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Just Hire your Spouse: Empirical Evidence from a New Type of Political Favoritism Niklas Potrafke and Björn Kauder
Just hire your spouse:
Empirical evidence
from a new type of political favoritism
Björn Kauder1 ifo Institute
Niklas Potrafke2
University of Munich ifo Institute
8 April 2014
Abstract
We investigate a new type of political favoritism. Some members of the Bavarian parliament
hired relatives as office employees to be paid by taxpayers’ money. One of the best predictors
to favor relatives was being a member of parliament (MP) for few years and thus still having
outside options from politics. We investigate whether being involved in the scandal
influenced re-election prospects and voter turnout. The results do not show that being
involved in the scandal influenced the outcome and voter turnout of the 2013 state elections.
We propose three explanations: (i) the Bavarian state election was a test run of the German
federal election, (ii) the state government made a quite good job clarifying failings, (iii) in
June 2013, a tremendous flooding eclipsed the political scandal.
Keywords: political scandal, favoritism, re-election prospects, voter turnout
JEL Classification: D72
1 ifo Institute, Ifo Center for Public Finance and Political Economy, Poschingerstr.5, D-81679 Munich, Germany, Phone: + 49 89 9224 1331, Fax: + 49 89 907795 1331, E-mail: [email protected] 2 ifo Institute, Ifo Center for Public Finance and Political Economy, Poschingerstr.5, D-81679 Munich, Germany, Phone: + 49 89 9224 1319, Fax: + 49 89 907795 1319, E-mail: [email protected]
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1. Introduction
Political scandals often have extensive consequences. Scandals influence, for example,
politicians’ election prospects. When an incumbent experiences discredit, a pertinent question
is whether the incumbent will be re-elected. In a similar vein, challengers may not even have
a chance to become elected. Severe scandals bring individual political careers to an end.3
Political scandals have various facets: financial scandals include tax evasion, moral
scandals include sexual misconduct.4 Prominent examples of sexual misconduct are President
Bill Clinton’s affair with Monica Lewinsky and Dominique Strauss-Kahn’s sexual assault to a
cleaning lady. In 1998, Bill Clinton did not resign as president of the United States, and
because he was in his second term, did not need to fear his re-election. By contrast,
Dominique Strauss-Kahn’s political career abruptly ended. Strauss-Kahn was the managing
director of the International Monetary Fund and was expected to run as the presidential
candidate of the French Socialists having the best chances to win the 2011 French presidential
elections.
Experts examine political scandals and favoritism and elaborate on characteristics of
good and bad politicians.5 Good politicians have been described to be well educated and non-
corrupt. Good politicians are expected to be not involved in political scandals and favoritism.
When scandals occur, an issue is how politicians, especially party leaders or prime ministers,
deal with political scandals of their party or cabinet members (Dewan and Myatt 2007). When
a minister involved in a scandal heeds the call to resign, a government’s popularity may rise
(Dewan and Dowding 2005).6
In April 2013, Germany’s largest state Bavaria experienced a new political scandal
of favoritism. Members of the Bavarian parliament (Landtag) had hired relatives as office
3 In Japan, “the standard way of dealing with a scandal was to resign from the party and official posts but run again in the next elections“ (Nyblade and Reed 2008: 930). 4 Politicians either act corruptly for material gain or for electoral gain (Nyblade and Reed 2008). 5 In India, favoritism has been shown to improve economic outcomes in privileged electoral districts (Novosad and Asher 2013). 6 Doherty et al. (2011) examine scandalous behavior and the official’s responsibilities.
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employees paid by the Bavarian parliament. The scandal became public because the expert in
German parliamentary affairs Hans Herbert von Arnim published a book elaborating on how
Bavarian politicians benefit from being in office (Arnim 2013). In 2000, the Bavarian
parliament tightened the state law. Members of the parliament were no longer allowed to hire
spouses, children, or parents as office employees.7 An interim arrangement allowed
employing relatives that had already assisted before the tightening of the law. But even 13
years after the interim arrangement was introduced, some MPs still employed close relatives.
Employing these relatives did not offend against the law but certainly smacked of exploiting
taxpayers’ money.
The state elections in Bavaria on 15 September 2013 and the German federal
elections on 22 September 2013 attached a great deal of importance to this scandal.
Politicians involved in the scandal realized the political hazard: some politicians who had
hired relatives repaid the relatives’ salaries immediately or donated the amounts. Some MPs
considered hiring relatives as legitimate in earlier times, but acknowledged that nowadays
MPs should not hire relatives. Although three parties are involved in the scandal, it is
conceivable that the reigning conservative Christian Social Union (CSU) incurred the largest
loss of votes. About 70% of the involved politicians are CSU members. The opposition
parties tried to exploit the scandal to increase their election prospects and replace the
predominant CSU-led state government.
The scandal in Bavaria has been a top issue in the German media for many weeks.8
We examine what determined the probability of having favored relatives and how the scandal
influenced the outcome and voter turnout of the 2013 state elections.
7 The law still allowed employing relatives other than spouses, children, and parents. In May 2013 the Bavarian parliament decided to also prohibit employing these relatives as of June 2013. 8 The media play a key role in (de)lighting political scandals. Ideologically biased media that favor the incumbent or challenger have incentives to hype or understate scandals.
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2. Favoritism and scandals
Which incentives do MPs have to engage in favoritism? Politicians may view extracting rents
as justified from a public servants perspective. When a politician has served the state for a
long time it may give rise to a give-and-take perspective. This is all the more the case when
favoritism is common among MPs.9 Hiring relatives e.g. as office assistants is such a case of
favoritism.
