The Importance of How

The essential question that faces all policymakers is “what should we do about problem X.” That question has two parts. Once problem X has been identified, and a goal has been established (solving problem X), the remaining question becomes how. 

After all, we could dramatically reduce crime by locking citizens in their homes between, say, 7:00 p.m. and 7:00 a.m. We could reduce the transmission of flu by decreeing that all Americans wear masks during flu season. You can probably think of other methods of approaching social problems that would undoubtedly achieve their goals, but would simply create hostility, division and other problems.

Of course, deciding the proper “how” requires some fundamental agreement on the nature of the problem. We’re seeing this now, with the issue of immigration. Republicans define the problem as too many of “those people” entering the country; Democrats see it as the challenge of distinguishing between criminals and legitimate refugees entitled to help while hampered by obsolete laws and a dramatically under-resourced system.

When I taught my Law and Policy students, I focused upon the importance–and complexity–of those “how” solutions. Do we have broad agreement on the problem and what a satisfactory solution might look like? If so, how do we craft a policy that will achieve that solution without inadvertently creating or exacerbating other problems?

I recently read Washington Post column that focused on a vivid example.

There is a grim, fairly popular story of the American social contract that goes roughly like this: Motivated by entrenched racial hostility, the greed of the rich (or maybe something else), the richest country on the planet refuses to develop a true welfare state that might secure the well-being of its citizens.

The column proceeds to examine the extensive social science research confirming the nature and extent of America’s inequality, and the multiple social problems that have been attributed to poverty and inequality.

Taxation and redistribution have been successfully resisted, branded as illegitimate scams to feather the beds of welfare queens. Globalization and technological disruption have been embraced even as the institutions designed to protect the most vulnerable workers — unions, minimum wages — have lost their power to provide for a dignified living.

In this American story, the less fortunate — Black, Brown and White — are left to scratch by as best they can, often falling into a deep well of misery. The rich engorge themselves way beyond anything seen in other wealthy, industrialized societies of the West. And yet, though the destitution is clear for all to see, recent research suggests that the story built around it is, at best, incomplete.

In fact, as a number of researchers have confirmed, the United States spends a lot of money on redistribution–on that word Republicans find so repulsive: welfare. The problem isn’t that we haven’t funded programs intended to help the needy, the problem is how those programs work–or (mostly) don’t.

Inequality might not cause these symptoms on its own. Instead, many of America’s social maladies stem from the strategies it has chosen to mitigate the lopsided distribution of income, which leave its citizens singularly vulnerable.

The essay went on to suggest “fixes” with which I largely disagreed, because I have concluded that the worst aspect of America’s social welfare system is its tendency to divide, rather than unify our citizenry. (Our patchwork “system” is also wasteful, far too bureaucratic, and inaccessible to the working poor, but those are problems for a different post.)

As I have repeatedly argued, public policies can either increase or reduce polarization and tensions between groups. Policies to help less fortunate citizens can be delivered in ways that stoke resentments, or in ways that encourage national cohesion.  Currently, far too many Americans have very negative attitudes about welfare programs for poor people. In contrast, overwhelming majorities approve of Social Security and Medicare. That’s because Social Security and Medicare are universal programs; as I’ve previously noted, virtually everyone contributes to them and everyone who lives long enough participates in their benefits.

Just as we don’t generally hear accusations that “those people are driving on roads paid for by my taxes,” or sentiments begrudging a poor neighbor’s garbage pickup, beneficiaries of programs that include everyone (or almost everyone) are much more likely to escape stigma.

In addition to the usual questions of efficacy and cost-effectiveness, policymakers should evaluate proposed programs by considering whether they are likely to unify or further divide Americans. Universal policies are far more likely to unify, to create social solidarity–an important and often overlooked argument favoring a Universal Basic Income.

In our current, highly polarized political environment, we need to focus on whether the solutions to social problems unify or further divide our quarrelsome nation.

