Where did Carl Schmitt go wrong in his critique of democracy?

 

I first became aware of Carl Schmitt about 30 years ago while reading Friedrich Hayek’s book, Law, Legislation and Liberty. At that stage I was left with the impression that while Schmitt still had influence among German legal philosophers, his views were mainly interest to people wondering how a respected academic could become a Nazi. Over the last year or so, however, I seem to be coming across increasing references to the relevance to contemporary politics of Schmitt’s views about friend-enemy distinctions and the autonomy of the political.

The Stanford Encyclopedia of Philosophy provides the following biographical information about Schmitt:

“Carl Schmitt (1888–1985) was a conservative German legal, constitutional, and political theorist. Schmitt is often considered to be one of the most important critics of liberalism, parliamentary democracy, and liberal cosmopolitanism. But the value and significance of Schmitt’s work is subject to controversy, mainly due to his intellectual support for and active involvement with National Socialism.”

My reading of the full entry about Schmitt in the Stanford Encyclopedia (written by Lars Vinx) reinforced the impression I previously had that Schmitt’s political philosophy is inherently authoritarian. However, the conclusion that Peter C. Caldwell reached in his literature review is ambivalent:

“What Schmitt’s real message is remains disputed. Fifty years after the first reflections on his work began to appear, his interpreters still battle over whether he was primarily a brilliant lawyer and theorist of constitutional democracy or a gravedigger of democracy and apologist for authoritarianism; an intellectual adventurer and opportunist or a serious analyst of modernity; a conservative trying to save what could be saved of the European heritage or an antisemite and Nazi.”

(‘Controversies over Carl Schmitt: A Review of Recent Literature’, The Journal of Modern History 77, June 2025)

The focus of this essay has been determined largely by a couple of books that I have read recently. I focus on three aspects of Schmitt’s critique of liberal democracy. First, I consider Adrian Vermeule’s synthesis of Catholic integralism and Carl Schmitt’s view that politics is war. Second, I consider the link between entangled political economy and Carl Schmitt’s concept of the autonomy of the political. Finally, I reconsider Friedrich Hayek’s view of Carl Schmitt’s legal philosophy.

Vermeule’s synthesis of integralism and Schmittian illiberalism

My initial source for the discussion of integralism was Kevin Vallier’s book, All the Kingdom’s of the World (2023). I recently reviewed Vallier's book in an essay entitled, ‘Are integralists opposed to natural rights?’, but neglected to mention Vermeule’s affinity with the political philosophy of Carl Schmitt.

Vallier refers to Vermeule’s article, The Ark of Tradition, which is a review of Schmitt’s book, Roman Catholicism and Political Form. Vermeule writes:

“My suggestion, which is consistent with Schmitt’s vision, but goes beyond what he articulates, is that the Church serves as a kind of ark, whose vocation is to preserve the living tradition of the Verbum Dei amidst the universal deluge of economic-technical decadence, and the eventual self-undermining of the regime.”

He goes on to quote Schmitt:

“Should economic thinking succeed in realizing its utopian goal and in bringing about an absolutely unpolitical condition of human society, the Church would remain the only agency of political thinking and political form. Then the Church would have a stupendous monopoly: its hierarchy would be nearer the political domination of the world than in the Middle Ages.”

My understanding of what Schmitt meant by “an absolutely unpolitical condition of human society”, is a condition in which people would no longer be interested in drawing “friend-enemy distinctions”. Schmitt claimed that life in a completely de-politicized world would be shallow, insignificant, and meaningless.

Such views seem to me to be mistaken and to have potential to cause a great deal of unnecessary misery. In fields of human endeavour such as business and sport, friendly rivalry obviously helps to make life meaningful for many people. However, friendly rivalry does not require friend-enemy distinctions. Opportunities for human flourishing are enhanced in societies where individuals tend to seek mutual benefit from voluntary (and friendly) interactions with other people, rather than seeking to benefit from the friend-enemy distinctions associated with coercive political processes.  

Lars Vinx notes: 

“Some interpreters have explained Schmitt’s hostility towards liberal de-politicization as being grounded in the view that a willingness to distinguish between friend and enemy is a theological duty.”  

That made me wonder, very briefly, whether a theologian could argue that it is necessary for Christians to be able to distinguish between friend and enemy in order to follow Jesus’s exhortation to love one’s enemies. Before wasting too much time, however, I reminded myself of Erasmus’s message about refraining from wars over theology, which seems to me to remain as relevant today as at the time of the Protestant Reformation. (If further explanation is required, please read something I wrote about Erasmus a few years ago.)

Autonomy of the political

In my recent essay entitled “How does entangled political economy help us to understand political entrepreneurship?”, I drew heavily on Richard E. Wagner’s book, Politics as a Peculiar Business,. However, that essay doesn’t discuss the link that Wagner draws between entangled political economy and Carl Schmitt’s concept of the autonomy of the political.

The concept of autonomy of the political describes power relations and the behaviour of those who hold political power in society. The surface impression is that a small number of rulers dominate larger masses of citizens, but power is ever present in society and can be manifested in a variety of different ways. Wagner’s concept of entangled political economy “rests on the twin autonomies of the political and the economic in society, and the interaction between those autonomies being a source of turbulence within society.”   

Wagner writes:

“For Schmitt, the autonomy of the political rested on exceptional circumstances and the friend–enemy distinction. Exceptional circumstances mean that a rule of law cannot be articulated that will cover every possible point of decision that might arise. The presence of exceptions is a point where the autonomy of the political enters into society. The friend–enemy distinction is a feature of the crooked timber of humanity that surely intensifies with increases in societal complexity and the hierarchical ordering in terms of status that comes in the wake of growing complexity.”

Schmitt argued that even if constitutional arrangements are crafted to support private ordering of societal interaction, the autonomy of the political will assert itself in the guise of exceptional circumstances. As the scale of the polity expands, consensual action tends to give way to factional action, wherein some factions gain at the expense of others. For example, whereas application of general rules and principles might require a few pages of tax codes, factional action to achieve concessions generates thousands of pages of tax codes.

To consider Schmitt’s proposed remedies for factional politics, I have looked beyond the references to Schmitt in Wagner’s book. My main source is the Stanford Encyclopedia entry written by Lars Vinx.

Schmitt’s views about the problems of democracy and the need for strong political leadership are similar to those of Max Weber and Joseph Schumpeter (discussed in earlier essays, here and here). However, while Weber and Schumpeter defend liberty, Schmitt regards constitutionally guaranteed freedoms as concessions of the state to the individual.

Weber and Schumpeter emphasize the importance of constitutional procedures, but Schmitt’s view of constitutions seems ambivalent. Schmitt understands democracy as the self-rule of the people. He argues, however, that since the will of the people is not necessarily reflected in the majority view, representative government is not necessarily any more intimately connected with the principle of democracy than a dictatorship in the name of the people. 

Schmitt denies the possibility of changing the fundamental nature of an established constitution via use of rules contained within it. Nevertheless, he acknowledges the possibility of suspending a constitution through a sovereign decision on the exception. He also acknowledges that a people, in a renewed exercise of their constituent power, might legitimately choose a non-liberal and non-parliamentarian form of democracy. 

Friedrich Hayek’s view

Hayek held similar views to Schmitt concerning the ability of the majority in a representative assembly with unlimited powers “to confine its activities to aims which all members of the majority desire, or even approve of”. The majority can only be kept together by “paying off each of the special groups by which it is composed”. (LLL, V3, 138)

In a footnote to that passage, Hayek suggested that in the 1920s “the weakness of the government of an omnipotent democracy was very clearly seen by the extraordinary German student of politics, Carl Schmitt.” However, Hayek added that “Schmitt regularly came down on what to me appears both morally and intellectually the wrong side.” (LLL, V3, 194-5)

The passage quoted in the epigraph at the top of this essay appears in Volume 1 of Law, Legislation and Liberty (p 71). It is immediately followed by the assertion that “long before Hitler came to power” Carl Schmitt “devoted all his formidable intellectual energies to a fight against liberalism in all its forms”. (Hayek’s perception that Schmitt was so clearly opposed to all forms of liberalism has been disputed. Some of Schmitt’s writings apparently give the impression that he was trying to save Europe’s liberal heritage.)

