25 years on from the fall of communism, the Wall Street Journal recently told its readers, Central and Eastern Europe is still playing catch-up. The reasons are mainly economic and infrastructural. Too little growth by the standards of the Asian tigers. Too few high speed rail links. Not enough motorways. Viktor Orbán bossing it over Hungary in an ever more worrying project of illiberal transformation. A bad subsidy habit fed by an indulgent EU. A Middle Income Development Trap waiting to be sprung. And –when did this ever happen before? – progress that “ has fallen short of what many of its citizens had hoped”.
But we shouldn’t be too harsh. The WSJ is not particularly well known for the quality of its CEE reporting. And this occasion it’s absolutely right: Central and Eastern Europe is playing catch-up. The politics of catch-up, rather than geography or culture or post-communism, are probably what define the region best. If it wasn’t catching up, it wouldn’t be Central and Eastern Europe. Historians of East Central Europe such as Andrew C. Janos or Ivan Berend have long been preoccupied by the region’s long-term efforts to push its levels of socioeconomic– and political – development into line Europe’s core West European states – although they have sometimes bluntly simply spoken of “backwardness”.
The post-1989 project of European integration and enlargement, although more usually referred to in terms of ‘convergence’ or ‘Return to Europe’ is also all about one catch-up – and a very ambitious form of catch-up: overcoming deeply rooted east-west divide, which as Janos and others have noted, predates the Cold War division of Europe. Enlargement and integration – and liberal reform in CEE generally –been sold politically on the basis that the poor, historically peripheral societies of CEE will (and after a painful process of adjustment) reap the full benefits of prosperity, social welfare, democracy and freedom enjoyed by core West European societies that had the good luck to stay out of of the Soviet zone of influence after WWII.
If, in the long term, integration fails to deliver, there may be significant consequences both for the EU and for the fate of democracy and liberal institutions in Central and East European countries themselves. As recent developments in Hungary show, liberal and democratic reforms are not irreversible or consolidated as once thought or hoped. If the European project fails to deliver catch-up – or the Western model CEE was busy catching up on with proves exhausted and unattractive – it will exacerbate both centrifugal pressures in the EU and erosion of democracy in some or all of CEE. There is the uncomfortable possibility that in his nationalistic rejection of liberalism, Viktor Orbán may be a leader rather than a laggard as far as the future direction of the region is concerned – the Central European vanguard of the revolt against a broken Western model that Pankaj Mishra sees rippling out from Asia. Read More…
The results of the elections to the European Parliament which took place across the EU’s 28 member states last week very much as predicted – at least in the ‘old’ pre-2004 member states: driven by frustration with austerity, economic stagnation, diminished opportunities and a yawning sense of disconnect with established parties and politicians, a variety of outsider parties made sweeping gains and unignorably stamped themselves on the electoral map.
In Northern Europe, where socio-economic malaise and disconnect were often refracted through the politics of anti-immigration, this tended to benefit right wing, Eurosceptic parties. In Southern Europe anti-austerity parties of the radical left such as Greece’s Syriza or Podemos in Spain gained most.
The most spectacular gains were been made by parties of varying political complexions which had a long-time presence on at the political margins: UKIP in the UK, the Front National in France, Sinn Féin in Ireland. Whatever their coloration, scale of their political success underlines the potential fragility of mainstream parties in Western Europe even in states with well-established party systems previously considered immune to populist surges such as Spain or the UK.
Many commentators have lumped in the newer EU member states of Central and Eastern with the unfolding (if exaggerated) story of a populist backlash in the EU’s West European heartlands. Anticipating the strong showing of the radical right in Denmark, Holland and Austria The Observer’s Julian Coman, for example, causally assured readers that ‘across much of eastern Europe, it is a similar story’
But, in fact, it was not. Read More…
“I included a dummy for Eastern Europe” the presenter said, explaining the statistical methodology in her paper.
You have, you see, to control for the unknowable, complex bundle of historical peculiarities that mark out one half of the continent’s democracies from the other and might skew your results.
“But not just a dummy for Western Europe?” my colleague and I mischievously wondered.
Silly question. of course. And we didn’t ask it. Most comparative political science research –West European democracies in the old (pre-2004) EU as their point of departure. Most political science theories and paradigms have been framed on the experience of established (or as they are sometimes termed ‘advanced’) democracies of Western Europe and the United States. Many political models, – of democracy, interest group politics or party organisation – are abstractions and distillations of the experience Western Europe.
