Direct democracy or pure democracy is a form of democracy in which the electorate decides on policy initiatives without elected representatives as proxies. This differs from the majority of currently established democracies, which are representative democracies. The theory and practice of direct democracy and participation as its common characteristic was the core of work of many theorists, philosophers, politicians, and social critics, among whom the most important are Jean Jacques Rousseau, John Stuart Mill, and G.D.H. Cole.[1]
In direct democracy, the people decide on policies without any intermediary or representative, whereas in a representative democracy people vote for representatives who then enact policy initiatives.[2] Depending on the particular system in use, direct democracy might entail passing executive decisions, the use of sortition, making laws, directly electing or dismissing officials, and conducting trials. Two leading forms of direct democracy are participatory democracy and deliberative democracy. Semi-direct democracies, in which representatives administer day-to-day governance, but the citizens remain the sovereign, allow for three forms of popular action: referendum (plebiscite), initiative, and recall. The first two forms—referendums and initiatives—are examples of direct legislation.[3], thirty countries allowed for referendums initiated by the population on the national level.[4]
A compulsory referendum subjects the legislation drafted by political elites to a binding popular vote. This is the most common form of direct legislation. A popular referendum empowers citizens to make a petition that calls existing legislation to a vote by the citizens. Institutions specify the timeframe for a valid petition and the number of signatures required and may require signatures from diverse communities to protect minority interests. This form of direct democracy effectively grants the voting public a veto on laws adopted by the elected legislature, as in Switzerland.
A citizen-initiated referendum, also called an initiative, empowers members of the general public to propose, by petition, specific statutory measures or constitutional reforms to the government and, as with other referendums, the vote may be binding or simply advisory. Initiatives may be direct or indirect: with the direct initiative, a successful proposition is placed directly on the ballot to be subject to vote (as exemplified by California's system). With an indirect initiative, a successful proposition is first presented to the legislature for their consideration; however, if no acceptable action is taken after a designated period of time, the proposition moves to direct popular vote. Constitutional amendments in Switzerland, Liechtenstein or Uruguay goes through such a form of indirect initiative.
A deliberative referendum is a referendum that increases public deliberation through purposeful institutional design. Power of recall gives the public the power to remove elected officials from office before the end of their designated standard term of office.
Mandatory referendums correspond to majority rule while optional referendums and popular initiatives correspond to consensus democracy (e.g. Switzerland).[5]
See also: History of democracy.
One strand of thought sees direct democracy as common and widespread in pre-state societies.[6] [7]
The earliest well-documented direct democracy is said to be the Athenian democracy of the 5th century BC. The main bodies in the Athenian democracy were the assembly, composed of male citizens; the boulê, composed of 500 citizens; and the law courts, composed of a massive number of jurors chosen by lot, with no judges. Ancient Attica had only about 30,000 male citizens, but several thousand of them were politically active in each year and many of them quite regularly for years on end. The Athenian democracy was direct not only in the sense that the assembled people made decisions, but also in the sense that the people – through the assembly, boulê, and law courts – controlled the entire political process, and a large proportion of citizens were involved constantly in public affairs. Most modern democracies, being representative, not direct, do not resemble the Athenian system. Moreover, the Athenian democracy was exclusive. For example, in Athens in the middle of the 4th century there were about 100,000 citizens (Athenian citizenship was limited to men and women whose parents had also been Athenian citizens), about 10,000 metoikoi, or “resident foreigners,” and 150,000 slaves. Out of all those people, only male citizens who were older than 18 were a part of the demos, meaning only about 40,000 people could participate in the democratic process.[8]
Also relevant to the history of direct democracy is the history of Ancient Rome, specifically during the Roman Republic, traditionally founded around 509 BC. Rome displayed many aspects of democracy, both direct and indirect, from the era of Roman monarchy all the way to the collapse of the Roman Empire. While the Roman senate was the main body with historical longevity, lasting from the Roman kingdom until after the collapse of the Western Roman Empire in 476 AD, it did not embody a purely democratic approach, being made up – during the late republic – of former elected officials,[9] providing advice rather than creating law.[10] The democratic aspect of the constitution resided in the Roman popular assemblies, where the people organized into centuriae or into tribes – depending on the assembly – and cast votes on various matters, including elections and laws, proposed before them by their elected magistrates. Some classicists have argued that the Roman republic deserves the label of "democracy", with universal suffrage for adult male citizens, popular sovereignty, and transparent deliberation of public affairs.[11] Many historians mark the end of the Republic with the lex Titia, passed on 27 November 43 BC, which eliminated many oversight provisions.