Later in the same paragraph, Hayek explains that Schmitt’s final formulation of his central belief about the law entailed “concrete order formation”. Schmitt posits that law is fundamentally a form of political and social organisation grounded in a community’s values, and that the state is the embodiment of the community’s legal order. Hayek argues that under that view of law, individuals are “made to serve concrete purposes”.

Hayek contrasts Schmitt’s view of law with his own view that law consists of “abstract rules which make possible the formation of a spontaneous order by the free action of individuals through limiting the range of their actions.”

While Schmitt saw the state as giving expression to the values of the dominant community group, Hayek saw law as consisting of rules of just conduct that have evolved to protect individual liberty.

Conclusions

Carl Schmitt is remembered as a prominent German legal and political theorist who became a Nazi. However, Schmitt’s political affiliations have not prevented frequent reference being made to views about friend-enemy distinctions and the autonomy of the political in contemporary discussions about political institutions.

This essay has focused on three aspects of Schmitt’s critique of liberal democracy: Adrian Vermeule’s synthesis of Catholic integralism and Carl Schmitt’s view that politics is war; the link between Richard Wagner’s concept of entangled political economy and Carl Schmitt’s concept of the autonomy of the political; and Friedrich Hayek’s view of Carl Schmitt’s legal philosophy.

Schmitt argued that if economic liberalism succeeded in bringing about an absolutely unpolitical condition of society – a condition where people were no longer interested in making friend-enemy distinctions – the Catholic church would be able to dominate the world. He reasoned that that this religious organisation would dominate in those circumstances because it would be the only agency still engaged in political thinking. I am puzzled as to why he thought a religious organisation would be last to abandon the habit of making friend-enemy distinctions. It seems to me that criminal organisations would be likely to pose a greater obstacle to establishing an unpolitical utopia because friend-enemy distinctions are more intrinsic to their activities.

Schmitt presented a valid argument that constitutional arrangements crafted to support private ordering are prone to corruption by interest group politics. The autonomy of the political exerts itself as some groups argue for exceptions to general rules to obtain benefits at the expense of others.

Other political theorists have proposed stronger executive government as a remedy for problems that interest groups pose for the functioning of liberal democracies. However, Schmitt proposed more extreme remedies. For example, he suggested that under exceptional circumstances a government could make a “sovereign decision” to suspend a constitution.

Friedrich Hayek acknowledged that Schmitt had clearly seen the weakness of omnipotent democracy in the 1920s, but suggested that he “regularly came down on the wrong side” in proposing remedies.

Hayek argued that under Schmitt’s final formulation of his beliefs about the law, individuals are made to serve concrete purposes determined by the state. By contrast, Hayek viewed law in terms of abstract rules of just conduct that have evolved to protect individual liberty.

In my view Schmitt went wrong in his critique of democracy by seeking authoritarian remedies rather than changes in the rules of the game to address the specific problems that he identified.

Are integralists opposed to natural rights?

 

Who are integralists? And why should anyone be interested in their views about natural rights?

I knew next to nothing about integralists before reading Kevin Vallier’s book, All the Kingdoms of the World, published in 2023. I read the book because of my interest in political movements that may pose a threat to liberty. By examining integralism, the author aims to help liberals and post-liberals to understand religious anti-liberalisms.

Vallier writes:

“Catholic integralists say that governments must secure the earthly and heavenly common good. God authorizes two powers to do so, they assert. The state governs in matters temporal, and the church in matters spiritual. Since the church has a nobler purpose than the state (salvation), it may authorize and direct the state to support it with certain policies, such as enforcing church law. At times, the church may need assistance to advance its objectives.”

After reading that, my first thought was that it would be necessary for Catholics to make up a high proportion of the population of a country before integralism could possibly be a force to be reckoned with. The idea that governments should enforce Catholic church law in countries like the United States and Australia would seem almost as preposterous to most citizens as the idea that the governments of those countries should enforce Sharia law.

Yet, groups of people who have strong anti-liberal convictions (socialists and environmental activists as well as religious extremists) often find ways to exert political influence that is disproportionate to the numbers of their supporters.

Vallier suggests that the modern integralist movement was founded around 2012 as a movement for spiritual renewal based on views of Thomas Pink. However, integralism has been transformed by Adrian Vermeule and his allies to have a greater focus on politics. Vallier suggests:

“Vermeule is building a new anti-liberal elite designed to steer the New Right.”

Rather than attempt to provide a comprehensive review of Vallier’s book, I focus here on the views of Adrian Vermeule and their implications for natural rights.

The views of Adrian Vermeule

Vermeule is a Harvard law professor, and a leading scholar in administrative law. He became interested in integralism soon after his conversion to Catholicism in 2016.

Vermeule has little to say about integralism as an ideal. His focus is on “helping integralists to develop a serious theory of the state and a theory of state capture.”

Vallier notes that Vermeule builds on Patrick Deneen’s criticism of liberalism in his book, Why Liberalism Failed. In response to Deneen’s book, I wrote an essay entitled, “Is John Locke responsible for the failings of liberal democracy?” I suggested that Deneen’s argument that John Locke is responsible for the failings of liberal democracy stems from a mis-reading of a paragraph in the Second Treatise of Government. Nevertheless, I welcomed Deneen’s support for practices that sustain culture within communities and his recognition that it is important for members of self-governing communities to have exit rights.  

Vermeule rejects Deneen’s belief that “Politics and human community must percolate from the bottom up, from experience and practice.” Vermeule argues that in order to protect religious communities, Catholics must take over the state and destroy liberalism from the top down.

Vermeule brought to integralism a non-originalist, non-contextualist legal philosophy. Rather than adopting the usual approach of American conservatives who read the U.S. Constitution according to the framer’s intent or the text’s plain meaning, Vermeule argues that the Constitution should be interpreted in accordance with “the common good”.

The concept of “common good” is linked to natural law. Natural law is seen to direct humans to pursue goods that help them to flourish. Since humans flourish in groups, natural law determines the common good for each group as a whole. An effective criminal justice system is an example of a common good.

However, Vallier tells us that Vermeule seeks to advance the common good theologically as well as politically via a strong administrative state:

“The state can help citizens grasp and follow the natural law, promote the earthly common good, and even help them pursue the heavenly common good—corporate salvation in Christ. The administrative state serves as the church’s deputy for the salvation of souls.”

Vermeule’s vision of “integration from within” requires integralists to capture the state and turn it toward religious objectives. That will be possible, he asserts, because liberalism is doomed.  The tendency of liberals to push for new liberties will eventually exceed the populace’s appetite for freedom. As members of the public object to whatever appears on the progressive liberal agenda beyond legalisation of divorce, contraception, abortion, same-sex marriage and transgenderism, the persecution of non-liberals will become more aggressive. Non-liberals will crave the return of “strong gods”.  

Vermeule apparently believes that “a small, devoted cadre can instigate a Catholic-led American counterrevolution against liberalism.” Vallier suggests that in Vermeule’s view, Catholics have only two options: “become rulers or become subjects.” He states:

“Make no mistake: Vermeule means to install a ruler.”

Vallier discusses several reasons why a peaceful transition to integralist rule is unlikely to be possible. The most important point he makes is that even if Vermeule is correct about the collapse of liberalism, he has “no story” about why integralism must follow liberalism. Integralists would be competing with other groups. They would struggle to dominate Catholics with more moderate views and nonviolent unbaptized resistors, let alone “violent and enraged” progressives.

Vallier also argues that, once established, an integralist order would lack moral stability.  His line of argument is somewhat complicated, but his main point seems to be that “the integralist ideal depends on people acting from a firm grasp of the true good” rather than from fear.  He notes that Václav Havel’s observation that under communist rule in Eastern Europe everyone ended up complying with authoritarian social norms to avoid punishment, rather than from moral conviction.

The relevance of natural rights

The only reference I could find to natural rights in Vallier’s book is in a reference to John Finnis’s book, Natural law and Natural Rights. Vallier discusses human rights in the context of Catholic social thought. He notes:

“The Catholic Church embraces many such rights. These include the right to health care, the right to vote, and freedom of religion. Catholic social thought claims that governments exist to protect universal human rights. The church has not set natural law aside, though. When we talk about human rights, we thereby talk about natural law.”

