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Parliaments and Legislatures Series Samuel C. Patterson PARLIAMENTS AND LEGISLATURES SERIES SAMUEL C. PATTERSON GENERAL ADVISORY EDITOR Party Discipline and Parliamentary Government EDITED BY SHAUN BOWLER, DAVID M. FARRELL, AND RICHARD S. KATZ OHI O STATE UNIVERSITY PRESS COLUMBUS Copyright © 1999 by The Ohio State University. All rights reserved. Library of Congress Cataloging-in-Publication Data Party discipline and parliamentary government / edited by Shaun Bowler, David M. Farrell, and Richard S. Katz. p. cm. — (Parliaments and legislatures series) Based on papers presented at a workshop which was part of the European Consortium for Political Research's joint sessions in France in 1995. Includes bibliographical references and index. ISBN 0-8142-0796-0 (cl: alk. paper). — ISBN 0-8142-5000-9 (pa : alk. paper) 1. Party discipline—Europe, Western. 2. Political parties—Europe, Western. 3. Legislative bodies—Europe, Western. I. Bowler, Shaun, 1958- . II. Farrell, David M., 1960- . III. Katz, Richard S. IV. European Consortium for Political Research. V. Series. JN94.A979P376 1998 328.3/75/ 094—dc21 98-11722 CIP Text design by Nighthawk Design. Type set in Times New Roman by Graphic Composition, Inc. Printed by Bookcrafters, Inc.. The paper used in this publication meets the minimum requirements of the American National Standard for Information Sciences—Permanence of Paper for Printed Library Materials. ANSI Z39.48-1992. 98765432 1 Contents Foreword vii Preface ix Part I: Theories and Definitions 1 Party Cohesion, Party Discipline, and Parliaments 3 Shaun Bowler, David M. Farrell, and Richard S. Katz 2 How Political Parties Emerged from the Primeval Slime: Party Cohesion, Party Discipline, and the Formation of Governments 23 Michael Laver and Kenneth A. Shepsle Part II: The "Westminster Model" 3 Discipline in the British Conservative Party: The Attitudes of Party Activists toward the Role of Their Members of Parliament 53 Paul F. Whiteley and Patrick Seyd 4 Backbenchers with Attitude: A Seismic Study of the Conservative Party and Dissent on Europe 72 David Baker, Andrew Gamble, Steve Ludlam, and David Seawright Part III: Established Continental European Systems 5 Cohesion of Party Groups and Interparty Conflict in the Swiss Parliament: Roll Call Voting in the National Council 99 Prisca Lanfranchi and Ruth Liithi vi • Contents 6 Electoral Systems, Parliamentary Committees, and Party Discipline: The Norwegian Storting in a Comparative Perspective 121 Bj0rn Erik Rasch 7 Parliamentary Party Discipline in Spain 141 Manuel Sanchez de Dios Part IV: Newly Emerging Systems 8 The Parliamentarization of the East Central European Parties: Party Discipline in the Hungarian Parliament, 1990-1996 167 Attila Agh 9 The Challenge of Diversity: Party Cohesion in the European Parliament 189 Tapio Raunio 10 Parties and Party Discipline within the European Parliament: A Norms-Based Approach 208 Shaun Bowler and David M. Farrell Part V: Parliamentary Discipline and Coalition Governments 11 The Costs of Coalition: A Five-Nation Comparison 227 Carol Mershon 12 Coalition Discipline, Enforcement Mechanisms, and Intraparty Politics 269 Paul Mitchell Contributors 289 Index 291 Foreword Party Discipline and Parliamentary Government brings together empiri­ cal studies of the internal cohesiveness of political party groups in Euro­ pean parliaments, along with the leadership behavior that conduces to disciplined parties in parliament. The purview of these studies includes parliamentary party behavior in Great Britain, Ireland, Switzerland, Norway, Spain, Hungary, and the European Parliament, with less exten­ sive inclusion of parliamentary behavior in a number of other countries. The original papers upon which these chapters are based were first ex­ posed to the public view in a workshop, "Party Discipline and the Or­ ganization of Parliaments," that Shaun Bowler and David Farrell organized for the European Consortium for Political Research meetings in Bordeaux, France, in 1995. Students of American legislative politics are highly sensitive to the fact that the U.S. Congress and the state legislatures often do not exhibit party discipline in their voting behavior: members of the legislative party do not vote against members of the other party a very high pro­ portion of the time. Party government is not a preponderant feature of American legislative decision making. Although party voting is by no means insignificant or trivial in American legislatures, it plays a far more important role in the parliamentary parties in European assemblies. Central as party discipline and cohesion are to the performance of many European parliaments, the phenomena have not been investigated extensively. The studies in this anthology take a very large leap forward in knowledge about parliamentary