Presidentialization in Turkey

As previously discussed at F&V, Turkey has made the constitutional change from parliamentary to premier-presidential system. The country’s first-ever direct election of the presidency is on 10 August (first round).

A headline today is a nice summary of the sort of things presidentialization can do to political parties: “Turkey’s secular opposition endorses devout Muslim for president“.

The two parties in question, the Republican People’s Party (CHP) and Nationalist Movement Party (MHP), would be unlikely to have nominated for prime minister someone like Ekmeleddin Ihsanoglu, described as “devout Muslim tasked with winning votes from the AKP’s traditionally pious electorate”. They also would have been somewhat unlikely to forge a pre-electoral coalition. However, given the need to appeal to the median voter against the incumbent Islamist prime minister, Recep Tayyip Erdogan, who will be seeking to move to the directly elected presidency, the opposition parties have devised a new vote-seeking strategy.

As the news item also makes clear, not everyone in the parties is happy about it. Yes, I have seen this sort of thing before…

Party-switching on the way to the top

While updating, via a comment, my post about the incumbent Vice President of Panama who had become opposition leader and has now been elected President, I got to probing some of the biographical data.

I cite some data there about the propensity of vice presidents to become president, and of presidents (whether previously VP or not) to change parties prior to making it to the top job. I noted that presidents are significantly more likely to have changed parties at some point than are prime ministers in parliamentary systems: 40.7% vs. 24.6%.* This is, of course, totally consistent with the theory of “presidentialized” parties, whereby party loyalty is less important than electability when assessing candidates for the top job.

I wondered about premiers in the two sub-types of semi-presidential system.

We have data on the career-long party affiliations of 105 premiers in premier-presidential systems and 134 premiers in president-parliamentary systems. The basic distinction by subtype is in whether the formal accountability of the premier is exclusively to the legislative majority (premier-presidential) or dually to the legislature and president (president-parliamentary).

35.1% of premier-presidential premiers had switched parties before ascending to the post, whereas only 17.1% of their counterparts in the other subtype had. That is significant at p=.002.

The effect is in the direction that I expected but bigger than I expected. I figured that where the presidency is the more dominant constitutional actor, i.e. in the president-parliamentary systems, presidents would tend to appoint loyalists, who in turn are less likely to have switched parties at some point.

However, that more than a third of premiers in premier-presidential systems have switched strikes me as high. This is, allegedly, the more “parliamentary” of the two subtypes. On the other hand, that they come down right between the top executives in the two pure types makes sense. In fact, the differences between premier-presidential premiers and either parliamentary PMs or elected presidents (of any regime type) are not significant.

Thus, at least in terms of their tendency to have party-switched, premiers in premier-presidential systems mirror the genuine hybridity of their regime type, whereas their counterparts in president-parliamentary systems look like the ultimate in loyalists. That seems about right!

* That’s presidents of pure presidential systems; if we include semi-presidential presidents, it hardly changes: 41.6%. In some respects, presidents are presidents, regardless of other regime features.

A vice president is not an outsider, Panama edition

In Sunday’s election in Panama, the incumbent Vice President was elected President. The BBC headline reads, “Outsider Juan Carlos Varela wins Panama election”. But wait, he is the Vice President. That most certainly does not meet any sensible definition of an “outsider”.

Yes, as the BBC notes, Varela had become the leader of the opposition after a falling out with current President Ricardo Martinelli. Presidents and other officeholders of their parties falling out once the president has been elected is pretty ordinary in presidential democracies. So are elections of outsiders. But you really can’t get more insider than a vice president, regardless of his relation with the chief.

Oh, I could (co-)write a book about such things.

UPDATE: In a comment, I take a look at what little data I have to shed a (little) light on the matter.

Young and inexperienced–how common?

New Italian PM Matteo Renzi has never served in the national legislature or cabinet (till now), and is only 39. These are unusual characteristics. Usually parliamentary parties prefer to “vet” their executive talent for a while through having them serve in the legislature and/or cabinet before being elevated to the top job (much more so than in presidential systems, where the candidate for the top job has to be able to win a plurality or majority as an individual–see Samuels and Shugart, 2010, 2014).

