Justification+for+Democracy



 We can evaluate democracy along at least two different dimensions: consequentially, by reference to the outcomes of using it compared with other methods of political decision making; or intrinsically, by reference to qualities that are inherent in the method, for example, whether there is something inherently fair about making democratic decisions on matters on which people disagree.  **Instrumental Arguments in Favor of Democracy ** Two kinds of in instrumental benefits are commonly attributed to democracy: relatively good laws and policies and improvements in the characters of the participants. John Stuart Mill argued that a democratic method of making legislation is better than non-democratic methods in three ways: strategically, epistemically and via the improvement of the characters of democratic citizens (Mill, 1861, Chapter 3). Strategically, democracy has an advantage because it forces decision-makers to take into account the interests, rights and opinions of most people in society. Since democracy gives some political power to each, more people are taken into account than under aristocracy or monarchy. The most forceful contemporary statement of this instrumental argument is provided by Amartya Sen, who argues, for example, that “no substantial famine has ever occurred in any independent country with a democratic form of government and a relatively free press” (Sen 1999, 152). The basis of this argument is that politicians in a multiparty democracy with free elections and a free press have incentives to respond to the expressions of needs of the poor. Epistemologically, democracy is thought to be the best decision-making method on the grounds that it is generally more reliable in helping participants discover the right decisions. Since democracy brings a lot of people into the process of decision making, it can take advantage of many sources of information and critical assessment of laws and policies. Democratic decision-making tends to be more informed than other forms about the interests of citizens and the causal mechanisms necessary to advance those interests. Furthermore, the broad based discussion typical of democracy enhances the critical assessment of the different moral ideas that guide decision-makers. Many have endorsed democracy on the basis of the proposition that democracy has beneficial effects on character. Many have noted with Mill and Rousseau that democracy tends to make people stand up for themselves more than other forms of rule do because it makes collective decisions depend on them more than monarchy or aristocracy do. Hence, in democratic societies individuals are encouraged to be more autonomous. In addition, democracy tends to get people to think carefully and rationally more than other forms of rule because it makes a difference whether they do or not. Finally, some have argued that democracy tends to enhance the moral qualities of citizens. When they participate in making decisions, they have to listen to others, they are called upon to justify themselves to others and they are forced to think in part in terms of the interests of others. Some have argued that when people find themselves in this kind of circumstance, they come genuinely to think in terms of the common good and justice. Hence, some have argued that democratic processes tend to enhance the autonomy, rationality and morality of participants. Since these beneficial effects are thought to be worthwhile in themselves, they count in favor of democracy and against other forms of rule (Mill 1861, p. 74, Elster 2002, p. 152). Some argue in addition that the above effects on character tend to enhance the quality of legislation as well. A society of autonomous, rational, and moral decision-makers is more likely to produce good legislation than a society ruled by a self-centered person or small group of persons who rule over slavish and unreflective subjects. <span style="line-height: normal; margin: 0cm 0cm 10pt; mso-margin-bottom-alt: auto; mso-margin-top-alt: auto;"><span style="font-family: 'Times New Roman','serif'; font-size: 12pt;">More detailed knowledge of the effects of political institutions can be used to discriminate in favor of particular kinds of democratic institutions or modifications of them. For instance in the United States, James Madison argued in favor of a fairly strong federal government on the grounds that local governments are more likely to be oppressive to minorities (Madison, Hamilton and Jay 1788, n. 10). Of course the soundness of any of the above arguments depends on the truth or validity of the associated