The purpose of intergovernmental councils: A framework for analysis and comparison

ABSTRACT

Intergovernmental councils (IGCs) are specific, institutionalized forums of intergovernmental relations. They provide essential horizontal and/or vertical executive channels for preparing, deciding, and implementing multilevel policies. We assume there to be variation, both across federal systems and policy domains, in the purpose they serve – from mutual influence and protection of autonomy through joint decision-making to mere exchange of information – the use that central or sub-state actors make of IGCs, as well as their effectivity. In order to map and explain such variation, this introductory article provides a framework for analysis that includes both conceptual building blocks and conjectural relationships, laying the comparative groundwork for the case studies included in this Special Issue. Findings from the case studies indicate that it is primarily the institutional architecture, but also the structure of the multilevel party system, that account for variation in the purpose and effectiveness of IGCs.     

Decentralized Governance under Centralized Party Rule in Ethiopia: The Tigray Experience

Abstract

In the mid-1990s Ethiopia adopted a federal constitution promising regional autonomy and the creation and strengthening of local government units below the regional level. Some observers attribute the various shortcomings of Ethiopian federalism that have emerged since then to the original institutional/constitutional design. This paper, however, argues that what is not in the constitution has come to influence the workings of decentralization more than what is codified in it. The dominant national party in power, the Ethiopian People's Revolutionary Democratic Front (EPRDF), either directly or through affiliates, controls political office at all levels of government, thereby limiting the room for local initiative and autonomy. The presence of a national dominant party limits the responsiveness and downward accountability of Wereda (district) authorities; it also undermines political competition, and by extension, good governance at the grassroots level. The paper is based on field research carried out in the Tigray regional state of Ethiopia. The conclusion is that when one party dominates the politics of the region and its institutions, extra-constitutional intra-party politics determine how things work, thereby subjugating localities’ autonomy and impeding their ability to deliver on promises of decentralization.     

Still better together? Purpose and power in intergovernmental councils in the UK

ABSTRACT

Intergovernmental relations in the United Kingdom were intended to be predominantly informal, but a machinery of intergovernmental councils (IGCs) developed alongside informal relations. This article examines the development, purpose and dynamics of the UK’s IGCs, with a particular focus on the multilateral Joint Ministerial Committee and the bilateral Joint Exchequer Committees. These IGCs remain weakly institutionalized and multilateral forums, in particular, are regarded by the devolved governments as providing limited opportunities for exercising influence. By contrast, bilateral IGCs have enabled devolved governments to utilize a range of non-constitutional resources to exert influence, irrespective of their relative constitutional weakness. The Brexit referendum generated an intensification of multilateral IGCs while exposing their weaknesses as forums for the exercise of shared rule. The purpose and dynamics within IGCs are shaped by the asymmetrical distribution of power, continued constitutional hierarchy, party competition and competing nationalist projects.     

Exploring citizenship spheres of inclusion/exclusion: rights as ‘potential for power’

ABSTRACT

Ariely examines the logic of inclusion/exclusion involved in the allocation of social, political and cultural rights to minorities. He argues that the unequal allocation of rights is determined by the degree of potential power inherent in the various types of rights, and that rights with more potential power, such as political and cultural representation rights, challenge the dominant group's position more strongly than rights to social welfare and cultural autonomy. Minorities are included at a higher level in spheres of rights with low potential power, and at a lower level in spheres of rights with higher potential power. He uses the case of the Arab citizens of Israel to illustrate the thesis, reviewing institutional practices of inclusion/exclusion as well as the attitudes of Israeli Jews towards the allocation of different rights as reflected in three attitudinal surveys.     

Spinning on the Conference Circuit

ABSTRACT

Making sure political parties receive comprehensive and favourable media coverage is a full-time activity that extends beyond the period of election campaigns. In the era of the permanent campaign the annual autumn conferences of the main British political parties represent a publicity opportunity. The undivided media coverage of these events provides a platform for the political parties to sell themselves and their policies to a national audience beyond the conference venue, but also presents considerable risks. To ensure that they successfully exploit this publicity opportunity the party managers, with the aid of communication experts, both control the conferences and implement media management strategies. This article examines how the parties have adapted their conferences to sell themselves and their policies. It highlights the public relations techniques that are employed to ensure that party policy gains the desired positive news coverage and that the coverage of potentially damaging events is minimized. It concludes by considering the impact this marketing driven logic has on the party conferences and their media coverage.     