Modern-era citizen-lawmaking occurs in the cantons of Switzerland from the 13th century. In 1847 the Swiss added the "statute referendum" to their national constitution. They soon discovered that merely having the power to veto Parliament's laws was not enough. In 1891 they added the "constitutional amendment initiative". Swiss politics since 1891 have given the world a valuable experience-base with the national-level constitutional amendment initiative. In the past 120 years, more than 240 initiatives have been put to referendums. Most popular initiatives are discussed and approved by the Parliament before the referendum. Out of the remaining initiatives that go to the referendum, only about 10% are approved by voters; in addition, voters often opt for a version of the initiative rewritten by the government. (See "Direct democracy in Switzerland" below.)
Some of the issues surrounding the related notion of a direct democracy using the Internet and other communications technologies are dealt with in the article on e-democracy and below under the heading Electronic direct democracy. More concisely, the concept of open-source governance applies principles of the free software movement to the governance of people, allowing the entire populace to participate in government directly, as much or as little as they please.[12]
See main article: Athenian democracy. Athenian democracy developed in the Greek city-state of Athens, comprising the city of Athens and the surrounding territory of Attica, around 600 BC. Athens was one of the first known democracies. Other Greek cities set up democracies, and even though most followed an Athenian model, none were as powerful, stable, or well-documented as that of Athens. In the direct democracy of Athens, the citizens did not nominate representatives to vote on legislation and executive bills on their behalf (as in the United States) but instead voted as individuals. The public opinion of voters was influenced by the political satire of the comic poets in the theatres.[13]
Solon (594 BC), Cleisthenes (508–507 BCE), and Ephialtes (462 BC) all contributed to the development of Athenian democracy. Historians differ on which of them was responsible for which institution, and which of them most represented a truly democratic movement. It is most usual to date Athenian democracy from Cleisthenes since Solon's constitution fell and was replaced by the tyranny of Peisistratus, whereas Ephialtes revised Cleisthenes' constitution relatively peacefully.Hipparchus, the brother of the tyrant Hippias, was killed by Harmodius and Aristogeiton, who were subsequently honored by the Athenians for their alleged restoration of Athenian freedom.
The greatest and longest-lasting democratic leader was Pericles; after his death, Athenian democracy was twice briefly interrupted by an oligarchic revolution towards the end of the Peloponnesian War. It was modified somewhat after it was restored under Eucleides; the most detailed accounts are of this 4th-century modification rather than of the Periclean system. It was suppressed by the Macedonians in 322 BC. The Athenian institutions were later revived, but the extent to which they were a real democracy is debatable.
Sociologist Max Weber believed that every mass democracy went in a Caesarist direction. Professor of law Gerhard Casper writes, "Weber employed the term to stress, inter alia, the plebiscitary character of elections, disdain for parliament, the non-toleration of autonomous powers within the government and a failure to attract or suffer independent political minds."[14]
Despite being a monarchy, direct democracy is considered to be an engrained element on Liechtensteiner politics.[15] [16]
See main article: Politics of Switzerland and Voting in Switzerland.
The pure form of direct democracy exists only in the Swiss cantons of Appenzell Innerrhoden and Glarus. The Swiss Confederation is a semi-direct democracy (representative democracy with strong instruments of direct democracy). The nature of direct democracy in Switzerland is fundamentally complemented by its federal governmental structures (in German also called the Subsidiaritätsprinzip).
