As the next section illustrates, a close look at the tools of rational policy analysis shows that some of the most widely used methods blithely assume a single omniscient decision maker. For example, a hypotheeical social planner acts on benalf of the whole population when selecting socially optimal policies by means of benefit-cost analysis. The risk assessor likewise weighs expected aggregate social risks and benefits when selecting optimal regulations. Such tools simplify away the procedural and communicative challenges of public decision making. We need to move beyond them