Fairness and qualitative portfolio allocation in multiparty governments

How do political parties divide coalition payoffs in multiparty governments? Perhaps the most striking answer to this question is Gamson’s Law, which suggests a strong fairness norm in the allocation of office payoffs among coalition partners. Building upon recent advancements in portfolio allocation research, we extend this approach in three important ways. First, we study fairness with regard to the allocation of policy (rather than office) payoffs. Second, we introduce measures to assess the fairness of the division of policy payoffs following two norms: envy-freeness and equitability. Third, we explore why some allocations of ministerial portfolios deviate from fairness norms. Based on an original data set of party preferences for individual portfolios in Western and Central Eastern Europe, we find substantial variation in the fairness of policy payoffs across cabinets. Moreover, coalitions are more likely to arrive at envy-free and equitable bargaining outcomes if (1) these fair allocations are based on an allocation of cabinet positions that is proportional to party size and if (2) the bargaining power is distributed evenly among government parties. The results suggest that fairness is not a universal norm for portfolio allocation in multiparty governments, but in fact depends on the cabinet parties’ bargaining positions.

     

Vertical influence or horizontal coordination? The purpose of intergovernmental councils in Switzerland

ABSTRACT

In 1993, the Swiss cantons established the conference of cantonal governments (KdK). While the literature on Swiss federalism generally acknowledges the important role of the KdK, little is known about its specific purpose, in particular compared to other, older intergovernmental councils operating in Switzerland. We therefore investigate the purpose of the KdK and contrast it with two other intercantonal conferences with nationwide scope, namely those on education and finance. To do so, we trace two of the most important federal reform processes of the last decade: the latest renewal of fiscal equalization and educational harmonization. We find a division of labour between the KdK and policy-specific councils. While the former aims at vertical political influence, the latter primarily engage in genuine horizontal policy coordination. This flexible and smooth interplay of the two types of councils has contributed to further strengthening the political role of the cantons in the Swiss federation.     

The Political Economy of Public Reform Adoption: Patterns in Twenty Indonesian Districts

ABSTRACT

New Public Management (NPM) reforms are often perceived as technical, with little attention to political and institutional factors. Comparing choices in 20 Indonesian districts, we explore which of four political economic factors influence uptake of NPM-based service delivery reforms. We find that democratic political competition laid the groundwork for political alliances, patterns of patronage, and party provision of benefits that condition reform choices. State-led policy entrepreneurship was evident from education agency technocrats. Public sector modernization may have increased orientation towards performance, with education reforms adopted by districts already achieving relatively good sectoral results. Health reforms were more common in districts providing greater opportunities for citizen participation. The complex interactions among the factors argue for working within these realities, rather than seeing them as impediments to be avoided in a drive for reforms. Education technocrats’ dominance, bolstered by central policy priorities, argues for more nuanced mechanisms for meeting national goals to avoid crowding out responsiveness to local citizens.     

Long-Term Performance of Political Parties

Abstract

Whilst politicians can “buy” votes in the short-term, most political parties are more interested in maintaining power over a period of years in order to implement their policies. This paper explores whether political parties can be considered to possess long-term competitive resources that sustain their competitive advantages. It employs the well-established strategic management concept of the Resource-Based View of strategy development for this purpose. Because such a concept has not previously been applied to political parties, the paper begins by considering the nature of the competition that exists between political parties and the role of resources in developing superior political performance. A series of theoretical propositions about why some parties maintain political power and influence for lengthy periods is then developed. We argue that the competitive resources of a political party such as its policies, leadership, organisational and communications skills require long-term investment and development, rejecting the notion that long-term electoral success is based primarily on the promises and resources deployed in the final election campaign.     

An Empirical Analysis on the Determinants of the Length of Ministerial Tenure in Korea, 1980–2008

ABSTRACT

The study of the length of ministerial tenure has received some attention by scholars of public management in Western countries. Responding to the lack of empirical research on ministerial duration in non-Western countries, this article empirically examines the determinants of ministerial duration based on the Korean Ministerial Database from 1980 to 2008. The empirical findings are as follows. First, being a female minister decreases the probability of stepping down by 1.78 times compared to a male minister. Second, political democratization after 1987 drastically increases the probability of ministerial stepping down by 3.46 times. Third, confirmation hearings after 2005 decrease the probability of ministerial stepping down by 0.53 times. Based on these empirical findings of the analysis, we can identify distinctive characteristics of ministerial duration in Korea. We argue that as the Korean political system shifts from military or authoritarian rule to democratic rule after 1987, a single five-year presidential term may set a political environment for frequent changes of ministers to allocate political spoils.     

