Use of Policy Information and Analysis in the Congress

Analytical work has been used when decisionmakers are aware of the analysis at the time they make the decision. It is impossible to include all potentially relevant factors in an analysis, and it would be impossible to explain the analysis if all factors were included. The concept of a totally comprehensive analysis implies a predictability of behavior and a uniformity of values which is fundamentally incompatible with a democratic political system. The diversity of values and the unpredictability of changes in those values and accompanying behaviors underly the need for a representative democracy. It is most apparent in Congress that political decisionmaking in a democracy will never be very precise because the values represented in the decisionmaking process are not very precise. The fact that issues are being addressed currently in Congress with a remarkable level of understanding indicates that the analytical community has been very successful in its effort. While analysis is often used properly and effectively, it is sometimes used improperly. Analysts adhere to the principles of professional responsibility which involve reporting what is known and what is not known with candor. They cannot afford to distort their conclusions to please all groups. In a congressional setting, such distortions can be readily detected. The analysts' credibility is based on the attributes of objectivity and skill. Once that credibility is lost, it is hard to regain. The analysts' work is increasingly used and increasingly visible, but that utility and visibility carry the risk that all their efforts will be lost if analysts do not adhere to the principles of professional responsibility.