  How might new forms of inquiry emerge that are able to accommodate a greater number of perspectives and also remain democratic? Here we need again to distinguish between first- and second-order forms of deliberation, where the latter develops in order to accommodate an emergent public with new perspectives and interests. Dewey sees the normal, problem-solving functioning of democratic institutions as based on robust interaction between publics and institutions within a set of constrained alternatives. When the institutional alternatives implicitly address a different public than is currently constituted by evolving institutional practice and its consequences, the public may act indirectly and self-referentially by forming a new public with which the institutions must interact. This interaction initiates a process of democratic renewal in which publics organise and are organised by new emerging institutions with a different alternative set of political possibilities. Of course, this is a difficult process: “to form itself the public has to break existing political forms; this is hard to do because these forms are themselves the regular means for instituting political change” (Dewey 1927b, 255). This sort of innovative process describes the emergence of those transnational publics that are indirectly affected by the new sorts of authoritative institutions brought about by managing “deregulation” and globalization. This account of democratic learning and innovation seems not to be limited by the scope of the institutions, even as the potential for domination also increases under current arrangements.