The task of those studying Eastern and Central Europe typically been an exercise in model fitting, of noticing and measuring up the gaps – like a tailor trying to fix up a suit made for someone else with quick alterations. Eastern Europe – despite geographical and cultural proximity success of democratisation and liberal institution building – is not Western Europe.
The normative question lurking in the background is, of course, that of catch-up and convergence: when will Central and Eastern Europe become more like Western Europe? When would it consolidate ‘Western-style democracy’? Read More…
Like most British academics I’m loath to put any of my courses through multiple committees merely for a change of name. But sometimes you come to a point where you just know that the old name’s old name’s just got to go.
The Politics of Transition and Integration in Central and Eastern Europe course has evolved since I started teaching it some ten years ago. Less on communism, more on the EU. Out with Democratic Consolidation, in with Quality of Democracy. Downplay ethnic conflict, foreground state-building and welfare state reform. Fond farewell (sniff) to George Schöpflin’s book on Eastern Europe and the ‘condition of post-communism’. Hello to a new generation of work on leverage and democracy in CEE with sharper methodology and fewer Shakespearean quotes.
And yes the end, there are no two ways about it. That name too will have to change, paperwork or no paperwork. Transition, at least in the democratisation sense of the word, is almost a historical topic. And integration (well EU membership anyway) is ten
But the difficult question, of course, now is what do I call it? If the region’s current politics are no defined by transition and integration, what does define them? Read More…
I really don’t know why John Feffer’s Huffington Post post Hungary: The Cancer in the Middle of Europe? is being so widely shared and translated.
Its starting point that things are going badly wrong in Hungary and that the country is taking a sharply illiberal turn under the conservative-national administration of Fidesz – and that in Jobbik it has a strong and virulent far-right party – is reasonable enough (although it has been made many times before). And there is indeed a climate of nationalism and anti-Roma racism on the Hungarian right, although Fidesz and Jobbik are probably as much rivals as ‘occasional allies’ especially given the stuttering performance of Hungary’s divided liberal-left.
And the transformation of Fidesz from a liberal party to conservative bloc occurred in the mid-late 1990s, not recently as some readers might assume from reading piece. Nor, being one of the major governing parties in Hungary since 1998 can Fidesz have interrupted a ‘rotating kleptocracy’ of liberal parties – the intepretation of why parties like Fidesz come to power offered in the conclusion.
But piece’s main argument that Hungary is Eastern Europe writ large or the shape things to come in the region. ‘What’s eating away at a free society in Hungary’, Feffer writes, ‘has metastasized. This same cancer is present elsewhere on the continent’.
And this is really hyperbole. Read More…
Many commentators saw the governments of non-party technocrats formed in Greece and Italy in 2011 as an ill omen for development of party-based democracy in Europe. Established parties, it is suggested, are turning to technocratic caretaker administrations as a device to manage economic and political crisis, which allows them both to duck (or least share) responsibility for painful austerity measures. Such non-partisan governments of experts, it is argued, can only widen the yawning the legitimacy gap between governors and governed.
Technocratically-imposed austerity backed by big established parties can further undermine party democracy by provoking anti-elite electoral backlashes: the rise of new populist parties or breakthroughs by previously marginal radical groups. This in turn, makes coalition formation difficult and further rounds of caretaker government or awkward left-right co-operation more likely. The success of the Five Star Movement in Italy and its difficult political aftermath, which has finally resulted in an implausible Grand Coalition, seems to illustrate this scenario perfectly. Sometimes, caretaker technocrats themselves even add to the uncertainty, revolting against their erstwhile masters and founding their own new parties.
How has the drift towards technocratic crisis management impacted Central and Eastern Europe? The region is sometimes grouped with debt- and crisis-afflicted Southern Europe states as an economically weak periphery of flawed and potentially unstable democracies, where technocratic crisis governments are the order of the day. Read More…
At an eye-watering £75 Hans Keman and Ferdinand Müller-Rommel’s new Party Government in the New Europe which came out earlier this year with Routledge is unlikely to have made it to under many people’s Christmas trees this year. It does, however, offer a quite thought-provoking, if not causally readable, a state-of-the-art survey of research on the place of parties in European democracy – and one with laudable and long overdue goal of taking in both established West European democracies and the younger democratic systems in Central and Eastern Europe (CEE).