The U.S. Advisory Commission on Intergovernmental Relations: Unique Artifact of a Bygone Era

The U.S. Advisory Commission on Intergovernmental Relations (ACIR) befitted an era marked by low party polarization, bipartisanship, and cooperative federalism. Although the ACIR’s work was valuable, the growth of federal power, rise of party polarization, and the decline of bipartisanship, along with many other political, governmental, and social changes during its 37‐year life (1959–96), marginalized the ACIR to the point of political vulnerability. These historic changes make it unlikely that the ACIR will be resurrected in a comparable or partial form.     

Politically Significant Events and Their Effect on the Image of Political Parties

Abstract

This article begins by arguing that the image of a political party is of strategic importance in its pursuit of electoral success. More specifically, it is argued that important influences on party image are ‘politically relevant’ events. The paper then develops a conceptual model of how the images of political parties are influenced by such events. It considers internal and external factors that influence the power of a given event to affect party image. Next, the process of image transfer itself is discussed along with the factors that influence the way credit/ blame is apportioned from an event. Then, ways of dealing with ‘negative’ events are considered. The overall model is used to analyse a specific political event (the Iraq war) and assess its likely impact on party image. The article concludes by assessing the model's efficacy and limitations in analysing the case used and with events per se. Finally, future research ideas prompted by the paper are discussed.     

Ministerial Leadership and Endorsement of Bureaucrats: Experimental Evidence from Presidential Governments

Scholars have debated what constitutes effective ministerial leadership with respect to administrative competence versus political influence. The authors contribute experimental evidence to this debate through a unique survey design of endorsement experiments. Using original data from 949 national civil servants in South Korea, this article examines civil servants’ assessments of ministerial leadership in three central dimensions of public management: internal management, interbranch coordination, and policy formulation/implementation. Further, existing variation in the characteristics of agencies is used to test whether such variation induces systematic differences in civil servants’ responses. Findings show that that civil servants’ attitudes toward ministerial leadership are asymmetric in nature. Ministers with civil service backgrounds are endorsed in all three dimensions, whereas ministers with legislative backgrounds receive increased support only for interbranch coordination skills. The levels of support for ministers with different backgrounds also vary across agency types. This analysis has implications for public management practice and agency control in presidential governments.     

MINISTERIAL STAFF UNDER HAWKE

Abstract: The establishment by the present Labor government of an advisory panel on ministerial staff appointments is discussed. It is suggested that this procedure had political benefits, but did not significantly influence the composition of the ministerial staff group. The ministerial staff of the ALP government are described and compared with those of the previous ALP government 1972-75, and of the Liberal-National Party coalition government 1975-83. It is found that there has been a weakening of the bureaucratic element in this government's private offices compared with both the coalition government and the previous Labor government. The ascendance of "political types" is matched by a commitment to the party program and a high estimate among staffers of their contribution to the policy-making process. In other respects this group shares with its predecessors the characteristics of being mostly male, relatively young, highly educated and disproportionately from non-government schools. About half are from inside and half from outside the public service.     

Ideological proximity and voter turnout in multi-level systems: evidence from Spain

ABSTRACT

Does ideological proximity between the individual and political parties determine electoral participation in regional elections, as much as in national elections? Does the degree of self-rule of a region affect the interplay between ideological distance and turnout? This article addresses these questions and provides empirical evidence drawing upon individual-level and regional-level data from 53 regional elections and 4 national elections in Spain. Results indicate that citizens are more likely to vote when they perceive there is at least one congruent policy option among the party supply, and this happens at both regional and national levels. However, whether the closest party is in national government or whether it is a regionalist organization has a dissimilar impact on turnout in different tiers. This relationship between the type of party which is most ideologically proximate and electoral participation is partially affected by the degree of regional autonomy of the territory.     

New Labour

Abstract

This paper examines the use made by political parties of branding, as a means of establishing party values and winning political support. It looks in particular at the way in which political parties use communication to create, build and maintain political brands.

