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Deliberative Representation in Parliament 95 Department of Political Science University of Helsinki Helsinki DELIBERATIVE REPRESENTATION IN PARLIAMENT Jenni M. Rinne ACADEMIC DISSERTATION To be presented, with the permission of the Faculty of Social Sciences of the University of Helsinki, for public examination in lecture room 302, Athena building, on 17 January 2020, at 12 noon. Helsinki 2020 Publications of the Faculty of Social Sciences 134 (2020) © Jenni M. Rinne Distribution and sales: Unigrafi, Helsinki http://shop.unigrafia.fi [email protected] ISBN 978-951-51-3424-0 (pbk.) ISBN 978-951-51-3423-3 (PDF) ISNN 2343-273X (pbk.) ISNN 2343-2748 (web) Helsinki University Printing House Helsinki 2020 ABSTRACT This research sets out clarifying theoretically the relations with two democratically relevant concepts: political representation and deliberation. It does so by developing the idea of ‘deliberative representation’ and studying it empirically in a parliamentary context. Recent scholarship of representation, namely the constructivist turn, sees the concept of representation as dynamic and fluid. As such, this paradigm shift looks past the electoral notion that highlights the premise of interests and preferences. Scholarship on deliberation is similarly revising its focus. This research draws especially from the systemic approach to deliberation. It implies that loosening traditional normative criteria will advance the study of deliberation in politically charged settings such as legislatures. Both strands of theories are gradually assuming context and function sensitive perspectives that are merged in my reading of deliberative representation. The under-theorised link between representation and deliberation has resulted in shortage of empirical accounts of where representatives operate in. The research is motivated by a simple question: what do representatives actually do when they represent? Finding answers to this question helps in understanding what drives deliberation in parliaments. The proposed framework of deliberative representation allows a more nuanced outlook on representative activities and practices. Consequently, this refined perspective allows addressing and re-assessing some prevailing assumptions of political science about the strategic and adversarial incentives and orientations of elected representatives. In this research, the dynamics of deliberative representation are studied in and illustrated through a particular legislature, the Parliament of Finland. For this purpose, 60 Finnish Members of Parliament (and 5 parliamentary committee chairs) were interviewed over the period of 2008–2016. The research illustrates that although institutional and procedural settings of legislature incentivise representative practices, thus inducing deliberation in various ways, the contextual and functional interplay argued by deliberative representation adds to the analysis in novel ways. Three dominant contexts of representation are identified: the affirmative, operative and performative context. Each discussed context specifies how the functions of representation are established and carried out. Also, features relating to the deliberative process are explored. Finally, three deliberative modes are detected in the contexts of representation: what I call expressive-deliberative, strategic-deliberative and expressive-partisan deliberative mode. The novelty of this research lies in its aspiration to use the language of political theory more closely in conducting empirical inquiry. While doing that, it has also contributed to the scholarship on representative practices in parliaments. Finally, the research suggests that the contexts of representation are generally recognisable, and therefore they may find applications outside the parliamentary setting. KEYWORDS: representation, deliberative democracy, political theory, legislatures, elected representatives TIIVISTELMÄ Tutkimuksen tarkoituksena on selventää edustuksellisen demokratian kannalta kahden keskeisen käsitteen, polittisen edustamisen ja deliberaation, välistä suhdetta. Tämä tarkastelu tapahtuu kehittelemällä ajatusta ’deliberatiivisesta edustamisesta’ ja tutkimalla sitä empiirisesti parlamentaarisessa kontekstissa. Edustamista käsittelevä viimeaikainen tutkimuskirjallisuus, erityisesti sen konstruktivistinen käänne ymmärtää edustamisen käsitteen dynaamisena ja joustavana. Tutkimusnäkökulman muutos ylittää perinteisen vaalikeskeisen ymmärryksen edustamisesta, joka korostaa intressejä ja preferenssejä ennakko-oletuksina. Samoin myös deliberatiivinen demokratiateoria uudelleenarvioi omia tarkastelunäkökulmiaan. Tässä väitöskirjassa edustamisen ja deliberaation väliin avautuvaa teoreettista aluetta kartoitetaan deliberaation systeemisen teorian insipiroimana. Systeeminen