Category Archives: academia

in defense of institutions as “garbage cans”

In a 1972 article that has been cited nearly 15,000 times, Cohen, March and Olsen wrote that “an organization is a collection of choices looking for problems, issues and feelings looking for decision situations in which they might be aired, solutions looking for issues to which they might be the answer, and decision makers looking for work. … To understand processes within organizations, one can view a choice opportunity as a garbage can into which various kinds of problems and solutions are dumped by participants as they are generated” (Cohen, March & Olsen 1972).

Cohen and colleagues derived their “garbage-can model” by observing a university. To illustrate it, we might imagine a professor who consistently advocates that a new position be created in a specific field. As time passes, this professor presents her proposal as a solution to many different problems. Sometimes it’s a way of meeting students’ declared needs; other times, a way of preparing them for the job market or challenging their values.

This professor drifts in and out of various conversations, sometimes serving on a key committee, sometimes absent on leave. And she is just one of a few thousand advocates for competing proposals who compose the faculty and the administration. In the institution as a whole, there is no explicit, shared understanding of what problems should be solved. People keep throwing diverse proposals into the bin, with constantly shifting rationales.

This is my hypothetical example, but I think it illustrates the formal model of Cohen et al. (which they represent with a Fortran program). They debunk the assumption that organizations are “vehicles for solving well-defined problems or structures within which conflict is resolved through bargaining.” And they conclude, “It is clear that the garbage can process does not resolve problems well.”

In his classic book from the subsequent decade, Agendas, Alternatives, and Public Policies, John W. Kingdon cites the garbage-can model and comments, “On the face of it, this looks a lot like the federal government” (Kingdon 1984, p. 85). Kingdon develops a respected model of “organized anarchy” to describe US policymaking that draws heavily on the article by Cohen et al. However Kingdon is a bit less judgmental. He notes, “messy processes have their virtues” (p. 183). I would like to explore those benefits.

One basic assumption I would offer is that programs never simply work. Schools, doctor’s appointments, rural development projects, therapy sessions–these things are either beneficial, neutral, or harmful depending on how they are implemented. Human capital is always essential–i.e., the preparation, selection, and motivation of the people involved. And these people must always attend to the specific context and the communities they serve. Therefore, we can hardly ever demonstrate in the abstract that a proposal is the solution to a problem. Instead, individuals and groups are entitled to work on making their favored initiatives beneficial. Individuals ought to be loyal to specific ideas and to the other people who support them.

The other assumption is that we often rationalize when we make arguments. When we say why we favor a decision, the reason we give is not actually the explanation of our view. We originally favored a given position for reasons that are often opaque even to ourselves, and these reasons may involve bias and self-interest. We then come up with rationales for public consumption.

However, the psychologists Hugo Mercier and Dan Sperber (2017) argue that when we listen to other people rationalize, we are decently good at assessing their arguments and sometimes open to changing our views as a result. Kingdon anticipates their point when he writes about policymaking in Washington, DC:

Even if argumentation is nothing more than rationalization, it is still important. Some events may be governed by lobbying influence or by judgments about clout at the polls, but government officials still try to reason their way through problems.

Kingdon 1984, 126.

Consistent with his account, I would posit that officials mostly “reason” by critically assessing and comparing the rationalizations that are given to them by interested parties.

If these two assumptions are correct, then it may be healthy for an organization to consist of many advocates who are loyal to their own ideas and able to change the rationales for their proposals as their audiences and circumstances shift. Other people should listen to their rationalizations and decide what to do. Those who make proposals should be held accountable for helping to implement them if their ideas are adopted.

To use an example from Kingdon, advocates of federal funds for urban mass transportation first argued that it would cut traffic, then that it would reduce pollution, and then that it would diminish US reliance on foreign oil. A transit advocate told Kingdon, “You want to do something and you ask, ‘What will work this year? What’s hot this year that I can hang this on?” (p. 173).