How common is it for the head of government of a parliamentary democracy to be as young and inexperienced as Renzi? Some insight comes from the Executives Biographical data of Samuels and Shugart. Here I offer some lists selected with intent to compare Renzi to other PMs. Caveat: in addition to being post-WWII only, the dataset ends with 2005. I won’t be updating it any time soon, but of course I would welcome readers’ additions via comments to this entry.

The first list (Dropbox link) is of all the parliamentary PMs in the dataset who had never served in the legislature before, along with how many years they had served in the cabinet prior to becoming PM (yrscab) and their age when starting their stint as PM (agestart). The list contains only 24 names–these are all the PMs in parliamentary systems who had no prior legislative service. That’s out of 411 total. So lack of legislative experience is quite rare. Exactly one of them was younger than Renzi is now (Vasile Petru Tarlev of Moldova, 38 when he took the job in 2001). Several on this list can be explained through newness of the democratic regime itself (e.g. Mandela) or immediate post-war years. You will note the multiple appearances of a few countries* on the list, including… Italy.

A second list has all parliamentary prime ministers who assumed the position before the age of 40. It is also a short list, and it is heavily dominated by young democracies, mainly in Central-Eastern Europe. It looks like our youth champion is Pandeli Majko of Albania, 31 when he assumed the job in 1998, followed by Mart Laar of Estonia, 32 when he became PM in 1992; Laar began a second stint seven years later, when he was still about the age of Renzi now. We also see from the list that, despite their youth, some of these PMs had considerable experience already in the legislature (e.g. Felix Gaillard of France, 10 years**) and a few had cabinet service (e.g. Stanislav Gross of the Czech Republic and Aigars Kalvitis, 4 years each).

One more list of background relevant to Renzi: how common is it for a PM to have been a mayor, but not a legislator or cabinet minister before elevation to the top job? Renzi might be only the third (see caveat above), following Jirí Paroubek of the Czech Republic (2005) and Jawaharlal Nehru of India (1947, the year of Indian independence). Upon assuming office, Paroubek was 53 and Nehru 58.***

So Renzi’s combination of youth and inexperience, aside from having been mayor of a major city (Florence), is indeed unusual.

Previous related post: Age of PMs and presidents upon assuming the position, in new and old democracies.

* There are five Netherlands PMs on this list, which is a bit surprising. Service in the senate, perhaps? And that makes me wonder if we counted service in the Italian senate, which we should have, given it has confidence powers over the cabinet, unlike most other second chambers.

** Ilir Meta of Albania, 15 years service as MP, is, I am sorry to say, a mistake in the data! He was born in 1969, elected to parliament in 1992, and became PM in 1999 (not 2001, as the list indicates), according to an online bio.

*** Nehru was a mayor? That is what the dataset says. According to Wikipedia, he was elected chairman of the Allahabad Municipal Board in 1923. (Yes, students, I can use Wikipedia. This is a blog post.)

Age of PMs and presidents upon assuming the position, in new and old democracies

Would we expect the executive format (presidential, parliamentary, etc.) to affect the age at which an executive leader assumes office?

I might expect either no effect (too many other variables might swamp the format) or a positive effect of PMs. We know that prime ministers tend to have more “insider” experience (e.g. as cabinet minister, legislator, etc.) than presidents have. It takes time to get experience, so prime ministers might tend to be older.

However, exploring the data a little bit, what we actually see is the reverse. PMs tend to be younger. The effect is stronger in “third wave” democracies than in a set of both older and newer democracies. ((The president-vs.-PM effect gets slightly stronger when executives of semi-presidential systems are included, but what is shown here are the data from pure-format systems.)) The effects are statistically significant, though somewhat less so when the older democracies are included.

Why? An “older statesman” effect, whereby voters are more likely to elect older candidates? A compensation effect by parties whereby, aware of an electoral advantage in nominating relatively less “insider” politicians, they select older candidates whose “type” might be better revealed compared to those who are both outsider and young?

