Professional Documents
Culture Documents
Richard Ostrofsky
Copyright © Richard Ostrofsky, 2000
ISBN:1-894537-00-9
4. Reasonable Choices
Politics is not the art of the possible. It consists in choosing between the disastrous and
the unpalatable.
John Kenneth Galbraith
3 Actually, for a group, the concept of a best or optimal decision plays a role
similar to that of objective reality itself. Even having recognized that we inhabit
a phenomenal world of appearances, we need the Kantian notion of a noumenal
world of things-in-themselves because without this hypothesis, we have nothing
to talk about. In the same way, we need the concept of a best decision as, but
only as, a basis for the decision process. The best decision is the one that we as
a group are trying to reach, but will never know if we succeed in doing so.
approximation: Plans flow directly from desires, perceptions and a sense
of causal relationships. When I feel cold, I turn up the thermostat and put
on a sweater. A little later, feeling too warm, I take the sweater off. There
is no polyphony or politics to speak of.
This common-sense account is too simple even for individuals,
since one may well be “of two minds” about something. But for the joint
decisions of a group – even a married couple – the story breaks down
completely. A group’s choices are irreducibly political in nature. Its
collective intentions and actions do not follow from its diverse beliefs and
interests in any direct way, but rather, represent the outcome of a political
process of conflict-and-negotiation. Under these circumstances, if the
notions of “public understanding” and “public interest” mean anything at
all, they represent sophisticated political constructions, not elementary
social facts. Certainly, they do not represent any simple “vector sum” of
individual understandings and interests.
Accordingly, we face a problem with two parts: First, we owe
some explanation of what it means to make a reasonable choice in
polyphonic situations where several or many perceptions and values are
lobbying the decision-makers, or sitting on the executive committee. And
then we must explain how the tensegrity of argument among viewpoints
(by the last chapter’s definition, what we’ll mean by public knowledge)
can guide the decision-makers to such a choice.
Classically, for political entities as for individuals, intentions,
choices and actions were thought to follow from understanding and
interest in a fairly direct fashion. Values might clash – indeed, clashes of
interest were inevitable – but it was the business of the ideal Ruler or of
honest and competent government to transcend mere private interest and
serve “the public good.” What exactly was meant by this phrase was
never explained, and today we are too knowledgeable and cynical to think
it means much of anything. We expect the state to serve its own interests
first, and its most powerful constituencies second. In the usual case, some
coalition of stakeholders succeeds in capturing the machinery of state for
its own purposes, and either coerces the others into going along or obtains
their resigned consent. Correspondingly, there is little reason (beyond any
sanctions imposed to ensure compliance) why the losers should not evade
the burdens and costs of such imposed policies, and seek to overturn them
as soon as possible.
By contrast, the political strength of reason, for what this may be
worth, is to create an ethical bond that reasonable people may prefer to
honour, and to strengthen social relationships, where the application of
naked power will surely weaken them. If I feel my government has
applied reason to a public necessity in going to war or raising my taxes, I
may be more apt to comply willingly than would otherwise be the case.
Even if I think the decisions mistaken, I may hesitate to oppose my own
judgment to that of my duly elected representatives and their advisors.
Insofar as I have faith in the integrity of the political process, I may be
inclined to grant it a certain moral authority. Without such faith, I am
more likely to dodge the draft or evade the tax if I can find a fairly safe
way to do so.
Perhaps the point is better made in its converse: the drawback of
naked power from the viewpoint of a parent, business manager or
government is that its use inaugurates a spiral in which increasingly
specific orders must be given and increasing coercion applied. The
application of power is always expensive; deployed without legitimacy –
that is to say, in the absence of convincing reasons – it tends to become
more so in a vicious circle of enforcement and resistance.
Now, as regards the application of polyphonic understanding to
necessarily monophonic choice, the central question is this: If we concede
the legitimacy of divergent viewpoints, interests and perceptions, does
there remain some rational basis for collective choice? Or is it merely a
question of which faction can make its own agenda prevail?