As Keman and Müller-Rommel make clear, despite an onslaught of social and geopolitical transformation – post-modernisation, de-industrialistion, Europeanisation, globalisation and so on – patterns of European party government have proved surprisingly resilient. Although public dissatisfaction and electoral volatility have mounted in Western Europe – driving the emergence of new parties that many of us political scientists professionally know and love– old established parties have maintained a central position in government.
While an impressive feat – and mildly reassuring to the middle aged and middle of the road, the editors are almost certainly right to term is growing mismatch between the represented in parliament and the pool of from which of governing parties are drawn as a ‘gap in representational quality’. Eastern Europe’s party systems till recently also been characterised by high (if reducing) volatility, but Keman and Müller-Rommel claim, rather intriguingly, greater fluidity of parties and party systems implies less of a representation deficit. A chapter by Fernando Casal Bértoa and the late Peter Mair party system institutionalisation in CEE confirms that the region’s parties are both less institutionalised than those in earlier waves of democratisation and are bcoming, if anything, less institutionalised, but is rather less sanguine about what the prospect implies for democracy.
Political scientists have often, if somewhat implicitly, followed Schumpeter in seeing party competition as i being about picking teams of elites to govern. However, as Ian Budge and Michael McDonald point out this not only ties the profession to an elitist and technocratic model that many would find rather toxic, neglects the question nature of the democratic majorities which underpin them. More specifically, they are concerned with the question of whether – and how – elected governments’ majorities should overlap with the position of the mythical median voter in the political centre or with the electorate of largest party (which may be elsewhere).
Through a series of simulations, they find that there is often considerable tension between the two according to the format of party system and the speed and scope of policy change under a new government. Slower rates of policy change make it more straightforward to reconcile the two models of ‘democratic congruence’. Such findings Budge and McDonald note are particularly relevant to CEE, where lack of voter-party identification makes simplified party competition models of this kind a good(ish) approximation of reality.
Social policy specialists are not everyone’s idea of sexy, but – as well driving forward many of the best innovations institutional theory – they have long seen party competition as a key factor shaping policy outcomes. Perhaps not altogether surprisingly then this book features as a triple whammy of chapters in this area. Klaus Armingeon kicks off, testing whether the classical proposition that strength of left parties, leads to stronger trade unions and more egalitarian welfare states, applies to Central and East Europe. While CEE the does exactly not invalidate this view – Armingeon finds no instances of social democratic welfare states without strong left parties – many CEE case fit the West European paradigm uncomfortably: there are many instances of strong left parties with weak trade unions and minimal welfare states.
CEE party specialists might at this point nod sagely and wonder whether the region’s self-styled social democratic parties – many successors to ruling communist parties – can be straightforwardly taken at face value as programmatically ‘left’ parties. For as F.G Schmidt notes – and Armingeon himself allows – additional factors such as the national legacies of communist rule clearly needs to be factored in. Schmidt analysis of patterns of party government and social policy in CEE accordingly picks out two distinct groups of states, which intuitively make sense: the Visegrad countries and Slovenia, where – as in Western Europe – the party-political coloration of governments matter for social polciy and Bulgaria, Romania and the Baltic states where it does not.
Paul Penning top things off using Charles Ragin’s QCA to show that the left/right complexion of governing parties matters for welfare policies only in combination with factors such pre-existing benefit levels, integration into global markets or corporatism. Frustratingly, however, data limitations stop him extending the analysis to CEE, where – as in so many areas – QCA might help unpick spaghetti-like patterns of similarities and difference with the West.
Although it narrows ‘party government’ to party influence on policy, overall Party Government in the New Europe is an engaging collection, refreshingly free of padding, which gives a lucid overview of a well established but obviously still evolving research agenda. Despite the good intentions, however, it sadly makes limited progress in integrating the comparative study of Western Europe and CEE. Faced with the usual awkward patterns of difference and similarity, even chapters genuinely pan-Europe in scope fall back on the old standbys of simply juxtaposing the two halves of the New Europe or viewing the East through the prism of the West.
