Beyond committees: parliamentary oversight of coalition government in Britain

Abstract

A legislature’s ability to engage in oversight of the executive is believed to derive largely from its committee system. For example, powerful parliamentary committees are considered a necessary condition for the legislature to help police policy compromises between parties in multiparty government. But can other parliamentary instruments perform this role? This article suggests parliamentary questions as an alternative parliamentary vehicle for coalition parties to monitor their partners. Questions force ministers to reveal information concerning their legislative and extra-legislative activities, providing coalition members unique insights into their partners’ behaviour. In order to test our argument, we build and analyse a new dataset of parliamentary questions in the British House of Commons covering the 2010?2015 coalition. As expected, government MPs ask more questions as the divisiveness of a policy area increases. Legislatures conventionally considered weak due to the lack of strong committees may nevertheless play an important oversight role through other parliamentary devices, including helping to police the implementation of coalition agreements.     

Parliamentary questions as a control mechanism in coalition governments

This article argues that government parties can use parliamentary questions to monitor coalition partners in order to reduce agency loss through ministerial drift. According to this control logic, government parties have particular incentives to question ministers whose jurisdictions display high policy conflict and high electoral salience and thus hold the prospect of electorally damaging ministerial drift. Multivariate regression analysis of all parliamentary questions in the German Bundestag between 1980 and 2017 supports this hypothesis, showing that cabinet parties address substantially and significantly more questions to ministries held by coalition partners on salient and ideologically divisive issues. This interactive effect does not occur for opposition parties or questions posed to own-party ministers. These findings, as well as the temporal patterns of questioning over the electoral cycle, indicate that control within coalitions is a distinct motivation for questioning ministers that cannot be reduced to existing explanations such as electorally motivated issue competition.     

Parliamentary questions as strategic party tools

This article shifts the analysis of parliamentary oversight tools to the level of the political party, asking how political parties make use of written parliamentary questions. It theorises that the use of parliamentary questions is related to the ideological and electoral competition between political parties, borrowing from theories on issue competition and negative campaigning. It provides an empirical test, using data on written questions from the lower house in the Netherlands (1994–2014). The analysis shows that parties tend to put questions to ministers whose portfolios are salient to them, in line with issue ownership theories. Moreover they ask questions of both ministers from parties that are ideologically distant and those with whom they have considerable electoral overlap in line with studies of negative campaigning.     

Endogenous Credible Commitment and Party Competition over Redistribution under Alternative Electoral Institutions

Political parties competing in elections for the power to set public policy face the problem of making credible their policy promises to voters. I argue that this commitment problem crucially shapes party competition over redistribution. The model I develop shows that under majoritarian electoral rules, parties' efforts to achieve endogenous commitment to policies preferred by the middle class lead to different behavior and outcomes than suggested by existing theories, which either assume commitment or rule out endogenous commitment. Thus, left parties can have incentives to respond to rising income inequality by moving to the right in majoritarian systems but not under proportional representation. The model also generates new insights about the anti‐left electoral bias often attributed to majoritarian electoral rules, and the strategic use of parliamentary candidates as a commitment device. I find evidence for key implications of this logic using panel data on party positions in 16 parliamentary democracies.     

Who controls the wealth? Electoral system design and ethnic war in resource-rich countries

Both natural resource wealth and electoral system design are frequently investigated factors in the civil wars literature. So far, however, there is no well-known study which explicitly considers the interaction effect between these two factors on the risk of violent ethnic conflict. We argue that resource-rich countries with a proportional electoral system for the legislature are less prone to ethnic civil war than resource-rich countries with a majoritarian or mixed electoral system, as proportional electoral systems tend to increase the effective number of parliamentary parties and thus the number of groups who can share state control over resource wealth. We find empirical support for this argument using binary time-series-cross-section analysis covering 83 to 140 countries between 1984 and 2007.     

