Category Archives: deliberation

using federal spending to strengthen democracy

The federal government is authorized to spend an additional $2 trillion over the next 10 years through the Bipartisan Infrastructure Law, the CHIPS and Science Act, and the Inflation Reduction Act. I support many of the priorities in these laws.

But government spending should be democratic–at several levels. Operating in a democratic way is consistent with justice and is most likely to be sustainable, because people will feel relatively supportive of government programs that engage them. This is the version of social democracy or Great Society liberalism that I can get behind.

What does spending money democratically mean? First, a fairly elected, deliberative legislature should allocate the funds into large categories. That pretty much happened with these bills (acknowledging many imperfections).

Then the federal agencies and state and local governments that administer the funds should engage relevant communities in deciding how to spend the money in detail and should form partnerships with groups (which may not be federal grantees) to accomplish the intended outcomes of the spending. Finally, the funds should allow many people to be hired and given a voice in the programs–including those who do the blue-collar work.

Spending on public transportation is a good example. The White House says there will be “$89.9 billion in guaranteed funding for public transit over the next five years — the largest Federal investment in public transit in history.” This investment has potential benefits for climate, racial equity, and convenience and quality of life.

States and cities will receive portions of this money. They should give their communities appropriate voice in deciding what and where to build. They should form partnerships with community groups whose goals align (e.g., community development corporations that can build dense housing near the transit). And they should employ workers–often via contracts with businesses–who have a say and who see pathways to influential Green careers.

This approach is inconsistent with libertarian conservatism, which opposes the spending in the first place. It is also inconsistent with technocratic progressivism, which views community engagement with deep skepticism. Doesn’t “engagement” mean NIMBY groups that block valuable projects in their neighborhoods, well-resourced companies that grab government contracts, and process-driven delays that dilute the benefits for both environment and racial equity?

The truth is, public engagement must be done well. A one-time public meeting in which citizens line up at the microphone to yell at public officials–that is a recipe for disaster. A worthwhile process takes planning and money. It requires training and technical support for the federal civil servants, local public employees, and activists who are involved. Since no single training program can accomplish very much, success requires building experienced bodies of employees who have run processes before and have learned to do them better.

We have not tried this approach for many decades in the USA–not since the Great Society, which tried various experiments in community engagement under the heading of “Maximum Feasible Participation” (with mixed success).

Reagan depicted government as the problem, although federal outlays per capita, adjusted for inflation, rose rapidly during Reagan’s term and only stabilized under Clinton. Also, despite a rhetorical commitment to hiring contractors instead of career civil servants, the civil service actually grew in that era. However, I think that federal capacity for public engagement shrank, outside of certain notable programs. More importantly, Congress launched or redesigned very few social programs after the late 1960s. That means that most federal money has flowed into well worn channels, offering limited opportunities for deliberation about what and how to spend.

Then, when the Obama Administration got a chance to allocate a substantial amount of new money in the 2009 stimulus, the progressive technocratic approach clearly won out. Efficiency was the by-word. Funds went to “shovel-ready” projects that were seen as offering the quickest return, or to initiatives informed by behavioral economics that were supposed to “nudge” people without them even being aware, or to competitions (like “Race to the Top”) that were meant to leverage non-federal funds. There was no sense that the public would be involved in defining and solving national problems along with the federal government.

Democratic spending is the path not taken, at least not since ca. 1965. We should find out whether it can produce sustainable, popular, and fair social outcomes in ways that we have not seen in my lifetime. That requires:

  • Setting aside tiny but real percentages of the federal funds for democratic and deliberative processes and for the training and technical assistance that they require. I am not sure to what extent those purposes are authorized under current law. If it is impossible to spend federal funds this way, then philanthropy should step up.
  • Considering new rules, such as offering special grants to communities that can demonstrate that they have reached agreement about priorities across traditional lines of difference, such as race, partisanship, or urban/suburban/rural divides. I’d be especially interested in agreements that bridge distant communities, such as coal towns and East Coast cities.
  • Intellectual leadership: influential people should articulate the value of public engagement. In the Obama Administration, the president did that, albeit somewhat vaguely. No members of his cabinet and hardly any liberal public intellectuals backed him up. The stimulus package and Obamacare came across as strictly technocratic and were assessed only for their outcomes (while democratic culture waned). We need more effective voices to defend democracy this time.