Politicians and their assistants are likely to cooperate better when assistants are
acquaintances. Managers have been shown to favor employees that they personally know and
that these employees favor the manager in their decisions (Brandts and Solà 2010). Hiring
relatives is efficient when being relatives improves the collaboration. Hiring relatives is
favoritism when the collaboration does not improve. In Italy, public sector employees have
been shown to favor their children in gaining access to public sector positions (Scoppa
2009).10
In deciding on whether or not to engage in favoritism politicians consider the
probability of detection. When the media discovers a case of favoritism the political career
may end. The media or the party can force the politician to resign. It is also conceivable that
the political career ends because the politician is elected out of office. In Spain, incumbents
lost up to 14% of votes when incumbents have been accused with corruption and press
coverage has been substantial (Costas-Pérez et al. 2012).11 Scandals involving the incumbent
have also been shown to reduce trust in local politicians (Solé-Ollé and Sorribas-Navarro
2013). In Japan, candidates have been shown to have lost 1.34% of votes in the 1990 election
9 Gino et al. (2009) portray the nexus between an individual’s unethical behavior and unethical behavior of other individuals. 10 Prendergast and Topel (1996) examine how favoritism in firms influences employees’ compensation. Bramoullé and Goyal (2013) discuss the origins and consequences of favoritism. Parker (2005) investigates how reputational capital influences opportunistic behavior. 11 Puglisi and Snyder (2011) examine how newspapers‘ ideology influences media coverage of scandals in the United States. Bowler and Karp (2004) discuss how scandals influence the regard for political institutions.
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because of scandals. In Great Britain, candidates have been shown to have lost 1.14% of votes
in the 1997 election because of scandals (Reed 1999).
Politicians’ opportunity costs are likely to influence politicians’ decisions to hire
relatives. Politicians who have been enrolled in politics for a long time face different
incentives as compared to politicians who just started their career. Politicians who just started
their political career still have outside options on the labor market. Consequently, for
politicians who just started their career extracting rents is a barely risky way to increase
income. By contrast, politicians who have been enrolled in politics for a long time hardly
have outside options on the labor market and experience a higher risk to hire relatives: when
the affair leaks out, the politician likely has to retire. We therefore expect politicians who
have been enrolled in politics for a long time to hire relatives to a lesser extent. We also
expect politicians in leading positions to hire relatives to a lesser extent, because politicians in
leading positions have more to lose. Learning effects are also likely to influence hiring
decisions: experienced politicians may understand better the risks associated with favoritism.
How politicians’ characteristics influence hiring relatives and how voters punish politicians
affected by the scandal remains as an empirical question.
3. Institutional background
3.1 The Bavarian political party landscape
The conservative CSU has dominated politics in Bavaria for decades.12 The leftist Social
Democratic Party (SPD) did not play an important role in Bavaria. All state prime ministers –
except one SPD prime minister between 1954 and 1957 – were members of the CSU.
The much smaller Free Democratic Party (FDP) formed a coalition with the CSU in
the 2008-2013 legislative period. Before 2008 the CSU was in power without any coalition
12 In other German states the conservatives are not represented by the CSU but by their sister party, the Christian Democratic Union (CDU). No party competition emerges between the CDU and the CSU and they form one faction in the federal parliament.
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partner for 42 years. Figure 1 portrays the predominant role of the CSU in Bavarian state
elections. Only before 1966 the CSU formed coalitions with partners such as the SPD and the
FDP. Since 1986 the Greens (Bündnis 90/Die Grünen) and since 2008 the Free Voters (Freie
Wähler) are represented in the parliament. The vote share of the Greens never exceeded 10%.
The vote share of the Free Voters hardly exceeded 10%.
3.2 Bavarian state elections
In Bavarian state elections voters cast two votes in a personalized proportional representation
system. The first vote determines which candidate obtains the direct mandate in one of the 90
electoral districts with bare majority. The second vote sorts politicians on their party lists. The
first and second votes determine how many seats the individual parties receive in parliament.
Each party that received at least 5% of the first and second votes obtains a number of the 180
seats in the parliament according to the party’s first and second vote share. Candidates voted
into the parliament with the first vote (direct mandate) obtain their seats first. Candidates from
party lists obtain the remaining seats. When the number of direct mandates exceeds the
party’s vote share in a region, the party obtains excess mandates, and the other parties obtain
equalizing mandates.
4. Good and bad politicians: empirical analysis
4.1 MPs hiring relatives
The Bavarian president of parliament, Barbara Stamm, published a list including the MPs that
have employed spouses, children, or parents within the 2008-2013 and the two preceding
legislative periods (Stamm list, published on 3 May 2013). The list includes 79 (out of 360)
MPs from the 2008-2013 and the two preceding legislative periods. Three politicians from
this list have died in between, 54 are members of the reigning Christian Social Union (CSU),
20 are members of the Social Democratic Party (SPD), one is a member of the Greens
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(Bündnis 90/Die Grünen), and one left the Greens to become an independent MP.13 MPs from
the 2008-2013 coalition partner of the CSU, the Free Democratic Party (FDP), and MPs from
the Free Voters (Freie Wähler) were not affected by the scandal. 17 politicians from the
Stamm list were still MPs in the 2008-2013 legislative period (all CSU members); three of
them were even ministers in the 2008-2013 government. The SPD and Greens politicians
from the Stamm list left the parliament at the latest in 2008. 16 of the MPs involved in the
scandal hired relatives only during the year 2000, shortly before the interim arrangement took
effect. It is conceivable that these MPs hired relatives though or because they knew that hiring
relatives was going to be forbidden. To be sure, some MPs also hired relatives other than
spouses, children, or parents. Hiring relatives other than spouses, children, or parents did not
violate the law. We do, however, not include relatives other than spouses, children, or parents
because MPs who hired them did not appear on the Stamm list; but these politicians were also
criticized in the public debate.
