The Constitutional Coverage Trilemma in AI Governance

Abstract

Frontier AI systems function as \emph{constitutional institutions}: each deployed model encodes an implicit ranking among safety, helpfulness, honesty, autonomy, and equity. We ask whether the supply of frontier constitutional types covers human demand. Combining a paraphrase-controlled audit of the as-shipped default constitutions of $23$ frontier LLM archetypes with a pairwise-tradeoff study of $1{,}649$ US participants on the same instrument, we report three facts. \emph{Demand is broad}: it spans all five values, with the largest constituency under one-third. \emph{Supply is narrow and drifting}: the $23$-archetype hull occupies ${\sim}2\%$ of the demand hull under conservative noise-matched estimation ($0.10\%$ at full audit precision), no archetype puts helpfulness or autonomy first ($37\%$ of users are constitutionally homeless), and across six model families autonomy decreases in $5/6$, equity increases in $5/6$, and safety increases in $4/6$, with monotone within-family version trends (order-permutation $p = 0.013$) and the autonomy decline concentrated in scenarios where safety is not at stake. The drift's importance is directional: \emph{away} from a value already undercovered, mechanically worsening the welfare floor for the least-served users. \emph{The fix is sparse}: a $2$-vertex menu $\{e_{\mathrm{HON}}, e_{\mathrm{AUT}}\}$ beats the full $23$-archetype frontier by $47\%$ on mean regret (CI $[43\%, 52\%]$); three vertex additions cut mean/worst-group regret by up to $81\%$/$64\%$. We formalize these findings as a budgeted-pluralism trilemma, show the binding regime is empirically realized, and verify the conclusions are robust to distance-based welfare and to degraded routing. The instrument and audit harness are described in full in the appendices.