Straight off, it must be admitted that representative democracy as
we know it does not provide a genuinely rational basis for a group’s
collective choices. First, the rule of the majority implies a coerced
minority that is not wholly in accord with the decision taken. This might
be acceptable, if adequate minority rights were guaranteed and if everyone
could believe in the integrity of the political process. But, while
constitutional law and a Charter of Rights go a considerable step in this
direction, they do not resolve the issue; procedural rules alone cannot
guarantee the integrity of the political or judicial process. It seems that to
this day, the central principle of government is to put the state’s executive
machinery and coercive power at the disposal of whoever can capture it: a
charismatic leader, a junta of generals or, at best, a political party with a
successful coalition. In constituting governments, there has been little
choice but to sacrifice integrity of the political process for coherent (and,
hopefully, somewhat competent) agency. We want to ask: is any better
way even theoretically possible?
4.3 Epistemic and Pragmatic Conversation
To approach this question, it will be useful to distinguish two phases of the
decision process: There is an epistemic phase of conversation focussed on
questions and alternative answers regarding the interlocutors’ common
reality. There is also what we may call a pragmatic phase, broadly
focussed on the question of “What is to be done?” Thus: maps, history
books, weather forecasts, and statements like “The cat is on the mat” are
typical products of epistemic conversation. So too are value statements,
e.g. “All children should receive a good education at the public expense”
or, “Our widgets must be cheap but durable.” Such conclusions (and
contradictions) of asserted fact and value provide a cognitive context for
decision-making, though they are not part of the decision itself. By
contrast, actual decisions are taken in the course of what we might call
pragmatic conversation, which is preoccupied with the discussion and
negotiation of intentions, agreements and specific plans. Its typical
products include laws, contracts, appointments, and more or less politely
worded and heavily sanctioned demands – e.g. to pass the salt, or pay the
tax. As we’ll see, it is vital for reason that these phases of conversation be
clearly distinguished and kept as institutionally separate as possible.
Epistemic conversation explores and maps the decision-space,
setting up concepts, values, ideals, theories, and cognitive markers
generally. It is inherently speculative and divergent in nature, and is best
conducted under a regime of cognitive liberty, subject only to norms of
civility and conversational integrity to be discussed below. Pragmatic
conversation must converge and decide. It is, and should be, conservative
in operation since it not practical or prudent to tear down the world and
build it over every time someone gets a new idea. It should prefer small
incremental changes to large sweeping ones, pinning as little as possible to
the underlying cognitive issues of paradigm and value but reconciling
these to the extent possible. Viewpoints, perceptions and values should be
allowed to inform our choices; they should be placed firmly to one side
in actually making them.
To take a very simple example: Jack likes meat and can scarcely
eat a satisfying meal without it. He can go without meat occasionally, but
will feel hungry an hour later. By contrast, his fiancee Jill is a strict
vegetarian. She will not cook flesh; indeed, it makes her queasy to watch
someone else eat it. Against these feelings, Jack is on record with the
counter-opinion that cooked vegetables look disgusting, and that it is no
more ethical to pull up a carrot than to slaughter a chicken. Nevertheless,
they are planning a trip together – to test the strength of their relationship,
and work out some jointly acceptable living arrangements. Assuming that
both are reasonable people, really do care about each other, and wish to
have a pleasant trip and then a happy life, the question is: can they come
to some agreement about meals? Would this have to be the outcome of
some power game between them – a contest of wills? If not, how should
they approach the task of reaching agreement?
The basic insight needed if these two young people are to survive
as a couple is that the ethics and benefits of vegetarianism vs. meat-eating
are irrelevant to their situation, except as background information on their
respective sensibilities. Their problem is to work out a compromise that
both can live with; and so long as they are clear that their problem is one
of mutual comfort, and not of principles, they are not without options:
They might agree to dine separately, whatever else they do together. They
might agree to take turns enduring the discomfort of each other’s
preferences for the pleasure of each other’s company. They might agree to
use a special divider across the middle of their table, permitting them to
gaze into each other’s eyes without seeing each other’s dinner plates. One
way or another, they can negotiate some agreement on this matter, if they
care to do so. But this will be much more difficult – quite likely
impossible – if they allow the negotiation to become embroiled in their
underlying cognitive differences. The only task of negotiation here is to
reach a deal, not to change the other’s tastes or opinions, or to win support
from third parties. With this understood, their epistemic argument about
values and ethics may become important background data for the process
– helping them understand which solutions are feasible and which are not.
The point is obvious enough. It is the basic principle of every
secular society, and it generalizes readily to every scale from couples to
nations: The negotiation of political choices works best when a
rigorous distinction is maintained between epistemic conversation
(about values and reality) and the pragmatic conversation (about
what is to be done). Thus, arguments about whether the foetus is already
a human being are not relevant to the drafting of a viable abortion law.
