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Original Articles

Rule Makers and Rule Takers: On Volkspartei Adaptation and Strategy

Pages 89-104 | Published online: 12 Mar 2010
 

Abstract

The last three decades has seen a steady electoral decline in the Volksparteien, culminating in the historically low share of the vote garnered by the CDU/CSU and SPD in the 2009 federal election. Despite this low vote share, and the poor performance of the SPD in particular, this article argues that party system change has in many ways enhanced the coalition options available to the Volksparteien. However, with reference to the notion of path dependence and the associated role of rules, norms and beliefs in locking in standard operating procedures, the article argues that the CDU/CSU is better placed than the SPD to take advantage of these new strategic options. This is because the CDU/CSU has been and remains more capable of shaping German party politics, whereas the SPD has internalised a more reactive role. The article examines why this is the case and discusses how the SPD might overcome path dependence and, in doing so, transform its strategic prospects.

Notes

O. Niedermayer, ‘Das Parteiensystem Deutschlands’, in R. Stöss, M. Hass and O. Niedermayer (eds.), Die Parteiensysteme Westeuropas (Wiesbaden: VS Verlag für Sozialwissenschaften, 2006), pp.109–34.

C. Lees ‘The Paradoxical Impact of Party System Change in Germany’, Paper presented at the APSA 100th Annual Meeting and Exhibition, Metro Toronto Convention Centre, Toronto, Canada, 3–6 Sept. 2009.

For a detailed analysis of the PDS/WASG merger see J. Olsen, ‘The Merger of the PDS and WASG: From Eastern German Regional Party to National Radical Left Party?’, German Politics 16/2 (2007), pp.205–21; see also C. Lees, D. Hough and D. Keith, ‘Towards an Analytical Framework for Party Mergers – Operationalising the Cases of the German Left Party and the Dutch GroenLinks’, West European Politics 33 (2010), forthcoming.

C. Lees, ‘The German Party System(s) in 2005 – A Return to Volkspartei Dominance’, in C. Clemens and T. Saalfeld (eds.), The German Election of 2005: Voters, Parties and Grand Coalition Politics (Abingdon: Routledge, 2008).

T. Albrecht, ‘The German Elections: Consequences for the SPD’ (London: Friedrich Ebert Stiftung briefing paper, 2009), pp.2–3.

W. Streeck and K. Thelen, Beyond Continuity: Institutional Change in Advanced Political Economies (Oxford: Oxford University Press, 2005).

G. Tsebelis, Nested Games: Rational Choice in Comparative Politics (Berkeley: University of California Press, 1990); M. Laver and N. Schofield, Multi-Party Government: The Politics of Coalition in Europe (Oxford: OUP, 1990); K.A. Shepsle and B.R. Weingast, ‘Studying Institutions: Lessons from the Rational Choice Approach’, Journal of Theoretical Politics 1 (1995), pp.131–47.

W.H. Riker, ‘Implications from the Disequilibrium of Majority Rule for the study of Institutions’, American Political Science Review 74 (1980), pp.432–46.

E. Ostrom, ‘An Agenda for the Study of Institutions’, Public Choice 48 (1986), pp.3–25.

J.G. March and J.P. Olsen, ‘The New Institutionalism: Organisational Factors in Political Life’, American Political Science Review 78 (1984), p.738.

M.G. Cowles, J. Caporaso and T. Risse (eds.), Transforming Europe (Ithaca, NY/London: Cornell University Press, 2001); C. Radaelli, ‘Europeanisation: Solution or Problem?’, in M. Cini and A. Bourne (eds.), The Palgrave Guide to European Studies (Basingstoke: Palgrave, 2005).

S. Saurugger, ‘The Professionalisation of Interest Representation: A Problem for the Participation of Civil Society in EU Governance?’, in S. Smismans (ed.), European Governance and Civil Society (Cheltenham: Edward Elgar, 2006), pp.260–76.

See for example S. Krasner, ‘Approaches to the State: Alternative Conceptions and Historical Dynamics’, Comparative Political Studies, 21 (1988), pp.223–46.

See for example P. Pierson, Politics in Time: History, Institutions, and Social Analysis (Princeton, NJ: Princeton University Press, 2004).

Krasner, ‘Approaches to the State’, p.242.

A. Arthur, ‘Competing Technologies, Increasing Returns, and Lock-in by Historical Events’, Economic Journal 97 (1989), pp.642–5; J. Mokyr, ‘Evolutionary Biology, Technological Change and Economic History’, Bulletin of Economic Research 43 (1991), pp.127–47.

Examples of real-world instances of the lock-in of sub-optimal outcomes to be found in the literature include, for instance, the persistence of the QWERTY keyboard over the superior Dvorak alternative in the 1870s and the victory of the VHS video format over the Beta system a century later. There is disagreement in the literature about the extent to which these instances are actually examples of the lock-in of suboptimal choices but there is agreement about the analytical power of the positive feedback concept itself.

L.A. Bebchuck and M.J. Roe, ‘A Theory of Path Dependence in Corporate Governance and Ownership’ (New York: Columbia Law School Working Paper Series, No. 192414, 1999).

