Democracy Under Stress
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Democracy, defi ned as liberal pluralism, is under stress worldwide. Pluralistic democratic institutions: a free press, civil society and the rule Petra Guasti and Zdenka Mansfeldová (eds.) of law all seem to be under attack. Democracies are being hollowed out from within while preserving the fundamental facade of elections. e strength of this book is in providing a range of perspectives on the study of democracy under stress. e authors, renown scholars of Democracy Under Stress democratic theory and democracy in the Central and Eastern Europe, highlight the potential of diff erent approaches – from comparative Changing Perspectives on Democracy, meta-assessment using indices and survey data, to case studies focused Governance and Their Measurement on understanding context and causal processes – for a better grasp of the loci of the stress. Democracy Under Stress Democracy Together, we off er the reader the opportunity to assess diff erent con- ceptual frameworks and approaches, to refl ect on their strengths and weaknesses, to advance the study of democracy in the future. is vol- ume is also an invitation for scholars to redirect their attention to the Central and Eastern Europe, which off ers an opportunity to deepen our understanding of democracy. We see the democracy in Central and Eastern Europe under stress but avoid general labels such as the crisis of democracy and deconsolida- tion. Instead, we argue that to understand the contemporary situation in the CEE region, we need to move beyond the assessment of insti- tutional frameworks and to include citizens in our understanding and measurement of democracy. Petra Guasti and Zdenka Mansfeldová (eds.) Petra ISBN 978-80-7330-307-5 90000 > ISBN 978-80-7330-307-5 90000 > 7880739 303075 7880739 303075 logo Strategie_V1.indd 2 16.12.2015 9:30:43 DEMOCRACY UNDER STRESS Petra Guasti and Zdenka Mansfeldová (eds.) Petra Guasti and Zdenka Mansfeldová (eds.) Democracy Under Stress Changing Perspectives on Democracy, Governance and Their Measurement Prague 2018 Institute of Sociology of the Czech Academy of Sciences The monograph has been completed with funding from the Strategy AV21 of the Czech Academy of Sciences, research programme No. 15 – Global Conflicts and Local Interactions: Cultural and Social Challenges. © Institute of Sociology of the Czech Academy of Sciences, Prague 2018 ISBN 978-80-7330-307-5 Contents 1. Democracy under Stress: Changing Perspectives on Democracy, Governance and Their Measurement (Petra Guasti) 9 PART I. – Contemporary Central and Eastern Europe: Liberal Democracy and its Enemies 29 2. The Quality of Democracy in Central and Eastern Europe 31 (Martin Brusis) 3. Globalization versus Liberal Democracy? Distorting Effects in Central Europe (Pavol Baboš) 54 4. Democracy in Crisis? The Czech Republic in Post-Accession and Economic Turmoil (Petra Guasti and Zdenka Mansfeldová) 71 5. Backsliding into Authoritarian Clientelism: The Case of Poland (Radoslaw Markowski) 95 PART II. – Revisiting Measures of Democratic Quality 119 6. Missing Ingredients in the Study of CEE Democracies (Branislav Dolný and Darina Malová) 121 7. Good Democracies Need “Good” Citizens: Citizen Dispositions and the Study of Democratic Quality (Quinton Mayne and Brigitte Geissel) 141 PART III. – In Place of Conslusions: So What’s Next? 161 8. Do Elections Guarantee Democratic Legitimacy? (Sascha Kneip and Wolfgang Merkel) 163 List of abbreviations 177 About the authors 178 Index 181 1. Democracy under Stress: Changing Perspectives on Democracy, Governance and Their Measurement Petra Guasti 1 Democracy, defined as liberal pluralism, resting on both democratic institu- tions and citizens sharing democratic values, is under stress worldwide2. Plu- ralistic democratic institutions: a free press, civil society and the rule of law all seem to be under attack. The culprits, however, are not antidemocratic forces seeking regime change employing coups and electoral fraud. Instead, as Bermeo highlights (2016), the changes are incremental – elected leaders seeking to aggrandize executive powers undercut democratic institutions (judicial autonomy, media freedom, elections). Therefore, democracies are not endangered by reversals, but by hollowing out – erosion and decay – while preserving the fundamental facade of electoral democracies. The case of Central and Eastern Europe exemplifies this trend. Over the last two years, democracy deteriorated in 11 of the 17 countries (BTI 2018, Freedom House 2017). The democratic decline is marked by a steep decline in the stability of democratic institutions (politicization), as well as in polit- ical participation and the rule of law (BTI 2018). Political leaders like Viktor Orbán in Hungary and Jaroslaw Kaczynski