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Benoit 2014
Benoit 2014
Benoit 2014
This chapter begins by arguing for the importance of election campaigns. Next, it
describes the Functional Theory of Political Campaign Discourse. Assumptions, key
concepts, and predictions are discussed. The chapter then summarizes the research that
has applied this theory to a wide variety of election campaign messages: US president
(primary and general), non-presidential (Senate, House, gubernatorial, mayoral), non-US
TV spots and debates, and news coverage of election campaigns. The three functions –
acclaims, attacks, and defenses – and the two topics – policy and character – are
discussed. The chapter discusses effects of campaign phase and incumbency on candidate
messages. Finally, this chapter addresses limitations of this theory and directions for
future research.
Keywords: Functional Theory, acclaims, attacks, defenses, policy, character, election campaigns, candidate
messages, incumbency, campaign phase
POLITICAL election campaigns are ubiquitous—and no more so than in the United States.
Candidates run for a myriad of elective offices including mayor, city council, congress
(state and federal), senate (state and federal), governor, president, and in some
jurisdictions, judgeships. In elections in other countries, US style campaigning seems to
be spreading. Presidential debates have been held in many countries, including Australia,
Canada, France, Germany, Iran, Israel, Italy, Northern Ireland, Poland, Scotland, South
Korea, Spain, Taiwan, Ukraine, the United Kingdom, and Wales. The use of television
spots is limited in some countries, but others allow use of this message form during
elections.
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Campaigns
Functional theory views utterances in an election campaign as functional, or means to an
end. It begins with several assumptions about the nature of political campaigns. First,
voting is a comparative act. To win office, candidates only need to appear—and it is
important to keep in mind the fact that political campaigns are about perceptions—
preferable to their opponents.
Second, political candidates must contrast themselves with their opponents. Those
aspiring to lead do not need to disagree with their competitors on every salient issue.
Who would oppose creating jobs or keeping one’s country safe? But voters cannot prefer
one candidate to another if each is an exact copy of the other. Candidates must differ
from opponents on at least some points of comparison if they are to have a chance to
appear preferable to opponents. Communication enters elections at this stage.
The third assumption of functional theory is that voters learn candidate distinctions
through political messages disseminated by a variety of sources, including supporters,
the news media, supporters of opposing candidates, and special interest groups.
Candidates use messages in a variety of media to inform voters (directly and indirectly, as
other sources pass along some of the ideas from their campaign messages) about
themselves and their policies and to identify points of distinction with opponents. Figure
14.1 illustrates how information flows from candidates and media to voters.
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Campaign discourse occurs on both policy and character. A candidate’s resources for
acclaiming, attacking, and defending are who he or she is (character) and what he or she
has done or will do in office (policy). Voters develop perceptions of candidates’ character
and policy, and, as noted earlier, are exposed to information from many sources that
influence perceptions of the candidates and their policy positions. But policy and
character are the two topics on which candidates acclaim, attack, and defend to foster
the impression that they are more worthy of election than the others seeking the office.
To succeed, a candidate must win a majority (or a plurality) of the votes cast in an
election (or a majority in the Electoral College for US presidential elections). Given that
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the electorate is divided on multiple contested issues (e.g., some preferring federal
financing of healthcare, others opposing it), it is likely that many voters prefer one
candidate on some issues and an opponent on others. But to be elected, political
candidates need not win the support of everyone potentially in the electorate but need
only to secure sufficient votes from those who actually bother to ballot. Table 14.1 offers
hypothetical illustrations of acclaims, attacks, and defenses on policy and character.
Functional theory also distinguishes among three forms of policy (past deeds, which
facilitate retrospective voting; future plans [means]; and general goals [ends]; the latter
two forms facilitate prospective voting). It also distinguishes three forms of character
(personal qualities, leadership ability, and ideals [values, principles]). (p. 198)
Policy Character
Defend “My opponent is wrong to say I “It is simply false to say I don’t
raised taxes.” care about people.”
Functional theory (Benoit, 2007; see also Benoit 2014a, 2014b; Benoit, Blaney, and Pier,
1998; Benoit, McHale, Hansen, Pier, and McGuire, 2003; Benoit, Stein, McHale,
Chattopadhyay, Verser, and Price, 2007) advances several hypotheses about political
campaign messages, including these:
H1. Political candidates will use acclaims more frequently than attacks, and attacks
more often than defenses.
H2. Debates will have more defenses than other media.
H3. Policy comments will be more frequent than character comments in political
campaign discourse.
H4. General goals and ideals will be used more often to acclaim than to attack.
H5. Messages from candidates will use more acclaims and fewer attacks than
messages from other sources (e.g., political parties, independent groups).
H6. Incumbents acclaim and defend more, and attack less, than challengers.
H7. Incumbents will be more likely than challengers to use past deeds to acclaim;
challengers use past deeds to attack more than do incumbents.
H8. Acclaims are more common, and attacks less so, in primary than in general
campaign messages.
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H9. A focus on character is more common, and concentration on policy less so, in
primary than in general campaign messages.
