The hypothesis, which seems to me the most fertile, is that news and truth are not the same thing, and must be clearly distinguished. The function of news is to signalize an event, the function of truth is to bring to light the hidden facts, to set them into relation with each other, and make a picture of reality on which men can act....For the troubles of the press, like the troubles of representative government, be it territorial or functional, like the troubles of industry, be it capitalist, cooperative, or communist, go back to a common source: to the failure of self-governing people to transcend their casual experience and their prejudice, by inventing, creating, and organizing a machinery of knowledge. It is because they are compelled to act without a reliable picture of the world, that governments, schools, newspapers and churches make such small headway against the more obvious failings of democracy, against violent prejudice, apathy, preference for the curious trivial as against the dull important, and the hunger for sideshows and three legged calves. This is the primary defect of popular government, a defect inherent in its traditions, and all its other defects can, I believe, be traced to this one.--Walter Lippmann (1922) Public Opinion (Chapter 24, 228-230)
As regular readers know, I think reflection on Walter Lippmann is important in present circumstances. He is one of the intellectual architects (recall) of what I call the second-wave of liberalism (1945-2008), which has been imploding during the last decade, and even was the proximate cause of the development of what came to be known as neo-liberalism. More subtly, his conception of the good society, which hearkens back to the (attractive) kind of liberalism of Adam Smith and Sophie de Grouchy, rejects both state neutrality and state-craft as soul-craft; the good society is one that has many morally salient characteristics (the people are flourishing and can lead lives of their own choosing without fear or coercion). To attain the good society, not unlike a medieval cathedral, is a multi-generational, collective project. There is a sense in which this is a religious project. But, probably unlike the cathedral, the path and the outcome of the good society is, due to the uncertainty generating conditions of modern life, full of surprises.
One reason to return to Lippmann (not in order to agree -- he also has (recall) serious weaknesses --) is that, as JohnDewey emphasizes, he understands the problem of voter ignorance not, as anti-democrats do, as a problem of other (not-so-smart or gripped by ideology) voters, but as a structural feature of the human condition. One need not agree with all of Lippmann's ways of articulating the situation, to see that the (Platonic) cave is the human condition in mass society. And to overcome such ignorance, here he anticipates Hanna Arendt, is a rare achievement to be found in, or (perhaps its better to say) produced by, a few institutions: the law and science.
As an aside, Lippmann, who knew the press from within, is adamant that the press is even during the best of times and ownership structures not that kind of institution capable of reliable generating truth.* And, in fact, he claims that, when the press is conducive, it is often relying on the rule-following features of the administrative state. Importantly, his skepticism about the press' truth-conducive-ness does not entail that the press has no positive contributions to make to democratic life. (If he thought that, his life would be self-undermining in a very obvious ways.)
I do not think Lippmann's answer to the problem of voter ignorance is successful, but it was (judging by what happened next) very influential; and if not influential, at least prophetic. It is possible that by Lippmann's own standards his solution would be deemed successful because Lippmann's aspirations were (again noted by Dewey) were more ameliorative than utopian. Lippmann's proposal has three central features: first, is to advocate for an expansion of the (meritocratic) bureaucratic state and infuse it with what he calls 'technical knowledge' that he associates with "statisticians, accountants, auditors, industrial counsellors, engineers of many species, scientific managers, personnel administrators, research men, "scientists," and sometimes just as plain private secretaries." (234) He thinks such technical knowledge can also be turned into an "experimental social science." (237) The point, for Lippmann, is not that such technicians will run the show, but rather that they become embedded (as "permanent intelligence section") in all government apparatuses (nationally and locally). For, by definition, a technician is not the decision maker.+
A key second feature of his proposal is that there will be a permanent circulation of college graduates from universities, perhaps even a privileged 'national university' (247) recruited from government staff, into government; and technical, government bureaucrats returning regularly to train and teach at universities. This intellectual flow of human capital would itself (in part) constitute "political science" and, in turn, would "associated with politics in America."+ (In 1922 economics was not yet seen as the future queen of the social sciences.) Lippmann optimistically assumes that all of this can be done transparently and openly (246). The third, key feature is to insist that any political decision must be channeled through a procedure that will involve the bringing to bear of technical expertise on a problem (e.g., 255).
As an aside, Lippmann's account is clearly distinct from the (later) Hayekian narrative, which sees the rise of the bureaucratic, technocratic state as a consequence of the experience of (mobilization and) war-planning during WWI. Lippmann, by contrast, thinks that the rise of the technician in the great society is itself the consequence "of blind natural selection" (234); complex organizations faced with complex decision environments started to require technical expertise merely to help integrate the flow of data and to structure decision-making for the executive. One discerns in Lippmann that the problem of big data is a nineteenth century problem, and that to overcome it even in competitive markets, requires the rise of expertise within organizations.
Now, Lippmann is not unaware that there is a real risk the technocrats will quickly run the show and displace elected officials and electorate. His response to this is to insist on a stark distinction between executive and technical functions and to aim to align incentives between them properly. [242]+ Only this can keep the technician's disinterestedness in place. If such a distinction were to be maintained in practice, and an esprit de corps among the technical class could be cultivated, then his hope that there will be circumstances in which the presence of a class of technicians can even abolish partisanship would not be comical. I don't mean to suggest that Lippmann's proposal is impractical: it very much reflects reality inside important elements of the governance of the EU and the US Federal government. As Dewey discerned, Lippmann proposes what became a tool, even an effective technique of governance one that has undoubtedly helped reduce the catastrophic mistakes all political agents can make.**
I used the word 'comical.' Perhaps that's unfortunate. For Lippmann's weakness is the weakness of much of twentieth century liberalism. We can discern in Lippmann a tendency toward consensus and de-politicization in thinking about politics. In his (1937) Good Society, he demands that politicians combine, in spirit, the temperament of a legislator and a judge (who is impartial, fair, temperate, etc.) As the earlier Public Opinion teaches, that aspiration would only be possible in reality if political life is not governed by opinion. But if that were possible, we wouldn't (recall) need democracy at all.
*He is also surprisingly astute on the incentives that prevent the press from becoming one.
+Much of this is naive, but he notes that in corporations it would be a good thing if accountants could be made independent from "directors and shareholders." (242) Sometimes one cannot help but feel that some of the solutions of the problems of social life are long known.
**Regular readers know that I also argue that technocratic expertise can be the source of catastrophic political mistakes. In my view liberalism can only be revived when it comes to terms with this.
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