tarkastelunäkökulma mahdollistaa deliberaation normatiivisten kriteereiden liudentumisen, mikä edesauttaa deliberaation tutkimista poliittisesti jännittyneissä asetelmissa kuten parlamenteissa. Väitöskirja nostaa esiin edustamista ja deliberaatiota käsittelevistä teoriakeskusteluista konteksteja ja funktioita korostavia näkökulmia, jotka yhdistetään deliberatiivisen edustamisen luentaan. Johtuen siitä, että edustamisen ja deliberaation välinen suhde on aliteoretisoitu, on myös tästä näkökulmasta tehtyjen, edustajien toiminnalliseen työympäristöön sijoittuvien empiiristen tutkimusten määrä vähäinen. Tutkimus lähtee liikkeelle hyvin yksinkertaisesta ajatuksesta: mitä edustajat oikeastaan tekevät kun he edustavat? Tutkimuksen tavoitteena on myös paremmin ymmärtää, mitkä tekijät motivoivat deliberaatiota parlamenteissa. Tutkimuksessa esitetty deliberatiivisen edustamisen tutkimusasetelma mahdollistaa edustuksellisen toiminnan ja käytäntöjen hienojakoisemman tarkastelun. Samalla voidaan kriittisesti tarkastella edustustoiminnasta tehtyjä olettamuksia siitä, että toimintaa ohjaa pääsääntöisesti strategiset ja kilpailulliset (adversariaaliset) tavoitteet. Tässä tutkimuksessa deliberatiivisen edustamisen dynamiikkoja tutkitaan ja illustroidaan yhden konkreettisen esimerkin eli Suomen eduskunnan kautta. Tutkimusta varten on haastateltu 60 kansanedustajaa (ja viittä valiokuntaneuvosta) aikavälillä 2008– 2016. Väitöstutkimus osoittaa, että edustuslaitoksen institutionaaliset ja proseduraaliset tekijät motivoivat edustustoimintaa ja näin ollen kannustaa deliberaatioon monin tavoin. Deliberatiivisen edustamisen kontekstuaaliset ja funktionaaliset yhteistekijät lisäävät uudella tavalla analyyttistä ymmärrystä edustustoiminnasta. Tutkimus hahmottaa kolme edustamisen pääkontekstia: affirmatiisen, operatiivisen ja performatiivisen kontekstin. Jokainen konteksti selittää, miten edustamisen funktiota eli tarkoitusta tuotetaan ja toteutetaan. Toiseksi, tutkimuksessa kartoitetaan deliberatiivisen prosessin osa-alueita. Kolmanneksi, edustamisen konteksteista johdetaan kolme toiminnallista orientaatiota eli deliberatiivista moodia (deliberative mode), joita kutsun ekpressiivis-deliberatiiviseksi, strategis-deliberatiiviseksi ja ekspressiivis-partisaaniseksi deliberatiiviseksi moodiksi. Lopuksi, väitöstutkimuksen ansioksi voidaan laskea se, että se hyödyntää politiikan teorian tulokulmaa empiirisessä tarkastelussa mutta kontribuoi myös edustamista ja edustustoimintaa käsittelevään kotimaiseen ja kansainväliseen kirjallisuuteen. Tutkimus ehdottaa, että edustamisen kontekstit ovat tunnistettavissa yleisemminkin, jolloin niiden merkitys laajenee myös parlamentaarisen asetelman ulkopuolelle. AVAINSANAT: edustaminen, deliberatiivinen demokratia, politiikan teoria, edustuslaitokset, kansanedustajat Acknowledgements I have so many people to thank. I have been fortunate enough to have surrounded myself with wiser and brighter minds. These people, their advice, critically commentary and shared comradeship have been most valuable in the making of this research. I am indebted to my supervisor Juri Mykkänen who resiliently and patiently guided me through the process. The way Juri’s vision was always clear about the direction this research was going over the years was astounding. I could have not managed without his profound understanding and knowledge of parliamentary practices and MPs. Thank you, Juri. Equally, I want to thank Anne Maria Holli who came along as my second supervisor in the later stages of the process. This was a crucial step since Anne’s involvement pushed more coherence and clearer argumentation to the research. In addition to this indispensable help, she has always been the most supportive and kind on a personal level. Thank you, Anne. I am extremely honoured to have received substantial support and guidance from two important figures who I hold in high regard. Firstly, I want to thank Kyösti Pekonen. His critical insight as well as patient and profound commentary are rooted in years of experience and immense understanding of the field. If one would like to learn how complex theoretical matters are argued in a truly elegant manner, one should turn to the works of Pekonen. This same rare quality is present with Mark Warren. During my research fellowship in 2015 at the University of British Columbia I came to understand the breadth and depth of his scholarship. Now, looking back to my notes from the discussions we had about my research, I continue to be impressed by Mark’s ability to disentangle multiple strands of thought that are swirling in democratic theory and distill the essence from them. I want to thank Mark for always encouraging me to ‘take the bull by its horns’ and remain persistent in writing. I also want here to take the opportunity to extend
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