political culture and institutional change political culture and institutional change john coakley,...

POLITICAL CULTURE AND INSTITUTIONAL CHANGE

POLITICAL CULTURE AND INSTITUTIONAL CHANGEJohn Coakley, School of Politics and

International Relations, UCD


OUTLINE

PRINCIPAL TOPICS

• The dilemma: culture v. institutions• Political representation• Process of government


THE DILEMMA

• Institutional reform can transform political realities overnight(e.g. change electoral system)

• Political cultural values change much more slowly(e.g. public’s and politicians’ expectations regarding political norms)

• Effectiveness of institutional change will depend on compatibility with political cultural values(legal/constitutional reform will not necessarily translate into substantive change; e.g. ministerial appointments)


THE DILEMMA

A PARADOX OF IRISH POLITICAL CULTURE

• Rejection of overt British influence(e.g. symbolised in Dáil itself; current Dáil is 28th since foundation of state, not 30th)

• Acceptance of British models of government(e.g. parliamentary usage, expression “another place”)


POLITICAL REPRESENTATION

ISSUES IN IRISH POLITICAL DEBATECONDITIONED BY BRITISH MODEL?

• Do we need a second chamber?(jury still out?)

• Is the Dáil too large?(UK ratio would imply Dáil of about 50;but “critical mass” and historical arguments)

• Should the Dáil electoral system be changed?



ELECTORAL SYSTEM

12.3.3° [President] The voting shall be by secret ballot and on the system of proportional representation by means of the single transferable vote.

16.2.5° [Dáil] The members shall be elected on the system of proportional representation by means of the single transferable vote.

18.5 [Seanad] Every election of the elected members of Seanad Éireann shall be held on the system of proportional representation by means of the single transferable vote, and by secret postal ballot.



ELECTORAL SYSTEM

• Terminology implies “British” system of PR is seen as the “normal” one

• Cultural understanding and language use allows non-proportional systems (e.g. alternative vote) to be described as “PR in single-member constituencies”

• In reality, list system is “normal”• Electoral reform will not necessarily change

cultural expectations (cf pre-1914 Ireland)



IMPLICATIONS OF PROPORTIONAL REPRESENTATION

• Large constituencies (5+?)• Fixed constituency boundaries (equity

through reapportionment, not redistricting)

• No by-elections


PROCESS OF GOVERNMENT

OFFICE HOLDERS

• Role of President• Choice of Taoiseach• Selection of ministers


PROCESS OF GOVERNMENT

PRESIDENT OF IRELAND• Limited explicit powers; great authority12.1. There shall be a President of Ireland (Uachtarán

na hÉireann), hereinafter called the President, who shall take precedence over all other persons in the State and who shall exercise and perform the powers and functions conferred on the President by this Constitution and by law.

12.2.1° The President shall be elected by direct vote of the people.

• Political cultural expectations imply minimalist role (1982 v. 1994)


PROCESS OF GOVERNMENTA SPACE FOR THE KING OF IRELAND29.4.2° For the purpose of the exercise of any executive function of the State in or in connection with its external relations, the Government may to such extent and subject to such conditions, if any, as may be determined by law, avail of or adopt any organ, instrument, or method of procedure used or adopted for the like purpose by the members of any group or league of nations with which the State is or becomes associated for the purpose of international co-operation in matters of common concern.


PROCESS OF GOVERNMENTTHE TAOISEACH

•Constitution unusually explicit:13.1.1° The President shall, on the nomination of Dáil Éireann, appoint the Taoiseach, that is, the head of the Government or Prime Minister.

•Apparent differences from British model, but office based on that of British prime minister


PROCESS OF GOVERNMENTGOVERNMENT MINISTERS

•Constitution sets boundaries:28.1. The Government shall consist of not less than seven and not more than fifteen members who shall be appointed by the President in accordance with the provisions of this Constitution.28.7.1° The Taoiseach, the Tánaiste and the member of the Government who is in charge of the Department of Finance must be members of Dáil Éireann.28.7.2° The other members of the Government must be members of Dáil Éireann or Seanad Éireann, but not more than two may be members of Seanad Éireann.•Boundaries narrowly interpreted (maximise number of TD ministers; minimise Dáil support)


PROCESS OF GOVERNMENTGOVT RELATIONS WITH PARLIAMENT

1.Government is answerable to parliament, and:(a)Ministers must be MPs(b)Ministers may (but need not) be MPs (c)Ministers may not be MPs

2.Government is not answerable to parliament (and ministers are not MPs)

PARLIAMENTARY SYSTEM

PRESIDENTIAL SYSTEM


PROCESS OF GOVERNMENT1(a) PARLIAMENT CONTROLS GOVERNMENT:

MINISTERS ARE PARLIAMENTARIANS

GOVT.

PARLIAMENTExamples:Ireland,United Kingdom


PROCESS OF GOVERNMENT1(b) PARLIAMENT CONTROLS GOVERNMENT:

MINISTERS MAY BE PARLIAMENTARIANS

GOVT.

PARLIAMENTExamples:Germany,Italy


PROCESS OF GOVERNMENT1(c) PARLIAMENT CONTROLS GOVERNMENT:MINISTERS MAY NOT BE PARLIAMENTARIANS

GOVT.PARLIAMENT

Examples:France,NorwayNetherlands


PROCESS OF GOVERNMENT2. PARLIAMENT DOES NOT CONTROL

GOVERNMENT: MINISTERS MAY NOT BE PARLIAMENTARIANS

GOVT.PARLIAMENT

Examples:USA, otherwestern hemisphere


0 20 40 60 80 100

1981-Jun

1982-Mar

1982-Dec

1987-Mar

1989-Jul

1992-Feb

1993-Jan

1994-Dec

1997-Jun

2002-Jun

2007-Jun

Dáil seats FF FG Lab Green PD DL

PROCESS OF GOVERNMENTRECENT GOVERNMENTS: DÁIL SUPPORT

overallmajority(83 seats)


CONCLUSION

Political cultural values predispose us towards particular expectations:

1.We need a second chamber (Seanad)2.Dáil size should be relatively large3.We need small Dáil constituencies4.Constituency boundaries should be

revised frequently


CONCLUSION

Political cultural values predispose us towards particular expectations:

5.Casual Dáil vacancies must be filled by by-election

6.The President should not play a political role

7.Ministers should all be parliamentarians8.Governments should be “minimum

winning coalitions”


THE END …

political culture and institutional change political culture and institutional change john coakley,...

Documents