Trust in Government

America is experiencing a lack of trust in major institutions—particularly the federal government. Only 4 in 10 Americans say they trust the federal government to do what is right at least some of the time, according to a national survey conducted by the Partnership for Public Service and Freedman Consulting.

This lack of trust has serious implications for how the public interacts with our government and how well federal agencies can respond to the major challenges facing the country. Today, the nation is experiencing serious repercussions because of this trust deficit. The COVID-19 pandemic has placed demands on federal agencies to provide services, public health information, vaccines or economic relief to nearly every household in America. In recent weeks, global events have also driven our government to embark on consequential foreign policy actions in service to our safety and security as well the health of democracies abroad. The highly polarized reaction to these efforts has brought trust to the forefront of the political debate.

The national survey seeks to understand how people in the United States feel about their federal government beyond the politics of the day and the leaders in Washington, D.C. It instead focuses on the parts of government that are often out of the political limelight: federal agencies and the 2 million civil servants who work across the country. It also investigates why people do or do not trust the government. This effort is the first in a series of publications the Partnership will publish in the coming months on trust in the federal government.

While several surveys have measured levels of trust over time, they rarely provide insight into the drivers of trust and the specific sources for changing expectations of government. The current challenges facing the country require more than simply knowing that trust is on the decline. This report helps to answer how people feel about the government at this moment in time and why they feel that way.

A majority of the public is distrustful of the federal government as a whole. More people feel the federal government has a negative impact (53%) on the United States than a positive one (38%). More than half do not believe the government helps people like them, and two-thirds believe the government is not transparent or does not listen to the public. For many members of the public, key associations with the federal government are politics and politicians—which are perceived very negatively. Members of Congress, for example, are seen favorably by only 30% of the public compared with 61% who see them unfavorably.

However, when asked about specific parts of the federal government, the public supports a number of key components. For example, people have mostly positive feelings when discussing certain federal agencies, missions or services that have direct contact with people. Many well-known government agencies are seen favorably. Majorities of the public see government employees favorably. And more people say their personal experiences with the government have been positive rather than negative.

Among the major findings of the survey:

1. Only 40% of respondents said they trust the federal government a lot or somewhat, and 56% did not trust the government much or at all.
2. Just 38% said the federal government has a positive impact on the United States, while 53% said the impact was negative.
3. A third of respondents (33%) believe that the federal government treats people fairly regardless of race, class, gender, level of ability or any other demographic characteristic.
4. Many variations in views are explained by partisan differences. Democrats are far more likely to trust the government (60%) than Republicans (27%) and independents (26%).
5. Blacks (at 51%) and Asian Americans or Pacific Islanders (50%) are more likely to trust the government than Hispanics (39%) and Whites (38%).
6. More people said their personal experiences with the federal government had been positive (48%) than not (38%).
7. Views of federal employees are complex but mostly positive. A majority of respondents (57%) said federal employees are doing public service, and 56% said they are hard workers. Half thought that federal workers are committed to helping “people like me” compared with 33% who say they are not.
8. A majority (57%) said that “serving their communities” is very important to why federal workers take their jobs, and 47% said public service is a leading motivating factor. Still, more people said that federal employees work for benefits, job security and salary than for other reasons.
9. The public values the role an effective federal government plays in strengthening democracy and protecting our country. Two messages supporting these missions tested slightly better than others regarding what makes the public think more favorably about government.

The public’s distrust of Washington and political institutions is a well-documented and longstanding problem. By diving deeper and seeing its potential causes, we can develop a better understanding of trust to strengthen the public’s relationship with the federal government, particularly those elements not subject to electoral politics. This research presents several bright spots and opportunities to improve perceptions of government by better telling its story and impact. Finally, the findings suggest several potential options for reform to increase the trustworthiness of federal institutions.

Photo credit: Assistant Secretary for Preparedness and Response, National Disaster Medical System

Trust is crucial for reasons both conceptual (the legitimacy of well-functioning democracies relies on trust) and practical (government needs to be trusted so it can effectively serve the public). Yet most people in the United States do not trust the federal government.2

In order to be strong and sustainable, a democracy needs diverse groups to engage and voice their preferences. This is possible only when people representing various communities trust the government to listen and respond.

With less engagement, the public feels less empowered to influence government. This creates a mistrust loop: Diminished trust in government leads to a disengaged public, which leads to inefficient and unaccountable institutions, which leads to further deterioration of trust. When that loop is activated, progress slows down.

Our government is uniquely positioned to perform functions that are critical to national security as well as public safety and the well-being of the public. Low trust is a barrier to our government’s ability to meet today’s urgent needs and provide modernized, equitable and accessible services.

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Distrust also can dissuade young talent from entering the federal service—an issue that will become increasingly important in light of a rapidly aging workforce. It may likewise impact the willingness of potential political appointees to serve.

