01 January 1970 39 2K Report

The argument of this short piece is that freedom of speech is a normatively governed institution which like roads and bridges needs to be maintained by government. The argument draws on writings of the conservative columnist George Will.

Freedom of speech and

the Consent of the Governed

H.G. Callaway

“Free speech,” wrote conservative political columnist George Will (an ex-Republican and “never-Trumper”) “is not free in the sense that it is free of prerequisites, it is not free of a complicated institutional frame”;

Free speech, as much as a highway system, is something government must establish and maintain. The government of a country without the rare and fragile traditions of civility, without education and communications capabilities, could proclaim freedom of speech and resolutely stand back. But the result would not be free speech. It would be mayhem, and the triumph of incivility.1

The chief idea here is that “free speech” is properly understood as a normative, political institution and a social-political aim established by constitutional government—and not a natural result of human activities lacking a needed “institutional frame.” On the contrary, lacking an appropriate institutional frame, according to Will’s view, the result is “mayhem” and “the triumph of incivility.” What, then, is the appropriate “institutional frame” of free speech? How are we to avoid a breakdown or degeneration of free speech into incivility and social-political mayhem? Free speech, among much else, is intended to register the presence and/or lack of public support for government: “the consent of the governed.” The people may, for instance, in the words of the First Amendment, “peaceably assemble” and “petition the government for

redress of grievances.” But free speech does not include the encouragement of or sympathy for violence and street mobs. “Mostly peaceful” demonstrations cannot excuse associated violence and disorder arising from demonstrations; and the leftward slogan, “No Justice, No Peace,” must be resolutely rejected. The establishment of justice comes through the law and in the courts of law. As Fukuyama has put a related point, the state “is an instrument for controlling violence, and one of the ways you do that is by shifting the locus of conflict from the streets into a parliament where you can argue and deliberate rather than fighting things out.”2 I

It is not that American history contains no periods and episodes illustrating related dangers, possible solutions and resolutions. The dangers have recurred—starting with the factionalism of the 1790’s and erupting again in the most severe form in the pre-Civil War period of the 1850’s. Though contemporary polarization has frequently been compared to that of the 1850’s,3 the Present situation present more plausibly invites comparison to the factionalism of the late Gilded Age and , the Progressive Era,4 or the divisions between right and left during the Great Depression of the 1930’s. Contemporary commonalities with the period from the Gilded Age through the Progressive Era and with the 1930’s include not only intensive political divisiveness and discord, but also very significant levels of social-economic distress—conditioned by prior periods of

large-scale economic expansion and dislocations: the Gilded Age of mass industrialization and the “roaring 1920’s” respectively.

As a country, the U.S. is held together in significant degree by its promise of economic opportunity for ordinary people. This promise has drawn immigrants from around the world over centuries; and the state of the economy has long been a chief indicator of up-coming election results. Situations perceived as a threat to broad economic opportunity evoke public discontent and in the extreme tend to set one demographic group against another. We depend on a free press to keep the public informed, to avoid rationalization of evils or sensationalizing reports. By that standard, large segments of the partisan media are not serving the public interest. There is a lack of needed balance between the commercial interests of the media and their duties to the public.

Looking for the institutional frame of free speech, we naturally first think of the Supreme Court and its decisions under the First Amendment. The First Amendment states that “Congress shall make no law ... abridging freedom of speech, or of the press.” It might seem initially that this amounts to a purely lassez-faire, renunciation of lawful control or regulation of speech. But it is not.

First of all, the courts have had to decide what counts as constitutionally protected speech. A good deal of this is familiar in terms of what is prohibited by law. You can’t legally stand up before an angry crowd, for instance, and urge the crowd to violence. Inciting riot is illegal. Speech is not protected where it evokes a “clear and present danger” of unlawful action. In consequence, you cannot legally incite a mob to violence or falsely shout “Fire!” in a crowed theater risking the immediate dangers of a crowd in panic. In certain contexts, speech is regulated in the public interest, chiefly where speech itself becomes a dangerous form of action. But that is not the end of the matter.