H10. Attacks in the primary will be more likely to target candidates who are
members of the attacker’s own party than candidates of the other party.
H11. Attacks in primaries will be more likely to target the front runner than other
candidates.
H12. The front runner attacks candidates from the opposing party more than other
candidates.
H13. Campaign winners discuss policy more, and character less, than do losers.
H14. Campaign winners attack more on policy, and less on character, than losers.
H15. News coverage will overrepresent attacks and defenses and underrepresent
acclaims.
H16. News coverage will focus on the horse race (e.g., who is ahead in the polls or
who is campaigning where today).
H17. News coverage will overrepresent character and underrepresent policy.
messages for a variety of media and offices, including presidential TV spots (Benoit,
1999); presidential debates (e.g., Benoit and Hartcock, 1999; Benoit and Brazeal, 2002);
vice presidential debates (Benoit and Airne, 2005); announcement speeches (Benoit,
Henson, Whalen, and Pier, 2008); nominating convention acceptance addresses (Benoit,
Wells, Pier, and Blaney, 1999); and direct mail brochures (Benoit and Stein, 2005). The
theory has also been applied to US gubernatorial and Senate debates (Benoit, Brazeal,
and Airne, 2007); US gubernatorial, Senate, and House TV spots (Brazeal and Benoit,
2006; Benoit and Airne, 2009). Non-US TV spots (e.g., Wen, Benoit, and Yu, 2004) and
debates (e.g., Benoit and Klyukovski, 2006) have also been studied. Functional theory has
been extended to understand news coverage of political campaigns. Predictions include
(1) horse race coverage will be more common than policy or character, (2) news coverage
of campaigns will report attacks more frequently than candidates use attacks in their
messages, and (3) news coverage of elections will discuss character more, and policy less,
than candidate messages. Benoit, Stein, and Hansen (2005) content analyzed New York
Times’ coverage of US presidential campaigns, 1952–2000. Benoit, Hemmer, and Stein
(2010) applied functional theory to New York Times’ coverage of presidential primary
campaigns.
Over multiple years (1948–2012), studies of offices (president, vice president, governor,
senator, congressman, mayor, prime minister, chancellor); media (e.g., TV spots, debates,
speeches, websites, newspapers); and countries (e.g., Australia, Canada, Israel, South
Korea, Taiwan, the United Kingdom) support functional theory (see Benoit 2007). Only
rarely, for example in the 2004 Ukraine debates (Benoit and Klyukovski, 2006), does a
candidate attack more than he or she acclaims. However, that campaign was negative for
two reasons: accusations of vote fraud meant the first vote was declared invalid and a
second election was held; one of the candidates accused his opponent of having poisoned
him.
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One consistent exception to the general preference for acclaims over attacks occurs in
non-candidate messages (Benoit, 2007). Functional theory concerns what might be best
understood as reasons rather than causes. For example, candidates have a reason to
avoid excessive reliance on attacks: Many voters say they dislike mudslinging. This does
not mean candidates must acclaim more than they attack, just that there is a reason to do
so—and most candidates do in fact acclaim more than they attack (and use defense the
least). For example, we have data from 114 announcement speeches; six used more
attacks than acclaims. In those exceptions the two functions occurred at similar
frequencies (e.g., John Kerry in 2004 used forty-eight acclaims and forty-nine attacks).
So, exceptions occur but this prediction is almost always confirmed in election messages
from political candidates.
However, spots sponsored by political parties and interest groups tend to attack more
than candidate-sponsored ads. The assumption most likely at work is that an attack from
a candidate is more likely to backfire (upset voters who dislike mudslinging) than an
attack from a surrogate source. Another exception—from another type of surrogate
source—occurs when nominating convention keynote speeches typically have more
attacks (and fewer acclaims) than the candidates’ nomination acceptance addresses.
Defenses were never more common than acclaims or attacks in these data.
(p. 200)
Functional theory (Benoit, 2007) argues that candidates have three reasons to use few
defenses. Most attacks occur on a candidate’s weaknesses, so responding to those attacks
likely takes the candidate off-message. Second, defending could make the candidate
appear reactive rather than proactive. Finally, in order to defend against an attack the
candidate must identify the criticism being refuted; doing so could remind or inform
voters of a potential weakness. However, defenses are consistently more frequent in
debates than in other media. Functional theory argues that one of the reasons to
minimize attack—reminding or informing the audience of a potential weakness—does not
apply in debates, given that the candidate is probably responding to an attack just made
by an opponent.
Research (Benoit, 2007) consistently reports that general goals and ideals are used more
often as the basis for acclaims than attacks. It is easier to advocate more jobs (a goal) or
equality (an ideal) than to attack either idea.
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As noted earlier, the nature of the source of a political campaign message influences
functions: Candidates tend to use more acclaims and fewer attacks than other sources.
Nomination acceptance addresses tend to be more positive than keynote speeches. In
presidential TV spots candidates are prone to be more positive than narrators or other
speakers (Benoit, 1999). TV spots sponsored by the political parties and interest groups
tend to attack more, and acclaim less, than ads sponsored by candidates (Benoit, 2007).