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How We Got Here

I was recently asked to “guest lecture”about political polarization to an undergraduate class.

I began by conceding that, from where I sit, it’s getting worse, not better. I noted that we now have businesses expressly catering to the Right-wing: social media platforms like Truth Social and Rumble, coffee sellers like Black Rifle, crypto start-ups like MAGA and Coin, and even investment funds–Strive is an anti-ESG fund created by Vivek Ramaswamy, the annoying presidential candidate, that has now exceeded a billion dollars in assets.

These are businesses specifically catering to people who want to ban books, shove gay people back in the closet, and return women and people of color to second-class citizenship. It pains me to say this, because I spent 35 years of my adult life as a very active Republican—I even won a Congressional Republican primary in 1980—but Republicans have devolved from a political party into a cult, and membership in that cult has become their core identity. As we saw during COVID, thousands of them were willing to forego vaccination and die in order to “own the libs.”

Before delving into some of the reasons for polarization, it’s important to distinguish between political polarization and other, far less stark differences between Americans. As one scholar recently noted, those political differences are between the Republicans who’ve gone full MAGA and most other Americans…Today’s Right is entirely focused on the interests and fears of white Christians, while the Democratic coalition is much more diverse.

Ezra Klein has observed that “Sorting has made Democrats more diverse and Republicans more homogeneous.”

Research tells us that MAGA Republicans are disproportionately White Christian Nationalists who believe that only White Christians can be “real Americans.” That’s not a belief consistent with moderation or negotiation—or the Constitution.

Some on the far Left of the Democratic Party are also rabid, but today’s Democrats and Independents are ideologically diverse—they range from ex-Republicans like me to the Bernie Sanders/AOC branch of the party (which is still not nearly as “Left” as the Left in Europe). It’s a very troubling situation, because we really need two adult, rational political parties engaged in good-faith policy debate, and instead, as the antics in the current Congress demonstrate, we’re now at a point where actual governance seems impossible.

Reasonable people in both parties look at  the MAGA crazies in Congress and wonder how these people get elected. It’s a significant structural problem: Gerrymandering has moved the “real” election to the primaries in all but a very few Congressional districts—in safe districts, Republican incumbents move Right and Democratic ones move Left to protect against primary challenges, exacerbating the distance between Left and Right. It isn’t only gerrymandering; as the book “The Big Sort” demonstrated, Americans have been clustering–choosing to live in places where they’ll have like-minded neighbors—making cities Bluer and rural areas Redder, and diminishing the likelihood of regular intermingling with people who disagree with them.

Polarization is also promoted by propaganda outlets like Fox News, and by the collapse of local newspapers that reported on less ideological community issues.

We also can’t ignore the fact that a lot of people have lost touch with reality. Back in 2016, a Public Policy Polling survey found 12 million people in the US who believed that interstellar lizards in “people suits” rule our country. Around 66 million Americans believe  aliens landed in Roswell, New Mexico, and around 22 million believe that the government faked the moon landing. Then there are the various QAnon conspiracy theories, the people who believe Bill Gates put chips in Covid vaccines…it goes on and on.

Research tells us that feelings of powerlessness and uncertainty trigger beliefs in conspiracies. People who feel powerless use those theories to regain a sense of control– to make sense of what otherwise seems senseless in the world they inhabit. Right now, thanks to the enormous gap between the rich and the rest of us, the increasing effects of climate change, and the speed of social and technological change, a lot of people are disoriented and fearful. They’re looking for explanations—and unfortunately, a lot of them are also looking for someone–some “other”or group of “others”– to blame.

We need to understand that these divisions aren’t about policy. They’ve become part of personal identity—for a certain subset of people, it’s all about who you are and who you and your group hate. And for too many of us other Americans, who aren’t all that polarized, politics has become just another kind of team sport—my guys versus your guys. Team loyalty.

I concluded by telling them “I hope your generation figures out how to bridge the gap my generation is leaving you, because I don’t have a clue.”