substantive views about justice and the common good as well as the causal theories of the consequences of different institutions. <span style="line-height: normal; margin: 0cm 0cm 10pt; mso-margin-bottom-alt: auto; mso-margin-top-alt: auto; mso-outline-level: 4;">**<span style="font-family: 'Times New Roman','serif'; font-size: 12pt;">Instrumental Arguments against Democracy ** <span style="line-height: normal; margin: 0cm 0cm 10pt; mso-margin-bottom-alt: auto; mso-margin-top-alt: auto;"><span style="font-family: 'Times New Roman','serif'; font-size: 12pt;">Not all instrumental arguments favor democracy. Plato (//Republic//, Book VI) argues that democracy is inferior to various forms of monarchy, aristocracy and even oligarchy on the grounds that democracy tends to undermine the expertise necessary to properly governed societies. In a democracy, he argues, those who are expert at winning elections and nothing else will eventually dominate democratic politics. Democracy tends to emphasize this expertise at the expense of the expertise that is necessary to properly governed societies. The reason for this is that most people do not have the kinds of talents that enable them to think well about the difficult issues that politics involves. But in order to win office or get a piece of legislation passed, politicians must appeal to these people's sense of what is right or not right. Hence, the state will be guided by very poorly worked out ideas that experts in manipulation and mass appeal use to help themselves win office. <span style="line-height: normal; margin: 0cm 0cm 10pt; mso-margin-bottom-alt: auto; mso-margin-top-alt: auto;"><span style="font-family: 'Times New Roman','serif'; font-size: 12pt;">Hobbes (1651, chap. XIX) argues that democracy is inferior to monarchy because democracy fosters destabilizing dissension among subjects. But his skepticism is not based in a conception that most people are not intellectually fit for politics. On his view, individual citizens and even politicians are apt not to have a sense of responsibility for the quality of legislation because no one makes a significant difference to the outcomes of decision making. As a consequence, citizens’ concerns are not focused on politics and politicians succeed only by making loud and manipulative appeals to citizens in order to gain more power, but all lack incentives to consider views that are genuinely for the common good. Hence the sense of lack of responsibility for outcomes undermines politicians’ concern for the common good and inclines them to make sectarian and divisive appeals to citizens. For Hobbes, then, democracy has deleterious effects on subjects and politicians and consequently on the quality of the outcomes of collective decision making. <span style="line-height: normal; margin: 0cm 0cm 10pt; mso-margin-bottom-alt: auto; mso-margin-top-alt: auto;"><span style="font-family: 'Times New Roman','serif'; font-size: 12pt;">Many public choice theorists in contemporary economic thought expand on these Hobbesian criticisms. They argue that citizens are not informed about politics and that they are often apathetic, which makes room for special interests to control the behavior of politicians and use the state for their own limited purposes all the while spreading the costs to everyone else. Some of them argue for giving over near complete control over society to the market, on the grounds that more extensive democracy tends to produce serious economic inefficiencies. More modest versions of these arguments have been used to justify modification of democratic institutions. <span style="line-height: normal; margin: 0cm 0cm 10pt; mso-margin-bottom-alt: auto; mso-margin-top-alt: auto; mso-outline-level: 4;">**<span style="font-family: 'Times New Roman','serif'; font-size: 12pt;">Grounds for Instrumentalism ** <span style="line-height: normal; margin: 0cm 0cm 10pt; mso-margin-bottom-alt: auto; mso-margin-top-alt: auto;"><span style="font-family: 'Times New Roman','serif'; font-size: 12pt;">Instrumentalists argue that these instrumental arguments for and against the democratic process are the only bases on which to evaluate democracy or compare it with other forms of political decision making. There are a number of different kinds of argument for instrumentalism. One kind of argument proceeds from a certain kind of moral theory. For example classical utilitarianism simply has no room in its fundamental value theory for the ideas of intrinsic fairness, liberty or the intrinsic importance of an egalitarian distribution of political power. Its sole concern with maximizing utility understood