Deliberation, Participation and Democracy

Deliberation, Participation and Democracy

Also by Shawn W. Rosenberg POLITICAL REASONING AND COGNITION: A Piagetian View (with Dana Ward & Stephen Chilton) REASON, IDEOLOGY AND POLITICS THE NOT SO COMMON SENSE: How People Judge Social and Political Life

Deliberation, Participation and Democracy Can the People Govern? Edited by Shawn W. Rosenberg Professor of Political Science and Psychology University of California, Irvine, USA

Editorial matter, selection and introduction Shawn W. Rosenberg 2007 All remaining chapters respective authors 2007 Softcover reprint of the hardcover 1st edition 2007 978-0-230-51735-6 All rights reserved. No reproduction, copy or transmission of this publication may be made without written permission. No paragraph of this publication may be reproduced, copied or transmitted save with written permission or in accordance with the provisions of the Copyright, Designs and Patents Act 1988, or under the terms of any licence permitting limited copying issued by the Copyright Licensing Agency, 90 Tottenham Court Road, London W1T 4LP. Any person who does any unauthorised act in relation to this publication may be liable to criminal prosecution and civil claims for damages. The authors have asserted their rights to be identified as the authors of this work in accordance with the Copyright, Designs and Patents Act 1988. First published in 2007 by PALGRAVE MACMILLAN Houndmills, Basingstoke, Hampshire RG21 6XS and 175 Fifth Avenue, New York, N.Y. 10010 Companies and representatives throughout the world. PALGRAVE MACMILLAN is the global academic imprint of the Palgrave Macmillan division of St. Martin s Press, LLC and of Palgrave Macmillan Ltd. Macmillan is a registered trademark in the United States, United Kingdom and other countries. Palgrave is a registered trademark in the European Union and other countries. ISBN 978-1-349-35507-5 ISBN 978-0-230-59108-0 (ebook) DOI 10.1057/9780230591080 This book is printed on paper suitable for recycling and made from fully managed and sustained forest sources. Logging, pulping and manufacturing processes are expected to conform to the environmental regulations of the country of origin. A catalogue record for this book is available from the British Library. Library of Congress Cataloging-in-Publication Data Deliberation, participation and democracy : can the people govern? / Shawn W. Rosenberg, editor. p. cm. 1. Political participation. 2. Democracy. I. Rosenberg, Shawn W., 1951 JF799.D44 2007 321.8 dc22 2007018316 10 9 8 7 6 5 4 3 2 1 16 15 14 13 12 11 10 09 08 07

Contents List of Tables List of Figures Notes on Contributors vii viii ix 1 An Introduction: Theoretical Perspectives and Empirical Research on Deliberative Democracy 1 Shawn W. Rosenberg Part I Empirical Studies of Democratic Deliberation 2 Who Deliberates? Discursive Participation in America 25 Fay Lomax Cook, Michael X. Delli Carpini, and Lawrence R. Jacobs 3 The Democratic Potential of Civic Dialogue 45 Katherine Cramer Walsh 4 Deliberation and Agreement 64 Christian List 5 Deliberation in Legislatures: Antecedents and Outcomes 82 André Bächtiger, Markus Spörndli, Marco R. Steenbergen, Jürg Steiner 6 How People Deliberate about Justice: Groups, Gender, and Decision Rules 101 Tali Mendelberg and Christopher Karpowitz 7 Types of Discourse and the Democracy of Deliberation 130 Shawn W. Rosenberg 8 Minipublics: Deliberative Designs and Their Consequences 159 Archon Fung 9 Deliberation with a Purpose: Reconnecting Communities and Schools 184 M. Stephen Weatherford and Lorraine M. McDonnell Part II Theoretical Reflections on the Empirical Research 10 Deliberative Democracy 219 Joshua Cohen v

vi Contents 11 Theory, Evidence, and the Tasks of Deliberation 237 John S. Dryzek 12 Deliberative Democracy or Democratic Deliberation? 251 Jane Mansbridge 13 Institutionalizing Deliberative Democracy 272 Mark E. Warren Bibliography 289 Index 311