What is relevant, crucially so, is the lethal contentiousness of the issue
itself.
Plato to the contrary, we see that there are excellent reasons why
kings are not, and should not be, philosophers – since they require, and
usually have, completely different temperaments. The latter tend to be
idealists by disposition, even when they are not so by conviction. For
them, general ideas are real and passionately interesting – else they would
scarcely be philosophers. By contrast, rulers tend to be particularists and
materialists in outlook, more interested in facts than in ideas and theories.
The philosopher lives amidst a play of concepts. A ruler lives in the
stream of real events. Their respective vocations and conversations must
be kept apart because both are corrupted when they are run together. The
integrity of epistemic conversation suffers when it takes sides on policy,
thereby allowing its ideas to become political weapons. Pragmatic
conversation loses integrity in a very dangerous way when it sacrifices the
concerns of real people to the abstractions of philosophers and scholars.
4.4 Seven Types of Choice
Earlier4 it was suggested that the concept of decision as a fork in the road
probably adds to the decision-maker's burden more often than not. In
directing attention to the various options and their (usually unknown) pay-
offs, it glosses all political aspects of the decision and invites us to
overlook features that make for one type of decision (requiring one type of
reasoning) rather than another. When we shift our focus to the condition
of uncertainty, and to the decision process rather than the possible pay-
offs, we find a range of situations that stress pragmatic conversation in
very different ways, and call for different types of reasoning.
Every decision situation represents a crisis of operational sureness
– a lapse in the smooth flow of pragmatic conversation, an interruption in
the normal rhythm of control through established habit and policy. A
conscious choice is required because there is hesitation what to do; and to
this extent, the branching-path metaphor seems appropriate. But there are
at least seven types of decision situation, intrinsically very different from
one another in that each makes very different demands on pragmatic
conversation, on the decision-makers, and therefore, as we’ll see, on the
6 That is, the nudging of relevant policies and social indicators to the “left” or
“right.”
Political Choice
Confusingly, most practical politics is a bicker over dilemma choices,
which, like political choices are taken in a polyphonic context of
competing values. A dilemma might be characterized as a recurring or
chronic political choice presented to a group of long-sighted stakeholders
who intend to stay together as a community. Rational decision makers can
manage their dilemmas by tilting now this way, now that, so as to keep
their affairs in balance. Truly political choices cannot be managed in this
long-sighted way. Often they are one-shot choices that have to be taken
once and for all; or they are so irreducibly contentious that no one can see
past them to the needs of the system as a whole. In either case, they
threaten to tear the system apart. As with the issue of slavery in the United
States in the decade before the Civil War, it becomes a question of whether
the group will succeed in holding itself together, and on what terms it will
do so. For this reason, truly political choices might also be called
constitutive choices, as they determine the basis on which the group is
constituted – indeed, whether it remains a group at all.
In less contentious decision situations, it may be hoped that further
study, better information, more far-sighted thinking, or better
compensation for inconvenienced parties, will resolve the matter without
serious conflict. For genuine political choices, such hopes will be
disappointed. The more we study a real political issue, the thornier it
becomes. All that happens is that the paradigms themselves – the whole
basis for calculation of expectation and pay-off – become themselves a
matter for conflict.
So we ask: in situations of this kind, what does it mean for the
group to make a rational choice, and on what basis might it do so? Here,
the branching-path metaphor is worse than useless, making political
choices more divisive than they need be by emphasizing the mutual
exclusivity of the pre-conceived “branches,” thus turning the mind away
from possibilities for creative settlement through the design of some novel
approach that all sides might prefer to conflict or break-up.
Earlier in this chapter7 we mentioned several aspects of rationality
in political choice; and there is no need to repeat them. We should note,
though, that from one perspective, all choices are somewhat political in
nature. There is no need for choice unless an individual or group is “of
two minds about something,” and feeling some conflict between them. In
every case, whether the conflict perturbs a world or a single person, both
reason and sheer power come into play, and the larger problem is to
preserve the whole system – whatever special interests are in dispute.
Design Choice
Just as all choices are political from one perspective, they are design
problems from another. The design aspect of choice is glossed completely
when we think of the options as pre-existing paths leading out in different
directions from under our feet. But, in fact, the perceived options are
7 in Section 4.1
never more than potentialities; the actual design and construction of a
viable route is always part of the choice to a greater or lesser extent. Our
options are never so cut-and-dried that we can walk them passively –
without so many further choices that, in effect, we must design and build
our route as we travel it.