Incumbent party candidates are typically more positive (use more acclaims and fewer
attacks) than challenger party candidates (Benoit, 2007). This is in large part a function
of how the candidates use past deeds or record in office in their campaign messages.
Incumbents have a record of performance in the office sought; with an occasional
exception (none for US presidential campaigns in recent history) challengers do not.
Arguably, the best evidence of how a candidate will perform in an office is how that
candidate has performed in that office. Accordingly, both incumbents and challengers talk
about the incumbent’s record more than the challenger’s record. Of course, when
incumbents discuss their own record they acclaim; when challengers discuss incumbents’
records they attack.
Primary and general election campaign messages have significant differences (Benoit,
2007). Attacks are more common in the general campaign than the primary. When
seeking their party’s nomination, candidates tend to use fewer attacks than after they
become the nominee. First, more policy differences (opportunities to attack) exist
between members of different parties (general election) than between members of the
same party (primary election). Second, a candidate hoping to become the nominee may
(p. 201) wish to moderate attacks on opponents in the primary in order to obtain their
support in the general election—and the support of party members who preferred the
winner’s opponents. In the primary campaign, most attacks target other candidates from
the source’s own political party and there is a direct relationship between a candidate’s
position in the poll and the number of attacks targeting that candidate in primary
debates; the front runner is more likely than other candidates to attack opposing party
candidates (Benoit, Pier, Brazeal, McHale, Klyukovksi, and Airne, 2002).
Research has also established that policy is discussed more frequently in the general
election than in the primary campaign (Benoit, 2007). Many candidates in the primary
phase are relatively unknown (think Dennis Kucinich or Hermann Cain) and they usually
begin by introducing themselves. As noted earlier, more policy differences exist between
members of different parties (general election) than among members of the same party
(primary). This means there are more opportunities to discuss policy in the general
election. Finally, some primary candidates continue to develop policy positions as the
campaign unfolds; in other words, especially at the beginning of the primary season some
candidates have fewer policy positions to discuss.
Election winners tend to discuss policy more, and character less, than losers (“winner”
refers to candidates who win their party’s nomination or the general election; it has
nothing to with which candidate is believed to have “won” a debate or whether a
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candidate won a caucus or primary; Benoit, 2003). Functional Theory argues that most
voters consider policy to be a more important determinant of their presidential vote than
character (public opinion polls support this explanation). Furthermore, when they attack,
election winners are more likely to criticize their opponents’ policy than their opponents’
character (Benoit, 2004); some evidence suggests that voters consider attacks on
character more offensive than attacks on policy (Johnson-Cartee and Copeland, 1989).
News coverage of election campaigns features more attacks and fewer acclaims than the
candidates employ in their campaign messages. As noted earlier, news coverage of
campaigns focuses on the horse race. When it does focus on policy and character, news
stories about elections privilege character over policy (Benoit, Stein, and Hansen, 2005).
as well as research on functions and topics in other campaign media. Further analysis of
candidates’ use of personal qualities in campaign messages should be pursued in future
research. It would be interesting to combine functional theory with the elaboration
likelihood model (ELM) (Petty and Cacioppo, 1986) or the theory of planned behavior
(TPB) (Fishbein and Ajzen, 2009) to do audience effects research. Two key elements of
the ELM are arguments and credibility, which correspond roughly to policy and character.
The ELM concerns how messages—which could be such campaign messages as TV spots
or debates—are processed by audience members. The TPB has potential because its
approach to integrating information and functional theory argues that candidate
messages supply information to voters in the form of acclaims, attacks, and defenses.
Recall the discussion of the three functions as an informal variant of cost-benefit analysis,
where voters must integrate the information provided by acclaims, attacks, and defenses.
Furthermore, sufficient data has been accumulated to permit longitudinal analysis of US
presidential campaigns, which could be very productive.
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Unanswered Questions
Functional theory focuses on selected aspects of political campaign messages (functions
and topics). It does not, for example, investigate other message features such as
argument structures or metaphors (although one study has investigated the use of
evidence in TV spots—evidence is more likely to be deployed in support of attacks than
acclaims or defenses; Henson and Benoit, 2010). Other variables related to message
production (besides, e.g., incumbency status, campaign phase, or political party
affiliation), such as competitiveness of race, merit attention. Some research has
investigated the functions and topics of non-presidential campaign messages (e.g., Airne
and Benoit, 2005; Benoit, Brazeal, and Airne, 2007; Benoit, Henson, and Maltos, 2007)
but more could be done here. Similarly, studies have begun to apply functional theory to
non-US campaign messages (e.g., Benoit and Henson, 2007; Benoit and Klyukovski, 2006;
Benoit and Sheafer, 2006; Benoit, Wen, and Yu, 2007; Lee and Benoit, 2004; Wen, Benoit,
and Yu, 2004), but further work in this area would be helpful. Political content in social
media (e.g., Facebook, Twitter) is also a fertile ground for research using functional
theory.
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Oxford Handbooks Online for personal use.
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William L. Benoit
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