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I Was So Wrong…

As I cleanse my email feed every morning , deleting multiple frantic requests for just $2/$5/$20 or whatever, I’m reminded about my original, oh-so-naive belief that small-dollar fundraising would improve governance by removing the influence of big-dollar donors…

Silly me.

I was thrilled when Howard Dean first demonstrated that the internet could be employed to encourage small donations.  When Obama raised enormous sums in small increments, I  thought the days of depending on political fat cats was over–and since no candidate could be “bought” for these small contributions, I counted this as a win for democracy.

Let’s just say it turned out to be a lot more complicated than that.

Small dollar fundraising did indeed reduce political reliance on the “usual suspects”–the big money donors. Unfortunately, however, this approach to fundraising produces different–but equally troubling– negative consequences, and those negatives go far beyond the annoying assaults on our inboxes.

In a recent column for the New York Times, Thomas Edsall consulted the research–and reported on the gloomy conclusions that the research supports.

Increasing the share of campaign pledges from modest donors has long been a goal of campaign-finance reformers, but it turns out that small donors hold far more ideologically extreme views than those of the average voter.

In their 2022 paper, “Small Campaign Donors,” four economists — Laurent Bouton, Julia Cagé, Edgard Dewitte and Vincent Pons — document the striking increase in low-dollar ($200 or less) campaign contributions in recent years. (Very recently, in part because Donald Trump is no longer in the White House and in part because Joe Biden has not been able to raise voter enthusiasm, low-dollar contributions have declined, although they remain a crucial source of cash for candidates.)

Bouton and his colleagues found that the total number of individual donations grew from 5.2 million in 2006 to 195.0 million in 2020. Over the same period, the average size of contributions fell from $292.10 to $59.70.

Edsall also quoted a 2019 article, “Small-Donor-Based Campaign-Finance Reform and Political Polarization.” That article warned about the consequences of increasing dependence on small donations, due to the fact that low-dollar donors tend to be “considerably more ideologically extreme than the average American.”

This is one of the most robust empirical findings in the campaign-finance literature, though it is not widely known. The ideological profile for individual donors is bimodal, with most donors clumped at the “very liberal” or “very conservative” poles and many fewer donors in the center, while the ideological profile of other Americans is not bimodal and features strong centrist representation.

It turns out that rising dependency on small-dollar donors has been one of the major reasons we’ve seen a decline in the strength of political parties–and the inability of party leaders, especially but not exclusively in the GOP, to control their respective crazies.

Political parties have been steadily losing the power to shape the election process to super PACs, independent expenditure organizations and individual donors. This shift has proved, in turn, to be a major factor in driving polarization, as the newly ascendant sources of campaign contributions push politicians to extremes on the left and on the right.

Edsall writes that Citizens United “was a crucial factor in shaping the ideological commitments of elected officials and their challengers.” It ushered in our era of independent expenditures and of dark money, leaching power that used to be exercised by the political parties.

The small donors who contribute to Trump are also those who fund the looney-tunes.

Edsall reports that Marjorie Taylor Greene raised $12,546,634, with 68.32 percent coming from small donors; Matt Gaetz raised $6,384,832, of which 62.24 percent came from small donors; and Jim Jordan raised $13,975,653, of which 58.05 percent came from small donors. On the Democratic side, Bernie Sanders and AOC appealed most to small donors (although I would note that Sanders and AOC are both sane and hard-working legislators–something that  certainly can’t be said about Greene, Gaetz and Jordan.)

Donations of $200 or less made up 69 percent of the individual contributions to Trump’s campaign.

And speaking of Citizens United, in its wake, spending by ideological and single-issue independent expenditure organizations grew from $21.8 million in 2006 to $66 million in 2016. During that same time-period, spending by political parties fell from 24 percent of the total to 16.2 percent, and the influence of dark money grew significantly.

