PARTY PATRONAGE AND PARTY GOVERNMENT IN EUROPEAN DEMOCRACIES COMPARATIVE POLITICS ComparativePoliticsisaseriesforstudents,teachers,andresearchersofpoliticalsciencethatdeals withcontemporarygovernmentandpolitics.Globalinscope,booksintheseriesarecharacterizedby astressoncomparativeanalysisandstrongmethodologicalrigour.Theseriesispublished inassociationwiththeEuropeanConsortiumforPoliticalResearch.Formoreinformationvisit www.ecprnet.eu TheComparativePoliticsseriesiseditedbyProfessorDavidM.Farrell,SchoolofPolitics andInternationalRelations,UniversityCollegeDublin,KennethCarty,ProfessorofPoliticalScience, UniversityofBritishColumbia,andProfessorDirkBerg-Schlosser,InstituteofPoliticalScience, PhilippsUniversity,Marburg. OTHERTITLESINTHISSERIES ParliamentsandCoalitions TheRoleofLegislativeInstitutionsinMultipartyGovernance LannyW.MartinandGeorgVanberg WhenCitizensDecide LessonsfromCitizensAssembliesonElectoralReform PatrickFournier,HenkvanderKolk,R.KennethCarty,AndréBlais,andJonathanRose PlatformorPersonality? TheRoleofPartyLeadersinElections AmandaBittner PoliticalLeadersandDemocraticElections EditedbyKeesAarts,AndréBlais,andHermannSchmitt ThePoliticsofPartyFunding StateFundingtoPoliticalPartiesandPartyCompetitioninWesternEurope MichaelKoß DesigningDemocracyinaDangerousWorld AndrewReynolds DemocracywithinParties CandidateSelectionMethodsand TheirPoliticalConsequences ReuvenY.HazanandGideonRahat PartyPoliticsinNewDemocracies EditedbyPaulWebbandStephenWhite IntergovernmentalCooperation RationalChoicesinFederalSystemsandBeyond NicoleBolleyer TheDynamicsofTwo-PartyPolitics PartyStructuresandtheManagementofCompetition AlanWare CabinetsandCoalitionBargaining TheDemocraticLifeCycleinWesternEurope EditedbyKaareStr(cid:2)m,WolfgangC.Müller,andTorbjörnBergman Party Patronage and Party Government in European Democracies EDITED BY PETR KOPECKÝ, PETER MAIR, AND MARIA SPIROVA 1 3 GreatClarendonStreet,Oxford,OX26DP, UnitedKingdom OxfordUniversityPressisadepartmentoftheUniversityofOxford. ItfurtherstheUniversity’sobjectiveofexcellenceinresearch,scholarship, andeducationbypublishingworldwide.Oxfordisaregisteredtrademarkof OxfordUniversityPressintheUKandincertainothercountries #PetrKopecký,theestateofPetrMair,andMariaSpirova2012 Themoralrightsoftheauthorshavebeenasserted FirstEditionpublishedin2012 Impression:1 Allrightsreserved.Nopartofthispublicationmaybereproduced,storedin aretrievalsystem,ortransmitted,inanyformorbyanymeans,withoutthe priorpermissioninwritingofOxfordUniversityPress,orasexpresslypermitted bylaw,bylicenceorundertermsagreedwiththeappropriatereprographics rightsorganization.Enquiriesconcerningreproductionoutsidethescopeofthe aboveshouldbesenttotheRightsDepartment,OxfordUniversityPress,atthe addressabove Youmustnotcirculatethisworkinanyotherform andyoumustimposethissameconditiononanyacquirer BritishLibraryCataloguinginPublicationData Dataavailable LibraryofCongressCataloginginPublicationData Dataavailable ISBN 978–0–19–959937–0 PrintedinGreatBritainby MPGBooksGroup,BodminandKing’sLynn LinkstothirdpartywebsitesareprovidedbyOxfordingoodfaithand forinformationonly.Oxforddisclaimsanyresponsibilityforthematerials containedinanythirdpartywebsitereferencedinthiswork. Preface Thisbookhasbeenlongincoming.BackinApril2006,PetrKopeckýandPeter MairorganizedaworkshopattheJointSessionsoftheEuropeanConsortiumfor PoliticalResearchinNicosiaentitled‘PoliticalPartiesandPatronage’.Thisbook is in many ways the outcome of what began at that meeting. The workshop discussions led to the formulation of our research agenda, selection of cases among the European democracies, and the recruitment of the core of the con- tributorstothisvolume.Weareverygratefultoalltwenty-twoparticipantsofthat workshopfortheircontributionsandstimulatingcomments. Our approach to understanding and measuring party patronage was initially developed for a comparative study of party patronage in new democracies. This pilotstudybeganinJanuary2004andfocusedonfivenewdemocracies:Argen- tina, Ghana, Bulgaria, the Czech Republic, and South Africa. The study laid the basis for the analytical framework taken in this book. It has also led to several studiespublishedparalleltothisvolume.WewouldliketothankGerardoScherlis Perelforhiscontributiontodevisingourinitialapproachtothesubject,andforits brilliantapplicationtothecaseofArgentina. It is still hard to believe that after collecting data on Bulgaria and the Czech Republic, we managed to convince thirteen other country teams to apply our methodologywithoutanymajorchanges,engageinquitedemandingdatacollec- tion,andwriteexcellentanalysis,allintheperiodofaboutthreeyears.Itdidtake some organizationaleffortandplanningandthree additional workshopmeetings in Florence and Leiden. But all this means that we now have a consistent comparative analysis of party patronage in fifteen democracies. We are very