Don't air your dirty laundry: Party leadership contests and parliamentary election outcomes

Staging an open contest is a democratic method to choose a party leader, though its electoral consequences remain unclear. I argue that leadership contests are electorally detrimental to governing parties. Competitive contests signal intraparty policy and/or personality conflict to voters, which damages governing parties’ perceived unity as well as competence in the policy-making process. Thus, leadership contests undermine governing parties’ performances in parliamentary elections. Moreover, since voters evaluate governing parties’ record in office more than their rhetoric, unlike opposition parties, they cannot repair the image of incompetence/disunity by reshaping their rhetoric and/or policy direction. This implies that leadership contests damage governing parties’ electoral prospects more than they do to opposition parties’ electoral performances. Results from statistical testing with original data from 14 countries support my argument. In addition, these results are not endogenous to the contests’ timing; degree of competitiveness; leadership selection rules; whether or not the incumbent retains office; norms of contests; or how predecessors left office. These findings underscore the need to investigate the relationship between intraparty dynamics and election outcomes.     

Power and Democracy in Norway: The Transformation of Norwegian Politics1

The Norwegian Power and Democracy Project concluded that the parliamentary chain of government is weakened in every link; parties and election are less mobilizing; minority governments imply that the connection between election results and policy formation is broken; and elected assemblies have been suffering a notable loss of domain. Popular participation has moved from long‐term organisations and political parties to short‐term action groups and associations with immediate concerns. The judicialisation of politics has strengthen the legal system and weakened the autonomy of local democracy, while the expansion of market forces further affects the span of parliamentary rule. The mass media has become politically more independent, while adapting more closely to economic forces and the quest for return of investment. There has, accordingly, been centralisation of economic power through mergers and acquisitions following the globalisation of the Norwegian economy. The so‐called ‘Scandinavian’ (or ‘Nordic’) model is increasingly strained, while corporatism is partly weakened and partly restructured. After the end of the Cold War, there has also been a consistent strategy in foreign policy for the branding of Norway as a champion for peace and human rights. There is a cluster of corporate bureaucratic agencies around the high‐profile peace mediation and humanitarian engagement.     

The impact of candidate selection rules and electoral vulnerability on legislative behaviour in comparative perspective

Legislators are political actors whose main goal is to get re-elected. They use their legislative repertoire to help them cater to the interests of their principals. It is argued in this article that we need to move beyond treating electoral systems as monolithic entities, as if all legislators operating under the same set of macro-rules shared the same set of incentives. Rather, we need to account for within-system variation – namely, candidate selection rules and individual electoral vulnerability. Using a most different systems design, Germany, Ireland and Portugal are leveraged with both cross-system and within-system variation. An original dataset of 345,000 parliamentary questions is used. Findings show that candidate selection rules blur canonical electoral system boundaries. Electoral vulnerability has a similar effect in closed-list and mixed systems, but not in preferential voting settings.     

Are Voters Equal under Proportional Representation?

We develop and apply a new conceptual framework and measure for evaluating electoral systems, focusing on (in)equality in parliamentary representation. Our main arena of interest is proportional representation with districts, an electoral system employed by more than half of democratic states, and we draw on an almost entirely overlooked fact: Electoral regimes vary substantially within countries, with some voters casting their ballot in semi‐majoritarian districts of few representatives and others in large and proportional ones. This within‐country institutional variation, we contend, affects representational (in)equality. Evaluating equality in parliamentary representation, we demonstrate that districted proportional representation often leads to overrepresentation of voters supporting right‐leaning parties. Utilizing district‐level data from 20 Western parliamentary democracies and complementing our within‐country approach with a cross‐country analysis, we further show that where parliaments are elected by large and small districts, representational inequality among voters is greater compared with countries in which parliament is elected by even‐magnitude districts.     

Issue Voting as a Constrained Choice Problem

Prevalent models of issue voting view vote choice as a choice among party policies. Choice sets are implicitly assumed to be the same for all voters, and their composition is left to researchers' discretion. This article aims to relax such assumptions by presenting a model with a varying probability of inclusion in the choice set. We apply the “constrained choice conditional logistic regression” to survey data from the 1989 parliamentary election in Norway to examine the effects of party identification of voters and electoral viability and policy extremity of parties on individual voters' choice set compositions. Further, we look into the effect of parties' policy positions on their electoral fates under alternative assumptions about the composition of voters' choice sets. We find that voters' choice set composition conditions both the effects of their policy considerations on vote choice and those of parties' policy offerings on their electoral fates.     