When David Meyers of The Fulcrum asked me yesterday to comment on the fact that the public identifies “the government” as the biggest problem facing us today, I replied that the most promising solution is to spend money democratically. My reply was rooted in the best traditions of the New Deal and Great Society (as I see them), but it’s a fairly marginal view today. It’s an alternative to three prevalent assumptions: that democracy is mostly a matter of fair electoral processes, that activated citizens are often a nuisance, and that protecting democracy means uplifting some kind of political center. I think we must exercise power to improve the world, but do so in ways that empower our full diversity of people in their roles as citizens.

See also: the Green New Deal and civic renewal; the new manipulative politics: behavioral economics, microtargeting, and the choice confronting Organizing for Action; Democrats as technocrats; Hillary Clinton on spending for infrastructure; the long march through institutions–for civic renewal; the big lessons of Obamacare; empowering citizens to make sure the stimulus is well spent; etc.

assigning students to write cases

I think of a “teaching case” as a true story that culminates in a difficult decision that has confronted an individual or group. The decision is typically difficult because of conflicting values, incomplete information, and unpredictable outcomes. A teaching case is useful as a prompt for discussion and to teach the disposition of acting wisely under uncertainty, or phronesis. I especially like cases in which groups must decide collectively, because those stories allow attention to the dynamics of group decision-making. Here is a selection of such “civic” cases: https://sites.tufts.edu/civicstudies/case-studies/

This semester, I have been co-teaching a course with Jennifer Howe Peace, who has extensive experience not only leading discussions based on teaching cases but also assigning students to write such cases. We did just that this fall. Each of our students selected a real-world situation, conducted research, wrote a 2-3 page case about it, and led a discussion.

I recommend this pedagogy for teaching the following essential civic skills:

  1. Identifying decisions worthy of discussion. Actual groups often overlook or evade decisions that they should discuss and spend time on matters that don’t require deliberation. (See “a flowchart for collective decision-making in democratic small groups.”) Writing a case means choosing a topic that should be discussed.
  2. Identifying the tradeoffs and other difficulties, such as incomplete information and unpredictability.
  3. Identifying who is in a position to make which choices. It is a costly distraction to ask what someone should do if they can’t do it. A good written case centers on one or more protagonists who are able to choose.
  4. Deciding when to start and end the story. This side of the Big Bang, every story has emerged from many previous ones. The web of human interaction has no beginning. The choice of when to start a written story frames it for readers; it is an act of judgment. (For instance, does the story of the USA begin in 1492, 1619, 1776, 1789 …?) Writing a case teaches the skill and ethics of picking beginnings and endings well.
  5. Eliciting interest and attention. A well-written case makes its readers interested. Getting people’s attention is a basic civic skill.

See also: A Festival of Cases, June 24; three new cases for learning how to organize and make collective change; practical lessons from classic cases of civil disobedience; Levinson and Fay, Dilemmas of Educational Ethics; Bent Flyvbjerg and social science as phronesis;

civic leverage

The illustration with this post illustrates an idea from my book What Should We Do? A Theory of Civic Life, but it is not included in the book (because I just thought of it.)

The circle labeled “institutional design” refers to a process of establishing rules, norms, membership criteria, etc. for any group. Unless an institution evolves from its predecessors, it is usually designed by a single founder or a small leadership team. An inchoate collection of people cannot design an institution from scratch. Only once the design is reasonably effective will many human beings be able to coordinate their behavior sufficiently to accomplish anything worth discussing. The options for designs include democratic processes, market mechanisms, strong leaders, bureaucratic structures, and many more.

From a civic perspective, a good institution is one that encompasses some variety of perspectives and values and that enables its members to express their contrasting views in ways that inform the whole. The circle labeled “conversation about values” can mean a deliberative democracy, but it can take many other forms as well. For instance, although the Catholic Church does not purport to be a democracy, it is a rich platform for discussion and debate. Conversations about values increase the chances that a group will make wise choices and allow individuals to exercise voice and agency, which is part of a good life.

When people in a functioning group discuss values, they may motivate themselves to make sacrifices (the third circle in the diagram). Even an ordinary voluntary association asks people to spend time attending its meetings. A movement that confronts violent repression may ask its participants to put their lives at extreme risk. The degree of contribution varies, but some level is inevitable. “Organization is sacrifice,” as WEB DuBois once wrote.