I know little about mass transit advocates during the period that Kingdon describes (ending in the early ’80s). Some of them may have been self-interested in the narrowest sense, e.g., paid to lobby on behalf of companies that would win contracts to build mass transit. Others may have manifested a higher form of self-interest. For example, if you love New York City, you might have a bias for mass transit, because federal funds for subways would flow to your community. Still others may have favored mass transportation for a mix of reasons, from personal experience to political ideology to loyalty to colleagues.

I don’t think the best question is why people really want what they advocate. The important question is whether the federal government should fund mass transit. Subways and buses are “solutions looking for issues to which they might be the answer.” It is good to have such options.

This example comes from federal policy, but similar behavior is familiar in universities and other parts of civil society. As the winds shift, an advocate of community service may switch her rationale from democracy, to job-training, to social-emotional learning. Again, this is not bad if service projects have some merit. It should not surprise us that the same intervention may serve multiple goals. More importantly, it is not really true or false that service projects are good. They will be beneficial or harmful–for various purposes in various contexts–depending on how the people involved use them. (The same is true of mass transit, which has sometimes had catastrophic effects.) What we want are committed advocates for a range of plausible ideas, and it’s much less important what they advocate.

This means that when I look out at my own institution and others, I am reasonably tolerant of the messiness of what Cohen et al. would call the “garbage can.” A large organization should include many people who have partly incompatible underlying values and who want to do different things. There may be some value to discussing shared goals in larger forums, such as faculty meetings, but we shouldn’t hope for consensus about both means and ends. Key questions are often of this type:

  • If we did what Person A advocates, would we be able to count on that person and others to carry it forward? How much should we rely on their dedication, ethics, and skill?
  • If we decided to do what A wants, what are some immediate steps for which we already have the necessary resources, and how far would those steps take us? Do we have a prospect of finding additional support later on?
  • Since Person B is advocating something else, what can we do for B if we say yes to A? Can we simply acknowledge that B has lost out for now and thank them for their forbearance? Or do we risk losing them? Could we satisfy both A and B? (But what about C and D and E?)

In short, I’m pretty comfortable with moving from an organization-centered model, in which the goal is to “solve well-defined problems,” to a people-centered model, in which the goal is to enable individuals to advocate, act, and thereby grow in skill and wisdom.

This is a case for decentralization and against elaborate planning. I admit that I have a hard time taking strategic planning documents seriously and am much more interested in assessing the commitment and resources of various people in my environment. I have less tolerance for arguments of the form “This should be done” than for arguments that begin, “I want to be able to help us do this.”

I also tend to expect the most dynamic ideas to come from people who are directly involved in the organization’s work (e.g., professors who are currently teaching and researching, or civil servants who conduct federal programs, or indeed their students and service-recipients). I view senior leaders as people whose necessary task is to allocate scarce resources among the ideas that come before them. Leaders should consider the strength of arguments, but they should be equally concerned to attract and retain diverse talent. And, of course, leaders need to be accountable–not only for their specific decisions but also for the overall climate of the organization.

Following the line of argument from Cohen et al. to Kingdon, I have combined a university and the federal government into the same discussion. Obviously, they differ. For one thing, there are almost 3 million federal employees, whose salaries are paid by more than 300 million residents, who affect 7 billion human beings. These numbers are orders of magnitude larger than those in any educational institution. As a result, there must be much more distance between the formal decision-makers in the federal government (members of Congress and the cabinet) and frontline workers than should exist in any university. Still, Kingdon saw genuine similarities, and we might adopt similar fundamental values in both cases.

Sources: Cohen, M. D., March, J. G., & Olsen, J. P. (1972). A garbage can model of organizational choice. Administrative science quarterly, 1-25; Kingdon, J W. 1984/2011. Agendas, Alternatives, and Public Policies, Updated 2nd ed. Longman York, NY: HarperCollins; Mercier, Hugo and Dan Sperber, The Enigma of Reason, Cambridge, MA: Harvard University Press 2017. See also: democracy’s sovereignty; loyalty in intellectual work (from 2017); making our models explicit; a flowchart for collective decision-making in democratic small groups.