The paper involves an examination of the recent history of the British Labour Party. After a long period in the political wilderness, the party re-branded itself as “New Labour” in the mid-1990s, and-as New Labour-swept to power in a landslide election victory in 1997, under their new leader, Tony Blair.

Using media coverage and material written by some of the architects of New Labour, the paper will describe the creation of the “New Labour” brand, and look at how it was developed and used to generate political support. The paper will also consider the evolution and development of the brand, as the substance underlying the stated brand values has come to be questioned, not least by so-called “Old Labour” supporters of the party.

The paper will draw conclusions regarding the successful management of a political brand, pointing in particular at the need to ensure that the performance of a party espousing a particular brand supports and reinforces communicated brand values and the brand itself.     

Gamson rule not for all: Patterns of portfolio allocation among Italian party factions

This article investigates the dynamics of portfolio allocation within political parties to shed light on the patterns of conflict and cooperation between rival party factions. It provides a game‐theoretic model that helps in explaining differences in portfolio allocation due to alternative modes of party organisation or party system competitiveness. Focusing on party congresses to estimate the number, strength and policy positions of party factions, the Italian case is analysed by testing some hypotheses generated by the theoretical model. The results shown that, overall, spoils are shared in proportion to the strength of each faction, in line with the prediction of Gamson's Law. However, there are also some important deviations from this path. Rules that foster party leaders' autonomy in fact provide them with a higher degree of discretion that will be used to reward their followers and to ward off any credible and harmful threat to party unity. Indeed, strategic portfolio allocation might balance out a lower amount of policy payoffs and becomes a strategy to restrain minorities from breaking away, thus contributing to the preservation of party unity in highly competitive political systems.     

Better the Devil: A Response to Gus O'Donnell's ‘Better Government’

Gus O'Donnell's vision of ‘better government’ is presented as a critique of party politics, most specifically the short‐termism, selfishness and incompetence of elected politicians. There are few people better placed than O'Donnell to form such judgements. However, O'Donnell goes much further, by calling into question the legitimacy of the democratic system which gives rise to party politics. His article outlines several mechanisms by which the exercise of power by elected ministers could be constrained by a managerialist accountability framework, without addressing the question of who determines the appropriate framework for ministerial performance. The House of Commons is condemned as ‘too politicised’. O'Donnell also offers substantial praise for apparently ‘depoliticised’ policy‐making processes, overlooking the inherently political constitution of such processes. In doing so, O'Donnell claims to be challenging party politics on behalf of voters/taxpayers, but instead seeks to dismantle any possibility of the public expressing a collective will via the ballot box that might challenge the immutability of the market economy.     

Partisan Development in Post-Soviet Ukraine

ABSTRACT

The development of mass partisanship and party identification in post-Soviet societies is a controversial subject of scholarly research. One prevalent view argues that post-Soviet citizens are distrustful of parties and that it will take generations for party identification to appear in these societies. Others argue that partisanship is emerging as a result of citizens perceiving meaningful differences between the parties. If party identification is forming, partisanship should be relatively stable across time at the individual level. This study takes a rare look at 1999 panel data from Ukraine to determine the degree of partisan stability. The findings demonstrate that meaningful party identification appears to be emerging for a significant proportion of the population due to political information and this partisanship is influencing election decision making among Ukrainian voters.     

Explaining the impact of new parties in the Western European party systems

ABSTRACT

In recent years, and particularly following the impact of the “great recession”, Western European party systems have undergone profound change. New parties have emerged and been successful, thus radically changing the structure of inter-party competition. So far, research on new parties has been mainly conducted from party-level and election-centred perspectives. Here, instead, we focus on party system innovation (PSInn), meaning the impact of new parties on Western European party systems, and on the factors that explain such impact, by adopting a systemic perspective and taking into account all the arenas where inter-party competition takes place (i.e. elections, parliaments and governments). For this purpose, this article relies on an original dataset on the performances of new parties in terms of votes, seats, and ministerial posts, covering about 350 elections and 670 governments in 20 countries, over the period 1945–2017. The results of the analysis show a notable increase in PSInn over the last decade, in particular with regard to the electoral and parliamentary arenas. Moreover, data show that PSInn in the electoral and the parliamentary arenas is mainly predicted by turnout change, while in the governmental arena is instead driven by the country’s economic performance.