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SECRET GOVERNMENT Amongpoliticiansandpolicy-makersitisalmostuniversallyassumed that more transparency in government is better. Until now, philo- sophers have almost completely ignored the topic of transparency, andwhenitisdiscussedthereseemstobeanassumption(sharedwith politiciansand policy-makers) thatincreasedtransparency is a good thing, which results in no serious attempt to justify it. In this book BrianKogelmannshowsthatthestandardnarrativeisfalseandthat many arguments in defense of transparency are weak. He offers a comprehensivephilosophicalanalysisoftransparencyingovernment, examining both abstract normative defenses of transparency, and transparency’s role in the theory of institutional design. His book shows that even when the arguments in favor of transparency are compelling, the costs associated with it are just as forceful as the original arguments themselves, and that strong arguments can be madeindefenseofmoreopaqueinstitutions. brian kogelmann is Assistant Professor of Philosophy at the University of Maryland, College Park His research focuses on the intersection ofphilosophy, political science, and economics, and he haspublishedarticlesinjournalsincludingtheJournalofPhilosophy, American Political Science Review, and the American Journal of PoliticalScience. SECRET GOVERNMENT The Pathologies of Publicity BRIAN KOGELMANN UniversityofMaryland,CollegePark UniversityPrintingHouse,Cambridgecb28bs,UnitedKingdom OneLibertyPlaza,20thFloor,NewYork,ny10006,USA 477WilliamstownRoad,PortMelbourne,vic3207,Australia 314–321,3rdFloor,Plot3,SplendorForum,JasolaDistrictCentre, NewDelhi–110025,India 103PenangRoad,#05–06/07,VisioncrestCommercial,Singapore238467 CambridgeUniversityPressispartoftheUniversityofCambridge. ItfurtherstheUniversity’smissionbydisseminatingknowledgeinthepursuitof education,learning,andresearchatthehighestinternationallevelsofexcellence. www.cambridge.org Informationonthistitle:www.cambridge.org/9781108833264 doi:10.1017/9781108973847 ©BrianKogelmann2022 Thispublicationisincopyright.Subjecttostatutoryexception andtotheprovisionsofrelevantcollectivelicensingagreements, noreproductionofanypartmaytakeplacewithoutthewritten permissionofCambridgeUniversityPress. Firstpublished2022 AcataloguerecordforthispublicationisavailablefromtheBritishLibrary. isbn978-1-108-833264Hardback CambridgeUniversityPresshasnoresponsibilityforthepersistenceoraccuracyof URLsforexternalorthird-partyinternetwebsitesreferredtointhispublication anddoesnotguaranteethatanycontentonsuchwebsitesis,orwillremain, accurateorappropriate. To my mother, whotaughtmehowtolaughfromthebelly,drinkBudLight, and always live with love and joy in my heart. And to my father, who taught me how to work hard, wake up before the sun, and drive the train. Contents ListofTables pageviii Acknowledgments ix Introduction 1 1. PublicityinHistory 11 2. DemocracyThrivesinDarkness 35 3. OpenversusClosedDeliberation 64 4. PublicityandtheRuleofLaw 95 5. GovernmentHouseMoralTheory 114 6. SeeingJusticeDone 140 7. MutualKnowledgeofJustice 167 8. PuttingthePhilosopherintheModel 188 Conclusion 212 References 216 Index 238 vii Tables 3.1 Thecostsandbenefitsofsecretdeliberation page73 3.2 Thesuccessesandfailuresofretrospectiveaccountability 85 6.1 Thecomplexityofseeingjusticedone 165 8.1 Thecomplexityoffullpublicity 211 viii Acknowledgments Ihavebeenworkingonthisbook,inoneformoranother,forthepastfive orsoyears.Unsurprisingly,thedebtsIhaveincurredinwritingitarelarge. Ifirstpresentedaversionofthisbookatamanuscriptworkshopheldat the University of Arizona in the spring of 2018. The commentators were Jonathan Quong, Kevin Vallier, and Chad Van Schoelandt. The current bookisunrecognizablefromtheperspectiveofthemanuscriptIpresented that day. That, I think, is a testament to the tremendous feedback I received from the commentators and audience. They convinced me that the project I was then working on was not a fruitful one. Yet, they also convincedmethattherewasanuggetofagoodideainthatmanuscript– ontheconceptofpublicity–thatIshouldrunwith.RunwithitIdid,and theresultisthisbook. I presented material from this book on a few occasions. First, at the “FutureofPublicReason”conferenceheldattheUniversityofArizonaon May 23–24, 2019. At the conference, I thank Jacob Barrett, Elizabeth Edenberg,SamuelFreeman,JerryGaus,AdamGjesdal, ChristieHartley, Andrew Lister, Stephen Macedo, Alex Motchoulski, Blain Neufeld, Phil Smolenski, Kevin Vallier, and Chad Van Schoelandt for their wonderful feedback.IalsopresentedpartsofthisbooktothePhilosophyDepartment at the University of North Carolina at Chapel Hill on February 11, 2019. IthankespeciallyGeoffSayre-McCordforexcellentfeedback. Chapter1isonasubjectIhavenobusinesswritingabout(thehistoryof politicalthought).IthankmytwowonderfulcolleaguesattheUniversity ofMaryland,RachelSingpurwallaandJeremyReid,forprovidingdetailed feedback on this chapter. The whole manuscript greatly benefited due to detailed comments from Kevin Vallier and Andrew Lister. Indeed, their comments were so impactful that I rewrote much of the book in light of whattheyhadtosay. I also thank my intellectual mentors. Dave Schmidtz is the reason I attendedtheUniversityofArizonatogetaPhD.Iwasnotsoenthusiastic ix