Low levels of trust in major institutions—particularly the federal government—is a persistent problem in the United States. According to many organizations tracking this trend, trust in government has been in decline since the 1960s.4 But the past few years have added new layers of complexity to this issue. A public health crisis, widespread misinformation, protests and social unrest around racial inequity and the Jan. 6, 2021, insurrection at the U.S. Capitol reflected the brittleness of the public’s faith in democratic institutions. Particularly at this time, it is critical to examine the issue of trust, to fully understand how Americans feel about their entire federal government—not just elected leaders, Congress or even the government in Washington, D.C.—and to find ways to reverse the decades-long trend.

How this research is unique

Most surveys on trust in government measure its level, but many lack additional insight on drivers of trust, the specific sources of positive or negative sentiments, changing expectations of government, or potential means of restoring trust. Simply tracking the decline of trust in government as a single institution—dozens of agencies, over 2 million employees with differing mandates and a $6 trillion budget—and comparing it to years past is insufficient for the current state of affairs. What is needed is an investigation reflecting the current cultural moment and a deeper understanding of how government should be present in people’s lives.

Through interviews, focus groups and a nationally representative survey, we uncovered unique insights into how people feel about the government and the causes of those feelings. The results show that trust in government is problematic. However, when opinions are considered in their entirety, it is not all bad news for the federal government. When asked about specific agencies, services, missions or federal employees, the public’s views are more positive. People also feel that their personal experiences with the government are more favorable than not.

These findings suggest there are opportunities for the federal government to improve its brand by focusing attention on the executive branch institutions which, despite making up the vast majority of government, do not often come to mind when people think of government.

Trust in government should not be a partisan issue. It is an essential part of maintaining a democracy that works for all people. Trust is also essential for the government to be able to reform itself and improve its own functioning. It is not about building a bigger or smaller government but an effective one, well-equipped to solve major problems facing the country.

This report offers details about the level of trust in government among specific populations, as well as insights into why people feel the way they do. The topics discussed below include:

• Differences by demographics. How levels of trust differ by groups of population such as race, gender and age.
• Reasons why people distrust the federal government. Insights into potential causes behind varying levels of trust.
• People and institutions viewed positively. The public supports certain parts of the federal government.
• Improving the brand and trustworthiness of the federal government. What the public wants from its government and potential ways for the government to better itself.

Photo credit: Shutterstock

By examining and better understanding how levels of trust differ by demographics such as race, gender, education and age, federal agencies can tailor how they interact and communicate with these populations.

Older Republicans are less likely to trust the government than younger Republicans, however. Twenty-two percent of Republicans 50 and older say they trust the federal government compared with 33% of Republicans under 50. A smaller split exists among Democrats: 58% under the age of 50 say they trust the government while 63% of those 50 and over agree.

Other demographics have a greater differentiation. Some racial groups trust the government more than others. About half of Blacks as well as Asian Americans or Pacific Islanders trust the government compared with 39% of Hispanics and 38% of Whites.

Racial groups are far from uniform in their opinions, however. Partisan differences within racial groups are strong. For Hispanics who identify as Democrats, 60% say they trust the government, while only 17% of Republican Hispanics say the same thing. Sixty-one percent of White Democrats expressed some level of trust compared with 26% of White Republicans.

These results are reflective of how people felt at a specific time in October 2021. Historical trends reveal additional insights into how trust is impacted by events. Over time, the party sitting in the White House has impacted levels of trust in the government overall. According to an analysis of surveys since the 1970s by the Pew Research Center, “Trust in government has been consistently higher among members of the party that controls the White House than among the opposition party.”5 However, Pew Research adds that Republicans have been more reactive to changes in political leadership than Democrats.

No attempt to understand how the public perceives the federal government is complete without viewing how results differ by groups. Experiences with the federal government vary greatly, and efforts to better serve and communicate with the public will not be a one-size-fits-all solution.

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Distrust stemming from the government serving some communities better than others

Many of the research participants expressed a belief that the federal government is not focused on helping people like them and their communities.

When asked which group of people the government helps the most, 50% said the wealthy while only 7% said the middle class and 9% said the poor. Only 9% said the government helps all groups equally, and 15% said the government doesn’t help any group.

Distrust of government because it is seen as too bureaucratic and wasteful

Many members of the public believe that the federal government does not function efficiently and is not careful with the public’s resources. Fully 75% of respondents said the government is too bureaucratic and also wasteful. Almost as many stated it is corrupt (69%), while 59% said it was incompetent.

Distrust coming from personal experiences

About two-thirds of the respondents who said most of their personal experiences with the federal government were positive also said they trusted the government (64%). By contrast, for those who said that their experiences with the federal government had not been positive, only 14% said they trusted the government while 85% reported they did not.

Still, some research participants acknowledged that personal experiences with the government could be positive even as they were skeptical about the government in its entirety. Expressing a common sentiment, one focus group participant said: “I don't fully trust [the government] … But there have been interactions I've had, and people that I know have had, [where problems were] solved. They've gotten taken care of.”