At that point, the author provides a reference to Finnis’s book (pages 198-200) which contains a discussion of the grammar of rights. In his discussion of natural law and natural rights, Finnis notes that some values have been widely recognized in all human societies. All human societies show a concern for the value of human life, cooperation, property, and reciprocity. That provides the background against which Finnis develops his list of basic values, including life, sociability, and practical reasonableness. Practical reasonableness requires one “to bring one’s own intelligence to bear effectively … on choosing one’s actions and lifestyle, and shaping one’s own character”. Finnis argues that an important implication of practical reasonableness is that “it is always unreasonable to choose against any basic value, whether in oneself or in one’s fellow human beings.”

I can understand why Vallier views human rights in the context of Catholic social thought. Since one of his aims is to “reach out to those skeptical of liberal order”, none of his arguments “presupposes liberal commitments”. I hope he persuades many readers that integralism is inconsistent with the declaration of religious freedom adopted by the Second Vatican Council in 1965. However, from my perspective (as a non-Catholic) that doesn’t get to the heart of the matter.

In my view, the heart of the matter is whether integralism is consistent with recognition of natural rights. From my reading of Vallier’s book, it seems obvious that integralists are opposed to government recognition of the natural rights of individuals. For example, integralists want governments to help them to discourage heresy and apostasy.

As I see it, the best way to defend classical liberalism from the advocates of integralism, Sharia law, communism, illiberal progressivism, and every other brand of authoritarianism, is by promoting an understanding that government recognition of natural rights offers a solution to the social problem of enabling people to flourish in different ways without the flourishing of any person or group being given preference over that of others. Drawing extensively on the wisdom of other people, I sought to explain that approach in my book, Freedom, Progress, and Human Flourishing.   

How does Entangled Political Economy help us to understand political entrepreneurship?

 

After I finished reading Richard E. Wagner’s book, Politics as a Peculiar Business, the thought crossed my mind that I should encourage people to read what I was about to write about it before reading the other essays I have recently written about political entrepreneurship. The titles of the other essays are:

Can the concept of political entrepreneurship help us to understand authoritarianism?

What role does political entrepreneurship play in institutional change?

Should we expect our political leaders to be great and good?

I have been writing essays about political entrepreneurship to improve my understanding of the topic. In the process I have felt like that a blind man trying to build up a picture of an elephant in his mind by approaching it from different angles. After I finish writing this essay, I might be able to turn my mind to considering how best to present my understanding of the concept and its relevance to liberty and human flourishing.

Entangled Political Economy

The full title of Richard E. Wagner’s book is Politics as a Peculiar Business: Insights from a Theory of Entangled Political Economy (Edward Elgar, 2016).  

Wagner refers to the ancient Indian parable of the blind men and the elephant in suggesting that political economy is best approached from the standpoint of plausible reasoning rather than demonstrative reasoning.

Plausible reasoning starts from the standpoint that the object of inquiry cannot be known in full detail to the inquirer.

By contrast, demonstrative reasoning begins with a set of assumptions about human behavior, and then analyses the implications of those assumptions. The conventional welfare economics approach to the role of government - with its assumption that government acts like an omniscient and benevolent dictator attempting to maximize the well-being of citizens by correcting externalities and providing public goods – provides a relevant example of demonstrative reasoning.

The analytical framework of Entangled Political Economy recognises that both “polity and economy are areas of practical action that operate in similar but not identical fashion.”

The author suggests that human nature has “a bi-polarity about it that generates both polity and economy.” The political side of human nature entails recognition that we are social creatures who live in close proximity and engage in cooperation and conflict. The economic side entails recognition that we need “to make a livelihood” and desire “to be self-directed as against being conscripts in someone’s army”.

I am not persuaded that “bi-polarity” is the best way to capture the idea that humans are “political animals” whose interactions with other members of the species are not always motivated by personal benefit. It seems to me that human nature inclines individuals to seek to flourish by making wise and well-informed choices about all aspects of their lives that they are able to influence, including their interactions with others. 

However, as public choice theorists have noted, most people lack sufficient motivation to allocate the time and effort required to make well-informed choices in relation to national politics because their individual choices are unlikely to have much impact on national outcomes. Wagner’s view of entangled political economy draws on that public choice literature.

I certainly agree that political economy should focus on the full range of interactions among persons and entities within society. As Wagner notes, that perspective has important implications for social change:

“The framework of entangled political economy accommodates recognition that societies change only through individual action inside those societies, and with those actions spreading within the society according to the receptivity of other members of that society to those changes.”

Although Entangled Political Economy is based on a description of different kinds of interactions among individuals in the real world, it represents a departure from the way many economists have previously thought about the interaction between politics and economics. Wagner reminds readers that it has been customary to “envision a polity as a kind of lord of the manor who overseas what is denoted as economy.” He points out that discussion is usually in terms of “additive political economy” in which polity and economy are denoted as independent entities and polity intervenes in economy to correct “market failure”. He argues:

“The Progressivist vision of political presence and dominance throughout society is abetted by the vision of additive political economy because that vision provides rationalization for unlimited political action.”

Political entrepreneurship

 Wagner argues that it makes sense to view politics as a peculiar form of business because it has many characteristics in common with business. Both are sources of livelihood for people, entail competition, and are supported by administrative educational organisations. Both must attract investors to provide capital. Both involve entrepreneurship.

The main difference between political entrepreneurship and market entrepreneurship arises because of the difference between dyadic and triadic relationships. Dyadic relationships involve two people; triadic relationships involve three. Wagner observes that market relationships can be reduced mostly to a set of dyadic relationships where both parties benefit. Political relationships typically require a set of triadic relationships where two people exchange mutual support and a third is forced to provide financial support.

Wagner explains:

“Within the triadic relationships associated with electoral competition … a political entrepreneur can construct a supporting coalition by crafting a transactional structure that entails gainers and losers, while at the same time generating a supporting ideological cover that softens and conceals the redistributive character of the transaction.”

The difference between market and political competition has implications for the qualities required for successful entrepreneurship in different contexts. Wagner suggests that while puffery is an understandable part of market competition, “electoral competition is mostly about puffery”. Systemic lying is a feature of political competition. Sentiment tends to play a larger role, relative to reason, in political competition because of the absence of a direct connection between the individual elector’s choice and the outcome obtained. Voting is like ordering a meal at a restaurant and being served the same meal as everyone else, irrespective of what you ordered. Wagner notes Vilfredo Pareto’s view that ideological articulation can induce people to support measures that they might have opposed in a market setting. Voters generally embrace policies that enable them to feel good about themselves.

Wagner argues that little substantive work is accomplished through elections and political campaigns. The substantive work of policy choice takes place “outside electoral politics and entails the interactive elements necessary for constructing and maintaining deals.” He suggests a parliamentary assembly can be viewed as an “investment bank” because it is “a hub for making deals” involving selection and funding of projects. In that context:

“Entrepreneurs are thus competing among themselves to seize the future. Successful entrepreneurship offers both fame and fortune.”

In reading Wagner’s account of political entrepreneurship, it occurred to me that the significance of electoral competition in the United States is greater than he portrays it to be. That perception is based partly on my (somewhat cursory) observation of the presidential election in 2024 and the performance of the Trump administration in its first 100 days in office.

The 2024 U.S. election and its aftermath may be atypical, but similar political entrepreneurship has been on display in some European elections.  As discussed in a previous essay, political entrepreneurs tend to focus on niches in the marketplace of ideas. They seek to attract support from people who are discontented with current economic and social outcomes by emphasizing alleged problem-solving capacities of their ideas. Their success in attracting a loyal support base of customers who are willing to help them to sell their narrative depends to a large extent on the strength of competition from politicians selling different narratives, and on the extent of resistance by journalists and members of the public who consider their narratives to be incorrect, or that their policy proposals are unworkable, unconstitutional, unethical, or otherwise unhelpful.

I also observed that the discussion of entangled political economy in Politics as a Peculiar Business seemed more relevant to countries with parliamentary systems of government than to those with presidential systems, where much business seems to be done via “executive orders”. However, that is not intended as criticism. It may reflect the greater role of “executive orders” in the U.S. in the years since the book was published.

How can entanglement be contained?