party discipline. Because the parlia­ mentary cohesiveness of the governing majority may be a coalition of several party groups, the joint problems of cohesiveness and discipline in multiparty parliaments are intriguing and fertile. More broadly, these careful and cogent studies contribute to better understanding of the na­ ture of legislature or parliamentary politics altogether. In the American context, legislative parties may contribute primarily by addressing the policy or status preferences of their members, by sup­ vn viii - Foreword porting a legislative program either on ideological grounds or for the purpose of facilitating reelection of their members and leaders, or both. In European parliamentary systems, the legislative assembly has as its preeminent function the formation of a majority coalition—composed of one large party or several smaller ones—sufficient to establish and support a government. Accordingly, party discipline plays a signifi­ cantly different role in the parliamentary systems than in separated sys­ tems such as that of the United States, where the executive is chosen quite independently of the legislature. The studies in this book are illuminating. These authors move away from a crude consideration of parliamentary parties as unitary actors to investigate what goes on inside them in terms of the formation of intraparty consensus and leadership support. The true policy prefer­ ences and attitudes of the MPs may, for instance, be belied by an analy­ sis operating only at the party level, as illustrated by the views of the British MPs toward the Maastricht Treaty. Even the less well-under- stood continental European parliaments exhibit very high, although varying, levels of parliamentary party cohesiveness. Indeed, some par­ liamentary parties harbor more loyal, better disciplined members than others. Moreover, national parliamentary parties are, in turn, nested in a transnational assembly, the European Parliament. These fascinating variations are investigated in innovative ways in the following chapters. Samuel C. Patterson Preface This book emerged from a series of papers presented at a workshop, "Party Discipline and the Organization of Parliaments " held during the Joint Sessions of the European Consortium for Political Research, at the Institut d'Etudes Politiques de Bordeaux, France, April 27-May 2, 1995. During the course offive days of stimulating discussion, it became clear to all of us around the table that there was a crying need for a comparative study on this important subject. It was agreed that the workshop organizers (Bowler and Farrell), together with the most force­ ful of the participants (Katz), should try to pull a selection of the papers together as an edited volume. As always happens with such exercises, we could not include all of the papers presented in the workshop, either because they were already committed elsewhere or because their subject matter did not quite fit the overriding theme of the book. But this does not take from the fact that each of these colleagues played a vital role in seeing this project come to fruition and we want to record a special thanks to them: Herbert Doring, John Huber, Stephen Ingle, Robin Ko­ lodny, Petr Kopecky, Lia Nijzink, Kaare Stem, Marc van den Muy­ zenberg, Ania van der Meer-Krok-Paszkowska, and Matti Wiberg. Given the transatlantic dispersion of the authors and editors, the relative speedy completion of this volume is testimony to the wonders of e-mail, but more especially to the conscientiousness of our authors. Final completion was facilitated by David Farrell's stay at Harvard, in the first part of 1997, as a fellow at the Shorenstein Center on the Press, Politics, and Public Policy, Kennedy School of Government. We are grateful to Samuel Patterson for his advice and support throughout, to our reader for very helpful feedback and advice that helped to improve the manuscripts, and most especially to Charlotte Dihoff, Beth Ina, and the rest of the staff at Ohio State University Press. IX PART I Theories and Definitions Party Cohesion, Party Discipline, and Parliaments SHAU N BOWLER, DAVI D M. FARRELL, AND RICHAR D S. KATZ 1993, British Prime Minister John Major had to threaten I.erran; t Conservative backbenchers with a suicidal snap elec­ tion to ensure their support in passing a parliamentary bill ratifying Britain's signature of the 1992 Treaty on European Union (the Maas­ tricht Treaty). On a regular basis in postwar, prereform Italy, prime min­ isters fell at the hand of factions within their own party, which meant that the average life span of Italian governments could be measured in months rather than years (see chap. 11 of this volume). These are just two examples of a problem that all party leaders share: party discipline in parliament.
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