4.2 Descriptive statistics
We use data from the Centre of Bavarian History, the Bavarian Statistical Office, the
Bavarian parliament, and personal websites of the MPs. We only include those MPs in the
data set which were MPs at some time between 1998 (beginning of the Stamm list) and the
interim arrangement from December 2000 (see Section 1). It is not possible that MPs other
than from the time between 1998 and the interim arrangement from December 2000 were
included in the Stamm list. We therefore do not have MPs from the FDP and the Free Voters
in our data set, because the FDP and the Free Voters were not represented in the parliament
between 1998 and 2000. To be sure, we do not include politicians in the data set who became
MPs after the year 2000, as these MPs were not able to hire relatives according to the interim
13 We do not know the names of those three (CSU and SPD) MPs on the list that died in between. We therefore consider these MPs in the empirical analysis as not having hired relatives. We do not know the educational achievement of one SPD MP; because this MP hired a relative, the number of SPD MPs that hired relatives reduces to 19 in our data set.
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arrangement. The sample thus reduces to 205 out of 360 MPs.14 Tables 1 and 2 show
descriptive statistics.
Figure 2 shows the shares of the parties’ MPs that employed relatives. The share of
CSU MPs that hired relatives (44%) is higher than the share of SPD MPs that hired relatives
(28%). The share of the Greens MPs that hired relatives is substantially smaller (8%). The
FDP and the Free Voters did not employ relatives. A t-test on means shows that there is a
significant difference between CSU and SPD politicians in hiring relatives. We reject the
hypothesis of no difference between CSU and SPD politicians with a t-value of 2.77.
4.3 Empirical strategy
The probit model has the following form:
Hired relativei = α + βYears MPi + Σj γj Personal characteristicsij + Σk δkPartyik
+ Σl εlRegionil+ ui
with i=1,…,205; j=1,…,8; k=1,2; l=1,…,6
where Hired relativei describes whether MP i has hired relatives and assumes the value one
when the MP i was on the Stamm list and zero otherwise. Years MPi describes the number of
years from MPs first election into parliament until the year 2000 (when an MP decided to hire
relatives). We include other control variables: Years in a partyi describes the number of years
since the MP’s beginning of membership in a political party until the year 2000.15 Agei
describes the age of the MP at the end of the year 2000. The dummy variable Femalei
14 The sample is larger than the regular number of MPs in the 1998-2003 legislative period because of successors of retired MPs. 15 We also consider membership in a youth organization of a political party as a membership in a political party. When an MP changed the party, we consider the beginning of membership in her/his first party.
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assumes the value one for female MPs.16 Educationi describes the highest educational
achievement of an MP: the variable assumes the value one for having visited a school, the
value two for a completed vocational training (Berufsausbildung), the value three for a master
craftsman (Meister), the value four for a university of applied sciences degree
(Fachhochschulabschluss), the value five for a university degree, and the value six for a
PhD.17 The dummy variable Direct mandatei assumes the value one for MPs elected into the
parliament with the first vote in the 1998-2003 legislative period (see section 3.2). The
dummy variable Ministeri assumes the value one for MPs who were a minister at the end of
the year 2000. The dummy variable State secretaryi assumes the value one for MPs who were
a state secretary at the end of the year 2000. The dummy variable Leading party positioni
assumes the value one for MPs who were party leader or regional party leader in the end of
the year 2000.18 Partyik describes dummy variables for the CSU and the SPD (reference
category: Greens and independent MPs).19 Regionil describes dummy variables for the regions
where the individual MPs have been elected (reference category: Oberbayern), and ui
describes an error term. We estimate a probit model with standard errors robust to
heteroskedasticity (Huber/White/sandwich standard errors – see Huber 1967 and White
1980).
4.4 Regression results
Tables 3 and 4 show that the number of years being an MP influenced hiring relatives
(coefficient estimates in Table 3 and marginal effects in Table 4). The estimate in column (1)
of Table 4 indicates that a politician who was in the Bavarian parliament for a long time had a
16 Geys and Mause (in press) describe to which extent male and female legislators differ. 17 Our coding thus assumes a linear relation between the educational achievements. For parsimony reasons we do not include dummy variables for each educational achievement in the baseline model. 18 We do not include regional party leaders of the Greens because the Greens did not provide complete data on regional party leaders in 2000 upon request. 19 When an MP changed the party or became an independent MP, all dummy variables assume the value zero. There are two independent MPs in our data set.
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lower probability of hiring relatives. The effect is statistically significant at the 10% level.
The numerical meaning of the effect is that one additional year in parliament decreased the
probability of hiring relatives by 1.0 percentage points. When the years in parliament variable
increased by one standard deviation (somewhat more than seven years), the probability of
hiring relatives decreased by about 7.2 percentage points. The years since the beginning of
membership in a political party negatively influenced the probability of hiring relatives. The
effect is statistically significant at the 10% level. One additional year since the beginning of
membership in a political party decreased the probability of hiring relatives by 1.0 percentage
points. Older MPs were more likely to hire relatives. The effect is statistically significant at
the 1% level. The numerical meaning of the effect is that being one year older increased the
probability of hiring relatives by 1.3 percentage points. The effects of years in parliament,
years in a party, and age indicate that politicians were likely to hire relatives when they had
little experience in the political business and when they were of higher age (lateral entrants);
young career politicians were, by contrast, less likely to hire relatives. Being a female MP and
the level of education do not turn out to be statistically significant at conventional levels. Also
being elected into parliament with the first vote (direct mandate), being a minister, and being
a state secretary does not turn out to be statistically significant. Holding a leading party
position decreased the probability of hiring relatives. The effect is statistically significant at
the 5% level. The numerical meaning of the effect is that being party leader or regional party
leader decreased the probability of hiring relatives by 34.0 percentage points. CSU
membership increased the probability of hiring relatives. The effect is statistically significant
at the 5% level. The numerical meaning of the effect is that being a CSU member increased
the probability of hiring relatives by 32.5 percentage points as compared with the Greens and
independent MPs (reference category). SPD membership does not turn out to be statistically
significant. The electoral districts also influenced the probability of hiring relatives. The
probability of hiring relatives was lowest in Oberbayern (reference category); the probability
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was highest in Schwaben and Unterfranken. The effects are statistically significant at the 1%
level. Being a politician from Schwaben or Unterfranken increased the probability of hiring
relatives by 43.0 percentage points and 37.2 percentage points. The probability of hiring
relatives was also higher in the Oberpfalz and Oberfranken. The effects are statistically
significant at the 5% level. The numerical meaning of the effects is that being a politician
from the Oberpfalz or Oberfranken increased the probability of hiring relatives by about 26
percentage points. The effects of Niederbayern and Mittelfranken lack statistical significance
at conventional levels.
