There has always been a tension between the processes of representative democracy and its periodic elections - producing legislatures which then take on the decision making processes in interaction with citizens - and more direct forms of decision making. So, while most countries have procedures for referenda and plebiscites, these are often limited to moments of extreme importance.
However there are some countries where direct democracy – usually defined as a decision making process,– is more often used. Switzerland is one such country. Certain states in the USA allow citizen propositions to find space on ballot papers under certain conditions.
Civic education can easily be partisan during national referenda or plebiscites. It is very difficult to conduct any form of education which does not require a weighing of options, and it is a very short distance from that to weighting choices – especially as referendum questions are often phrased to force simple choices on complex issues.
There are certain procedural matters which can form part of an educational programme – what is a referendum?, how do you take part?, what is the question?, why is it being asked?, and, particularly importantly, what will the consequences of the various choices be?. And in some cases, it will be possible and necessary to develop educational material which offers arguments for each side of the issue. Where the institution providing the educational material has a non-partisan reputation it may be possible to develop such material. Alternatively educators can merely ensure that voters are not blocked from receiving and understanding the more partisan material being provided by the various camps.
Because referenda are seen as answering big questions which affect the future, and in the process have the potential to disappoint significant portions of the society if they lose, these are often tense moments in even the most stable of democracies. In fragile states they can be the precursors to crisis. Educators will take responsibility for preparing people for winning or losing, will focus on alternative ways forward and will conduct programmes which encourage political tolerance.
Once a referendum is settled, educators will want to develop programmes which consider the consequences and meaning of the decision taken – always difficult to determine. Recent referenda in France and the Netherlands have demonstrated that outcomes can be uncertain and that there is often no plan B.
In British Columbia an innovative experiment in a different sort of direct democracy (to consider the complex and highly emotional matter of electoral system reform) saw the calling up of a citizen assembly to represent the citizens at large. This jury type approach to public decision making provides a very different, more process oriented decision making and consultative process, and because of this allows educational process both for the participants and those who wait outside the assembly room.
