by Karlheinz Duerr

Trump at the confluence of populism, chauvinism, and celebrity

Donald Trump says many things. Some are innocuous and banal. Quite a few are inconsistent. And some provide evidence that he belongs in these three categories:

  1. A “populist” in the particular sense proposed by Jan-Werner Müller. (I also like to retain more positive definitions of the same word.) For Müller, a populist is someone who believes that the whole authentic people is unified behind a set of values that the populist leader explicitly expresses. Therefore, the opposition is illegitimate. Elections that favor the populist leader are sacrosanct, and anyone who criticizes or strives to reverse these results is an enemy of the people. But elections that challenge the populist must have been rigged or stolen. “A los amigos, justicia y gracia. A los enemigos, la ley a secas.”
  2. A chauvinist, meaning someone who explicitly and apologetically favors an in-group and disparages an out-group. In the United States, racism is a major variety. But in some other countries, the leading chauvinists are inspired by religion or nationality instead of race.
  3. A media personality who projects a combative personality, who disparages opponents, who cultivates “outrage,” who “seem[s] to always react to controversy and even aversion by leaning into it,” and who claims honesty or authenticity on the basis that he says things that give offense or cause pain–except not to his core audience. This style is prevalent on talk radio, certain reaches of cable news–but equally important, in supermarket tabloids, WWF, and reality TV shows like The Apprentice.

These three categories need not intersect. You can be an outrageous media personality who isn’t a populist or a chauvinist, a chauvinist who isn’t a celebrity, etc.

None of these categories is new. White Supremacy has been near the center of American politics since the beginning. Various forms of populism and chauvinism were much more extreme around the world in 1939 than today. But there does seem to be a global boom of unapologetic chauvinist populists who use media effectively.

The right doesn’t own these categories, and the left doesn’t consistently avoid them. I know plenty of people who believe that the Tea Party is pure Astroturf, a creature of right-wing billionaires. That is a populist move in Müller’s sense: it declares a large number of actual Americans to be illegitimate participants in politics. By the way, it’s different if you hate and fear your political opponents. That is partisanship, but not populism, so long as you acknowledge that your opponents are fellow citizens and you must share politics with them.

We’ve seen plenty of examples of these categories, but we have never had a president who fits all three. The combination poses a severe threat to our institutions and world peace.

Insofar as the problem is populism (in Müller’s sense), then I think an electoral shellacking will be the best remedy. Even if Republicans lose the 2018 election badly, the strongest Trump supporters (30-40% of the population) will continue to think that he speaks for the whole genuine American public and the election was rigged. However, Trump can’t govern without conservative and business elites. I think they will abandon him if they see that he is dragging them into the minority.

By the same token, if Republicans do better than expected in ’18, and/or Trump is reelected, we are in for much more populism. And if Trump’s presidency ends for a relatively extraneous reason, such as personal criminality, then the picture will be muddy enough that populism will remain an attractive option. (I often think that we are fortunate in our populist; if he were smarter and more disciplined, we would really be in trouble.)

Apart from elections, we have two other assets in the struggle against Müller-style populism. One is pluralist populism , which portrays “the people” as highly diverse (I discuss that rich tradition here).

The other is genuine conservatism. Real conservative thought is diametrically opposed–in principle–to the idea that any government can ever be authorized by a unitary public. The left/right spectrum originated in the French Revolution, and the Jacobin left was the populist side, in Müller’s sense. Conservatism emerged in reaction to the revolutionaries’ claim to a popular mandate, and great conservative thinkers have always opposed such claims. Many Republican politicians will go along with Trumpian populism as long as it wins elections; but conservatives will denounce it from the rooftops. The question is how many conservatives actually exist.

Insofar as the problem is chauvinism (meaning, in the USA, racism, religious bigotry, and sexism), then it’s the next chapter in a basic American story. Progress is hard-won and tends to have a zigzag pattern. I am a fan of Barack Obama for other reasons than his race, but it is significant that he was the first leader of a majority-white nation to have modern African ancestors–and the first US president in modern times to have a foreign father. That was the zig; Trump is the zag. The struggle continues.

Finally, insofar as the problem is celebrity politics, I am actually optimistic. I believe that Trump came first in a crowded and splintered Republican primary field because his persona appealed to a minority of the US population. He then beat Clinton in the Electoral College because partisan polarization gave him most Republican votes in key states, and she was deeply unpopular. Compared to a generic incumbent president who enjoys a strong economy and who hasn’t actually passed any controversial legislation (other than a tax cut), Trump is remarkably unpopular. And a key reason is his style. So I think acting like a reality TV star exacts a political cost and is not likely to be replicated.