E-mail:
Jack Balkin: jackbalkin at yahoo.com
Bruce Ackerman bruce.ackerman at yale.edu
Ian Ayres ian.ayres at yale.edu
Corey Brettschneider corey_brettschneider at brown.edu
Mary Dudziak mary.l.dudziak at emory.edu
Joey Fishkin joey.fishkin at gmail.com
Heather Gerken heather.gerken at yale.edu
Abbe Gluck abbe.gluck at yale.edu
Mark Graber mgraber at law.umaryland.edu
Stephen Griffin sgriffin at tulane.edu
Jonathan Hafetz jonathan.hafetz at shu.edu
Jeremy Kessler jkessler at law.columbia.edu
Andrew Koppelman akoppelman at law.northwestern.edu
Marty Lederman msl46 at law.georgetown.edu
Sanford Levinson slevinson at law.utexas.edu
David Luban david.luban at gmail.com
Gerard Magliocca gmaglioc at iupui.edu
Jason Mazzone mazzonej at illinois.edu
Linda McClain lmcclain at bu.edu
John Mikhail mikhail at law.georgetown.edu
Frank Pasquale pasquale.frank at gmail.com
Nate Persily npersily at gmail.com
Michael Stokes Paulsen michaelstokespaulsen at gmail.com
Deborah Pearlstein dpearlst at yu.edu
Rick Pildes rick.pildes at nyu.edu
David Pozen dpozen at law.columbia.edu
Richard Primus raprimus at umich.edu
K. Sabeel Rahmansabeel.rahman at brooklaw.edu
Alice Ristroph alice.ristroph at shu.edu
Neil Siegel siegel at law.duke.edu
David Super david.super at law.georgetown.edu
Brian Tamanaha btamanaha at wulaw.wustl.edu
Nelson Tebbe nelson.tebbe at brooklaw.edu
Mark Tushnet mtushnet at law.harvard.edu
Adam Winkler winkler at ucla.edu
In
2008 the UK Government published a Code of Practice on Consultation (now superseded) for
central government departments. On its cover was a picture of one bumble bee
hovering above, and three bumble bees on, a flower. The picture has always made
me wonder about what the flower and the bees are meant to represent. Is the
flower a government department? Or are the bees? The answer depends on what you
think the purpose of public participation is. If it is about information
collection, then the government is probably the bees. But if you understand that
consultation is about nurturing democracy and accountability then it is
probably the public which are the bees.
Underpinning
Susan Rose-Ackerman’s important new book, Democracy and Executive Power:
Policy Making Accountability in the US, the UK, Germany and France (Yale
UP, 2021) is definitely an assumption that government departments are flowers
(or at least in terms of the above analysis). She is explicit from the outset about
the value of consultation and reason giving in contributing to the ‘democratic
legitimacy of discretionary regulatory actions’ (p 4). Saying that might
suggest that the book is an argument for a particular vision of administrative
government and administrative law. It is not. Rather through a calm, measured,
and thoughtful account of administrative law in the four jurisdictions listed in
the title she develops ‘some basic principles of public law for democracies
everywhere’ (p 12). This serves as the basis for a ‘reform agenda’ that ensures
the ‘difficulties of balancing competence, public participation, and government
accountability’ (p 266) are put front and centre.
Mathias
Ruffert in his post as part of this
symposium provides an excellent overview of her analysis as well explaining the
significance of her approach. I do not want to repeat what he said. Rather I
want to draw attention to a particular strength of Rose-Ackerman’s book. In
achieving its aim, the book is an exercise in what I have described elsewhere as ‘thin’ comparative
description. The distinction between thin and thick description is well known
in the social sciences, but less so in law. Both thin and thick description are
needed. Neither is superior to the other. Both serve different purposes.
Thick
accounts delve deeper into inference, implication, and complex conceptual
structures that are ‘superimposed or knotted into one another’ (to paraphrase
Clifford Geertz). Given the way public administration and administrative law
lie at the intersection of so many disciplines and controversies,
administrative law analysis is often thick. But thick description does not
easily travel beyond the context it is operating in, and in thick analysis it can
be often hard to see the bigger picture or even have an interest in it. If you
are arguing about the Chevron doctrine in the US or about statutory
instrument oversight in the UK it can be easy to not see the more general
patterns of administrative government at play. Nor see the relevance of reflecting
on other jurisdictions. What is done in Germany seems not very helpful when
what is done in the UK is so deeply embedded in UK legal and socio-political
culture.
Thin
description, in contrast can provide templates that aid in understanding and evaluation
in different contexts. Thin description focuses on that which is observable,
understandable, and collatable. Thin does not mean superficial or inadequate. There
is nothing incomplete in Rose Ackerman’s thin description but there is much
which aids in understanding and evaluation. Take public participation. Rose-Ackerman
through a study of the different jurisdictions develops a scheme of the
different ‘loci’ where public involvement does, and thus could, occur. Building
on that analysis, she identifies different types of public participation
including participation as finding facts (the public as a flower),
participation as customer satisfaction, civic forums, stakeholder groups, and
open ended notice and comment (the last three being closer to the public as
bees). That analysis not only shows the importance of public participation, but
also that there are choices to be made about it. It is not just about deciding
whether the public are bees or flowers but a set of choices across the ecology
of government practices.
Democracy
and Executive Power
is a reminder of the importance of comparative analysis in thinking about
administrative law and its possibilities. I say reminder, because in the late
nineteenth century and early twentieth century there was a rich and varied
transatlantic discourse. For example, as Blake Emerson has shown in The
Public's Law: Origins and Architecture of Progressive Democracy (OUP 2019)
US thinkers crafting the administrative state drew on, and adapted, German
thought. Likewise, one of the first US administrative law treatises was Frank
Goodnow’s Comparative Administrative Law: An Analysis of the Administrative Systems,
National and Local, of the United States, England, France and Germany (GP
Putnam Sons 1893). Throughout the New Deal, English legal thought was also a
wellspring for administrative lawyers. But as administrative law in each
jurisdiction evolved, comparative analysis waned. It is only in recent years
that it has been revivified. The work of Rose-Ackerman has been significant in
this development.
The
comparative analysis in Democracy and Executive Power is not just of
academic interest. It provides a foundation for constructive thinking. Part of
the thickness of administrative law, as the Independent Review of
Administrative Law in the UK recently stated, is that ‘disagreement’ is
‘hardwired’ into administrative law culture. For example, as Sid Shapiro and I
have noted in our recent book, Administrative Competence: Reimagining
Administrative Law (Cambridge UP 2021), US administrative law thinking is
dominated by assumptions that can make the subject seem a set of dismal binary
choices: between law and administration; discretion and control; or between
ideologies. Rose-Ackerman does not get caught in these binaries. Rather, she identifies
a set of choices to help navigate them. She is not arguing for a particular way
of doing things but for a clear-headed approach to the challenges involved. In
doing so, she is not hiding from hard questions about the tensions between democracy
and bureaucracy.
More
importantly, she is reminding us of the importance of this tension. In 2015 the
then UK Prime Minister David Cameron referred to consultations as one of the ‘buggeration factors’ that clutter up
government. Rose-Ackerman does not think that public participation is perfect
but she does underscore its importance. There are choices in administrative law
but there are also fundamentals. To put the matter another way, we can debate
whether the bees are the public, and the flower the government (or vice versa).
But there is no doubt we need both.
Liz
Fisher is Professor
of Environmental Law, Faculty of Law and Corpus Christi College, University of
Oxford. You can reach her by e-mail at liz.fisher@law.ox.ac.uk.