List of Tables 2.1 The frequency of engaging in different types of discursive activity 33 2.2 The percentage of Americans by demographic and political characteristics who engage in different types of discursive participation 35 2.3 Demographic and political determinants of deliberation 37 2.4 Determinants of deliberation: The full model of determinants 39 2.5 Determinants of deliberative intensity 40 4.1 A combination of individual judgments 73 4.2 Unidimensionally aligned judgments 77 5.1 Predictions of different dimensions of deliberation 93 5.2 A cross-tabulation of discourse quality and decision margins 95 5.3 A cross-tabulation of discourse quality and substantive decision outcomes 96 6.1 Number of groups (and individuals) in each condition 109 6.2 The impact of decision rule and gender composition on generosity 112 6.3 The interactive impact of decision rule and gender composition on group generosity 113 6.4 The interactive impact of decision rule and gender composition on satisfaction with the principle after discussion 115 6.5 The interactive impact of decision rule and individual gender on satisfaction with the principle after discussion 116 6.6 The interactive impact of decision rule and gender composition on productivity 116 6.7 The interactive impact of decision rule and gender composition on certainty 118 6.8 Impact of gender composition, by decision rule, on the nature of group discussion 121 7.1 Types of discourse 132 7.2 Political implications of types of discourse 152 9.1 Characteristics of reconnecting districts, as compared with South Carolina and national averages 192 9.2 Variation in the reconnecting process 193 9.3 Reconnecting outcomes 199 vii

List of Figures 4.1 Single-peaked preferences 67 4.2 Non-single-peaked preferences 68 6.1 Impact of gender composition and decision rule on generosity 113 6.2 Impact of gender composition and decision rule on productivity 117 6.3 Impact of decision rule and gender composition on certainty 118 8.1 Consequences of minipublic design choices 171 8.2 Institutional design features of five minipublics 180 8.3 Outcomes in five minipublics 180 viii

Notes on Contributors André Bächtiger is Senior Assistant at the Institute of Political Science at the University of Bern (Switzerland). His research interests lie in the fields of deliberative democracy, institutional theory and democratization processes in Africa and Asia. He is co-author of Deliberative Politics in Action. Analysing Parliamentary Discourse (Cambridge University Press, 2004). He was Research Fellow at the University of North Carolina (Chapel Hill) and Swiss Chair/ Jean Monnet Fellow at the European University Institute (Florence). Joshua Cohen is Professor of Political Science, Philosophy and Law at Stanford University. Cohen is also co-editor of Boston Review and of more than twenty-five Boston Review Books (published with Beacon, Princeton, Oxford and MIT). He has written extensively on democratic theory, and is author of several essays on the subject of deliberative democracy, including Deliberation and Democratic Legitimacy, Procedure and Substance in Deliberative Democracy, Democracy and Liberty (with Charles Sabel) Directly-Deliberative Polyarchy, Privacy, Pluralism, and Democracy, and (with Joel Rogers) Power and Reason. Fay Lomax Cook is Director of the Institute for Policy Research at Northwestern University and Professor of Human Development and Social Policy in the School of Education and Social Policy with a joint appointment in the Department of Political Science. She has been President of the Gerontological Society of America (2000); a fellow at the Center for Advanced Study in the Behavioral Sciences (1997 1998) and a Visiting Scholar at the Russell Sage Foundation (1987 1988). Her research focuses on the interrelationships between public opinion and social policy, the politics of public policy and the dynamics of public support for Social Security and other social programs for older Americans. She is the author or co-author of many scholarly articles and book chapters as well as four books, including Support for the American Welfare State: The Views of Congress and the Public (with Edith J. Barrett) (New York: Columbia University Press, 1992); The Journalism of Outrage: Investigative Reporting and Agenda Building in America (with David Protess et al.) (New York: Guilford Publications, Inc., 1991); and Navigating Public Opinion: Polls, Policy and the Future of American Democracy (with J. Manza and B. Page, Eds.) (New York: Oxford University Press, 2002). Michael X. Delli Carpini is Dean of the Annenberg School for Communication. Prior to joining the University of Pennsylvania faculty in July of 2003, Professor Delli Carpini was Director of the Public Policy program of the Pew Charitable Trusts (1999 2003), and member of the Political ix

