The Will of the People: Legislators Do Not Care

“Our analyses suggest that majorities of the American public actually have little influence over the policies our government adopts,” Gilens and Page write: Americans do enjoy many features central to democratic governance, such as regular elections, freedom of speech and association, and a widespread (if still contested) franchise. But we believe that if policymaking is dominated by powerful business organizations and a small number of affluent Americans, then America’s claims to being a democratic society are seriously threatened.

That’s a big claim. In their conclusion, Gilens and Page go even further, asserting that “In the United States, our findings indicate, the majority does not rule—at least not in the causal sense of actually determining policy outcomes. When a majority of citizens disagrees with economic elites and/or with organized interests, they generally lose. Moreover … even when fairly large majorities of Americans favor policy change, they generally do not get it.” New Yorker magazine, 2014

Writing an opinion piece for the New York Times, political scientists Joshua Kalla and Ethan Porter report on a two-year study. They write:

We like to think that politicians care about what their constituents want. If voters in a legislative district have certain views about, say, the legality of abortion, we assume that their representative’s decisions will be shaped, or at least influenced, by those views. To a large extent, democracy depends on this assumption: The beliefs of voters should be reflected, however imperfectly, in the leaders they elect.

But there is reason to question this assumption. It is easy to think of issues, climate change and gun control chief among them, where the consensus of public opinion has provoked little legislative action. How much do legislators really care about the views of their constituents?

Over the past two years, we conducted a study to find out. We provided state legislators in the United States with access to highly detailed public opinion survey data — more detailed than almost all available opinion polls — about their constituents’ attitudes on gun control, infrastructure spending, abortion and many other policy issues. Afterward, we gauged the willingness of representatives to look at the data as well as how the data affected their perceptions of their constituents’ opinions.

What we found should alarm all Americans. An overwhelming majority of legislators were uninterested in learning about their constituents’ views. Perhaps more worrisome, however, was that when the legislators who did view the data were surveyed afterward, they were no better at understanding what their constituents wanted than legislators who had not looked at the data. For most politicians, voters’ views seemed almost irrelevant.

No one wants or expects politicians to march in lock step with their voters. Politicians are not supposed to mechanically replace their own views with the views of their constituents. But constituents’ perspectives should carry considerable weight. Our study suggests that for most politicians, voters’ views carry almost no weight at all.

What Kalla and Porter describe in this opinion piece accords with the Gilens and Page (Yale U. and Northwestern U., respectively) analysis from 2104.[1] Kalla and Porter's research shows a clear indifference by legislators as to what voters want, and when they do pay attention, they usually misunderstand what voters want.

Footnote:
1. The abstract from a Gilens and Page paper in Perspectives on Politics:

Each of four theoretical traditions in the study of American politics—which can be characterized as theories of Majoritarian Electoral Democracy, Economic-Elite Domination, and two types of interest-group pluralism, Majoritarian Pluralism and Biased Pluralism—offers different predictions about which sets of actors have how much influence over public policy: average citizens; economic elites; and organized interest groups, mass-based or business-oriented.

A great deal of empirical research speaks to the policy influence of one or another set of actors, but until recently it has not been possible to test these contrasting theoretical predictions against each other within a single statistical model. We report on an effort to do so, using a unique data set that includes measures of the key variables for 1,779 policy issues.

Multivariate analysis indicates that economic elites and organized groups representing business interests have substantial independent impacts on U.S. government policy, while average citizens and mass-based interest groups have little or no independent influence. The results provide substantial support for theories of Economic-Elite Domination and for theories of Biased Pluralism, but not for theories of Majoritarian Electoral Democracy or Majoritarian Pluralism. (emphasis added)

B&B orig: 7/12/19