One of Wagner’s aims in writing the book was “to explain how an entangled political economy can generate its own momentum to transform a constitution of liberty into a constitution of control”. He refers to the credit market as providing an example of how this occurs. Private ordering of credit markets is vulnerable to entanglement for two reasons. On the demand side are market participants who are dissatisfied with how they fare in privately ordered credit markets. On the supply side are “political figures who want to catapult themselves from background to foreground in the cosmic drama that is human society”.

Another example relates to the Fifth Amendment of the U.S. Constitution which provides for just compensation when the government takes private property for public use. However, Wagner observes that “history over the past century or so has increasingly run in the direction of governments taking property for what are private uses and paying only partial or token compensation”. A clear constitutional provision is not necessarily “sufficiently strong to deter rapacious interest groups from using government as an instrument of predation”.

Wagner refers to Vincent Ostrom’s observation that government involves a Faustian bargain: “instruments of evil – power over other people – are to be employed because of the good they might do, recognizing that evil might also result.” 

How can we minimize the potential for evil to result? Wagner suggests that the alternatives are “parchment” and “guns”.

“Parchment” refers to constitutional rules. Constitutional rules may remain effective if supported by public morality – sufficient numbers of people being willing to refrain from use of the powers of the state to enrich themselves at the expense of others. This approach relies on education and related processes to cultivate virtue and wisdom.

“Guns” refers to an approach that looks primarily to “a kind of opposition of interests to limit government predation”. Wagner suggests that “guns” may complement “parchment”. He writes:

“The basic principle behind this approach is for governmental action to require some concurrence among different participants with opposed interests.”

Wagner suggests that when it becomes habitual for people to use politics in a predatory manner that may “promote alternative beliefs as to what comprises just conduct”. He concludes that “parchment and guns … would seem to be nonseparable ingredients of constitutional order in the final analysis.”

Wagner tells us that his reference to guns is metaphorical, so what he has in mind may not necessarily be violent. For example, those who believe themselves to be victims of predation have an incentive to form associations to protect their interests in the courts and may be able to exert countervailing power the political arena.

While I believe that entangled political economy offers important insights about interactions between participants in politics and markets, I would have liked the author to explore more fully the macroeconomic consequences of increasing entanglement. Perhaps that would have led to a more optimistic conclusion.

In Freedom, Progress, and Human Flourishing I suggested that although most liberal democracies are heading for major economic crises in the years ahead there are reasons to be optimistic “that governments will eventually introduce institutional reforms to enable the drivers of progress to restore growth of opportunities.” (See Chapter 6, particularly p. 120)

My optimism presupposes the emergence of political entrepreneurs who understand the nature of the problems that need to be addressed and can marshal the political support required to carry out appropriate institutional reforms to correct those problems.

Conclusions

The discussion of entangled political economy in Richard Wagner’s book, Politics as a Peculiar Business, is helpful to an understanding of the context in which political entrepreneurship occurs in the liberal democracies.

Entangled political economy focuses on the full range of interactions among persons and entities within society. It emphasizes that societal change occurs only through individual actions. Entangled political economy represents a departure from the view of those economists (and governments) who have envisioned a polity as a kind of lord of the manor who overseas an economy.  

Wagner argues that politics has many characteristics in common with private business, but it is characterized by triadic relationships rather than dyadic relationships. Market relationships can be reduced mainly to sets of relationships between two people, both of whom benefit. Politics typically requires sets of relationships where two people exchange mutual support and a third is forced to provide financial support.

The author suggests that the main work of political entrepreneurs – interactions to construct deals - takes place outside electoral politics. He suggests that parliaments can be viewed as kinds of investment banks because they are hubs for making deals involving selection and funding of projects.

In my view the significance of electoral politics and deal-making by executive arms of governments is greater than Wagner portrays it to be. However, my view has been strongly influenced by events since 2016, when his book was published.

Wagner argues that entangled political economy generates its own momentum to transform a constitution of liberty into a constitution of control. He is pessimistic about the prospect for entanglement to be contained via constitutional rules and moral conduct. He suggests that habitual use of politics in a predatory manner promotes an alternative view of what constitutes just conduct.

In my view, Wagner might have come to a more optimistic conclusion if he had more fully explored the macro-economic consequences of increasing use of the powers of the state for predatory purposes. Economic crises may eventually bring about appropriate institutional reforms if political entrepreneurs emerge who can marshal the political support required to implement them.  

Should we expect our political leaders to be great and good?

 

I am writing this during an election campaign in Australia. By international standards, both chief contenders for public office could be aptly described as neither conspicuously great nor notoriously bad.

However, over the last three years, Australians have experienced the worst government that I can remember. Unfortunately, it is unlikely that the political alternative on offer would have been much better.

During the current election campaign, both chief contenders for national leadership have seemed oblivious to the decline in productivity growth that caused the good times to stop rolling on in this country. It has apparently not registered with them that vote-buying spending proposals are less appropriate under such circumstances than economic reforms to restore productivity growth. Moreover, the election campaign is being conducted as though nothing that has happened recently in the international economic and political environment might require Australians to prepare for difficult times ahead.

Fortunately, the question that I have posed above does not require me to consider which of the contenders for national leadership is most worthy of being prime minister of Australia.

Before I go any further, however, I should outline my (somewhat complicated) view of party politics in liberal democracies. I have yet to see a system of government that is better than the two-party system at enabling voters to hold governments accountable for their actions. One of the downsides of that system, however, is that it provides a strong incentive for political parties to reward team players who are willing to set aside their own views to support a party line. The insincerity that is often on display in the public performance of politicians makes it is difficult to avoid regarding politics as a disreputable profession. Nevertheless, I acknowledge that democratic political systems sometimes produce leaders who are highly principled and effective in enhancing opportunities for human flourishing.  

Should we expect our political leaders to be great and good? That question has arisen from previous research that I have undertaken about the roles of culture, ideology, and political entrepreneurship as factors influencing levels of economic and personal freedom in different countries. I will briefly outline some points emerging from that research before discussing Robert Faulkner’s book, The Case for Greatness: Honorable Ambition and its Critics (2007).

Points emerging from previous research

• Cultural values do not fully explain levels of economic and personal freedom in different countries. Suppression of liberty in countries with relatively low levels of economic and personal freedom, e.g. China, Iran and Venezuela, is a product of the ideologies of the governments concerned rather than the cultural values of the peoples. Similarly, a substantial number of countries with relatively high personal and economic freedom are performing better in that regard than can readily be explained on the basis of prevailing cultural values.
• It is not difficult to identify political entrepreneurs who have historically been major players determining outcomes in many jurisdictions where economic and personal freedom seems substantially at variance with underlying cultural values. There are good reasons for that. Media coverage tends to focus on political leaders, the challenges they face and the policies they adopt.
• Douglas North saw political entrepreneurship as being required to overcome high transactions costs involved in changing institutions – the rules of the game of society. There are high transactions costs associated with institutional change because institutions are path dependent, e.g. embedded in culture.
• Political entrepreneurship takes place within culture and is concerned with interpreting and influencing culture as well as formal rules (constitutions, laws and regulations). Some research suggests that successful political entrepreneurs tend to advance their ambitions by focusing on niches in the marketplace of ideas that established parties do not satisfy. They win support by emphasizing the problem-solving capacities of their ideas.
• Max Weber argued that charismatic and demagogic leadership may be required to overcome the impersonal forces of bureaucratization within democracies. Demagogic leaders are responsible for their cause, and thus capable of intentionally and rationally directing state power towards its achievement.  
• Weber suggested that demagogic leadership can be consistent with democracy, but he seems to have left aside the question of whether a demagogic leader can be both good and great.

The essays from which those points were abstracted can be found here and here.

 The Case for Greatness

 In making the case for greatness Robert Faulkner observes that thoughtful citizens and appreciative historians have no difficulty in acknowledging the greatness of people like George Washington, Winston Churchill and Nelson Mandela. By contrast, many of those who generalize about human affairs display a doubting cynicism about such greatness. He notes that “social scientists speak much of rational maximizing, power seeking, self-interest, and popular voice, but not much of extraordinary judiciousness, honorable aims, and knowing justice” and that “influential professors of philosophy and literature talk confidently of autonomy and equal dignity, while deprecating ambition for office and accomplishment as elitist domineering or a remnant of repressive culture”.