as pleasure or desire satisfaction guarantees that it can provide only instrumental arguments for and against democracy. And there are many moral theories of this sort. <span style="line-height: normal; margin: 0cm 0cm 10pt; mso-margin-bottom-alt: auto; mso-margin-top-alt: auto;"><span style="font-family: 'Times New Roman','serif'; font-size: 12pt;">But one need not be a thoroughgoing consequentialist to argue for instrumentalism in democratic theory. There are arguments in favor of instrumentalism that pertain directly to the question of democracy and collective decision making generally. One argument states that political power involves the exercise of power of some over others. And it argues that the exercise of power of one person over another can only be justified by reference to the protection of the interests or rights of the person over whom power is exercised. Thus no distribution of political power could ever be justified except by reference to the quality of outcomes of the decision making process (Arneson 2002, pp. 96-97). <span style="line-height: normal; margin: 0cm 0cm 10pt; mso-margin-bottom-alt: auto; mso-margin-top-alt: auto;"><span style="font-family: 'Times New Roman','serif'; font-size: 12pt;">Other arguments question the coherence of the idea of intrinsically fair collective decision making processes. For instance, social choice theory questions the idea that there can be a fair decision making function that transforms a set of individual preferences into a rational collective preference. No general rule satisfying reasonable constraints can be devised that can transform any set of individual preferences into a rational social preference. And this is taken to show that democratic procedures cannot be intrinsically fair (Riker 1980, p. 116). Dworkin argues that the idea of equality, which is for him at the root of social justice, cannot be given a coherent and plausible interpretation when it comes to the distribution of political power among members of the society. The relation of politicians to citizens inevitably gives rise to inequality, so it cannot be intrinsically fair or just (Dworkin 2000, ch. 4 [originally published in 1987]). In later work, Dworkin has pulled back from this originally thoroughgoing instrumentalism (Dworkin 2000, ch. 10 [originally published in 1999]).

A vexing problem of democratic theory has been to determine whether ordinary citizens are up to the task of governing a large society. There are three distinct problems here. First, Plato (//Republic//, Book VI) argued that some people are more intelligent and more moral than others and that those persons ought to rule. Second, others have argued that a society must have a division of labor. If everyone were engaged in the complex and difficult task of politics, little time or energy would be left for the other essential tasks of a society. Conversely, if we expect most people to engage in other difficult and complex tasks, how can we expect them to have the time and resources sufficient to devote themselves intelligently to politics? Third, since individuals have so little impact on the outcomes of political decision making in large societies, they have little sense of responsibility for the outcomes. Some have argued that it is not rational to vote since the chances that a vote will affect the outcome of an election are nearly indistinguishable from zero. Worse still, Anthony Downs has argued (1957, chap. 13) that almost all of those who do vote have little reason to become informed about how best to vote. On the assumption that citizens reason and behave roughly according to the Downsian model, either the society must in fact be run by a relatively small group of people with minimal input from the rest or it will be very poorly run. As we can see these criticisms are echoes of the sorts of criticisms Plato and Hobbes made. These observations pose challenges for any robustly egalitarian or deliberative conception of democracy. Without the ability to participate intelligently in politics one cannot use one's votes to advance one's aims nor can one be said to participate in a process of reasoned deliberation among equals. So, either equality of political power implies a kind of self-defeating equal participation of citizens in politics or a reasonable division of labor seems to undermine equality of power. And either substantial participation of citizens in public deliberation entails the relative neglect of other tasks or the proper functioning of the other sectors of the society requires that most people do not participate intelligently in public deliberation.