Column (2) includes MPs that have not reported when they became a party member.
Including MPs that have not reported when they became a party member allows examining all
205 observations in the data set. The estimate again indicates that a politician who has been in
the Bavarian parliament for a long time had a lower probability of hiring relatives. The effect
is statistically significant at the 10% level. The numerical meaning of the effect is that one
additional year in parliament decreased the probability of hiring relatives by 0.9 percentage
points. Older MPs were again more likely to hire relatives. The effect is statistically
significant at the 10% level. Being one year older increased the probability of hiring relatives
by 0.7 percentage points. Being a female MP, the level of education, and whether the MP
obtained a direct mandate lacks statistical significance. Also being a minister and being a state
secretary does not turn out to be statistically significant at conventional levels. Holding a
leading party position decreased the probability of hiring relatives. The effect is statistically
significant at the 5% level. The numerical meaning of the effect is that being party leader or
regional party leader decreased the probability of hiring relatives by 36.3 percentage points.
CSU membership positively influenced the probability of hiring relatives. The effect is
statistically significant at the 5% level. The numerical meaning of the effect is that being a
CSU member increased the probability of hiring relatives by 30.1 percentage points as
compared with the Greens and independent MPs (reference category). SPD membership does
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not turn out to be statistically significant. Inferences of the electoral district variables do not
change as compared with column (1).
4.5 Robustness tests
We tested whether the results are driven by including/excluding those MPs who hired
relatives in the year 2000. In the sample with 178 observations, excluding the MPs who hired
relatives in the year 2000 renders the years in a party variable and the CSU variable to lack
statistical significance (replicating column (1) of Table 4). In the sample with 205
observations, excluding the MPs who hired relatives in the year 2000 renders the years MP
variable and the CSU variable to lack statistical significance. The female variable is, however,
statistically significant (replicating column (2) of Table 4).
It is conceivable that re-election prospects influenced whether an MP hired relatives.
An MP may well expect her/his re-election when the vote margin in the last election was
large.20 Controlling for the 1998 vote margin reduces, however, the sample size to 85 and
104, because controlling for vote margin includes only MPs elected as direct candidates (see
Section 3.2). The vote margin variable does not turn out to be statistically significant. When
the vote margin variable is included, the effects of years MP, years in a party, age, and
leading party position lack statistical significance. We reran our baseline model with the
subsample for which the vote margin variable is available: the effects of years MP, years in a
party, age, and leading party position lack statistical significance. Inferences thus change
when we reduce the sample from 205 to 104 or from 178 to 85 observations.
20 Geys (2013) discusses how election cycles influence outside activities of MPs in the UK and shows a particularly strong election effect for MPs in marginal seats.
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5. Election effects: empirical analysis
5.1 Vote shares and voter turnout
The conservative CSU won the state elections on 15 September 2013 and received 48% of the
votes. As in the 2008 election, the CSU won all districts except one in the 2013 election. We
examine how the scandal influenced the vote share of the CSU by comparing every individual
district in the elections 2008 and 2013. As the SPD and Greens MPs who hired relatives left
the parliament at the latest in 2008, we consider no other party than the CSU when we
examine how the scandal influenced the election outcome. We directly investigate how the
scandal influenced a politician’s re-election when the individual politician ran for office again
after she/he experienced the scandal.21 When the scandal brought a politician’s career to an
end, or a politician would have ended her/his career in any event – the scandal
notwithstanding – we cannot compare the individual vote of the elections in 2008 and 2013.
We thus also compare the vote share of the CSU in districts affected by the scandal with the
vote share of the CSU in districts not affected by the scandal, independent of the party’s
candidate. It is conceivable that the scandal also influenced voter turnout as a result of
disenchantment with politics. We therefore examine how the scandal influenced voter turnout
by comparing the elections 2008 and 2013 in every individual district.
5.2 Descriptive statistics
We use data from the Centre of Bavarian History, the Bavarian Statistical Office, the
Bavarian parliament, and personal websites of the MPs. We only include those (73 out of 91)
districts that have not been adjusted between the 2008 and the 2013 state elections. Tables 5
and 6 show descriptive statistics. The samples include 88 and 146 observations.
21 In districts that were not adjusted between the 2008 and the 2013 state elections, 50% of the MPs who hired relatives and 63% of the MPs who did not hire relatives stood for re-election. A t-test on means shows that there is no significant difference between MPs who hired relatives and MPs who did not hire relatives in the decision to stand for re-election. We do not reject the null hypothesis of no difference between MPs who hired relatives and MPs who did not hire relatives with a t-value of 0.94.