The author’s key contention is that the accounts of political greatness by Aristotle, Plato, and Xenophon “illuminate our experiences of a Mandela or a Margaret Thatcher far better than the critical and doctrinal theorizing that is more familiar and has been in the works for three or four centuries”.

 The book begins by considering Aristotle’s account of an honorable and just form of grand ambition. It then considers the political dangers and psychological dynamics of the less bounded and less just forms of ambition, using Alcibiades and Cyrus as examples of individuals who seek to rule empires. That is followed by a chapter discussing George Washington as an example of a gentleman-statesman. Along the way, the author notes the role of Niccolo Machiavelli in turning the orientation of much thinking about human affairs from what men should do “from duty and the best life” to what men do to advance themselves and their followers in wealth and power. The final chapters discuss modern theories that obscure the moral-political phenomenon of political greatness and make it “peculiarly alien to our apprehension and sensibilities”. One of the final chapters is devoted to discussion of the egalitarian theories of John Rawls and Hannah Arendt. The other discusses the theories of Thomas Hobbes, Immanuel Kant and Friedrich Nietzsche.

In what follows, I focus mainly on what the author has to say about Aristotle. Readers who are looking for a more comprehensive summary of The Case for Greatness should read the review by Paul A. Rahe.

Faulkner observes that Aristotle ranks greatness of soul as the "crown" needed to perfect all the virtues, including justice. He writes:

 “Aristotle does not mince words on this topic, and neither should we. No greatness without goodness, yes, but also no true goodness without greatness. The great-souled human being, in claiming a worthy stage, claims for human excellence the prominence and tasks it deserves. Accordingly, while greatness of soul "cannot exist without" such other virtues as moderation and justice, it also "enhances their goodness." A man of such virtue is too noble to stoop, or to accept the second best, especially in his own conduct. Aristotle calls greatness of soul a kosmos. It is an ornament of good character that is also an exalting order: an ordering heightened by an awareness of the grand activities such a soul calls for and is owed.”

Aristotle views the great-souled man as having a disposition to claim great honours because he considers himself worthy of them. The great-souled man has a true estimate of his own worth. He claims tasks that no-one else can do, or do as well. The great-souled man disdains the offices commonly sought by other ambitious people; he seeks the tribute and high offices that are “great things.

Aristotle equates greatness of the soul with magnanimity - which he also equates with excellence and justice. However, the great-souled man’s disposition is complicated because he seeks great positions and honours from others as well as virtue of soul for himself. Aristotle suggests that the great-souled man holds that nothing is greater than his own virtue and seems to regard any honour as less than what is due a soul of such worth.

The great-souled man’s desire for superiority may harbour a despotic impulse, but his virtue gives this impulse something of an honorable and just direction. Faulkner writes:

“It is the priority of virtue and honor, so understood, that largely distinguishes Aristotelian greatness of soul and a Washington.”

Later, he explains more fully:

“Knowledge of his virtue helps uphold the great man amidst changing fortune. Unlike Machiavelli's great man, his measure is not ambitious mastery of fortune, but living well amidst fortune's gifts and trials. It is after this purification of grand ambition that Aristotle sharply separates true pride from the all-too-common arrogance of the privileged. "In truth," "rightly," "justly," only the good should be honored.”

Faulkner concludes:

“Aristotle's diagnosis comes to this: the great-souled man is at once drawn above humanity and drawn to humanity. He exhibits his superiority by aiding his fellows, and yet his wish is less to aid them than to avoid being or appearing dependent on them.”

Faulkner suggests that while Nicomachean Ethics seems to imply that greatness of the soul is a desirable attribute of political leaders, Aristotle moderates that view in the Politics and Ethics. In Politics, he doesn’t forget the best man’s claims but presents them “only after defending at length the more common and political claimants to rule”. At one point he even praises “the decent and equitable man” over the great man. In Ethics, Aristotle suggests that greatness, especially great power, is overrated: “it is possible for one who is not a ruler of land and sea to perform noble action.”

Faulkner writes:

“Given the likelihood of war, the difficulties of preserving any regime, and the extreme rarity of the best regime, there will be opportunities enough for noble deeds, great things, and superiority over others. A great-souled man will have his opportunities; he will be often needed. But such a force, if a blind force, may also harm itself and those whom it would rule, including the most thoughtful. Whatever else Aristotle's Ethics and Politics may be, whatever the defects, his is surely a model effort to supply comprehensive light to the grandly ambitious and to those who depend on them.”

Faulkner ends his book with a discussion of Nietzsche, who “unlike Machiavelli, Hobbes, Locke, and Kant, trumpets an animus against ordinary people”. Faulkner’s final comment:

“Nietzsche's proposals and diagnoses alike invite us to look to more moderate accounts, whether in examples such as a Washington or in the historians and philosophers who took seriously what is good and true as well as what is strong and great. To encourage such looking is what this book is about.”

My assessment

I think Robert Faulkner has made a stronger case for goodness than greatness as a desirable attribute in political leaders. Greatness is required in times of crisis, but competence will suffice most of the time. It is important to recognize, however, that winning an election doesn’t make a person competent in dealing with public policy issues. People can acquire skills relevant to statecraft in a variety of different ways but, as in other professions, on-the-job experience seems indispensable to high-level performance.

The case that Faulkner makes for goodness leads to the question of what we mean by goodness as applied to political leaders. As I see it, there are two different aspects to this question.

The first concerns personal ethics. Should citizens expect the holders of high office in a democracy to conform to widely accepted norms of ethical behaviour? If we expect our sporting heroes to confirm to such norms in their off-field behavior, there is perhaps an even stronger case for the similar standards to be applied to politicians. Since politicians regularly ask voters to trust them to implement policies, it seems appropriate for voters to expect them to demonstrate trustworthiness in their personal behavior. (Of course, the personal ethics of candidates is only one of the matters that voters should consider, and other matters may well be more important in particular instances.)

The second aspect concerns confusion of soulcraft and statecraft. Soulcraft, the means by which individuals flourish and find fulfillment in life, is a matter that is best left for individuals to pursue in the manner they choose for themselves. Since self-direction is fundamental to individual flourishing, it is a mistake to believe that it can be advanced via government action to promote particular views of moral excellence. Aristotle may have had reason to believe that was possible in a polis in the ancient world, but it is certainly not possible in modern societies which are characterised by much greater diversity of cultural and religious influences.

Some Neo-Aristotelian philosophers have drawn a clear distinction between soulcraft and statecraft. In their book Norms of Liberty, Douglas Rasmussen and Douglas Den Uyl imply that the main role of statecraft is to restore or construct a political/ legal order in which “it might be possible for different individuals to flourish and to do so in different ways (in different communities and cultures) without creating inherent ethical conflict in the overall structure of their social/ political context.” (p 83)

In my view, we should judge our political leaders to be very good if they can manage to move the political/legal order toward achieving that outcome.

What role does political entrepreneurship play in institutional change?

 

One of the reasons I quoted that passage by Douglass North is because it mentions political entrepreneurship. I went looking for a quote from North in Institutions, Institutional Change and Economic Performance because I was particularly impressed by that book when I first read it about 30 years ago. (The quoted sentence appears on page 87.)

As defined by North, institutions are “the rules of the game of society” that shape human interaction. He argued that formal institutions—such as constitutions, laws, and regulations—make up only a small proportion of the sum of constraints that shape choices. Informal constraints include codes of conduct, norms of behavior, conventions, and customs. They may be internalized in personal values, rather than imposed by others.

North acknowledged that political entrepreneurship plays a role in institutional change. He doesn’t have much to say about political entrepreneurship, but his analysis implies that political entrepreneurs may play an important role in reducing transactions costs associated with institutional change.

Path dependence and institutional stickiness

The transactions costs of institutional change are high because of the path dependence of institutions. As institutions evolve, ideologies tend to evolve to support them. Organizations and interest groups that have grown up under existing institutions often have a stake in maintaining them.  

The most important point I had remembered from reading Institutions … is that countries with similar formal institutions – constitutions, property rights etc. – can have vastly different economic performance outcomes if informal institutions (cultural settings) are different. Governments and international agencies that have sought to transplant formal institutions to foreign countries have been slow to recognize that point.