Notes on contributors

International comparisons of new radical right‐wing parties usually focus on differences in electoral fortunes, party organisations and leadership. This article uses a different angle by focusing on public policy impact and the role these parties play in the parliamentary and executive arenas. The research is driven by the hypothesis that under the conditions of stable democracy, holding office produces a net result in a ‘taming effect’ on radical right‐wing actors rather than a sharp ‘right turn’. Evidence f rom four countries (Germany, France, Italy and Austria) shows that parliamentary presence alone does not result in policy effects. When the radical right holds executive office, a ‘right turn’ occurs primarily in cultural policies. Overall, real effects of radical right‐wing politics occur largely as a result of the interaction between the radical right and established actors ‐regardless of the radical right's assuming power.     

Do Citizens Tolerate Antidemocratic Statements?

Antidemocratic statements by politicians have become part of politics in several backsliding democracies. Yet, we know little about how ordinary citizens think antidemocratic statements should be dealt with. We employ conjoint experiments fielded in the United States, Germany, and Hungary to investigate the extent to which citizens think undemocratic and other controversial statements should be restricted. Specifically, we randomly assign antidemocratic statements – threatening electoral integrity directly or indirectly – along with other controversial statements to hypothetical politicians running for elections. We show that citizens wish to ban antidemocratic statements relative to generic placebo statements. Moreover, this willingness corresponds to their willingness to ban other forms of controversial statements that either represent offenses to different identity markers or induce material risks. We also find that the willingness to ban antidemocratic statements is evident across the three countries and regardless of gender, education, age, and partisanship, with only modest differences in the results between countries and subgroups. Our findings thus indicate that citizens generally care about democracy, which is good news for democracy and electoral integrity, but also that they do not care more about democracy than other fundamental values related to material costs or identity markers.     

Online versus offline: Exploring the link between how candidates campaign and how voters cast their ballot

The Internet is playing an increasingly important role in shaping citizens’ political experience. We turn to it to consume political news and, in some countries, to even cast our ballots at parliamentary elections. Leading the way in embracing Internet voting (i-voting) is Estonia where nearly half of the ballots cast during the 2019 parliamentary election were submitted online. Using original data from the 2019 Estonian Candidate Study, this paper explores the relationship between how candidates campaign and their electoral performance. It finds greater use of both offline and online campaign tools to contribute to higher vote shares as candidates win more traditional and i-votes. These positive effects are similar in size, in terms of candidates’ overall electoral performance as well as their ability to attract different types of votes. The results show not only that individual-level campaigns continue to matter, but that online campaigns have become as important as offline campaigns for candidates, and voters’ political activity often transcends the medium through which they receive political communication.     

The Impact of the European Union on Coalition Formation in a Minority System: The Case of Denmark

Does European Union membership influence coalition patterns in national parliaments? For governments in the Scandinavian countries – with their relatively high share of minority governments requiring external parliamentary support to form parliamentary majorities – the question of ‘coalition management’ is highly relevant. This article provides an empirical test of three central arguments in the Europeanisation literature on the impact of EU membership on national parliaments when political parties pass legislation in the Danish Folketing. The effect of EU content in a law on coalition patterns is compared across policy areas and four electoral periods from 1998 to 2011 encompassing 2,894 laws. The data provide support for the argument that the loss of national agenda‐setting over the legislative process has an impact on coalition patterns in the Danish parliament. It is shown that the coalition patterns on Europeanised legislation are both broader and more stable compared to national, non‐EU‐related legislation. The focus on Europeanisation of legislative coalitions goes beyond previous analysis with an institutional focus, and demonstrates an example of how the EU systematically has an effect on legislative coalition formation in a national parliamentary system.     