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Figure 3 shows polls for the 2008-2013 legislative period. The scandal arose in
April/May 2013 and as Figure 3 shows CSU vote intentions declined from about 49% to
about 46% in April/May 2013. The CSU recovered slowly from the scandal. The CSU vote
share was 47% and 48% in July and August 2013. Figure 4 shows the first vote share of the
CSU in the state elections 2008 and 2013, for districts being and not being affected by the
scandal. The CSU first vote share increased from 45% to 49% in scandal districts and from
43% to 47% in other districts. A t-test on means shows that there is no significant difference
between scandal districts and other districts in the CSU first vote share change. We do not
reject the null hypothesis of no difference between scandal districts and other districts with a
t-value of 0.42. Figure 5 shows the total vote share (sum of first and second votes) of the CSU
in the state elections 2008 and 2013, for districts being and not being affected by the scandal.
The CSU total vote share increased from 47% to 50% in scandal districts and from 44% to
48% in other districts. A t-test on means shows that there is no significant difference between
scandal districts and other districts in the CSU total vote share change. We do not reject the
null hypothesis of no difference between scandal districts and other districts with a t-value of
1.56. Figure 6 shows the voter turnout in the state elections 2008 and 2013, for districts being
and not being affected by the scandal. The voter turnout increased from 58% to 64% in both
scandal districts and other districts. A t-test on means shows that there is no significant
difference between scandal districts and other districts in the voter turnout change. We do not
reject the null hypothesis of no difference between scandal districts and other districts with a
t-value of 0.39.
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5.3 Empirical strategy
The difference in differences model has the following form:
Voters’ reactionijt = αj + βjHired relativei + γj 2013it + δj Hired relativei*2013it + Σk εjk
Personal characteristicsikt+ ζj Flood disasterit + ηj Cityi + Σl θjlRegionil + uit
with i=1,…,73; j=1,…,3; k=1,…,4; l=1,…,6; t=1,2
where Voters’ reactionijt describes the CSU first or total vote share or the voter turnout in the
district of MP i at time t (j is equal to 1-3). Hired relativei describes whether MP i hired
relatives and assumes the value one when the MP i was on the Stamm list and zero otherwise.
The dummy variable 2013it assumes the value one for the year 2013. Hired relativei*2013it
describes the interaction term, with δ describing the difference in differences estimate of the
treatment effect. We include other control variables: Ageit describes the age of the MP at time
t. The dummy variable Femalei assumes the value one for female MPs. The dummy variable
Incumbent runningit assumes the value one if the district incumbent ran again for MP. For
explaining voter turnout, Vote marginit describes how first vote shares differed between the
district winner and the runner-up (see Nyblade and Reed 2008). In June 2013, exceptional
rainfalls influenced a tremendous flooding. Natural disasters have been shown to influence re-
election prospects (e.g. Bechtel and Hainmueller 2011). We therefore include the dummy
variable Flood disasterit which assumes the value one for the year 2013 if disaster alarm was
given in a city or county of the electoral district of MP i in the course of the 2013 flood in
Central Europe.22 The dummy variable Cityi assumes the value one if an independent city was
located in the electoral district. Regionil describes a set of dummy variables for the regions
22 We coded the flooding variable according to http://upload.wikimedia.org/wikipedia/commons/thumb/5/50/ Karte_Hochwasser_in_Deutschland_Landkreise.png/972px-Karte_Hochwasser_in_Deutschland_Landkreise.png
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where the individual MPs were elected (reference category: Oberbayern), and uit describes an
error term. We estimate a difference in differences model with standard errors robust to
heteroskedasticity (Huber/White/sandwich standard errors – see Huber 1967 and White
1980).
5.4 Regression results
The results in Table 7 do not show that the scandal influenced the CSU vote share as
measured by the 2013 and the 2008 state election results. The estimate in column (1) of Table
7 considers the CSU first vote results and thus only includes those MPs and MP candidates
that have been elected in 2008 (and re-elected in 2013) into parliament with the first vote. The
results do not indicate that the scandal was associated with the CSU share of first votes: the
interaction term between Hired relativei and 2013 does not turn out to be statistically
significant at conventional levels. The results do also not indicate a scandal district specific
effect (Hired relativei) or that the CSU first vote share was higher or lower in 2013. The age
of the MP or MP candidate, whether the MP or MP candidate is female, and whether the MP
or MP candidate is the incumbent do not turn out to be statistically significant.23 The CSU
first vote share increased when the district was affected by the 2013 flood disaster. The effect
is statistically significant at the 1% level. The numerical meaning of the effect is that when
the district was affected by the flood the CSU first vote share increased by 6.8 percentage
points. The magnitude of the effect resembles the 7 percentage points effect for the 2002 Elbe
flooding (Bechtel and Hainmueller 2011). The CSU first vote share decreased when an
electoral district included an independent city. The effect is statistically significant at the 1%
level. The numerical meaning of the effect is that the CSU first vote share decreased by 4.6
percentage points when an electoral district included an independent city. The electoral
23 To be sure, the incumbent variable assumes the value one for all MPs in the year 2013 because we include only MPs that have been elected in 2008 (and re-elected in 2013). The incumbent variable assumes, however, the value zero for the year 2008 when the MP candidate was not elected in the year 2003.
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districts also influenced the CSU first vote share. The CSU first vote share was higher in the
Oberpfalz, Oberfranken, Unterfranken, and Schwaben as compared to Oberbayern (reference
category). The effects are statistically significant at the 1% level. The numerical meaning of
the effects is that the CSU obtained in the Oberpfalz 10.5 percentage points, in Oberfranken
6.3 percentage points, in Unterfranken 5.2 percentage points, and in Schwaben 3.9 percentage
points more first votes as compared to Oberbayern. The CSU first vote share was also higher
in Niederbayern. The effect is statistically significant at the 10% level. The numerical
meaning of the effect is that the CSU obtained in Niederbayern 3.3 percentage points more
first votes as compared to Oberbayern. The effect of Mittelfranken lacks statistical
significance at conventional levels.
