Why governments want to learn about citizens' preferences. Explaining the representational logic behind government polling

While it is generally admitted that governments in most democracies make extensive use of public opinion research, we do not know much about the way they mobilize this resource. When and why do they want to learn about public opinion? What determines differences in the intensity of government polling over the electoral cycle? Are government opinion polls primarily a tool for testing the reception of government proposals or for learning more about issues that are important to citizens? And what does this tell us about the way political representation works? Understanding governments as actors in the production of public opinion, not just as passive consumers, our focus is on polls commissioned directly by governments. We argue that government polls can help us to better understand how contemporary political representation works since they can play an important role as ‘update instrument’ in anticipatory representation or as a decision-making aid in promissory representation. By studying government polls as dependent variable, we develop an innovative research design and systematically analyse the factors that explain whether the intensity of government polling (the number of questions asked) varies across different stages of the electoral cycle and whether the issues they ask about correspond more to the government's priorities or those of the public. We present evidence from Germany, mobilizing an original database of all survey questions directly commissioned by the German government during the 18th and 19th legislative periods (2013–2021). Our findings help to better understand the factors that determine the intensity of government polling at different moments of the electoral cycle and to identify the different logic of representation behind this activity. The transition from the post-election period to the routine period and from the routine period to the pre-election period correspond to turning points in the German government's use of this instrument. While we could not observe any direct effects of the electoral cycle on the intensity of government polling, the interplay between the former and different types of policy issues proves to be insightful. The government commissions significantly more survey questions on government priorities during the first 3 months in office than during routine times and significantly more survey questions on salient issues as federal elections approach. Moreover, we show that governments commission fewer questions on issues they ‘own’, which points in the same direction as previous studies showing that governments are less interested in public opinion on these issues.