Photo credit: National Park Service

While the research shows the federal government as a whole is unpopular, the public does not view all parts of the government in the same way. As a rule, “government” without qualifiers suggests politics and politicians to research participants. When specific elements of government are defined and segmented, however, views vary. For example, both members of Congress and political appointees are viewed negatively—only 30% of the public has favorable opinions of each group.

However, when people focus on agencies and their missions and services, or non-elected government officials and their work in public service, more positive attitudes surface.

These findings suggest that the public does not distrust or dislike all of the government. Only certain parts are unpopular, but these elements drive the conception of the government as a whole. By emphasizing how our government is supporting people’s everyday lives—keeping us safe, healthy and secure—the federal government can begin to increase the understanding of its foundational role and improve how it is perceived.

The public has favorable views of many agencies

The Transportation Security Administration—which operates security at the nation’s airports—was favored by a rate of about 2-to-1.

When asked about the military as a whole, an overwhelming number of respondents (82%) said they had a favorable opinion.

The public’s views of federal employees are complex, but generally more positive than of government overall

“I think that the people who are hired that are civil servants are just doing their job. And I do trust them to do their job,” shared one focus group participant.

At the same time, about half of the respondents agreed with the view that federal employees are “more interested in helping themselves than the public.” About the same number said federal government employees make more money than the average private sector employee doing similar jobs—a statement that is not always accurate.9

Photo credit: Department of Agriculture, Food and Nutrition Service

Finding ways for the federal government to improve how it is perceived and to increase the public’s trust will be a challenge. A key element of any such effort will require a deeper understanding of what the public wants to see from the government. By examining the public’s expectations, the government can find opportunities to both increase its favorability and improve the ways it serves and interacts with the public.

This research is aimed at gaining a better understanding of the public’s expectations of their government and areas where they want to see improvement. Being aware of public perceptions is a fundamental element of better serving the country.

What does the public highlight as areas of concern?

About one-third of the respondents said that being more responsive to the public was a priority, and the same idea permeated many of the focus group conversations. “There's a lot of opinions out there that aren't getting heard or represented,” one individual stated. “Ask questions and listen to people for the policies and the laws that they're putting into place; people who are the underprivileged, the diverse population of our country,” said another.

Some of these improvements should be critical parts of government practice. The fact that respondents highlighted them as areas of concern suggests that current efforts at accountability, transparency or delivery are not done in a way that resonates with the public. This calls for further investigation of this question.

Messages and the need for more research

Rebuilding trust and shifting the public’s perception of the federal government requires understanding what types of messages and messengers resonate the most. In the coming months, the Partnership will conduct further research into messaging and its effects on different audiences.

Many participants said that viewing a personal story of a government employee made them realize that more people working for the government see themselves as public servants working hard for the good of the people.

For example, after viewing the story about a doctor at the Centers for Disease Control and Protection, one respondent said: “Honestly, I was a bit shocked that there are people like him working for the government. I guess this really makes me question my own biases.”

“I'm sure there are others in the federal government who view their work as a calling,” added another participant.

The Partnership’s research also suggests the public values the role the federal government plays in strengthening democracy and national security. The survey tested reactions to a range of messages regarding what makes the public think more favorably about government. While many of the messages were attractive, two tested slightly more favorably than others. The top message involved the need for a well-functioning government to protect and strengthen democracy. That was followed closely by a message about the need for government and the military in keeping the country safe.

Other preliminary testing suggested that people reading positive statements about the role of the government and its achievements increased their trust in the government by small margins in the short term. More work needs to be done in this area to better understand what messages work best and whether such an increase in trust would last over time.

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Trust is foundational in ensuring proper functioning of government and supporting a productive relationship between the public and the government. The longstanding issue of the public’s mistrust needs to be not only observed and documented, but also examined in depth and proactively addressed.

Gaining public trust is a long-term endeavor that will take improvements on two fronts: government competence and effective communication. The efforts will need to be tailored to the needs of specific demographic groups, as for historical, cultural, political and practical reasons, different people experience government in different ways. But what will have the same positive response across the population is providing equitable services to all people, regularly listening to the public, responding to its needs and increasing transparency and accountability. A promising avenue the government should explore in its efforts to gain public trust is educating the public about the work of non-elected government employees whose dedication seemed to spark interest and support in the course of this research. Focusing attention on the important work of the various government agencies that are not commonly associated with political debates also could be a step that helps reshape the public’s view of the government.

For gains in public trust to be sustainable, these improvements should occur on a consistent basis. The Partnership will pursue additional research and educational efforts in the coming months to advance knowledge on this topic. As noted in the Partnership’s 2021 “Government for the People” report, sporadic good government services will not amount to an overall positive opinion of government. Among widespread government criticism, a few negative impressions can taint one’s relationship with the government in general and severely damage trust—something that can only be mended by a comprehensive, systematic and coordinated approach to good governance.