Though publicly financed colleges and universities are obligated by the First Amendment to protect freedom of speech on campus, these institutions may and do prohibit disruptive speech in the classroom as a condition of student attendance and educational participation. It is doubtful that higher education would be possible without provisions for the instructor’s control of classroom participation. Institutional prohibition of explicitly racist agitation also makes good sense in this context, since there is little or no reason to think that such speech in the classroom would contribute to improvement of the students or improvement of the (factually multiracial) polity. This makes at least as much sense as the instructor refraining from racial agitation. But

examining arguments for and against racism is something else again. Provocation in teaching has its just limits. Still provocation in private exchanges is limited only by the criterion of its presenting a “clear and present danger.”

There is no sense of constitutionally protected freedom of speech which removes the possibility of someone being offended by what is said in classroom discussion. In consequence, the expanding notion of speech as “micro-aggression,” amounts to a rejection of free speech. Since free speech and the freedom of the press are suited to aid the public in defending itself against the abuse of political power, the power to offend cannot be removed without gutting the democratic ideal of government by the consent of the governed. Constitutionally protected freedom of speech is not designed to make everyone feel comfortable, it is instead designed to keep a country and its inhabitants free.

What are the just limits of free speech on campus? Beyond saying in formal terms that one political or controversial opinion cannot be forbidden if its denial or opposite is allowed, it seems clear that there is a place in these decisions for appeal to existing moral and cultural authority, conceived as guiding good judgment. But this is quite distinct from simply catering or encouraging student hypersensitivities or treating students as “customers” to be pleased and who, like commercial customers are to be viewed as “always right.” Good judgment in the classroom, is definitely much called for, not administrative censorship!

The First Amendment closely links freedom of speech and freedom of the press, and freedom of the press is now broadly understood to include freedom of expression in radio, television and the newer electronic media. Regulation of the public media is a long established fact of federal law and court decisions. The laws regulating public media may easily be viewed as contributing to the “institutional frame” (or lack thereof) of press freedom; and they are consistent with the principle of the consent of the governed, insofar as they have been enacted by duly elected representatives of the people in accordance with the constitution. But it may be doubted that the current U.S. regulatory law has kept pace with rapid technological developments and their commercial exploitation. The “consent of the governed” as a principle of liberal, constitutional

democracy surely does not require the commercial imperative of mass participation (and mass commercial surveillance) via advertisement supported “free” internet subscriptions.5

NOTES:

1. George Will 1983, Statecraft as Soulcraft, What Government Does (New York: Simon and Schuster), pp. 123-124. Will’s book derives from the Godkin Lectures delivered at Harvard University in October 1981.

2. Quoted in Mathilde Fasting, ed. 2021, After the End of History, Conversations with Francis Fukuyama (Washington, DC: Georgetown University Press), p. 82.

3. For an empirically based analysis of the factors tending to evoke civil wars around the world, see, Barbara F. Walters 2022, How Civil Wars Start (New York: Viking).

present situation more plausibly invites comparison to the factionalism of the late Gilded Age and the Progressive Era,4 or the divisions between right and left during the Great Depression of the 1930’s. Contemporary commonalities with the period from the Gilded Age through the Progressive Era and with the 1930’s include not only intensive political divisiveness and discord, but also very significant levels of social-economic distress—conditioned by prior periods of large-scale economic expansion and dislocations: the Gilded Age of mass industrialization and the “roaring 1920’s” respectively.

4. Cf. the Preface of Michael McGerr 2003, A Fierce Discontent (Oxford; New York: Oxford University Press) on the domestic failure of President Wilson’s “Progressivism,” p. xvi: “World War I. marked the high point of the progressive movement. ... Winning the war abroad, the Wilsonians lost their war at home. The administration’s war policies produced disorder instead of order, chaos instead of control. Amid race riots, strikes, high inflation, [and pandemic!] and a frenzied Red scare, Americans turned

against the progressive blueprint for the nation.”

5. According to Walters 2022, Civil Wars, “the most important driver” or “accelerant” of recent civil wars has been social media, as employed by radical “ethnic entrepreneurs” who foment resentment; and the factions most disposed to political violence are people with long histories in the country who are chiefly rural, and who resent displacement by immigrants and urban elites.

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