in Poland attack the defenders of the liberal order (opposition, media, civil society organisations) as traitors and enemies of the nation and celebrate the success of ‘illiberal democracy” as the return of the power to the people (Bustikova and Guasti 2017). The CEE democracies are not undergoing a regime change, but the qual- ity of their democracy is deteriorating. However, the existing diagnoses of the intra-regime change are ambiguous. For some, liberal democracy became the victim of its success (Luce 2017), was killed when gatekeepers 1 The author would like to thank Prof. Dr. Lenka Bustikova, Prof. Dr. Darina Malová and Dr. Zdenka Mansfeldová for very helpful comments on an earlier version of this chapter, and Simona Patkova for excellent assistance. 2 The majority of authors in this volume work explicitly or implicitly within the model of repre- sentative democracy. However, as the contribution by Pavol Baboš in this volume, and growing body of contemporary literature (cf. Gagnon 2018, Geissel and Michels 2018, Mayne and Geis- sel 2018) show, an additional issue for contemporary democracy is the mismatch between the existent model of liberal representative democracy and citizens perceptions, norms and values. 9 fell asleep behind the wheel (Levitsky and Ziblatt 2018) or became inert – forgot how to adapt (Runciman 2018). A growing body of literature focuses on the decline in the quality of democracy under the titles of backsliding (Bermeo 2016), illiberal drift (Rupnik 2016, Csillag and Szelényi 2015, Bru- sis 2016), deconsolidation (Foa and Mounk 2016) and swerving (Bustikova and Guasti 2017, Guasti 2018). The explanation of the causes of the deterioration of democratic quality requires clarification of the following three elements. First, the concept/ model of democracy that is under stress (representative, participative, deliberative, liberal); second, the measurement of quality of democracy (democratic indices, attitudinal surveys); and third, the identification of (potential) causes (internal political struggle, top-down strategic manipu- lation of the public by elites to advance in political competition, economic crises or external shocks). Conceptual clarification is the key to determine whether democracy is in crisis. As Ercan and Gagnon (2014) underscore, democracy is a contest- ed concept (cf. Gallie 1955, Gagnon 2014, 2018, Collier and Levitsky 1997), and what is a crisis for some (scholars of liberal and representative democ- racy), can be an opportunity for democratization for others (scholars of radical and deliberative democracy). Most of the contemporary crisis lit- erature operates with the traditional notion of liberal (representative) de- mocracy (Luce 2017, Levitsky and Ziblatt 2018, Runciman 2018). Authors within other traditions see contemporary developments as a profound change and a shift to alternative sites, actors, and mechanisms of demo- cratic rule (Saward 2010, Dryzek 2009, Della Porta 2013). The question re- mains, whether it is possible to democratize democracy (by strengthening/ introducing participative and deliberative institutions) while democracy is under stress and democratic institutions are under attack by illiberal forces. Measurement of democratic quality depends on conceptualization, which in turn determines operationalization, measurement, and analysis. This can range from various democratic indices (Freedom House, Polity, Bertelsmann Transformation Index, Sustainable Governance Indicators, for more detail, see Dolný and Malová in this volume), advanced measures (Va- rieties of Democracy) to domestic and international surveys (World Value Survey, European Value Survey, International Social Survey program, for more detail, see Mayne and Geissel in this volume), to single case studies. Regardless of the concept of democracy, what studies on democratic decline assess is the decline of democratic quality over time (Diamond and Morli- no 2005, Ringen 2009, Roberts 2009). Bermeo identifies six causes of democratic backsliding, which can be roughly subsumed under the category of internal political struggle: coup 10 d’état, executive coup, election fraud, promissory coups, electoral manip- ulation, executive aggrandizement (2016). An alternative internal cause of democratic decline is an economic crisis (Habermas 1973, Merkel 2014). The literature on economic crisis as the cause of the decline in the quality of democracy sees an economic crisis as triggering a governance crisis (the inability of governments to cope with the crisis) leading to a crisis of democracy (loss of trust and support by citizens). External shocks might include globalization (in its current neoliberal capitalist form), deepen- ing regional integration and immigration – constituting a threat to (the notion) of national sovereignty