Civic Studies as a response to crises in American higher education

This is a panel at the American Enterprise Institute yesterday, part of a daylong conference on “The Future of the American University: Civic Education, Past and Present.” I am on the panel with Justin Dyer, the dean of the new School of Civic Leadership at the University of Texas at Austin, and our moderator, AEI’s Yuval Levin. I made a case for Civic Studies as a new field and then enjoyed the discussion with my two colleagues and the interesting questions from the audience.

The rest of the day was interesting and valuable and can be explored here.

on the current crisis

Almost every day, I am in conversations about protests on US college campuses. Some of these encounters take place at Tufts (in committees or one-on-one with students and colleagues), but I have also been part of discussions at Stanford, Harvard, and Providence College, and in DC–just to mention events during April.

In decades past, I would have posted frequent reflections here. These days, I am relatively quiet. I hear the argument that people in positions like mine should speak out more. I think I disagree, for four reasons.

First, although taking positions can be appropriate, or even obligatory, it can create challenges if one wants to facilitate open discussions in settings like classrooms or if one wants to advise and help people who have divergent views. I am privileged to receive requests for advice from people with almost the full range of positions on Israel/Palestine, and my interpretation of my own professional role is that I ought to try to help them all.

Second, I often find myself wrestling with what individuals have said in various settings. Sometimes I am moved, challenged, and educated, and sometimes I am somewhat appalled. However, these tend to be confidential statements that are not suitable for public assessment.

Third, although I believe that everyone has a right to form and express opinions, there is also value in talking when you have a solid basis for your views and listening when you don’t. Restraint is especially important for people in my kind of position (as a full professor and associate dean)–people whose opinions may have more weight than they deserve. Just because I teach Civic Studies does not mean that anyone needs to listen to me about Israel/Palestine.

Fourth, there are other people who should be heard: those whose views are well-informed, complex, and challenging in various ways. I feel an obligation to find and share those voices but not to compete with them. (Just as one example: “Najwan Darwish on living in doubt.”)

For whatever it may be worth, my views on Israel/Palestine would probably align best with “What being pro-Palestine means to me / my platform” by Ahmed Fouad Alkhatib. He is sharply critical of both Hamas and the Israeli government. My views on campus speech and civil disobedience are libertarian, with a strong tilt toward countering speech with speech instead of banning or punishing it. (And yes, that does also apply to really nasty speech.) In thinking about movement tactics and strategy, I’d go back to Bayard Rustin’s “From Protest to Politics” (1965). I’d interpret nonviolence not as a set of restrictions (i.e., don’t cause physical harm) but as a powerful repertoire of strategies that can accomplish political goals while increasing the odds that the activists themselves will be wise. (Please join this summer’s Frontiers of Democracy conference for more discussion of that topic.) Finally, I would support efforts to promote dialogue and listening across differences, but not to the exclusion of adversarial rhetoric, which is also essential in a democracy.

The previous paragraph was something of a disclosure, and I will regret making it if it discourages people who disagree with any of it from engaging with me.

the humanities as civic education

Heads bent over copies of the same text, young people discuss how the author presents matters of high moral import. Their teacher is a facilitator who asks thoughtful questions and demonstrates reading with attention and care.

This is how I was introduced to college, through the Directed Studies “great books” program at Yale in the 1980s. Similar methods persist and are being revived at institutions like Stanford, which has recently enacted a Civic, Liberal, and Global Education requirement.

The approach dates back at least to 14th-century Italy, when Cicero’s phrase studia humanitatis became the name for a curriculum and pedagogy designed mainly for future political leaders. We might render his phrase (from Pro Archia 2:3) as the “studies appropriate for making people humane or urbane.” Gradually, a humanista became the word for a tutor–often a layman–who helped gentlemen read literature, history, and moral philosophy in order to become eloquent and virtuous. This is the origin of the “humanities,” a word that has been closely associated with notions of civic leadership and civic virtue.

I appreciate this humanistic style of civic education and would support using it more widely. By the way, there is no good reason to restrict the assigned texts to a portion of the world labeled “The West” or to label the curriculum “Western Civilization” (using a phrase that’s not very old). Texts can come from anywhere, although it makes sense to choose traditions or dialogues that extend across time. For example: from the Bhagavad Gita and the Gospels to Thoreau, Tolstoy and Gandhi. Or from the Republic to al-Farabi to Utopia to Rousseau to the Communist Manifesto to the Ayatollah Khomeini.