There’s much more in Edsall’s column, and it is definitely worth reading in its entirety. The bottom line is that we now have a system that incentivizes extremism. Social media and the Internet enable lunatics to self-finance; they don’t worry that Fortune 500 companies will stop giving them money, because 30 percent of the population wants insanity and is willing to fund the politicians who give it to them.

I have no clue what we do about this, but a more politically savvy Supreme Court would help….

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The Widening Gulf

A reader recently sent me a copy of a column from his local paper. (Congratulations on still having one of those…)

The column (behind a paywall) looked at the ever-widening gulf between legislatures controlled by Republicans and those in majority-democratic states. Those differences, the column suggested, can offer a lens on where the country is heading.

Given the rest of the column, I’d guess that we are heading for further polarization, if not a cold civil war…

The author identified three “big themes” playing out across state capitols this year. The first such theme is no surprise– the “continuing rise of hyper-polarized policies. Red and blue states will push further apart on everything from voting laws, abortion, gay rights, education and taxation. States under single-party dominance–the “trifecta states”– will  feel free to pursue their very divergent approaches to America’s culture wars.

This year there are 39 “trifecta” states, in which a single party controls all three branches of government (both chambers of the legislature and the governor’s office). This allows states to “make decisions and make them relatively quickly,” says Peverill Squire of the University of Missouri, an expert on legislatures. “The contrast with Washington will be stark.”

The column gave examples, including Red Wyoming, where a bill that (mercifully) died in committee would have banned the sale of all new electric vehicles starting in 2035, in order to protect the state’s oil and gas industry.

Blue California is considering several new gun control proposals; while Florida and other Red states, are likely to legalize permitless carry.” (Red Indiana already passed this, over the dire and entirely accurate predications of law enforcement personnel.)

A second theme will be Red state governments taking aim at private companies that have the nerve to defy lawmakers’ partisan political agendas. Proposals currently pending in Republican states, including (of course!) Texas, would revoke firms’ tax incentives if they help employees get abortions.

What ever happened to the Republican Party that–according to Barry Goldwater–wanted to keep government out of both your boardroom and your bedroom? Ah–for the good old days…

Blue California is considering a cap on oil firms’ profits, while legislators in Arkansas, Missouri and South Carolina (and Indiana) want to prohibit state governments from doing business with firms that take environmental, social and governance (ESG) principles into account.

And of course,”some governors will use these legislative sessions as résumé-building for higher office.” Ron DeSantis is way out in front on that “theme”–staking out a coveted MAGA position as head of the White Nationalist movement. The column noted “DeSantis’s signature policies”–restricting what students can be taught about sex and sexuality, punishing Disney for inclusiveness, waging war on anything he can label “woke” and of course, gerrymandering and suppressing the votes of Black Floridians…

Constitution? What Constitution?

As the article pointed out, it isn’t just the big states that are political weather vanes.

smaller states that became Democratic trifectas in 2022, Michigan and Minnesota, will generate headlines too. If rumblings that Michigan is going to repeal its anti-union “right-to-work” law prove correct, it would be the first state to do so since 1965, says Chris Warshaw of George Washington University.

The column says that one way to think of these 2023 state legislative sessions is as a long-running television drama, featuring many of the “same characters and issues from last time: abortion, rights for LGBTQ people, and culture-war debates on curricula in public schools. Already, 202 LGBTQ-related bills have been introduced; a record, according to the American Civil Liberties Union. (Missouri, with 31, has the most, followed by Oklahoma’s 27.)”

Proposals include banning trans children from having surgery or anyone born male from taking part in girls’ sports. There is talk of banning and even criminalizing drag shows.

The author noted that more prosaic concerns–the actual work of government–are getting short shrift. But even there, the division between Red and Blue is stark: 
in numerous states that are still enjoying large surpluses, thanks to high tax receipts and federal money, Red state governors want to use the funds to cut taxes, not to improve decaying infrastructure or (heaven forbid!) pay teachers a living wage. 