Like the inevitable presents of socks and aftershave, useful, familiar and not altogether unwelcome, but not quite…
The constitutional and institutional changes pushed through by Hungary’s ruling conservative-national Fidesz party following its emphatic election victory in April 2010 have attracted increasing coverage – and almost enirely negative – from academic and journalistic observers of Central European politic, foreign governments and international bodies such as the European Parliament and Council of Europe.
As well as making multiple amendments to the existing constitution, the Fidesz government has used its huge majority – it has well over the 2/3 of seats in the National Assembly required – enact a new constitution due to take effect 1 January 2012 and pass new electoral and media laws over the head of other parties, which fundamentally change the rules of the political game, destroying linstitutional checks and balances and embedding its own political influence against future majorities, which puts Hungary on course for at best low quality democracy and at worse some form of semi-authoritarian illiberal democracy.
The new constitution and related chanages, critics say, pares back power of Hungary’s previously
powerful Constitutional Court and made access to it more difficult; engineered a purge of the judiciary and created a powerful National Judicial Office (headed by its own political appointee) with extensive powers to move and (un)appoint new judges.
New media law – already the target of demonstrations earlier this year (2011) – have created new media board – staffed by Fidesz supporters and headed by prime ministerial appointee with a nine year term – which can review all media (including perhaps bloggers) for balance and impose heavy fines, resulting in self-censorship for the sake of commerical survival. Other key public appointees have similarly long terms of office and are only replace-able if new post holders are agreed by 2/3 parliamentary majority.
The charges are summarised here by Kim Lane Scheppele, who concludes that
Virtually every independent political institution has taken a hit. The human rights, data protection and minority affairs ombudsmen have been collapsed into one lesser post. The public prosecutor, the state audit office and, most recently, the Central Bank are all slated for more overtly political management in the new legal order (…)
Fidesz party loyalists …will be able to conduct public investigations, intimidate the media, press criminal charges and continue to pack the courts long after the government’s current term is over..
The new electoral law, ably discussed here by Alan Renwick, makes a number of changes to Hungary’s complex ‘mixed’ electoral system, some of which – such as the introduction of a single round of voting in single member constituencies in preference to a French-style run-off – are arguably unpredictable.
But the net effect seems to be to make a strongly majoritarian electoral system more majoritarian and to provide a probable electoral bonus for the right by allowing non-resident Hungarian citizens, which following changes to citizenship law is now likely to include hundred thousand ethnic Hungarians living in Slovakia, Romania and Serbia, to vote in parliamentary elections.
The boundaries of the single member constitutencies used to elect most deputies have also, oddl, been written into the electoral law – rather than subject to periodic independent review – making the changeable only through further constitutional amendment. Simulations linked to by Alan Renwick and Kim Scheppele suggest these are advantageous to Fidesz. More worryingly, changes to the make-up of the national Election Commission overseeing elections have reportedly seen a politically balanced body transformed into one run by Fidesz supporting appointees.
Party politics in Hungary may be further shaken up if proposed constitutional amendments listing the crimes of ruling party during communist dictatorship pass and the statue of limitations is lifted: any court cases brought against the post-communist Socialists, who are the successor party, may, Kim Scheppele suggests, bankrupt Hungary’s main moderate opposition party, leaving the far-right Jobbik as the principal oppositon to Fidesz.
There is, of course, another side the story. Fidesz supporters note the left-liberal bias to academic commentary on Hungarian politics on Hungary, which has never accepted national-conservative politics of Fidesz as legitimate; that the changes are wrongly described or exaggerated or ill informed due to the language barrier; and that some Western democracies to not meet the implied standards that Hungary is being subject to – US congressional districts boundaries, for example, are extensively gerrymandered. Fidesz is just clearing up the corrupt mess left by the Socialists, whose electoral collapse is entirely down to their own corruption. One eloquent such voice can be found in my former SSEES colleague, now a second term MEP George Schöpflin, writing in the FT, and in video below.
Some of the comments on Kim Lane Scheppele also reasonably dispute some points of fact.
I have tried to look things over from this angle, but even taking these points on board – and some of them are I suspect are valid – they fail to address the substance of the criticism: George Schöpflin’s performance stressing misunderstanding and bad faith is sadly unconvincing. It is hard to not to interpret the changes as, whatever else they are, a very illiberal, ill advised and divisive power grab by the Hungarian right.