Most western countries have representative systems.[17] Switzerland is a rare example of a country with instruments of direct democracy (at the levels of the municipalities, cantons, and federal state). Citizens have more power than in a representative democracy. On any political level citizens can propose changes to the constitution (popular initiative) or ask for an optional referendum to be held on any law voted by the federal, cantonal parliament and/or municipal legislative body.[18]
The list for mandatory or optional referendums on each political level are generally much longer in Switzerland than in any other country; for example, any amendment to the constitution must automatically be voted on by the Swiss electorate and cantons, on cantonal/communal levels often any financial decision of a certain substantial amount decreed by legislative and/or executive bodies as well.[18]
Swiss citizens vote regularly on any kind of issue on every political level, such as financial approvals of a schoolhouse or the building of a new street, or the change of the policy regarding sexual work, or on constitutional changes, or on the foreign policy of Switzerland, four times a year.[19] Between January 1995 and June 2005, Swiss citizens voted 31 times, on 103 federal questions besides many more cantonal and municipal questions.[20] During the same period, French citizens participated in only two referendums.[17]
In Switzerland, simple majorities are sufficient at the municipal and cantonal level, at the federal level double majorities are required on constitutional issues.
A double majority requires approval by a majority of individuals voting, and also by a majority of cantons. Thus, in Switzerland, a citizen-proposed amendment to the federal constitution (i.e. popular initiative) cannot be passed at the federal level if a majority of the people approve but a majority of the cantons disapprove. For referendums or propositions in general terms (like the principle of a general revision of the Constitution), a majority of those voting is sufficient (Swiss Constitution, 2005).
In 1890, when the provisions for Swiss national citizen lawmaking were being debated by civil society and government, the Swiss adopted the idea of double majorities from the United States Congress, in which House votes were to represent the people and Senate votes were to represent the states. According to its supporters, this "legitimacy-rich" approach to national citizen lawmaking has been very successful. Kris Kobach, former Kansas elected official, claims that Switzerland has had tandem successes both socially and economically which are matched by only a few other nations. Kobach states at the end of his book, "Too often, observers deem Switzerland an oddity among political systems. It is more appropriate to regard it as a pioneer." Finally, the Swiss political system, including its direct democratic devices in a multi-level governance context, becomes increasingly interesting for scholars of European Union integration.[21]
See main article: History of direct democracy in the United States and Initiatives and referendums in the United States.
In the New England region of the United States, towns in states such as Vermont decide local affairs through the direct democratic process of the town meeting.[22] This is the oldest form of direct democracy in the United States and predates the founding of the country by at least a century.
Direct democracy was not what the framers of the United States Constitution envisioned for the nation. They saw a danger in tyranny of the majority. As a result, they advocated a representative democracy in the form of a constitutional republic over a direct democracy. For example, James Madison, in Federalist No. 10, advocates a constitutional republic over direct democracy precisely to protect the individual from the will of the majority. He says,
Other framers spoke against pure democracy. John Witherspoon, one of the signers of the Declaration of Independence, said: "Pure democracy cannot subsist long nor be carried far into the departments of state – it is very subject to caprice and the madness of popular rage." At the New York Ratifying Convention, Alexander Hamilton was quoted saying "that a pure democracy, if it were practicable, would be the most perfect government. Experience has proved that no position is falser than this. The ancient democracies in which the people themselves deliberated never possessed one good feature of government. Their very character was tyranny; their figure, deformity."[23]
Despite the framers' intentions at the beginning of the republic, ballot measures and their corresponding referendums have been widely used at the state and sub-state level. There is much state and federal case law, from the early 1900s to the 1990s, that protects the people's right to each of these direct democracy governance components (Magleby, 1984, and Zimmerman, 1999). The first United States Supreme Court ruling in favor of the citizen lawmaking was in Pacific States Telephone and Telegraph Company v. Oregon, 223 U.S. 118 in 1912 (Zimmerman, December 1999). President Theodore Roosevelt, in his "Charter of Democracy" speech to the Ohio Constitutional Convention (1912), stated: "I believe in the Initiative and Referendum, which should be used not to destroy representative government, but to correct it whenever it becomes misrepresentative."