In organisational terms, the new party had little central core, but rather was built around state parties dominated by local notables who controlled membership and, after 1949, party funds and communications with Bonn. Before 1949, rivalry between these regions was often intense and it was through this conflict that the organisational division between the CDU and CSU was forged (C. Lees, Party Politics in Germany: A Comparative Politics Approach (Basingstoke: Palgrave MacMillan, 2005).

This struggle was replicated in Bavaria, where state parliament leader Alois Hundhammer's particularist/capitalist approach won out over the more cross-confessional/Kaiser-esque policies of Josef Muller.

M. Archer, Realist Social Theory: The Morphogenetic Approach (Cambridge: Cambridge University Press, 1995).

Lees, Party Politics in Germany.

S. Padgett and T. Burkett, Political Parties and Elections in Western Germany (London: Hurst/St. Martins, 1986), p.107.

S. Padgett (ed.), Parties and Party Systems in the New Germany (Aldershot: Dartmouth, 1993), pp.39–41.

S. Padgett, ‘Superwahljahr in the new Länder: polarisation in an open political market’, German Politics 4/2 (1995), p.87.

P. Gluchowski and U. von Wilamowitz-Moellendorff, ‘Sozialstrukturelle Grundlagen des Parteienwettbewerbs in der Bundesrepublik Deutschland’, in O. Gabriel et al. (eds.), Parteiendemokratie in Deutschland (Opladen: Westdeutsche Verlag, 1997).

Lees, Party Politics in Germany.

R. Dalton and M. Kuechler (eds.), Challenging the Political Order: New Social and Political Movements in Western Democracies (Oxford: Oxford University Press, 1990).

Albrecht, ‘The German Elections’, pp.2–3.

For far more advanced discussions of Pareto Optimality, see A. Sen, ‘Markets and freedom: achievements and limitations of the market mechanism in promoting individual freedoms’, Oxford Economic Papers 45/4 (1993), pp.519–41.

Article 21 paragraph 3 of the Basic Law sets out clear parameters for party organisation, with a strong emphasis on the internal political processes by which parties formulate their ‘political line’. These parameters were firmed up in the German Party Law of 1967 and cover such areas as: (1) Regulating the grass roots level of organisation; (2) Admission to and resignation from political parties; (3) Elections and votes within political parties; (4) Ballots in the case of the dissolution of political parties or their consolidation; (5) Ex officio members in party institutions; (6) Arbitration and internal party discipline; (7) Protection of minorities with party organisations.

J.F. Banzhaf III, ‘Weighted Voting Doesn't Work: A Mathematical Analysis’, Rutgers Law Review 19 (1965), pp.317–43.

The Banzhaf index is contested in the literature. For more on this see C. Lees and A. Taylor, ‘Explaining the 2005 Coalition Formation Process in Germany – A Comparison of Power Index and Median Legislator Coalition Models’, Politics 26/3 (2006), pp.151–60.

F. Pappi, ‘The West German Party System’, West European Politics 7 (1984), pp.7–26.

For the empirical application of rent-seeking models to democracies see C. Calderón and A. Chong, ‘Do Democracies Breed Rent-seeking Behavior?’, Journal of Policy Reform 9/4 (2006), pp.247–60.

E. Wiesendahl, ‘Der Marsch aus den Institutionen’, in Aus Politik und Zeitgeschichte, B21 (1990).

E. Scheuch and U. Scheuch, Cliquen, Klüngel und Karrieren (Hamburg: Reinbek, 1992).

C. Lees, The Red–Green Coalition in Germany: Politics, Personalities and Power (Manchester: Manchester University Press, 2000).

C. Lees, ‘Social Democracy and Structures of Governance in Britain and Germany: How Institutions and Norms Shape Political Innovation’, in L. Martell et al. (eds.), Social Democracy: Global and National Perspectives (Basingstoke: Palgrave, 2001).

See R.S. Katz and P. Mair, ‘Changing Models of Party Organization and Party Democracy: The Emergence of the Cartel Party’, Party Politics 1 (1995), pp.5–28; R.S. Katz and P. Mair, ‘Cadre, Catch-all or Cartel? A Rejoinder’, Party Politics 2 (1996), pp.525–34; R.S. Katz and P. Mair, ‘Ascendancy of the Party in Public Office: Party Organizational Change in Twentieth-Century Democracies’, in R. Gunther, R.M. Montero and J.J. Linz (eds.), Political Parties: Old Concepts and New Challenges (Oxford: Oxford University Press, 2002), pp.113–35.

C. Lees and A. Taylor, ‘Exposing Norms, Values, and Practices in Coalition Formation: A Comparative Analysis of Germany and New Zealand’ (Mimeo. Sheffield: University of Sheffield, 2009).

D. Hough, M. Koß and J. Olsen, The Left Party in Contemporary German Politics (London: Palgrave, 2007).

Lees, The Red–Green Coalition in Germany.

Bebchuck and Roe, ‘A Theory of Path Dependence in Corporate Governance and Ownership’.

C. Lees, ‘Bringing the PDS into the Coalition Equation’, German Politics 4/1 (1995), pp.150–54.

See Martell et al., Social Democracy.

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