Territory, Democracy and Justice Regionalism and Federalism in Western Democracies Edited by Scott L. Greer Territory, Democracy and Justice Books by the same author NATIONALISM AND SELF-GOVERNMENT QUESTIONING GEOPOLITICS WITH GEORGI DERLUGUIAN TERRITORIAL POLITICS AND HEALTH POLICY Territory, Democracy and Justice Regionalism and Federalism in Western Democracies Edited by Scott L. Greer Assistant Professor Department of Health Management and Policy University of Michigan Selection and editorial matter © Scott L. Greer 2006 Individual chapters © contributors 2006 All rights reserved. No reproduction, copy or transmission of this publication may be made without written permission. No paragraph of this publication may be reproduced, copied or transmitted save with written permission or in accordance with the provisions of the Copyright, Designs and Patents Act 1988, or under the terms of any licence permitting limited copying issued by the Copyright Licensing Agency, 90 Tottenham Court Road, London W1T 4LP. Any person who does any unauthorized act in relation to this publication may be liable to criminal prosecution and civil claims for damages. The authors have asserted their rights to be identified as the authors of this work in accordance with the Copyright, Designs and Patents Act 1988. First published in 2006 by PALGRAVE MACMILLAN Houndmills, Basingstoke, Hampshire RG21 6XS and 175 Fifth Avenue, New York, N.Y. 10010 Companies and representatives throughout the world. PALGRAVE MACMILLAN is the global academic imprint of the Palgrave Macmillan division of St. Martin’s Press, LLC and of Palgrave Macmillan Ltd. Macmillan® is a registered trademark in the United States, United Kingdom and other countries. Palgrave is a registered trademark in the European Union and other countries. ISBN-13: 978–1–4039–9501–8 hardback ISBN-10: 1–4039–9501–X hardback This book is printed on paper suitable for recycling and made from fully managed and sustained forest sources. A catalogue record for this book is available from the British Library. Library of Congress Cataloging-in-Publication Data Territory, democracy, and justice : regionalism and federalism in western democracies / edited by Scott L. Greer. p. cm. Includes bibliographical references and index. ISBN 1–4039–9501–X (cloth) 1. Federal government – Case studies. 2. Regionalism – Case studies. 3. Decentralization in government – Case studies. 4. Political geography – Case studies. 5. Intergovernmental relations – Case studies. 6. Comparative government. I. Greer, Scott L. JC355.T38 2005 321.02—dc22 2005050929 10987654321 15 14 13 12 11 10 09 08 07 06 Printed and bound in Great Britain by Antony Rowe Ltd, Chippenham and Eastbourne 1403_99501X_02_prevxiv.qxd 15/9/05 3:38 PM Page v Contents List of Tables vii List of Figures ix List of Contributors x Acknowledgments xiii Terminology xiv 1 Introduction 1 Scott L. Greer 2 Federalism and Social Justice: Thinking Through the Tangle 18 Richard Simeon 3 Social Citizenship and Federalism: Is a Federal Welfare State a Contradiction in Terms? 44 Keith G. Banting 4 Devolution and Social Citizenship: Which Society, Whose Citizenship? 67 Charlie Jeffery 5 The Changing Politics of Federalism in the United States 92 Paul E. Peterson 6 The Impact of Regional Governments 116 Claire Dupuy and Patrick Le Galès 7 The Adventure of Divergence: An Inquiry into the Preconditions for Institutional Diversity and Political Innovation after Political Decentralization 139 Roland Sturm 8 The Politics of Divergent Policy 157 Scott L. Greer 9 Multi-level Governance and Multi-level Discontent: The Triumph and Tensions of the Spanish Model 175 Joan Subirats v 1403_99501X_02_prevxiv.qxd 15/9/05 3:38 PM Page vi vi Contents 10 Origins of Cooperative and Competitive Federalism 201 Ronald L. Watts 11 Intergovernmental Relations: In Search of a Theory 224 Alan Trench 12 Conclusion: Territorial Politics Today 257 Scott L. Greer Bibliography 275 Index 299 1403_99501X_02_prevxiv.qxd 15/9/05 3:38 PM Page vii List of Tables 3.1 Distribution of legislative responsibilities for income security: federal and state/provincial governments 48 3.2 Interregional variation in health care: instruments and outcomes 52 3.3 Regional variation in public health spending, federal and non-federal states circa 1997 53 3.4 Regional variation in public attitudes on social policy, Canada, 1951–75 62 3.5 Public preferences on jurisdiction over contributory pensions, Canada, 1964 63 4.1 Fiscal equalisation in Germany (1995) 72 4.2 Constitutional preferences in Quebec (1995–2003) 75 4.3 Fiscal equalisation in Canada (2001) 75 4.4 Regional variations on the role of government in Canada (2002) 76 4.5 Support for private services for health care in Canada, 2001–03 77 4.6 Left and Right in the