As the column concluded, 

Most legislatures would be wise to squirrel away some of their surpluses for times of economic duress, says Justin Theal of Pew Charitable Trusts, which monitors states’ fiscal health.

But for politicians, saving has never generated as many headlines as raving.

And headlines are the name of the game when politics becomes performative….

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We Need A New Version Of The GI Bill

Among the multiple newsletters I receive is one called The Signal. It recently had a thought-provoking report on a growing gender divide among young Americans.

Apparently, over the past few years, young women have become more liberal than young men. Forty-four percent of women aged 18 to 29 consider themselves “liberal,” compared to only 25 percent of men in the same age range—a major change from 30 percent of young women and 27 percent of young men considering themselves liberal a decade earlier.

The article attributed the increase in progressive politics to a series of trends: fewer women in that age bracket are married than was previously the case;  more are educated and religiously unaffiliated, and they “spent formative adult years during the presidency of Donald Trump, whom a strikingly high ratio of them disliked.”

The bulk of the article was an interview with the researcher, and his observations (and their implications) were all interesting, but what struck me was the following.

Politically, climate change is important to Get Z. Gun policy is important. LGBTQ issues are important. I expect abortion to become tremendously important. Yet there isn’t one preeminent, animating political issue for this generation. What’s happened instead is that political identity has become increasingly central to people in defining who they are. It’s become a stand-in for character or even personality. That’s unfortunate in some ways. It leads Americans to be more politically segregated and to shut down political conversations based on the belief that knowing someone’s politics means you know what you need to about their whole life story and whether they’re part of your good tribe or not. We’re on track to become even more politically segregated—more politically polarized—and I believe the decline of institutions and the unraveling of our civic life are playing important roles in that process.

That analysis leads to the question “What can we do to ameliorate this political segregation?”

How about a requirement for national service, an updated version of the wildly successful GI Bill?

Here’s my proposal: upon graduation from high school, students would enroll in a one or two-year program of civic service. Upon satisfactory completion of that service, the government would pay for two years of college at a state university or trade school. The program would be open to everyone, but marketed heavily to the poor and disadvantaged.

Civic service would require young people from disparate walks of life and different political “bubbles” to work together. Service performed for local government and vetted nonprofit organizations would also focus their attention on the common good–a concept missing from the worldviews of far too many Americans, young and old.

We have massive amounts of research confirming that most Americans—rich or poor—know embarrassingly little about the economic and governmental structures within which they live. This civics deficit is more pronounced in poor communities, where civics instruction (as with other educational resources) is scarce. Because civic knowledge is a predictor of civic participation, one result is that poor folks don’t vote in percentages equal to those of middle-class and wealthy Americans. That disparity is especially pronounced among the young.

Poverty is a reliable predictor of low political participation and efficacy. Giving students from disadvantaged backgrounds an affordable opportunity to go to college or trade school—an opportunity they may not have otherwise—and conditioning that opportunity on a year or two of civic service—would do three extremely important things: it would give those students the civic skills they need in order to have a meaningful voice in the democratic process; it would reduce the nation’s currently unconscionable level of student loan debt; and it would cut across the “political segregation” that is turning Americans who disagree with each other into enemies who cannot communicate with each other.

As we’ve seen in the current discussion of Biden’s debt forgiveness program, the need to borrow money in order to afford college keeps many young people from getting the education they need. It keeps others from taking lower-paying jobs with nonprofits and humanitarian organizations after they graduate. The massive level of student loan debt is also a substantial drag on the economy, because payment on those loans prevents large numbers of  graduates from setting up households, buying homes and appliances and even starting families–all activities that keep the economy humming.

As with so many other aspects of contemporary American life, the burdens fall most heavily on those who can least afford them.

A new version of the GI Bill along these lines would require young Americans to meet and work alongside people from outside their “bubbles;” enable informed civic participation, and begin the task of permanently reducing our horrific levels of student loan debt.

It would be a win-win-win…..

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