De facto Veto? The Parliamentary Liberal Democrats

The parliamentary party of the Liberal Democrats is a symbol of the third party's growth in recent years. As a result of successful election targeting and an improvement in electoral reach, the party has seen its number of MPs at Westminster more than triple since 1992. It has been claimed that the increase in size of the parliamentary party has been accompanied by an increase in its power, so that the parliamentarians now have a de facto power of veto over policy despite the official policy-making structures as laid out in the Liberal Democrat constitution. This article investigates the make-up of the parliamentary Liberal Democrats and their contemporary influence over policy formation, and the parliamentary party's relationship with the conference and the party leader—and especially the events leading to the change of Liberal Democrat leader in 2006—to establish the veracity of this claim.     

Party survival in parliament: Explaining party durability in lower-house parliaments

Approximately 70 per cent of the parties emerging in the post-Second World War era failed to keep their seats in parliament. Party survival is an important issue, especially in parliamentary democracies, where parties are the means through which voters’ preferences are linked to government policy outputs. Using an event history modeling framework, and data from 37 democracies, covering 830 parties, this article analyses two questions regarding party durability. First, when do parties fail? Second, which parties survive longer? The article shows that most parties fail at the beginning of their lifespan, and disappear before the end of their fourth term in parliament. Moreover, it is found that moderate policy position, distinct ideology and participation in governing coalitions increase the duration of party survival, even when controlling for party size. This article contributes to the extensive literature about the electoral benefits of ideological moderation and distinct policy positions by showing the long-term benefits of these factors. Moreover, the long-term benefit of party participation in government in terms of survival overcomes the short-term cost of ruling.     

The Institutional Power of Western European Parliaments: A Multidimensional Analysis

Parliaments are more than legislative bodies. However, we lack an adequate understanding of the theoretical relationship between different facets of parliamentary activity or ‘parliamentary functions’. Relying on the principal–agent framework, this article argues theoretically that parliamentary power is a multidimensional concept comprising three distinct mechanisms to ensure policy outputs in line with the collective preferences of parliaments: direct influence on policymaking, the ex ante selection of external officeholders, and the ex post control of the cabinet. These mechanisms mirror the classic legislative, electoral, and control functions of parliaments. Empirically, the paper uses factor analysis of newly developed indicators for electoral powers and established measures of legislative and control resources to show that the institutional powers of 15 Western European parliaments comprise four distinct dimensions. These dimensions match the three theoretically derived mechanisms with committee power as an additional factor. Locating the 15 parliaments in this multidimensional space of parliamentary powers demonstrates that classifications based solely on lawmaking lead to biased assessments of parliamentary strength and weakness. Instead, the paper provides a more nuanced picture of the ways in which Western European parliaments can influence policymaking under the conditions of delegation.     

MPs’ principals and the substantive representation of disadvantaged immigrant groups

This article provides an alternative understanding of the substantive representation of immigrant-origin citizens compared to previous work in the ‘politics of presence’ tradition. Rather than assuming that the representational activities of members of parliaments (MPs) are underpinned by intrinsic motivations, it highlights extrinsic motives. Drawing on principal–agent theory, the article conceptualises MPs as delegates who are to act on behalf of their main principals, constituents and party bodies. This approach permits the rigorous analysis of the impact of electoral rules, candidate selection methods and legislative organisation on substantive representation. Based on an analysis of more than 20,000 written parliamentary questions tabled in the 17th German Bundestag (2009–2013), empirical findings suggest that electoral rules do not influence the relationship between MPs and their principals in relation to the substantive representation of disadvantaged immigrant groups; however, results indicate that candidate selection methods as well as powerful parliamentary party group leaderships do.     

Democracy and Education Spending in Africa

While it is widely believed that electoral competition influences public spending decisions, there has been relatively little effort to examine how recent democratization in the developing world has resulted in changes in basic service provision. There have been even fewer attempts to investigate whether democracy matters for public spending in the poorest developing countries, where "weak institutions" may mean that the formal adoption of electoral competition has little effect on policy. In this article I confront these questions directly, asking whether the shift to multiparty competition in African countries has resulted in increased spending on primary education. I develop an argument, illustrated with a game-theoretic model, which suggests that the need to obtain an electoral majority may have prompted African governments to spend more on education and to prioritize primary schools over universities within the education budget. I test three propositions from the model using panel data on electoral competition and education spending in African countries. I find clear evidence that democratically elected African governments have spent more on primary education, while spending on universities appears unaffected by democratization .