That prime ministers tend to be younger in parliamentary systems of the third wave than in older democracies might mean that political careers overall start younger when the democracy is younger. We already found (Samuels and Shugart, 2013; see prior link) that there is no observable difference in length of prior legislative experience of third-wave parliamentary PMs compared to those in older parliamentary democracies. But there is a difference in average age of PMs across eras. ((If we compare only older democracies, PMs do tend to be older than presidents. But the effect is not close to significant.))

So, to summarize, it seems that parties in parliamentary democracies in the third wave are promoting politicians to the top job who are younger than their counterparts in older democracies (but not less experienced as legislators). In presidential systems, on the other hand, in both new and old democracies there is a tendency for successful presidential candidates to be somewhat, and significant statistically, older.

There is, by the way, no time trend. That is, neither type of executive tends to start office older (or younger) as the democratic regime itself becomes older.

Data summaries (average age at start of tenure); all tests exclude executives who started their tenure before the date the regime became democratic (though the effects work even if these few politicians are included).

Third-wave, pure-format, democracies
Pres: 56.3 (n=84)
PMs: 51.1 (n=109)

Third-wave and older pure-format democracies together
Pres: 56.0 (n=148)
PMs: 54.7 (n=399)

Parliamentary PMs in older and newer democracies
Not third wave: 55.97 (n=290)
Third wave: 51.1 (n=109)

Based on the Samuels and Shugart biographical data.

Three recent publications: Party Capacity in New Democracies; Patterns of Intraparty Competition; Localism and Coordination in the Japanese House of Councillors

The following items have been published in the past several weeks. Please note that the links are to publisher’s websites, and are not open-access.

Abstracts are viewable at the links without a subscription, but I will also put them in (long) footnotes here.

David J. Samuels and Matthew S. Shugart, “Party ‘capacity’ in new democracies: How executive format affects the recruitment of presidents and prime ministers“, Democratization (2013). ((Abstract: Scholars and practitioners express concern that parties in “third wave” democracies are poorly developed, compared to parties in older democracies. We suggest that parties vary in their organizational “capacity”, focusing on parties’ ability to select trustworthy executive agents. Capacity is higher where parties can vet potential executive talent by observing future leaders over time in the legislature – an increasingly available option as democracy matures. The key distinction in parties’ use of this option lies in the delegation structure between a party and the executive. Parliamentary systems offer a clear line of delegation, which parties control. In presidential systems, parties must recruit executive candidates who can win a popular election, requiring characteristics that may not be well correlated with those that make them good party agents. As parliamentary democracy matures, we find a steady increase in prime ministers’ average length of prior legislative service. For presidents, there is significantly weaker growth in prior legislative service. We also theorize about and investigate patterns in semi-presidential democracies. Our findings suggest that the institutional format of the executive is more important for party capacity in new democracies than the era in which a democracy was born.))

Matthew E. Bergman, Matthew S. Shugart, and Kevin A. Watt, “<a href="Matthew E. Bergman, Matthew S. Shugart, and Kevin A. Watt, "Patterns of Intraparty Competition in Open-List and SNTV Systems," Electoral Studies (2013). ((Two electoral systems that use “nontransferable preference votes” are commonly used: single nontransferable vote (SNTV) and open-list proportional representation (OLPR). Both systems promote intraparty competition by vote-seeking candidates, but differ on the extent to which the incentives of individual candidates and collective seat-maximizing parties are aligned, or not. We develop “logical models” of expected vote shares of parties’ first and last winners, and test (and confirm) these models using “symmetric regression” on an original data set drawn from over 2000 party-district observations in nine countries. The analysis helps bring us closer to an understanding of the relatively neglected “intraparty dimension” of representation, and allows us to offer some modest suggestions for improving systems of nontransferable preference votes.))