** Elite Theory of Democracy **
Some modern theorists of democracy, called elite theorists, have argued against any robustly egalitarian or deliberative forms of democracy on these grounds. They argue that high levels of citizen participation tend to produce bad legislation designed by demagogues to appeal to poorly informed and overly emotional citizens. They look upon the alleged uninformedness of citizens evidenced in many empirical studies in the 1950s and 1960s as perfectly reasonable and predictable. Indeed they regard the alleged apathy of citizens in modern states as highly desirable social phenomena. The alternative, they believe, is a highly motivated population of persons who know nothing and who are more likely than not to pursue irrational and emotionally appealing aims. Joseph Schumpeter's assertion that the “democratic method is that institutional arrangement for arriving at political decisions in which individuals acquire the power to decide by means of a competitive struggle for the people's vote” (1956, p. 269), still stands as a concise statement of the elitist view. In this view, the emphasis is placed on responsible political leadership. Political leaders are to avoid divisive and emotionally charged issues and make policy and law with little regard for the fickle and diffuse demands made by ordinary citizens. Citizens participate in the process of competition by voting but since they know very little they are not effectively the ruling part of the society. The process of election is usually just a fairly peaceful way of maintaining or changing those who rule. On Schumpeter's view, however, citizens do have a role to play in avoiding serious disasters. When politicians act in ways that nearly anyone can see is problematic, the citizens can throw the bums out. So democracy, even on this stripped down version, plays some role in protecting society from the worst politicians. So the elite theory of democracy does seem compatible with some of the instrumentalist arguments given above but it is strongly opposed to the intrinsic arguments from liberty, public justification and equality. Against the liberty and equality arguments, the elite theory simply rejects the possibility that citizens can participate as equals. The society must be ruled by elites and the role of citizens is merely to ensure smooth and peaceful circulation of elites. Against the public justification view, ordinary citizens cannot be expected to participate in public deliberation and the views of elites ought not to be fundamentally transformed by general public deliberation. To be sure, it is conceivable for all that has been said that there can be an elite deliberative democracy wherein elites deliberate, perhaps even out of sight of the population at large, on how to run the society. Indeed, some deliberative democrats do emphasize deliberation in legislative assemblies though in general deliberative democrats favor a more broadly egalitarian approach to deliberation, which is vulnerable to the kinds of worries raised by Schumpeter and Downs.

** Interest Group Pluralism **
One approach that is in part motivated by the problem of democratic citizenship but which attempts to preserve some elements of equality against the elitist criticism is the interest group pluralist account of politics. Robert Dahl's early statement of the view is very powerful. “In a rough sense, the essence of all competitive politics is bribery of the electorate by politicians… The farmer… supports a candidate committed to high price supports, the businessman…supports an advocate of low corporation taxes… the consumer…votes for candidates opposed to a sale tax” (Dahl 1959, p. 69). In this conception of the democratic process, each citizen is a member of an interest group with narrowly defined interests that are closely connected to their everyday lives. On these subjects citizens are supposed to be quite well informed and interested in having an influence. Or at least, elites from each of the interest groups that are relatively close in perspective to the ordinary members are the principal agents in the process. On this account, democracy is not rule by the majority but rather rule by coalitions of minorities. Policy and law in a democratic society are decided by means of bargaining among the different groups. This approach is conceivably compatible with the more egalitarian approach to democracy. This is because it attempts to reconcile equality with collective decision making by limiting the tasks of citizens to ones which they are able to perform reasonably well. And it attempts to do this in a way that gives citizens a key role in decision making. The account ensures that individuals can participate roughly as equals to the extent that it narrowly confines the issues each individual is concerned with. It is not particularly compatible with the deliberative public justification approach because it eschews deliberation about the common good or about justice. And it takes the democratic process to be concerned essentially with bargaining among the different interest groups where the preferences to be advanced by each group is not subject to further debate in the society as a whole. To be sure, there might be some deliberation within interest groups but it will not be society wide.