UK (2003) 78 4.7 Policy attitudes in Great Britain 79 4.8 Trends in “forced choice” national identity (1999–2003) 80 4.9 Moreno national identity (2003) 81 4.10 Constitutional preferences in Scotland and Wales (2003) 82 6.1 Discrepancy between the average figures of the academies and French average 134 6.2 Education spending among regions, 2003 135 7.1 Preconditions for institutional divergence 146 9.1 Legislative output by community (1980–2000) 181 9.2 Total number of public employees in the autonomous communities with the highest level of competencies, and ratio of inhabitants to each public employee 182 9.3 Formal links of public employees of the autonomous communities 183 9.4 Policy domains considered to differentiate among autonomous communities with a higher level of competencies 184 vii 1403_99501X_02_prevxiv.qxd 15/9/05 3:38 PM Page viii viii List of Tables 9.5 Citizen satisfaction with the autonomous system 187 9.6 Individual attitudes and behaviors relative to public affairs 188 9.7 The associative fabric of the autonomous community: index of coordination-cooperation associativity 189 9.8 Associative participation index, 1998 (factor score of the first principal component on participation) 190 9.9 Autonomous community social capital 190 9.10 Level of development and socio-economic modernization of the autonomous communities 191 9.11 Political governance of autonomous communities 1980/89–1998 (Governability index – factor score – the least value corresponds to the greatest political governance of the autonomous institutions) 192 1403_99501X_02_prevxiv.qxd 15/9/05 3:38 PM Page ix List of Figures 6.1 Increase in interregional disparities of GDP per capita between 1975 and 1996 (for Ile de France) 130 6.2 Uninterrupted decrease in interregional disparities of raw available income per capita (1965–95, inflation-adjusted francs) 131 6.3 GDP per capita and raw available income per capita in Ile de France compared to French mean (100) 132 9.1 Classification of the autonomous communities with a higher level of competencies according to the substantive dimension of five policy domains 185 9.2 Classification of the autonomous communities with a higher level of competencies according to the operative dimension of five policy domains 186 9.3 From regionalism to new nationalism in Europe 199 ix 1403_99501X_02_prevxiv.qxd 16/9/05 8:59 PM Page x List of Contributors Keith G. Banting is a Professor in the School of Policy Studies and the Department of Political Studies at Queens University and holder of the Queens Research Chair in Public Policy. One of his long-standing research interests has been the interaction between federalism and social policy in Canada and in western nations generally. He is the author of The Welfare State and Canadian Federalism and editor or co-editor of a number of books in the field, including most recently Federalism and Health Policy: A Comparative Perspective on Multi-Level Governance. Claire Dupuy is a Phd Student in politics at Sciences Po Paris and belongs to CEVIPOF (Centre de Recherche Politiques de Sciences Po). She has worked on research policy in the Ile de France region and now works on the regionalisation of welfare and education in relation to inequalities in France and Germany. Patrick Le Galès is directeur de recherche (CNRS) at CEVIPOF and Professor of politics and sociology at Sciences Po Paris. He works on cities, local economic development, the governance of regions and cities in Europe and comparative public policies. In 2002 he won the UNESCO ISSC Stein Rokkan Prise for his book “European cities, social conflicts and governance”. His other publications include the co-edited Regions in Europe and Cities in Europe (with C. Lequesne) and The Changing Governance of Local Economies in Europe (with C. Crouch, C. Trigilia and H. Voeltzkow). Scott L. Greer is Assistant Professor of Health Management and Policy in the University of Michigan School of Public Health. His publications on territorial politics and health policy include the books Territorial Politics and Health Policy, Nationalism and Self-Government: The Politics of Autonomy in Scotland and Catalonia (forthcoming) and Questioning Geopolitics (with Georgi Derluguian). Before coming to the University of Michigan he taught at University College London, and he remains a member of the Constitution Unit, University College London. Charlie Jeffery is Professor of Politics in the School of Social and Political Studies, University of Edinburgh and the author or editor of many books and articles about devolution and German politics. He directs the Economic and Social Research Council’s research programme x 1403_99501X_02_prevxiv.qxd 16/9/05 8:59 PM Page xi List of Contributors xi on Devolution and Constitutional Change. He has