Where the design problem predominates – as in some engineering
project, for example – the construction, inter-relationship and combination
of possibilities is the essence of the decision process. At every step of the
way, a great number of basic and petty alternatives will have to be
considered. Precisely what the design group does not have – except by
hindsight, after the fact – is a set of clearly defined alternatives branching
under their feet. Rather, it confronts a whole landscape of possibilities and
trade-offs, with known and unknown consequences.
In the end, a design team will probably bring a short list of discrete
options to its clients, with a more or less formal analysis of benefits and
costs. The clients are thus given the illusion of simple choice at a
crossroads – yet the reality is entirely different. The options on offer will
have been laid out and evaluated just before the presentation, to make the
teams’ recommendation, and then its clients’ decision, as nearly automatic
as possible. But the real choices will have been made piecemeal, in the
constructive process whereby the various modules of an over-all design
were separately defined, detailed and adjusted one to another.
Expressed schematically, the rationality of such design efforts
involves a working downward, through multiple levels of thought. At
each level, two viewpoints are considered: a systemic, “black box”
viewpoint of global functionality and a component viewpoint showing the
assembly of parts. Usually, the required functionality of the whole, along
with key choices for a few critical modules, becomes the basis for a top-
down design. Favoured designs for the key modules react upon each
other, and progressively determine all remaining choices. The design is
complete when consistency amongst its levels has been achieved and
resources for further tinkering have been exhausted.
The design of options for many decisions is not so different. As in
the design of some machine or computer system, there is a goal to be
achieved, and a vague sense of alternative means to achieve it. The goal
itself may evolve, and will certainly be sharpened as the means to it are
detailed. Conversely, the means considered will depend on the end
desired, and may shift as that end is better understood. In this way, the
design process plays continually between contextual levels: a whole and
its parts.
The rationality of design choice is a composite of function,
aesthetics and integrity. A good design “hangs together” as a coherent
whole, achieves intended results, and displays a certain elegance in doing
so. In some respects, design choices are similar to matching choices of
“fit.” However, unlike the latter, design choices undergo significant
evolution in the short and long term, which gives them a distinctive
character of their own. In the short term, the design process involves a
great many matching choices for good “fit.” In the long term, they show
an evolution of contributing technologies and design possibilities – as
happened with the automobile, for example. Understanding of the
problem also develops. Past a certain point, one is no longer designing a
“horseless carriage”, but some new kind of entity with requirements and
an integrity of its own.
4.5 Reason For Decision-Makers
We may think of the knowledge that guides our choices as a constellation
of agreed “facts”; more often it is a structure of argument. For example,
you might go a little out of your way to buy your gasoline at a service
station where it is one cent per litre cheaper than at the station nearest your
home. Even in this trivial case there may be a trade-off between cost and
convenience, leaving you to argue (inside your own head) which you
value more at this particular moment. Your family buys this new car, or
plans that trip, because an argument “tips the balance” in its favour. In
general, choices are made by devising some plan or policy that terminates
any immediate argument around the concrete issue at hand. We are not so
much drawn by the facts, as nudged and guided by the whole layout of
points made for and against our perceived alternatives. The argument
around the situation, or rather the structure of that argument (reduced to
skeletal form) is the public “fact” that shapes our choices.
Such decision arguments can be quantified by weighting the choice
criteria and calculating a weighted score for each option. Useful as this
technique can be as a checklist of relevant considerations, it is not, in
general, an appropriate paradigm of rational decision. For one thing, as
we’ve seen, many decisions do not lend themselves to representation in
the tabular, weighted-score format. Second, although the weighted score
format may be helpful in prompting its user to estimate the missing
parameters of his decision, it can also mislead. Too many perceptions,
values and ideas are dropped when argument is stripped down to this
schematic format, and arbitrary numbers are assigned because numbers are
needed. Worst of all, the parties to a decision may differ vehemently in
their concerns and priorities. In this case, submerging their differences by
averaging numerical preference weights merely papers over the conflict,
and avoids any possibility of a meeting of minds. This might be a good
thing, if there is no such possibility anyway, but it should not be confused
with game-theoretic rationality, much less with reason.