The estimate in column (2) of Table 7 considers the CSU total vote results and
includes all electoral districts, also those where the MP candidate changed between 2008 and
2013. The results do not indicate that the scandal was associated with the CSU share of total
votes: the interaction term between Hired relative and 2013 does not turn out to be
statistically significant at conventional levels. The results do also not indicate a scandal
district specific effect (Hired relative). The CSU total vote share was higher in 2013. The
effect is statistically significant at the 1% level. The numerical meaning of the effect is that
the CSU total vote share increased by 2.9 percentage points as compared to 2008. The effects
of the age and gender of the MP or MP candidate and whether she/he was the incumbent lack
statistical significance. The CSU total vote share increased when the district was affected by
the 2013 flood disaster. The effect is statistically significant at the 1% level. The numerical
meaning of the effect is that when the district was affected by the flood the CSU total vote
share increased by 5.9 percentage points. The CSU total vote share decreases when an
electoral district includes an independent city. The effect is statistically significant at the 1%
level. The numerical meaning of the effect is that the CSU total vote share decreased by 5.2
percentage points when an electoral district included an independent city. The CSU total vote
18
share also differed across regions: The CSU total vote share was highest in Oberpfalz,
Unterfranken, and Schwaben. The effects are statistically significant at the 1% level. The
numerical meaning of the effects is that the CSU obtained in the Oberpfalz 7.5 percentage
points, in Unterfranken 6.0 percentage points, and in Schwaben 4.9 percentage points more
total votes as compared to Oberbayern (reference category). The CSU total vote share was
also higher in Oberfranken and Niederbayern. The effects are statistically significant at the
5% and 10% level. The numerical meaning of the effects is that the CSU obtained in
Oberfranken 3.8 percentage points and in Niederbayern 2.3 percentage points more total votes
as compared to Oberbayern. The effect of Mittelfranken lacks statistical significance at
conventional levels.
The estimate in column (1) of Table 8 considers voter turnout and includes all
electoral districts. The results do not indicate that the scandal was associated with voter
turnout: the interaction term between Hired relative and 2013 does not turn out to be
statistically significant at conventional levels. The scandal district specific effect (Hired
relative) does not turn out to be statistically significant. The results do, however, indicate that
voter turnout was higher in 2013. The effect is statistically significant at the 1% level. The
numerical meaning of the effect is that voter turnout increased by 6.2 percentage points as
compared to 2008. The effects of the age and gender of the MP or MP candidate, and whether
the MP or MP candidate was the incumbent lack statistical significance. The effect of the vote
margin between the winner and the runner-up of the district and the effect of the flood disaster
do also not turn out to be statistically significant at conventional levels. Voter turnout
decreased when an electoral district included an independent city. The effect is statistically
significant at the 1% level. The numerical meaning of the effect is that voter turnout
decreased by 3.1 percentage points when an electoral district included an independent city.
Voter turnout differed across the electoral districts and was highest in Oberbayern (reference
category); voter turnout was lower in Niederbayern, Schwaben, and Unterfranken. The effects
19
are statistically significant at the 1% level. In Niederbayern voter turnout was 6.1 percentage
points, in Schwaben 4.9 percentage points, and in Unterfranken 2.9 percentage points lower
as compared to Oberbayern. Voter turnout was also lower in Oberfranken. The effect is
statistically significant at the 10% level. The numerical meaning of the effect is that voter
turnout was 1.8 percentage points lower in Oberfranken as compared to Oberbayern. The
effects of the Oberpfalz and Mittelfranken do not turn out to be statistically significant at
conventional levels.
5.5 Robustness tests
We tested whether the scandal influenced the other parties’ vote shares. We replicated the
regressions described in Table 7 with the vote shares of the SPD, the Greens, the FDP, and the
Free Voters as dependent variable. The results do, however, not indicate that other parties
benefitted in districts where the CSU hired relatives.
We tested how MPs who hired relatives during the year 2000 influenced the CSU vote
share and voter turnout. We thus considered only those MPs who hired relatives during the
year 2000 as being affected by the scandal. The results do, however, not change as compared
to considering all MPs who hired relatives as being affected by the scandal (except the
Oberfranken dummy in the voter turnout regression). We also tested whether the results are
driven by including/excluding the MPs who hired relatives in the year 2000. Excluding the
MPs who hired relatives in the year 2000 in the CSU first vote share regression renders the
2013 variable to be statistically significant at the 10% level. Excluding the MPs who hired
relatives in the year 2000 in the voter turnout regression renders the flood disaster and the
Oberpfalz variables to be statistically significant at the 10% level.
20
6. Conclusion
The family scandal in Bavaria 2013 has been a prime example for favoritism in politics. One
of the best predictors to favor relatives was being an MP for few years. Politicians who have
been in the parliament for few years may still have outside options from politics and therefore
did not hazard their lifework by hiring relatives. By contrast, politicians who devoted their
lives to politics were more hesitant hiring relatives. One may well conclude that these results
provide evidence for too low salaries of MPs. Empirical evidence has shown that the political
entry decision of citizens depends on the opportunity costs (Caselli and Morelli 2004;
Messner and Polborn 2004), and that politicians’ performance depends on politicians’
remuneration (Besley 2004). In Finland, a wage increase has been shown to increase the share
of parliamentary candidates with higher education among female candidates, but not among
male candidates (Kotakorpi and Poutvaara 2011). In Italy, higher wages have been shown to
attract more educated mayor candidates, and that better paid politicians improve efficiency
(Gagliarducci and Nannicini 2013). Politicians with higher ex-ante quality, such as previous
market income, have been shown to be more likely to run in contestable districts (Galasso and
Nannicini 2011). In Germany, MPs have been shown to benefit from a wage gap of 35-65%
as compared to executives in the private sector; the calculation of the wage gap, however,
includes politicians’ outside earnings. The wage gap of politicians has been shown to be zero
as compared with top level executives in the private sector (Peichl et al. 2013). The frequent
use of secondary income opportunities by MPs supports our interpretation of too low salaries
of MPs.24
The results do not show that the scandal influenced the election outcome and voter
turnout. Three explanations spring to mind why being involved in the scandal did not
influence re-election prospects and voter turnout. First, the Bavarian state election on 15
24 For a survey on moonlighting by politicians see Geys and Mause (2013). Gagliarducci et al. (2010) examine the relation between politicians’ ability, income from the private sector, and commitment among members of the Italian parliament. Besley and Larcinese (2011) discuss the determinants of UK MPs’ expense claims.