The implications of path dependence have been further explored by Peter Boettke, Christopher Coyne, and Peter Leeson in “Institutional Stickiness and the New Development Economics”, Chapter 6 in Culture of Economic Action, ed. Laura E. Grube and Virgil Henry Storr (2015).  The authors contend that the ability of a new institutional arrangement to take hold when it has been transplanted depends on that institutions status in relations to indigenous agents in the previous time period. They suggest that institutional transplants are unlikely to stick if they are inconsistent with indigenously introduced endogenous institutions.

The analytical framework used by Boettke et al is also relevant to considering the challenges faced by endogenous political entrepreneurs in bringing about institutional change.

Entrepreneurship (political and economic)

As discussed recently on this blog, political entrepreneurship has characteristics that differ from economic entrepreneurship. I suggested that it might be reasonable to assume that political entrepreneurs are motivated largely by the satisfaction they obtain from constructing ideological narratives and selling them, and from exercising the political power required to implement policies.

Nevertheless, there are similarities between political and economic entrepreneurship that become apparent when economic entrepreneurship is considered in a cultural context. In his article, “The discovery and interpretation of profit opportunities and the Kirznerian entrepreneur”, reproduced as Chapter 3 of Culture and Economic Action (cited above), Don Lavoie writes:

“Entrepreneurship necessarily takes place within culture, it is utterly shaped by culture, and it fundamentally consists in interpreting and influencing culture.” (p. 50)

He suggests:

“entrepreneurship is the achievement not so much of the isolated maverick who finds objective profits others overlooked as of the culturally embedded participant who picks up the gist of a conversation.” (p. 51)

Later, he observes:

“Most acts of entrepreneurship are not like an isolated individual finding things on beaches; they require effort of the imagination, skillful judgements of future costs and revenue possibilities, and an ability to read the significance of complex social situations.”

In the following chapter of Culture and Economic Action, Virgil Henry Storr and Arielle John suggest that rather than viewing Lavoie’s contribution as a critique of Kirzner’s theory of entrepreneurship it is more appropriate to view it as a suggestion as to how that theory may be fruitfully amended. The amendments suggested by Lavoie seem to me to make the role of the economic entrepreneur seem similar in some respects to the role of a political entrepreneur.

Max Weber’s understanding of political entrepreneurship

Douglass North seems to have given minimal acknowledgement of Max Weber’s work as a social theorist, even though there was considerable overlap in their areas of interest.  Francesca Trivellato has noted that in one publication North does refer to Weber as a scholar of “the role of belief and values in shaping change”. Weber is, of course, most often remembered for his theory of the Protestant ethic but he also made other important contributions.

Weber’s writings on charismatic and demagogic leadership shed some light on the nature of political entrepreneurship in democracies. The following points summarize an article by Xavier Márquez, entitled “Max Weber, demagogy and charismatic representation”, published in the European Journal of Political Theory (2024).

• Weber argued that effective leaders must be able to fight for ‘causes’ beyond the narrow immediate interests of economic groups or party organisations and thus to struggle against the impersonal forces of bureaucratization (the subsumption of politics under bureaucratic and technical imperatives). Effective leaders must therefore have a charismatic form of authority – the only form of authority capable of overcoming the constraints of organisation, legality and tradition.
• The need to appeal to mass publics in modern democratizing societies selects for leaders who have a talent for mobilising large groups of people through rhetorical means. In the context of mass politics, charismatic authority manifests as demagogy. Weber thinks of the masses as unorganized and irrational and argues that even ‘democratically’ elected leadership is a form of ‘dictatorship which rests on the exploitation of the emotionality of the masses.
• Weber's praise for charismatic and demagogic leadership is tempered by the worry that political leaders must also be responsible. This is so in a twofold sense: objectively, a political system must be able to hold leaders accountable for their actions; and subjectively, leaders must display an ethics of responsibility, and thus be able to ‘take responsibility’ for their actions.
• Elections formalize the recognition of charisma. If charismatic leaders capable of mobilizing and representing broad masses will tend to arise in any case, it is better if the recognition of their charisma is subject to periodic formal tests rather than informal, extra-legal events.
• Charismatic authority in the broadest sense tends to appear in moments of deep, even existential crisis, where the charismatic leader performs a ‘miracle’ for a group that feels otherwise impotent and deeply threatened, and can sustain itself only when the leader can provide such ‘miracles.
• The charismatic demagogue produces a wondrous or miraculous representation of the people as a charismatic community but also a ‘wondrous’ representation of himself.
• Weber argues that charismatic leaders must provide evidence of benefiting their charismatic community if they are to retain their authority. The implicit ‘bargain’ between leaders and followers that exists even in cases of strong charismatic authority allows us to speak of a degree of accountability and influence.
• Instead of distinguishing between the ‘mere’ demagogue and its antithesis, the statesman, in terms of whether or not they deceive the demos or act for the common good, Weber stresses the ethical distinction between the politician who is responsible for their cause, and thus capable of intentionally and rationally directing state power towards its achievement (in what is, strictly speaking, a value–rational way), and the politician who is not.
• Lack of objectivity (wishful thinking, extreme overconfidence, ignoring inconvenient information) in assessing a situation leads to irresponsible political action, insofar as it leads to a misunderstanding of the means necessary to achieve particular ends and the physical, social and political constraints on the use of such means. All leaders are susceptible to these vices, but the situation of the charismatic demagogue, surrounded by adoring followers and capable of summoning the adulation of crowds, makes these vices extremely common occupational hazards.
• Weber hoped that training in committee or party work would hone the political judgement of leaders so that they would be more likely to see the consequences of their decisions and to take responsibility for them. 

Márquez argues that Weber's conception of charismatic authority allows some demagogues to play a genuinely democratic role in modern societies when viewed through contemporary theories of representation. He suggests that a Weberian analysis of democracy points to the need for strong accountability mechanisms and for institutions that socialize potential leaders into productive habits of adversarial conduct and responsibility, while preventing easy ‘buck passing’.

Márquez observes that although Weber provides a stronger sense of democratic possibility than did Joseph Schumpeter, he is very much the ancestor of the ‘minimalist’ model of democracy that Schumpeter first articulated explicitly in Capitalism, Socialism and Democracy. (I wrote about Schumpeter’s model of democracy here in 2012.)

Directions of future research

This essay is the second in a series in which I am attempting to obtain a better understanding of political entrepreneurship. The first essay can be found here.

My next step is to read Robert Faulkner’s book, The Case for Greatness (2007). I am wondering whether the ancients thought it was possible for a charismatic demagog to also be a "great-souled" leader who is keen to promote liberty and opportunities for individuals to flourish. 

After that, I will consider how the concept of political entrepreneurship fits in with modern public choice literature.

Summary and Conclusions

This essay briefly considers the context in which political entrepreneurship is most relevant, some similarities between economic and political entrepreneurship, and the role of charismatic and demagogic leadership in political entrepreneurship within democracies.

The essay begins by considering the role that Douglas North saw for political entrepreneurship in bringing about institutional change – i.e. change in the rules of the game of society. Political entrepreneurship is required to overcome high transactions costs of change that arise from the path dependent nature of institutions. Building on the concept of path dependency, Peter Boettke, Christopher Coyne and Peter Leeson developed an analytical framework to consider the consequences of institutional stickiness for foreigners engaged in institution building exercises that seek to transplant institutions from one country to another. That framework is also relevant to considering the challenges faced by political entrepreneurs seeking to bring about institutional reforms in their own countries.

The essay then turns to consideration of the relevance to political entrepreneurship of Don Lavoie’s view of economic entrepreneurship. Lavoie suggests that entrepreneurship takes place within culture and is concerned with interpreting and influencing culture. He makes the role of the economic entrepreneur seem similar in some respects to that of the political entrepreneur.

The other major topic considered in the essay is the contribution that Max Weber makes to our understanding of political entrepreneurship through his writings on charismatic and demagogic leadership. Weber makes the case that charismatic and demagogic leadership may be required to overcome the impersonal forces of bureaucratization within democracies. He also sheds light on the circumstances in which demagogic leadership can be consistent with democracy.

North and Weber both add to our understanding of the role of the political entrepreneur in overcoming obstacles to institutional change. However, the fundamental question that both leave aside is how to ensure that institutional change enhances liberty and opportunities for individuals to flourish.  