** Neo-Liberalism **
A third approach inspired by the problem of citizenship may be called the neo-liberal approach to politics favored by public choice theorists such as James Buchanan & Gordon Tullock (1965). Against elite theories, they contend that elites and their allies will tend to expand the powers of government and bureaucracy for their own interests and that this expansion will occur at the expense of a largely inattentive public. For this reason, they argue for severe restrictions on the powers of elites. They argue against the interest group pluralist theorists that the problem of participation occurs within interest groups more or less as much as among the citizenry at large. As a consequence, interest groups will not form very easily. Only those interest groups that are guided by powerful economic interests are likely to succeed in organizing to influence the government. Hence, only some interest groups will succeed in influencing government and they will do so largely for the benefit of the powerful economic elites that fund and guide them. Furthermore, they argue that such interest groups will tend to produce highly inefficient government because they will attempt to advance their interests in politics while spreading the costs to others. The consequence of this is that policies will be created that tend to be more costly (because imposed on everyone in society) than they are beneficial (because they benefit only the elites in the interest group.) Neo-liberals argue that any way of organizing a large and powerful democratic state is likely to produce serious inefficiencies. They infer that one ought to transfer many of the current functions of the state to the market and limit the state to the enforcement of basic property rights and liberties. These can be more easily understood and brought under the control of ordinary citizens. But the neo-liberal account of democracy must answer to two large worries. First, citizens in modern societies have more ambitious conceptions of social justice and the common good than are realizable by the minimal state. The neo-liberal account thus implies a very serious curtailment of democracy of its own. More evidence is needed to support the contention that these aspirations cannot be achieved by the modern state. Second, the neo-liberal approach ignores the problem of large private concentrations of wealth and power that are capable of pushing small states around for their own benefit and imposing their wills on populations without their consent. The assumptions that lead neo-liberals to be skeptical about the large modern state imply equally disturbing problems for the large private concentrations of wealth in a neo-liberal society.

A considerable amount of the literature in political science and the economic theory of the state are grounded in the assumption that individuals act primarily and perhaps even exclusively in their self-interest narrowly construed. The problem of participation and the accounts of the democratic process described above are in large part dependent on this assumption. While these ideas have generated interesting results and have become ever more sophisticated, there has been a growing chorus of opponents. Against the self-interest axiom, defenders of deliberative democracy and others claim that citizens are capable of being motivated by a concern for the common good and justice. And they claim, with Mill and Rousseau, that such concerns are not merely given prior to politics but that they can evolve and improve through the process of discussion and debate in politics. They assert that much debate and discussion in politics would not be intelligible were it not for the fact that citizens are willing to engage in open minded discussion with those who have distinct morally informed points of view. Empirical evidence suggests that individuals are motivated by moral considerations in politics in addition to their interests. Accordingly, many propose that democratic institutions be designed to support the inclination to engage in moral and open-minded discussion with others (see the essays in Mansbridge 1990).

Once we approach the idea of citizenship from a moral point of view and we recognize the importance of a division of labor, the question arises, what is the appropriate role for a citizen in a democracy? If we think that citizens are too often uninformed we should ask two questions. What ought citizens have knowledge about in order to fulfill their role? What standards ought citizens’ beliefs live up to in order to be adequately supported? Some, such as Dahl in the above quote, have proposed that citizens know about their particular sectors of society and not others. We have seen that this view has a number of difficulties. Christiano proposes, along with others, that citizens must think about what ends the society ought to aim at and leave the question of how to achieve those aims to experts (Christiano 1996, chap. 5). This kind of view needs to answer to the problem of how to ensure that politicians, administrators and experts actually do attempt to realize the aims set by citizens. And it must show how institutions can be designed so as to establish the division of labor while preserving equality among citizens. But if citizens genuinely do choose the aims and others faithfully pursue the means to achieving those aims, then citizens are in the driver's seat in society. It is hard to see how citizens can satisfy any even moderate standards for beliefs about out how best to achieve their political aims. Knowledge of means requires an immense amount of social science and knowledge of particular facts. For citizens to have this kind of knowledge generally would require that we abandon the division of labor in society. On the other hand, citizens do have first hand and daily experience with thinking about the values and aims they pursue. This gives them a chance to satisfy standards of belief regarding what the best aims are. Still the view is not defensible without a compelling institutional answer to the question of how to ensure that others are genuinely pursuing the means to achieve the aims specified by citizens. On the proposed view, legislative representatives and bureaucrats as well as judges must subordinate their activities to the task of figuring out how to pursue the aims of citizens. There is a huge principal/agent problem here.