x Notes on Contributors Science Department at Barnard College and graduate faculty of Columbia University (1987 2002), serving as chair of the Barnard department from 1995 to 1999. His research explores the role of the citizen in American politics, with particular emphasis on the impact of the mass media on public opinion, political knowledge and political participation. He is author of Stability and Change in American Politics: The Coming of Age of the Generation of the 1960s (New York University Press, 1986), and What Americans Know About Politics and Why It Matters (Yale University Press, 1996), and A New Engagement: Political Participation, Civic Life, and the Changing American Citizen (Oxford University Press, 2006), as well as numerous articles, essays and edited volumes on political communications, public opinion, and political socialization. John Dryzek is Head of the Social and Political Theory Program at the Australian National University. Before joining the Program he taught at Ohio State University, the University of Oregon and the University of Melbourne. He is a former editor of the Australian Journal of Political Science and Fellow of the Academy of the Social Sciences in Australia. Aside from being a political theorist, Dryzek does work in environmental politics, comparative politics, international relations and public policy. His recent books include Green States and Social Movements: Environmentalism in the United States, United Kingdom, Germany and Norway (with David Downes, Christian Hunold and David Schlosberg) (Oxford University Press, 2003), Post- Communist Democratization: Political Discourses across Thirteen Countries (with Leslie Holmes) (Cambridge University Press, 2002), Deliberative Democracy and Beyond: Liberals, Critics, Contestations (Oxford University Press, 2002), The Politics of the Earth: Environmental Discourses (Oxford University Press, 1997). Archon Fung is an Assistant Professor of Public Policy at Harvard s John F. Kennedy School of Government. His research examines the impacts of civic participation, public deliberation, and transparency upon public and private governance. His Empowered Participation: Reinventing Urban Democracy (Princeton University Press, forthcoming 2003) examines two participatorydemocratic reform efforts in low-income Chicago neighborhoods. His recent books and edited collections include Deepening Democracy: Institutional Innovations in Empowered Participatory Governance (Verso Press, 2003), Can We Eliminate Sweatshops? (Beacon Press 2001), Working Capital: The Power of Labor s Pensions (Cornell University Press 2001) and Beyond Backyard Environmentalism (Beacon Press 2000). Lawrence R. Jacobs is Land Grant-McKnight Professor at the University of Minnesota and Adjunct Professor in the Hubert H. Humphrey Institute and Director of its 2004 Elections Project. His most recent books are Healthy, Wealth, and Fair (Oxford University Press, 2004) and Politicians Don t Pander: Political Manipulation and the Loss of Democratic Responsiveness (University of Chicago Press, 2000), which received three awards. He also authored, The Health of Nations: Public Opinion and the Making of Health Policy in the U.S. and

Notes on Contributors xi Britain (Cornell University Press, 1993) as well as several edited volumes and articles in scholarly journals. Christopher F. Karpowitz is Assistant Professor of Political Science at Brigham Young University and a Research Fellow at the Center for the Study of Elections and Democracy. Prior to his arrival at BYU, he served as the Postdoctoral Fellow in Democracy and Human Values and Associate Director of the Program in Ethics and Public Affairs at Princeton s University Center for Human Values. His research explores how citizens experience democratic institutions and processes, with special attention to democratic and deliberative theory and practice. He is a co-author of Democracy at Risk: How Political Choices Undermine Citizen Participation, and What We Can Do About It (Brookings, 2005), and his work has appeared in a number of scholarly journals. Christian List is a Professor of Political Science and Philosophy at the London School of Economics. He graduated in mathematics, philosophy and politics from the University of Oxford. He held postdoctoral and visiting positions at Nuffield College, Oxford, the Australian National University, Harvard University, Princeton University, University of Konstanz and MIT. His main research areas are formal and normative political theory and the philosophy of social science. Jane Mansbridge is the Adams Professor at the Kennedy School of Government at Harvard University. She is the author of Beyond Adversary Democracy and Why We Lost the ERA, both in their own ways about deliberative democratic processes. She is also editor of Beyond Self-Interest, co-editor with Susan Okin of Feminism and co-editor with Aldon Morris of Oppositional Consciousness. She has written a number of journal articles and book chapters on deliberative democracy. Lorraine M. McDonnell is Professor and Chair of the Department of Political Science at the University of California, Santa Barbara. McDonnell has authored major studies of teacher unions, immigrant education, and the politics of student testing. With Stephen Weatherford, she is currently working on a project surveying the use of deliberative democratic processes in local education decision-making. McDonnell has been the author of numerous articles and reports on educational policy. Recently she edited Rediscovering the Democratic Purposes of Education (with P. Michael Timpane and Roger Benjamin) (University Press of Kansas, 2000). Tali Mendelberg is Associate Professor of Politics at Princeton University. She is the author of The Race Card: Campaign Strategy, Implicit Messages, and the Norm of Equality (Princeton University Press, 2001) and winner of the American Political Science Association s 2002 Woodrow Wilson Foundation Award for the best book published in the United States during the prior year on government, politics or international affairs. In 2002 she received the