21
September 2013 was a test run of the German federal election on 22 September 2013. State
elections induce signaling effects for the federal elections. Because the Bavarian electorate
has more conservative views than the average German electorate, Bavarian voters wanted to
give the CDU/CSU encouragement and prevent a left-wing federal government. Second, the
conservative Bavarian government made a quite good job dealing with the scandal and
clarifying failings. The conservative faction leader immediately resigned. The conservative
president of parliament compiled a list of all MPs involved in the scandal. Many MPs repaid
the relatives’ salaries. Third, in June 2013, exceptional rainfalls influenced a tremendous
flooding. The state government again proved competent crisis management. The natural
disaster eclipsed the political scandal.
22
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25
Figure 1: The CSU is the predominant party in Bavaria
Figure 2: Only MPs from CSU, SPD, and Greens hired relatives
Number of MPs that hired relatives: CSU: 54, SPD: 19, Greens: 1. T-test on means (difference between CSU and SPD) with t-value 2.77.
26
Figure 3: The CSU lost in polls after the scandal arose in April/May 2013
The last observation describes the 2013 state elections result. Figure 4: The CSU obtained more first votes in both scandal and other districts
Number of scandal districts: 8, number of other districts: 36. T-test on means (difference between scandal districts and other districts) with t-value 0.42.
27
Figure 5: The CSU obtained more total votes in both scandal and other districts
Number of scandal districts: 16, number of other districts: 57. T-test on means (difference between scandal districts and other districts) with t-value 1.56. Figure 6: Voter turnout increased in both scandal and other districts
Number of scandal districts: 16, number of other districts: 57. T-test on means (difference between scandal districts and other districts) with t-value 0.39.
28
Table 1: Descriptive statistics (hiring relatives; sample including Years in a party)
Obs. Mean Std. Dev. Min Max Hired relative 178 0.37 0.48 0 1Years MP 178 9.53 7.16 0 30Years in a party 178 26.91 8.09 3 45Age 178 51.90 7.85 29 65Female 178 0.25 0.44 0 1Education 178 3.96 1.56 1 6Direct mandate 178 0.48 0.50 0 1Vote margin 85 0.22 0.12 0.00 0.52Minister 178 0.05 0.22 0 1State secretary 178 0.04 0.19 0 1Leading party position 178 0.06 0.23 0 1CSU 178 0.57 0.50 0 1SPD 178 0.35 0.48 0 1Greens 178 0.07 0.25 0 1Niederbayern 178 0.08 0.27 0 1Oberbayern 178 0.35 0.48 0 1Oberpfalz 178 0.10 0.30 0 1Oberfranken 178 0.10 0.29 0 1Mittelfranken 178 0.13 0.34 0 1Unterfranken 178 0.10 0.30 0 1Schwaben 178 0.13 0.34 0 1
FDP and Free Voters are not in the data set, because their MPs did not hire relatives.
29
Table 2: Descriptive statistics (hiring relatives; sample excluding Years in a party)
Obs. Mean Std. Dev. Min Max Hired relative 205 0.37 0.48 0 1Years MP 205 10.32 7.64 0 30Age 205 52.55 8.07 29 69Female 205 0.22 0.42 0 1Education 205 4.00 1.56 1 6Direct mandate 205 0.51 0.50 0 1Vote margin 104 0.23 0.12 0.00 0.52Minister 205 0.05 0.23 0 1State secretary 205 0.03 0.18 0 1Leading party position 205 0.05 0.23 0 1CSU 205 0.60 0.49 0 1SPD 205 0.33 0.47 0 1Greens 205 0.06 0.24 0 1Niederbayern 205 0.10 0.30 0 1Oberbayern 205 0.33 0.47 0 1Oberpfalz 205 0.09 0.29 0 1Oberfranken 205 0.10 0.30 0 1Mittelfranken 205 0.14 0.34 0 1Unterfranken 205 0.11 0.32 0 1Schwaben 205 0.14 0.34 0 1
FDP and Free Voters are not in the data set, because their MPs did not hire relatives.