Can the concept of political entrepreneurship help us to understand authoritarianism?

 

In this essay I discuss the relevance of the concept of political entrepreneurship to an understanding of political outcomes that have substantially affected personal and economic freedom in different countries. The essay has a particular focus on authoritarianism. My understanding of that concept is based on  the view of Hans Eysenck that people who have an authoritarian personality are attracted to the possibility of oppressing others. People who have authoritarian values see such oppression as justified. Authoritarian governments oppress people by restricting their personal and economic freedom to a greater extent than other governments.

The essay focuses on political outcomes which seem incongruent with underlying cultural values in a range of countries. It suggests that political entrepreneurship has influenced the ideologies currently reflected in personal and economic freedom in those countries. It also considers the current role of political entrepreneurship in harnessing cultural and economic grievances to pursue a range of different ends in the liberal democracies.

The essay draws on some of my previous research on the extent to which cultural values can explain authoritarianism and on the influence of cultural backlash and economic grievances on political outcomes in liberal democracies. That research is summarized prior to considering the nature and relevance of political entrepreneurship.

Can cultural values explain authoritarianism?

My answer to that question is that cultural values do not fully explain authoritarianism – the ideologies of some governments are at variance with cultural values. The best way to explain how I came to that conclusion is by referring readers to the accompanying graph which shows levels of economic freedom and personal freedom for 85 countries. Please note that the personal freedom scale on the vertical axis is in reverse order with highest levels of personal freedom at the bottom. (The graph has previously been published in an article in The Savvy Street in 2023.)

Please focus on the labelling of data points. I have attached country labels only to those data points where freedom ratings are substantially different from predicted levels based on indexes of emancipative and facilitating values which were constructed using World Values Survey data. The methodology for constructing these indexes is explained in the Savvy Street article and on this blog (here and here).

The colour of the labelled points depends on whether freedom is greater than or less than predicted—green if greater than predicted, red if less than predicted. The size of the labelled points is larger if both personal and economic freedom are greater than or less than predicted.

It is clear from the graph that freedom ratings of most of the countries with low personal and economic freedom are substantially lower than predicted by corresponding emancipative and facilitating values. The countries in which both personal and economic freedom is less than predicted include China, Iran and Venezuela. It seems obvious that suppression of liberty in those countries is a product of the ideologies of the governments concerned rather than the cultural values of the peoples.  

The graph also shows that a substantial number of countries with relatively high personal and economic freedom are performing better in that regard than can readily be explained on the basis of prevailing values. Most of the countries concerned are not the high-income countries of North America, Western Europe, Oceania, and East Asia that come to mind when one thinks of countries with relatively high levels of economic and personal freedom.

The existence of countries in which freedom levels are substantially greater than predicted by facilitating and emancipative values suggests that government support for economic and personal freedom may precede or accompany the evolution of facilitating and emancipative values. The transition to high levels of economic freedom often takes place over an extended period. As market-friendly economic reforms promote the growth of economic opportunities, this could be expected to lead to the gradual evolution of facilitating values supporting higher levels of economic freedom. The growth of economic opportunities could be expected to encourage people to place higher value on personal autonomy and to become more trusting of others.

Milton Friedman observed that economic freedom “promotes political freedom because it separates economic power from political power and in this way enables the one to offset the other” (Friedman, Capitalism and Freedom, 1982, 9). As economic development proceeds, the evolution of emancipative values provides additional support for personal freedom.

The correlation between economic and personal freedom is strikingly evident in the graph. There are not many countries with relatively high personal freedom and low economic freedom, or vice versa. Argentina—which stands out as the only country having high personal freedom despite low economic freedom—helps illustrate why that is so. In the published article, I suggested:

“In Argentina, the decline in economic freedom over the last 20 years has been accompanied by worsening economic prospects, which seem likely to lead, before long, to an economic and political crisis. Hopefully, the political response to the crisis will be to restore greater economic freedom and make personal freedom more secure, rather than to restrict personal freedom to suppress criticism of government policies.”

A few months after that comment was published, Javier Milei was elected president of Argentina and has successfully introduced policy reforms to expand economic freedom. (Unfortunately, I cannot claim that my essay was influential in bringing that about.)

Cultural and economic grievances as explanators of political change

In the preceding essay on this blog I discuss the question: “Is cultural backlash a major determinant of political outcomes in the liberal democracies?” My intial focus was on the view which Pippa Norris and Ronald Inglehart presented in their book, Cultural Backlash: Trump, Brexit and Authoritarian Populism (2019),  that the spread of post-materialist values has induced a cultural backlash among cultural conservatives. They suggested on that basis that the combination of authoritarianism and populist rhetoric is a threat to liberal democracy.

In my view, Norris and Inglehart were mistaken in attributing cultural backlash to the spread of post-materialist values. I argued that it would be more correct to attribute cultural backlash to the illiberalism of progressives who have been advocating what Yascha Mounk has described as the identity synthesis (see: The Identity Trap, 2023). The identity synthesis has provoked a backlash because it rejects neutral rules like equal opportunity and free speech in favour of action to promote the interests of particular groups that have suffered from discrimination in the past.

Some recent research by John Burn-Murdoch, published in the Financial Times ‘Why the Maga mindset is different’, March 7, 2025) has suggested that over the last 20 years the values held by people who identify with the right wing of U.S. politics has moved closer to the values of people in Turkey, Russia and China than to people who identify with the right wing of politics in Europe. It remains to be seen what impact, if any, this apparent retreat from classical liberal values will have on the institutions of liberal democracy in the United States. 

Norris and Inglehart acknowledge that economic grievances also play an important role in encouraging people to support policy remedies proposed by populists. In that context, I have referred to some research published in an essay on this blog that has highlighted the adverse impact that slower economic growth can have on life satisfaction, particularly of young people. I suspect that the longer-term slowdown in economic growth in the liberal democracies might be more important in generating support for populist policies than are grievances that can be related directly to the impact of import competition or immigration.

However, we live in a world where the policies that political leaders sell to voters depend on how voters perceive reality. Those perceptions are not always accurate. Some opinion leaders on both the progressive and conservative sides of politics attempt to sell voters a distorted view of reality. As I wrote that I was reminded of a comment I made in my review of Michèle Lamont’s book, Seeing Others, 2023. I suggested:

“On the question of factual accuracy, Lamont’s narrative, which suggests that the workers have reason to be angry with the wealthy one percent, seems to me to be just as questionable as Donald Trump’s narrative which suggests that the workers have reason to be angry about globalization and immigration. Neither of those narratives promotes an accurate understanding of economic reality.”

The concept of political entrepreneurship

Catherine De Vries and Sara Hobolt have suggested that competition between political parties in European countries is like competition in economic markets. In both contexts long-standing dominant players (firms or parties) may be challenged by disruptive new players. The central objective for both challengers and incumbents is the control of government and the delivery of public policies. Political entrepreneurs play a key role because a party that engages in successful political policy innovation can enjoy an effective monopoly on an issue and reap the consequent electoral benefits. (De Vries CE, Hobolt SB. Challenger Parties and Populism. LSE Public Policy Review. 2020; 1(1): 3, pp. 1–8. DOI: https://doi.org/10.31389/lseppr.3)

De Vries and Hobolt were writing about multi-party systems in which several political parties are competing for power. However, a similar form of competition occurs when an innovative political entrepreneur within a major political party challenges established leadership factions by offering a product that is more appealing to supporters of the party.

Valentina Ausserladscheider has contributed to an understanding of political entrepreneurism by providing a framework to consider reasons for the political success of Jörg Haider, the leader of the Austrian Freedom Party, during the 1990s. Haider’s winning formula was based on a policy mix of authoritarian and and neoliberal policies, which was particularly successful during a time of economic turmoil and uncertainty. (See Chapter 9 of Culture, sociality, and morality : new applications of mainline political economy edited by Paul Dragos Aligica, Ginny Seung Choi, and Virgil Henry Storr, 2021).