xii Notes on Contributors Erik H. Erikson Early Career Award for Excellence and Creativity in the Field of Political Psychology. Shawn Rosenberg is Professor of Political Science and Psychology and Director of the Graduate Program in Political Psychology at the University of California, Irvine. He is currently a Visiting Fellow at the University Center for Human Values, Princeton University. He has also been a Visiting Professor at Leiden University, the University of Amsterdam and the University of California, Berkeley. A political psychologist, Rosenberg has done research on the nature of political ideology, political cognition and democratic deliberation. He has also written on issues of philosophy of social science with specific reference to the conduct of interdisciplinary research. He is the author of three prize wining books, Political Cognition and Reasoning (with D. Ward and S. Chilton) (Duke University Press, 1988), Reason Ideology and Politics (Princeton University Press, 1988) and The Not So Common Sense: How People Judge Social and Political Life (Yale University Press, 2002). Markus Spörndli has been a researcher at the University of Bern and visiting scholar at the Social Science Research Center Berlin (WZB). There, he explored the effects of deliberation on political outcomes (published in German, VS-Verlag, 2004) and co-authored the book Deliberative Politics in Action (with Steiner, Bächtiger and Steenbergen) (Cambridge University Press, 2005). After having been a journalist for Swiss newspapers, he tried to put deliberation into action as a delegate of the International Committee of the Red Cross in Kashmir. He is currently the communication officer of the Swiss Agency of Economic Development and Cooperation. Marco R. Steenbergen is Associate Professor of Political Science at the University of North Carolina, Chapel Hill. His research and teaching interests lie in the fields of quantitative methods and political psychology with a specific focus on voting behavior, public opinion, measurement and multilevel inference. He has co-authored Deliberative Politics in Action (with Steiner, Bächtiger and Sporndli) (Cambridge University Press, 2005) and an edited volume about the contestation of European Integration (co-edited with Gary Marks). Jürg Steiner has taught for many years both at the University of North Carolina at Chapel Hill and the University of Bern. Now he is Emeritus at both universities, but still moves back and forth between the two places. In 2003/2004 he held the Swiss Chair at the European University Institute in Florence. More recently he was visiting professor at the Central European University in Budapest and the Externado University in Bogota. His most recent books are Deliberative Politics in Action (with Bächtiger, Spörndli, and Steenbergen) (Cambridge University Press, 2004) and European Democracies, fifth edition (with Crepaz) (Longman 2007).

Notes on Contributors xiii Katherine Cramer Walsh (B.A. University of Wisconsin-Madison 1994, Ph.D. University of Michigan 2000) is an assistant professor in the Department of Political Science. Her primary research and teaching interests include public opinion, political communication and civic engagement. She is the author of Talking about Race: Community Dialogues and the Politics of Difference (University of Chicago Press, forthcoming) and Talking about Politics: Informal Groups and Social Identity in American Life (University of Chicago Press, 2004). She is currently a member of the American Political Science Association s Task Force on Civic Education and Civic Engagement. Mark E. Warren is Professor of Government at Georgetown University. Warren teaches late modern and contemporary political theory, with an emphasis on continental political thought and democratic theory. He came to Georgetown in 1988 after having served as a Mellon Fellow in Philosophy at Rice University, and teaching at Northwestern. Publications include Nietzsche and Political Thought (MIT Press, 1988), Democracy and Trust (ed., Cambridge University Press, 1999) and Democracy and Association (Princeton University Press, 2001) as well as articles on continental political thought, political psychology and philosophy of social science. M. Stephen Weatherford is Professor of Political Science at the University of California, Santa Barbara. His research has ranged over questions of representation, political behavior and political economy, mainly in the context of US politics. Two active research projects include a survey of US economic policymaking in the post-second World War years and a study of community- and state-level innovations in deliberative democracy. His contribution to this volume is part of a larger project, undertaken with Lorraine McDonnell, which examines community- and state-level innovations in deliberative democracy.