However, this version of humanistic civic education conflicts with several other plausible educational theories.

One rival idea is that the humanities are cumulative research programs that benefit from specialization. On this account, we don’t want a person who wrote a thesis about Plath to teach Plato. Plato should be taught by a scholar who knows Greek, the original context, and the recent literature and its interpretive problems. Reading texts from across time and space is amateurish. It extracts the texts from their contexts and teaches students that they are free to form opinions without doing much homework.

Another rival idea assumes that citizenship is really about addressing current social problems. In that case, the most important intellectual skill is understanding and applying relevant empirical information. Instead of reading Plato or Plath, students should create literature reviews of recent social science and learn how to assess abstracts, methodology sections, and results critically. Quantitative skills become more important; interpreting texts, less so.

A third idea is that people should prepare for responsible civic engagement by learning a set of concepts. We can debate the list, but it might include separation of powers, opportunity costs, social stratification, and habeas corpus, among (many) others. Maybe students won’t remember long lectures or textbook assignments about these topics, in which case a more engaging pedagogy would be more effective. But the point is to transfer such concepts to the learners.

A fourth idea is that civic learning must be deeply experiential because it is primarily about interpersonal relationships, practical knowledge, and an appreciation of one’s specific communities. It cannot come primarily from books. Alexis de Tocqueville and John Dewey are famous proponents of the idea that we should learn the arts of citizenship from civic engagement outside the classroom.

It’s tempting to endorse all five of these ideas, but they trade off, especially given limited time and resources.

See also: core curricula without the concept of the West; “The world wants the humanities”; the public purposes of the humanities (a brief history)–from 2013;

against using the humanities instrumentally

Imagine this scenario: most college students major in humanities disciplines, while the applied sciences languish. The National Endowment for the Humanities spends 250 times as much money as the National Institutes for Health, instead of vice-versa.

Kindly humanists recognize the value of the applied sciences and gather among themselves to consider how to involve their STEM colleagues in their research. For instance, some humanities professors might be working on the 2025 presidential theme of the Modern Language Association: visibility and invisibility in various kinds of texts. Others are addressing the theme of the American Historical Association’s presidential address: “conversations with the dead.” After brainstorming ways for STEM colleagues to contribute to these agendas, they might come up with proposals. Maybe computer scientists could build a website for presenting the invisible aspects of texts? Come to think of it, the WiFi in the Humanities Center seems a little unreliable–could the Comp. Sci. department help with that?

This is satire, but I want to challenge well-intentioned ways that STEM researchers and administrators often view the humanities. Basically, they assume that important agendas come from the applied sciences, including the biomedical fields. The humanities are worth consulting in two main ways.

First, humanists might be able to address the ethical questions that arise in engineering or health projects. In my view, applied ethics is important, but it involves a tiny proportion of humanists. Besides, if the agenda is already determined, then the ethical horizon is narrow. For example, the question is not whether to have private tech. companies, but how they should design AI tools.

Second, STEM people sometimes hope that humanists can help with communication–they can frame convincing messages for the public good. But humanists are more typically interested in reading against texts, or understanding the relationships among texts, or interpreting especially complex texts that are not particularly accessible, or challenging the assumptions in texts. Studying these questions does not make one particularly good at communicating with broad audiences.

I believe in the engaged or public or civic humanities. I don’t think that humanities professors should set their own agendas in isolation and expect society to pay for their work. I argue that humanists must engage the diverse public in two-way conversations, affecting the public debate while also responding to it.

Therefore, I see value in interdisciplinary projects that originate in the STEM disciplines and that involve limited numbers of humanists. As a philosophy PhD, I often find myself in such roles and enjoy them. But most of the potential is lost if the STEM fields always set the agendas and if the humanities are seen as merely useful around the edges.

See also: “The world wants the humanities”; what the humanities contribute to interdisciplinary research projects; Tisch Program in Public Humanities