gratefultothewholeteamofcontributorsfortheirefforts. Variousinstitutionshavesupportedusfinanciallyalongtheway:aVIDIgrant (Innovational Research Incentives Scheme) from the Dutch Organization for Scientific Research (NWO) provided the resources for the original study in the five new democracies, and the basis for this volume as well; the European UniversityInstituteprovidedfinancialsupportforoneoftheadditionalmeetings that we held. The execution of the country studies was financed by additional grantsacknowledged,whereappropriate,withintheindividualcountrychapters. Wearealsogratefultoallourcolleagueswhohelpedusorganizetheinterviews with647expertsinthefifteencountries,andofcoursetotheexpertsthemselves. None of this would have been possible without the cooperation of this latter group, who gave us their time and shared their knowledge about patronage appointmentsintheirrespectivecountries.Wewouldalsoliketoacknowledgethe insightfulassistanceofseveralresearchmasterstudentsatLeidenUniversity,who vi Preface are,bythepublicationofthisbook,alreadyestablishingtheirownacademiccareers: YvettePeters,EdwardKoning,KristianVossandJoostWaterborg. Thelastthingisthehardestforustowrite.PeterMair’suntimelydeath,which occurred shortly after we submitted the volume to the press, deprives us of the possibility to share the moment of publication withhim.Anybody who has ever workedwithPeterwillrecognizeinstantlythatthisvolumewouldnothavebeen the same without his contribution. Without him, the time that we spent on this projectwouldalsonothavebeenfilledwithsomuchfunandjoy.Wededicatethis booktohismemory. PetrKopeckýandMariaSpirova,Leiden, October2011 Table of Contents ListofFigures ix ListofTables xi ListofAbbreviations xiii Part1: StudyingPartyPatronage 1. PartyPatronageasanOrganizationalResource 3 Petr Kopecký and Peter Mair 2. MeasuringPartyPatronageThroughStructuredExpert Interviews 17 Petr Kopecký and Maria Spirova Part2: PartyPatronageinEurope 3. PartyPatronageinAustria:FromRewardtoControl 31 Oliver Treib 4. ‘ATraditionWeDon’tMessWith’:PartyPatronage inBulgaria 54 Maria Spirova 5. GiveMeTrafika:PartyPatronageintheCzechRepublic 74 Petr Kopecký 6. PartyPatronageinDenmark:TheMeritStatewithPolitics ‘OntheSide’ 92 Carina S. Bischoff 7. PartyPatronageinGermany:TheStrategicUse ofAppointments 121 Stefanie John and Thomas Poguntke 8. PartyPatronageinGreece:PoliticalEntrepreneurshipinaParty PatronageDemocracy 144 Takis S. Pappas and Zina Assimakopoulou 9. PartyPatronageinHungary:CapturingtheState 163 Jan-Hinrik Meyer-Sahling and Krisztina Jáger viii TableofContents 10. PartyPatronageinIceland:RewardsandControlAppointments 186 Gunnar Helgi Kristinsson 11. PartyPatronageinIreland:ChangingParameters 206 Eoin O’Malley, Stephen Quinlan, and Peter Mair 12. PartyPatronageinItaly:AMatterforSolitaryLeaders 229 Fabrizio Di Mascio 13. PartyPatronageintheNetherlands:SharingAppointments toMaintainConsensus 250 Sandra van Thiel 14. AppointmentstoPublicAdministrationinNorway:NoRoom forPoliticalParties? 272 Elin Haugsgjerd Allern 15. PartyPatronageinPortugal:TreadinginShallowWater 294 Carlos Jalali, Patrícia Silva, and Diogo Moreira 16. PartyPatronageinSpain:AppointmentsforPartyGovernment 316 Raúl Gómez and Tània Verge 17. PartyPatronageintheUnitedKingdom:APendulumofPublic Appointments 335 Matthew Flinders and Felicity Matthews Part3: Conclusion 18. Conclusion:PartyPatronageinContemporaryEurope 357 Petr Kopecký and Peter Mair Appendix1:ProcedureforDataAggregationandCommonIndicators 375 Appendix2:QuestionnairefortheExpertInterviews 376 Appendix3:InstitutionsCoveredbytheAnalysisinGermany 378 Bibliography 382 Index 411 List of Figures 2.1 Mapofagenericstate 22 3.1 MotivationsforpartypatronageinAustria 45 3.2 QualificationsofappointeesinAustria 46 3.3 Patronagepower 46 4.1 Percentageofrespondentswhobelievethatpolitical appointmentshappennever,sometimes,andoftenin 2000and2005,inBulgaria 60 4.2 MotivationsforpartypatronageinBulgaria 63 4.3 QualificationsofappointeesinBulgaria 66 5.1 MotivationsforpartypatronageintheCzechRepublic 84 5.2 QualificationsofappointeesintheCzechRepublic 86 6.1 Institutionsintheminister’sportfolio—theagencymodel (anidealtype) 95 6.2 PartyrolesinDenmark 106 6.3 MotivationsofpatronageinDenmark 108 6.4 QualificationsofappointeesinDenmark 110 7.1 Germany:relevantactorsforappointmentswithinfederal ministries 130 7.2 North-RhineWestphalia:relevantactorsforappointments withinministries 133 7.3 MotivationsforpartypatronageinGermany 137 7.4 QualificationsofappointeesinGermany 138 8.1 MotivationsforpartypatronageinGreece 155 8.2 QualificationsofappointeesinGreece 156 9.1 SelectorsofpoliticalappointeesinHungary 179 9.2 QualificationsofappointeesinHungary 181 9.3 MotivationsforpartypatronageinHungary 182 9.4 Distributionofjobsbetweengovernment andoppositionpartiesinHungary 183 10.1 MotivationsforpartypatronageinIceland 201 10.2 QualificationsofappointeesinIceland 202