In various states, referendums through which the people rule include:
See main article: Referendums by country. The strength of direct democracy in individual countries can be quantitatively compared by the Citizen-initiated component of direct popular vote index in V-Dem Democracy indices.[26] A higher index indicates more direct democracy popular initiatives and referendums, shown below for individual countries. Only countries with index above 0 are shown.
| Country | Citizen-initiated component of direct popular vote index for 2021 | |
|---|---|---|
| 0.077 | ||
| 0.078 | ||
| 0.292 | ||
| 0.072 | ||
| 0.041 | ||
| 0.087 | ||
| 0.262 | ||
| 0.073 | ||
| 0.054 | ||
| 0.242 | ||
| 0.409 | ||
| 0.032 | ||
| 0.042 | ||
| 0.033 | ||
| 0.155 | ||
| 0.191 | ||
| 0.038 | ||
| 0.374 | ||
| 0.091 | ||
| 0.033 | ||
| 0.048 | ||
| 0.178 | ||
| 0.133 | ||
| 0.249 | ||
| 0.094 | ||
| 0.416 | ||
| 0.099 | ||
| 0.334 | ||
| 0.444 | ||
| 0.841 | ||
| 0.445 | ||
| 0.037 | ||
| 0.048 | ||
| 0.048 | ||
| 0.766 |
Democratic theorists have identified a trilemma due to the presence of three desirable characteristics of an ideal system of direct democracy, which are challenging to deliver all at once. These three characteristics are participation – widespread participation in the decision-making process by the people affected; deliberation – a rational discussion where all major points of view are weighted according to evidence; and equality – all members of the population on whose behalf decisions are taken have an equal chance of having their views taken into account. Empirical evidence from dozens of studies suggests deliberation leads to better decision making.[27] The most popularly disputed form of direct popular participation is the referendum on constitutional matters.[28]
For the system to respect the principle of political equality, either everyone needs to be involved or there needs to be a representative random sample of people chosen to take part in the discussion. In the definition used by scholars such as James Fishkin, deliberative democracy is a form of direct democracy which satisfies the requirement for deliberation and equality but does not make provision to involve everyone who wants to be included in the discussion. Participatory democracy, by Fishkin's definition, allows inclusive participation and deliberation, but at a cost of sacrificing equality, because if widespread participation is allowed, sufficient resources rarely will be available to compensate people who sacrifice their time to participate in the deliberation. Therefore, participants tend to be those with a strong interest in the issue to be decided and often will not therefore be representative of the overall population.[29] Fishkin instead argues that random sampling should be used to select a small, but still representative, number of people from the general public.
Fishkin concedes it is possible to imagine a system that transcends the trilemma, but it would require very radical reforms if such a system were to be integrated into mainstream politics.
See main article: List of direct democracy parties.
See main article: Democratic school.
Democratic schools modeled on Summerhill School resolve conflicts and make school policy decisions through full school meetings in which the votes of students and staff are weighted equally.[30]
The core criticism of direct democracy coincides with democracy's overall criticism. Critics have historically expressed doubts of the populace's capacity of participation, deeming its advocates utopian. Despite this, instances of direct democracy - such as the Petrograd Soviet - lack documented incidents involving participation deficits or mobocracy.
From the liberal democratic standpoint, restraining popular influence stonewalls the state of nature, protecting property rights. Adversaries of greater democratization cast doubt on human nature, painting a narrative of misinformation and impulsivity. MAREZ, utilizing sortition, had managed itself successfully prior to being overrun by drug cartels, as did FEJUVE remaining tranquil with self-managed organizations.
Although Revolutionary Catalonia had demonstrated the feasibility of non-liberal democracy, critics have continued to deride its presumed mobocratic nature, although there are no recorded instances of tyranny of the majority. It is of note that direct democracy's critics have emerged from Hobbesian and liberal philosophy.