30
Table 3: Regression results (coefficient estimates). Dependent variable: Hired relative (yes=1). Probit with standard errors robust to heteroskedasticity (Huber/White/sandwich standard errors)
(1) (2) Years MP -0.035* -0.030* (0.020) (0.017) Years in a party -0.035* (0.019) Age 0.045** 0.024 (0.018) (0.015) Female -0.433 -0.397 (0.294) (0.275) Education -0.022 -0.058 (0.074) (0.066) Direct mandate 0.248 -0.060 (0.329) (0.301) Minister -0.248 -0.729 (0.675) (0.666) State secretary -0.078 -0.043 (0.598) (0.565) Leading party position -1.195** -1.189** (0.605) (0.581) CSU 1.186** 1.024** (0.571) (0.488) SPD 0.721 0.443 (0.581) (0.471) Niederbayern 0.548 0.482 (0.448) (0.378) Oberpfalz 0.935** 0.805** (0.411) (0.378) Oberfranken 0.864** 0.859** (0.373) (0.337) Mittelfranken 0.311 0.457 (0.359) (0.325) Unterfranken 1.281*** 0.958*** (0.375) (0.330) Schwaben 1.447*** 1.275*** (0.365) (0.316) Constant -2.882*** -2.233*** (1.035) (0.867) Observations 178 205 Pseudo R-squared 0.231 0.179
Robust standard errors in parentheses; *** p<0.01, ** p<0.05, * p<0.1
31
Table 4: Regression results (marginal effects). Dependent variable: Hired relative (yes=1). Probit with standard errors robust to heteroskedasticity (Huber/White/sandwich standard errors)
(1) (2) Years MP -0.010* -0.009* (0.006) (0.005) Years in a party -0.010* (0.005) Age 0.013*** 0.007* (0.005) (0.004) Female -0.121 -0.119 (0.078) (0.078) Education -0.006 -0.018 (0.021) (0.020) Direct mandate 0.071 -0.018 (0.093) (0.092) Minister -0.070 -0.222 (0.192) (0.201) State secretary -0.022 -0.013 (0.170) (0.172) Leading party position -0.340** -0.363** (0.170) (0.175) CSU 0.325** 0.301** (0.133) (0.123) SPD 0.192 0.131 (0.137) (0.132) Niederbayern 0.160 0.150 (0.131) (0.118) Oberpfalz 0.273** 0.251** (0.113) (0.113) Oberfranken 0.255** 0.270*** (0.105) (0.100) Mittelfranken 0.089 0.140 (0.102) (0.098) Unterfranken 0.372*** 0.300*** (0.094) (0.096) Schwaben 0.430*** 0.398*** (0.091) (0.084) Observations 178 205
Robust standard errors in parentheses; *** p<0.01, ** p<0.05, * p<0.1
32
Table 5: Descriptive statistics (election effects; sample excluding changed MP candidates)
Obs. Mean Std. Dev. Min Max First vote share CSU 2008 44 0.43 0.05 0.30 0.54First vote share CSU 2013 44 0.48 0.06 0.33 0.63Hired relative 88 0.18 0.39 0 12013 88 0.50 0.50 0 1Age 88 51.59 8.81 32 70Female 88 0.14 0.35 0 1Incumbent running 88 0.85 0.36 0 1Flood disaster 88 0.13 0.33 0 1City 88 0.43 0.50 0 1Niederbayern 88 0.16 0.37 0 1Oberbayern 88 0.32 0.47 0 1Oberpfalz 88 0.02 0.15 0 1Oberfranken 88 0.07 0.25 0 1Mittelfranken 88 0.14 0.35 0 1Unterfranken 88 0.11 0.32 0 1Schwaben 88 0.18 0.39 0 1 Table 6: Descriptive statistics (election effects; sample including changed MP candidates)
Obs. Mean Std. Dev. Min Max Total vote share CSU 2008 73 0.44 0.05 0.30 0.54Total vote share CSU 2013 73 0.48 0.06 0.34 0.61Voter turnout 2008 73 0.58 0.04 0.49 0.66Voter turnout 2013 73 0.64 0.04 0.52 0.74Hired relative 146 0.22 0.42 0 12013 146 0.50 0.50 0 1Age 146 51.00 9.11 31 70Female 146 0.17 0.38 0 1Incumbent running 146 0.69 0.46 0 1Vote margin 146 0.26 0.10 0.03 0.52Flood disaster 146 0.12 0.32 0 1City 146 0.34 0.48 0 1Niederbayern 146 0.12 0.33 0 1Oberbayern 146 0.33 0.47 0 1Oberpfalz 146 0.03 0.16 0 1Oberfranken 146 0.07 0.25 0 1Mittelfranken 146 0.16 0.37 0 1Unterfranken 146 0.11 0.31 0 1Schwaben 146 0.18 0.38 0 1
33
Table 7: Regression results. Dependent variable: Vote share CSU. Difference in differences with standard errors robust to heteroskedasticity (Huber/White/sandwich standard errors)
(1) First vote share CSU
(2) Total vote share CSU
Hired relative*2013 0.010 -0.002 (0.023) (0.017) Hired relative 0.005 0.008 (0.019) (0.010) 2013 0.018 0.029*** (0.011) (0.008) Age 0.000 -0.000 (0.001) (0.000) Female 0.017 0.008 (0.012) (0.009) Incumbent running 0.017 0.009 (0.020) (0.010) Flood disaster 0.068*** 0.059*** (0.024) (0.015) City -0.046*** -0.052*** (0.011) (0.008) Niederbayern 0.033* 0.023* (0.019) (0.013) Oberpfalz 0.105*** 0.075*** (0.022) (0.013) Oberfranken 0.063*** 0.038** (0.015) (0.017) Mittelfranken 0.015 0.012 (0.015) (0.011) Unterfranken 0.052*** 0.060*** (0.014) (0.011) Schwaben 0.039*** 0.049*** (0.013) (0.011) Constant 0.395*** 0.436*** (0.040) (0.025) Observations 88 146 R-squared 0.582 0.545
Robust standard errors in parentheses; *** p<0.01, ** p<0.05, * p<0.1
34
Table 8: Regression results. Dependent variable: Voter turnout. Difference in differences with standard errors robust to heteroskedasticity (Huber/White/sandwich standard errors)
(1) Hired relative*2013 -0.004 (0.013) Hired relative 0.002 (0.010) 2013 0.062*** (0.007) Age 0.000 (0.000) Female 0.009 (0.009) Incumbent running -0.006 (0.008) Vote margin 0.018 (0.036) Flood disaster -0.014 (0.012) City -0.031*** (0.006) Niederbayern -0.061*** (0.011) Oberpfalz -0.027 (0.018) Oberfranken -0.018* (0.010) Mittelfranken -0.008 (0.009) Unterfranken -0.029*** (0.007) Schwaben -0.049*** (0.009) Constant 0.608*** (0.018) Observations 146 R-squared 0.642
Robust standard errors in parentheses; *** p<0.01, ** p<0.05, * p<0.1