It is also one which I suspect will rebound both on Hungarian conservative-national right itself: some of the changes, such as the new electoral system will be rather unpredictable. Even allowing for partisan boundary changes – whose partisan effects can change over time quite quickly as the UK experience illustrates – a majoritarian system favours the right only so long as it is politically cohesive and has majority support. The bad economic weather suggests even with a tame media, any incumbent is likely to see its support rapidly erode.
The other concerns the divided nature of Hungary. As The Economist suggests there is a large liberal and left-wing Hungary: the Socialists and their liberal allies had, after all, until the 2010 meltdown, offered pretty stiff competition. Although the far-right seems to be offering stiff competion for the votes of the economically disempowered, there is no reason to think that in the longer term, over a period of years, that a new centre-left bloc of some kind would not emerge. Indeed, the possible demise of the post-communist successor party might be a boon: in Poland the liberal Civic Platform now fills the space once taken by the post-communist left, while in Slovenia a new reformist centre-left bloc stepped almost effortless into the shoes of the discredited post-communist Social Democrats (SD) and Liberal Democrats (LDS).
But if – or perhaps when electoral support for Fidesz goes South – any left-liberal majority, will either have to come up with a 2/3 majority of its own (perhaps not altogether impossible) and carry out its own counter-revolution, or bump up the constitutional entrenchments now being put in place. (As George Schöpflin explains above, there will be no provision to change the constitution by referendum. ) The result perhaps five or ten years down the line would seem to be some very high stakes electoral politics – with all the temptations that will throw up – and/or the severest of constitutional crises, possibly attended by a very intense politics of civic mobilisation: this, after all, is way change happens when institutional channels to change are blocked and people sense that democracy has been rigged.
How could all this happen? Hungary, after all, was supposed to be one Central and Eastern Europe’s most consolidated new democracies, yet suddenly leaves us dusting off our Fareed Zakharia and contemplating the prospects for a kind of Coloured Revolution on the Danube. Could it – or something like it – happen elsewhere in the region? Weren’t people like me telling you that CEE was a region flawed but basically normal democracies?
There seem to several factors which have enabled democratic derailment:
- Majoritarian electoral system, which, if there is a big electoral win for one side and/or a collapse for the other (Fidesz polled 53% in 2010), would result in a constitutional majority in parliament. In CEE conditions, where electorates are volitile and economies (now) vulnerable, this was, in hindsight, perhaps just a matter of time
- A unicameral parliament, or a least a weak upper chamber. Hungary has no upper house.
- Well organised, cohesive party organisation. Single member districts and majoritarian electoral systems tend to promote this.
- A party with a strong sense of ideological mission: if you are going to seize the chance to remake the constitutional order you need to believe in what you doing. Conservative-national parties in states like Hungary which had a negotiated, compromise transition in 1989, see politics as a part of a ‘thick transition’ – a long-term struggle to finish the revolutionary work of 1989, by eliminating the (ex-)communist nomenklatura from public left.
Elsewhere the region, some other states partially fulfill these conditions: Poland’s Law and Justice (PiS) had a similar anti-communist conservative-national outlook, but – like all governing parties – due to PR never had the votes or seats to contemplate giving its vision of a new ‘Fourth Republic’ constitutional form and is now politically on the back foot.
Romania Bulgaria and Slovakia appear slightly riskier propositions: the latter are both unicameral democracies, while the Romanian Senate closely mirrors the lower house. All have strong (soon-to-be) ruling parties seen by some as having illiberal inclinations: however, none seem to have the sense of ideological mission needed – two, Romania’s PSD and Slovakia’s SMER, are loosely social democratic, while Bulgaria’s GERB is a loose knit centrist or centre-right party of power.
None seem likely to come near 2/3 majority required to amend or replace the constitution (3/4 in Bulgaria should you merely want to amend), although Bulgaria’s GERB whose electoral support sits around 40% and is suspected by critics of sporadic electoral fraud might just manage an absolute parliamentary majority.
If we think the worst of such parties, then a more informal strategy of co-optation, corruption and politicisation of the state apparatus, spiced with the odd draconian media law, is perhaps what we should expect.
The lessons of Hungary’s complex and unfolding, but probably unique, situation is that the political and power instincts of CEE parties and politicians are, indeed, be as bad as we feared, but that fragmented and loose parties and PR are like to keep democracy – albeit corrupt and flawed – in most places safe from frontal assualt by the region’s politicians.