By its very nature, the democratic process spurs citizens to form opinions on a number of issues. Voters are called upon to choose candidates in elections, to consider constitutional amendments, and to approve or reject municipal taxes and other legislative proposals. Almost any matter on which the executive or legislature has to decide may become a public issue if a significant number of people wish to make it one. The political attitudes of these persons are often stimulated or reinforced by outside agencies—a crusading newspaper, an interest group, or a government agency or official.
The English philosopher and economist Jeremy Bentham (1748–1832) saw the greatest difficulty of the legislator as being “in conciliating the public opinion, in correcting it when erroneous, and in giving it that bent which shall be most favourable to produce obedience to his mandates.” At the same time, Bentham and some other thinkers believed that public opinion is a useful check on the authority of rulers. Bentham demanded that all official acts be publicized, so that an enlightened public opinion could pass judgment on them, as would a tribunal: “To the pernicious exercise of the power of government it is the only check.”