Kuniaki Nemoto and Matthew S. Shugart, “Localism and Coordination under Three Different Electoral Systems: The National District of the Japanese House of Councillors,” Electoral Studies (2013). ((Democratic representation involves tradeoffs between collective actors – political parties seeking to maximize seats – and individual actors – candidates seeking to use their personal vote-earning attributes (PVEAs) to maximize their own chance of election and reelection. We analyze these tradeoffs across three different electoral systems used at different times for the large-magnitude nationwide tier of Japan’s House of Councillors. These electoral systems – closed and open-list proportional systems and the single non-transferable vote – differ in the extent to which they entail candidates seeking individual preference votes and in whether collective vote shares affect overall party performance. We use local resources as a proxy for PVEA and seek to determine the extent to which parties nominate “locals” and how much the presence of such locals affects party performance at the level of Japan’s prefectures.))

PM Boris?

London mayor Boris Johnson will attend his Conservative Party’s upcoming conference “to reveal the secret of how to get re-elected against Labour in a time of austerity in what will be seen as fresh evidence of his ambition to succeed David Cameron”, reports the Guardian.

This comes in the wake of a YouGov poll that shows Johnson as Britain’s “most respected” politician.

Is Boris going to replace David Cameron as PM? I would not bet on it, for two reasons that I can draw out of my research on career trajectories of prime ministers, in comparison with presidents.

First, Johnson’s formula for being (re)elected against a Labour Party that is otherwise well positioned–whether in London politics, or in current national polling–is based on direct election of an individual. That is, “presidentialization“. To expect the same effect if Johnson were the PM candidate (and, presumably, sitting PM) at the next election is to fail to understand how direct election, as with the London mayor or a president, is fundamentally different from selection by and dependence on a party organization, as in a parliamentary democracy.

Second, he would be swimming against a pretty strong current of institutional effects here. Let’s look at the broad patterns of executive recruitment in democracies, comparatively. Out of 390 prime ministers in parliamentary systems in the post-WWII era, how many have been former mayors? If you guessed about 10%, you are a bit high. The answer is 34, or 8.7%. Parliamentary parties just do not look to mayors very often for their chief-executive talent.

Twelve of these PMs are from the French Fourth Republic (including Antoine Henrie Queuille, who counts as a newly appointed PM three times). Five more come from Norway (including another three-time appointee, Einar Gerhardsen). In fact, these two countries, France and Norway, account for half the ex-mayor PMs, and two politicians count for almost 18% of them. There is just one British PM in the list, Clement Atlee.

It is worth noting that mayors are far more likely to become president, where there is such an elected executive post, than to become PM in a parliamentary system. About the same number of presidents in the dataset have been former mayors, 37, but this is out of 236 total presidents. This rate among presidents, 15.7%) is significantly greater than the rate among PMs (p=.04). ((It makes no difference to the significance of the finding whether we include presidents in semi-presidential systems, as in the numbers cited here, or look only at pure presidential systems. In the latter, 15.8% are former mayors. How about premiers in semi-presidential systems? Of these 12.81% are former mayors. That rate is statistically different from pure-parliamentary PMs (p=.05), but not from that for semi-presidential presidents. In other words, it is PMs in parliamentary democracies that stand apart from either type of executive in regimes with elected presidents.))

Of course, this pattern is not surprising: mayors in some major cities (including London now) possess a talent that parties in presidential systems desire: proven ability to win a direct election, which often means appealing beyond (and in some carefully chosen ways, against) one’s party. Such skills are not nearly as in demand among parliamentary partisans. What is striking is that the pattern regarding ex-mayors shows up without our having considered whether the politician in question was a directly elected mayor or not. ((It would require additional data collection to determine which of the mayors in the data were elected by the city electorate and which were selected by a city council or appointed by the center, or some other mechanism. I suspect most of those in the data–though certainly not Atlee–were indeed popularly elected.))

None of this means Boris Johnson is not on his way to residing at No. 10. But it does mean he would be a rare case.

Data note. The data reported here come from the data for Chapter 3 of David J. Samuels and Matthew S. Shugart, Presidents, Parties, and Prime Ministers (Cambridge University Press, 2010).