Ausserladscheider emphasizes that the strategies of political entrepreneurs are not determined solely by voters’ ideological positions. Successful political entrepreneurs don’t offer the same policies as their competitors. They advance their political ambitions by focusing on niches in the marketplace of ideas that established parties do not satisfy, and on winning support by emphasizing the problem-solving capacities of their ideas. For example, the entrepreneurial strategy of far-right parties is their “nationalist and nativist core ideology”, leading to policies such as immigration restrictions that are claimed to solve a range of problems.

As illustrated by the example of Jörg Haider, the strategies that political entrepreneurs follow to attract support can result in political programs that offer a mix of libertarian and authoritarian policies.

The influence of political entrepreneurs

From a cursory inspection of the accompanying graph, people who have rudimentary knowledge of global politics would have no difficulty identifying political entrepreneurs who have historically been major players determining outcomes in many jurisdictions where economic and personal freedom seems substantially at variance with underlying cultural values. There are good reasons for that. Media coverage tends to focus on political leaders, the challenges they face and the policies they adopt.

The role of political entrepreneurship is not always obvious in liberal democracies where the institutions of representative government have been respected for many decades. However, it doesn’t make sense to assume that changes in public opinion will be automatically reflected in public policy even in countries with representative government. In general, the responses of political markets to new information (e.g. poll data about shifts in public opinion on particular issues) depend to a much larger extent on decisions by big players than do responses to new information in financial and commodity markets.

A better understanding of the reasons why political entrepreneurs behave as they do might help us to assess whether current political developments are likely to expand or constrain economic and personal freedom. Those outcomes depend on both the motivations of the individuals concerned and on the social and economic context in which they operate.

Like other humans, political entrepreneurs are motivated by a range of factors. It is usually unrealistic to assume that they are motivated solely by a desire to maximize social welfare (whatever that means), to maximize the number of votes they obtain, to maximize personal wealth, or to obtain the perks of the office. Given the nature of their occupation, however, it seems reasonable to assume that political entrepreneurs obtain more satisfaction than most other people from constructing ideological narratives and selling them, and from exercising the political power required to implement policies.

In some instances, ideological predilections may play a dominant role. For example, while social and economic context helps to explain why revolutions occurred in China and Iran in the 20^th century, the repression of individual liberty following those revolutions stemmed directly from the ideologies of revolutionary leaders - Mao Zedong in China and Ayatollah Khomeini in Iran.

Similarly, while the economic problems confronting the United States and Britain during the 1980s provided contexts in which substantial changes in the direction of economic and social policies could be contemplated, the responses of Ronald Reagan and Margaret Thatcher owe much to their respective commitments to economic freedom. The reforms currently being pursued by Javier Milei in Argentina seem to be similarly motivated.

Looking around the world, a range of different ideological predilections seem to be playing a role in policies advocated by political entrepreneurs. For example, we see ideological considerations playing a role among those seeking opportunities to expand the welfare state, to redistribute wealth, to promote “equity” for community groups which have suffered from discrimination in the past, to save the environment from CO2 emissions, to pursue international humanitarian goals, or to pursue nationalist goals by restricting immigration, raising trade barriers, and withdrawing from international organisations. Some of those policies have potential to impinge adversely on economic and personal freedom.

As we have seen earlier, even if political entrepreneurs are motivated mainly by a desire to exercise political power, the innovative aspect of their role requires them to focus on niches in the marketplace of ideas that established parties (or factions) do not satisfy. They seek to attract support from people who are discontented with current economic and social outcomes by emphasizing the problem-solving capacities of their ideas. Their success in attracting a loyal support base of customers who are willing to help them to sell their narrative depends to a large extent on the strength of competition from politicians selling different narratives, and on the extent of resistance by journalists and members of the public who consider their narratives to be incorrect or that their policy proposals are unworkable, unconstitutional, unethical, or otherwise unhelpful.

In my opinion, the ability of some political entrepreneurs (from both conservative and progressive sides of politics) to persuade large numbers of people to accept false narratives is posing an increasing threat to liberty in the liberal democracies. False narratives pose a threat to liberty because they often provide a basis for false beliefs that problems can be solved by restricting personal and economic freedom. For example, the personal freedom of people who refused vaccinations for Covid was restricted inappropriately in many countries because of false narratives that unvaccinated people were likely to spread infection. And economic freedom is currently being restricted in some countries through imposition of higher import barriers on the basis of false narratives about the impact of free trade.

A few decades ago, people seemed to have been more willing to put their trust in political commentators who took pride in remaining politically independent and well-informed. Those commentators were able to expose false narratives to a greater extent than now occurs, and thus to limit the influence of political entrepreneurs who base their policies on falsehoods.

In recent years, however, mainstream media has become increasingly polarized. The rise of social media seems to have aggravated the problem. Many exchanges of views about political issues on social media consist largely of recitations of false narratives promulgated by political leaders.

Some commentators who are independent and well-informed can still be found in both mainstream and social media, but prevailing cultures may need to give greater respect to the search for truth before those people will have sufficient influence to discourage political entrepreneurs from promoting false narratives.

Conclusions

Authoritarian and libertarian political outcomes don’t just appear out of nowhere. Underlying cultural values that have evolved over long periods of time go some of the way toward explaining levels of economic and personal freedom in different countries. However, political entrepreneurship also plays an important role.

The role of political entrepreneurs is most apparent in those countries where underlying cultural values are less supportive of economic and personal freedom. Political entrepreneurs have played an important role in some of those countries in promoting either more or less freedom than would be expected on the basis of underlying cultural values.

The role of political entrepreneurship has been more constrained in those liberal democracies where the institutions of representative government have been respected for many decades.

However, the ability of some political entrepreneurs (from both conservative and progressive sides of politics) to persuade large numbers of people to accept false narratives is posing an increasing threat to personal and economic freedom in the liberal democracies. Polarization of the media means that such claims are now less subject to independent scrutiny than they were a few decades ago.

Recent political developments are raising the question of whether cultural change in some liberal democracies has emboldened some political entrepreneurs to challenge conventions regarding government respect for judicial rulings on the legality of their activities. Governments that do not perceive themselves to be bound by judicial interpretation of laws and constitutions are unlikely to have much regard for individual liberty. Any government which claims that its actions are beyond legal challenge because they reflect the general will of the people is showing obvious signs of authoritarianism.

Addendum

Chris M Sciabarra has given me permission to publish the following comment, which he has provided by email:

"I just read the essay and enjoyed it; I'll have to give a bit more thought to it. You make some very good, persuasive points, though there are some claims that I need to process a bit more. I think the whole concept of political entrepreneurship has some weight here. I wonder how, for example, it might mesh not only with public choice thinking, but also with Hayek's insights about how the 'worst get on top' when political power becomes the only power worth having. If that's the case, then political entrepreneurship in a populist age morphs into a kind of political con game that attacks the very roots of liberal democracy---something you acknowledge in your conclusions.

One of the issues that concerns me is that while there was a backlash against the "identity synthesis" of illiberal progressives, I don't think that was the key factor that influenced the outcome of the election. Incumbent parties lost all around the world, whether they were perceived as 'right'- or 'left'-leaning. In the US, of course, Trump won over Harris. In the UK, the Conservative Party was defeated. The Liberal Democrats lost in Japan, while in France, a coalition of left-wing and centrist parties gained ground. And so forth. I think that inflation, stagnant wages, housing affordability, etc. led most incumbents to defeat because whoever is in power is the party that takes the blame for the conditions on the ground. 

That said, I also think that the "identity synthesis" on the illiberal left has only been replaced by a different kind of "identity synthesis" on the illiberal right, given the right's embrace of nationalism and, in many cases, a virulent form of nativism, riding on profound anti-immigrant fervor. Not to mention the illiberal right's obsession with scapegoating the smallest of minorities---like transgender-identifying people, who make up about 0.6% of the population. This is as much of an illiberal right-wing play on identity politics as anything we've seen on the left." 

Chris has now posted a more extensive review on Notablog . 

Notablog is also worth visiting for other reasons - including the opportunity to take a break from worrying about authoritarianism to listen to the "Song of the Day". 

An interesting diagram

I think the following diagram captures very well the illiberal cultures on the authoritarian socialist and authoritarian nationalist sides of politics, and the overlap between them.

Stephen Hicks posted the diagram on X and asked if anyone could tell him where it came from so that that he could give credit. I would also like to give credit to the person responsible for constructing this.