Sacrifice can affect the original institutional design. For instance, an ordinary voluntary association will wax or wane depending on who gives time and money, and how much. A social movement may change the fundamental structure of the government itself.

This cycle must occur at a human scale. It’s about discussion, relationships, and individuals’ impact on groups. Participants must know one another. The maximum number of people who can engage together is not clear, but it is much less than the eight billion people who share our earth today. Thus the limitation of this cycle is its size in comparison to the scale of our problems.

The answer must be leverage–smallish groups affecting much larger groups by influencing governments, markets, corporations, or media-producers.

Leverage affords power, but it is problematic because it is unidimensional: some people affect others without knowing them or hearing from them. I think we must accept the moral disadvantage of leverage, but we can mitigate it by expecting the people who exercise power over others to do so as members of groups that are somewhat diverse and porous (or connected to other groups) and that go through the cycle of institutional design, conversation about values, sacrifice, and re-design. That process increases the odds that they will be wise in their treatment of strangers.

See also du Bois: “Organization is sacrifice.”; the kind of sacrifice required in nonviolence; a flowchart for collective decision-making in democratic small groups; both detailed institutional analysis and holistic critique;  a template for analyzing an institutionComplexities of Civic Life, etc.

dialogue and de-radicalization

Some people argue that the deep problem with US democracy is polarization. I have some doubts about that thesis.* However, let’s assume it contains at least some truth. One possible remedy is direct: recruit people from opposite sides of our political divide to engage in dialogue so that they develop empathy and perhaps discover some common ground.

This remedy implies a moral equivalence between the ends of the spectrum, which I cannot endorse at a time when one end is flirting with fascism. It may imply a bias toward the political center. And it asks people who are targeted by hate to participate in encounters that may be difficult or even dangerous for them. I appreciated Stanford Prof. Hakeem Jefferson’s response to an experiment that brought representative Americans together across ideological divides:

Fair enough, but then how should we go about de-radicalizing people? In a report for the Democracy Fund, Andrew Blum assembles evidence from international sources that support eight types of intervention:

  1. Assistance to individuals who want to exit from violent-extremist groups
  2. Targeted outreach to individuals who are at risk of extremism
  3. Voluntary codes of conduct for political and community leaders and media figures
  4. Intergroup engagement
  5. Setting norms against violence in existing groups
  6. Peace education
  7. Documenting and tracking acts of political violence
  8. Improving police-community relations

Number 4 on this list encompasses dialogues between people who hold strongly opposing views. Thus dialogue is one of several strategies for de-radicalization that have empirical support. Blum argues that many of these approaches should be combined in a coordinated way, and he offers examples of communities, like Medellin and Oakland, that have done so.

Similarly, john a. powell argues that dialogue (or more precisely, “bridging”) is a remedy for toxic polarization, but only if the process attends to deep inequalities. People should not be asked to talk under conditions of oppression.

We should address all forms of violent political extremism. In the USA today, I think a large majority of the people who would meet a neutral definition of violent extremists would be right-wingers, but if there are left-wing extremists (or centrist ones), they need attention, too.

I encountered both sources cited above at an excellent meeting of the Kettering Foundation. See Andrew Blum (2021) The Costs of Political Violence in the United States: The Benefits of Investing in Communities, Democracy Fund; and john a. powell, Overcoming Toxic Polarization: Lessons in Effective Bridging, 40(2) Law & Ineq. 247 (2022), DOI: https://doi.org/10.24926/25730037.645.

*class inversion as an alternative to the polarization thesis; affective polarization is symmetrical; the “America in One Room” experiment etc.

a flowchart for collective decision-making in democratic small groups

I few days ago, I proposed that Jane Mansbridge’s great book Beyond Adversary Democracy can suggest practical tools that would assist democratic groups as they make decisions. Such tools should be tested and revised, based on experience in the field.

As a first step, I provide this flowchart (above). The first step is to conduct a survey. The questionnaire would have to be carefully designed, but it could be customized easily for other organizations. Members of the group would be asked what they care about, their attitudes about process, and their social identities and roles within the organization. The survey would yield data that could then inform how the group makes decisions about each issue that the respondents mention.