Rebuilding Leviathan

Transcription

1 Rebuilding Leviathan Why do some governing parties limit their opportunistic behavior and constrain the extraction of private gains from the state? The analysis of post-communist state reconstruction provides surprising answers to this fundamental question of party politics. Across the post-communist democracies, governing parties have opportunistically reconstructed the state simultaneously exploiting it by extracting state resources and building new institutions that further such extraction. They enfeebled or delayed formal state institutions of monitoring and oversight, established new discretionary structures of state administration, and extracted enormous informal profits from the privatization of the communist economy. Yet there is also enormous variation in these processes across the postcommunist democracies of Bulgaria, the Czech, Estonia, Hungary, Latvia, Lithuania, Poland, Slovakia, and Slovenia. Party competition is responsible specifically, the more robust the competition, the more the governing parties faced a credible threat of replacement and the more they curbed exploitation by building formal barriers, moderating their own behavior and sharing power with the opposition. Anna Grzymal a-busse is Associate Professor of Political Science at the University of Michigan, Ann Arbor. She previously taught at Yale University. Her first book, Redeeming the Communist Past, was published by Cambridge University Press in She has also published articles in Comparative Political Studies, Comparative Politics, East European Politics and Societies, Party Politics, Politics and Society, and other journals.

2 Cambridge Studies in Comparative Politics General Editor Margaret Levi University of Washington, Seattle Assistant General Editor Stephen Hanson University of Washington, Seattle Associate Editors Robert H. Bates Harvard University Helen Milner Princeton University Frances Rosenbluth Yale University Susan Stokes Yale University Sidney Tarrow Cornell University Kathleen Thelen Northwestern University Erik Wibbels University of Washington, Seattle Other Books in the Series Lisa Baldez, Why Women Protest: Women s Movements in Chile Stefano Bartolini, The Political Mobilization of the European Left, : The Class Cleavage Mark R. Beissinger, Nationalist Mobilization and the Collapse of the Soviet State Nancy Bermeo, ed., Unemployment in the New Europe Carles Boix, Democracy and Redistribution Carles Boix, Political Parties, Growth, and Equality: Conservative and Social Democratic Economic Strategies in the World Economy Catherine Boone, Merchant Capital and the Roots of State Power in Senegal, Catherine Boone, Political Topographies of the African State: Territorial Authority and Institutional Change Michael Bratton and Nicolas van de Walle, Democratic Experiments in Africa: Regime Transitions in Comparative Perspective Continued after the Index

3 Rebuilding Leviathan PARTY COMPETITION AND STATE EXPLOITATION IN POST-COMMUNIST DEMOCRACIES ANNA GRZYMAL A-BUSSE University of Michigan, Ann Arbor

4 CAMBRIDGE UNIVERSITY PRESS Cambridge, New York, Melbourne, Madrid, Cape Town, Singapore, São Paulo 32 Avenue of the Americas, New York, NY , USA Information on this title: C Anna Grzymal a-busse 2007 This publication is in copyright. Subject to statutory exception and to the provisions of relevant collective licensing agreements, no reproduction of any part may take place without the written permission of. First published 2007 Printed in the United States of America A catalog record for this publication is available from the British Library. Library of Congress Cataloging in Publication Data Grzymal a-busse, Anna Maria, 1970 Rebuilding Leviathan : party competition and state exploitation in post-communist democracies / Anna Grzymal a-busse. p. cm. (Cambridge studies in comparative politics) Includes bibliographical references and index. ISBN-13: (hardback) ISBN-13: (pbk.) ISBN-10: (hardback) ISBN-10: (pbk.) 1. Political parties Europe, Eastern. 2. Post-communism Europe, Eastern. 3. Europe, Eastern Politics and government 1989 I. Title. JN96.A979G dc ISBN ISBN hardback paperback has no responsibility for the persistence or accuracy of URLs for external or third-party Internet Web sites referred to in this publication and does not guarantee that any content on such Web sites is, or will remain, accurate or appropriate.

5 For Conrad

6 Contents Acknowledgments List of Political Party Abbreviations and Acronyms page xi xiii 1 INTRODUCTION 1 2 COMPETING FOR THE STATE 29 3 DEVELOPING THE FORMAL INSTITUTIONS OF THE STATE 81 4 THE EXPANSION OF STATE ADMINISTRATION: PATRONAGE OR EXPLOITATION? PRIVATIZING THE STATE: PARTY FUNDING STRATEGIES 182 CONCLUSION 222 APPENDIX A: PEAK PARTY ORGANIZATIONS IN POST-COMMUNIST DEMOCRACIES, APPENDIX B: DETERMINING STATE ADMINISTRATION EMPLOYMENT AND RATE OF GROWTH 233 APPENDIX C: ANCHORING VIGNETTES 242 Bibliography 247 Index 269 ix

7 Acknowledgments This book could not have been written without the kindness and generosity of friends, colleagues, and family. Much of the primary research for this book was made possible with the help of, among others, Jacek Czaputowicz, Dace Dance, Urszula Krassowska, Tomasz Krause, Jacek Kwieciński, Maria Laatspera, Monika Saarman, Adéla Seidlová, and Martin Slosiarik. I am extremely grateful to those who read the manuscript in its entirety: Jessica Allina-Pisano, Umut Aydin, Joshua Berke, Jim Caporaso, Erica Johnson, Steve Hanson, Yoshiko Herrera, Pauline Jones Luong, Margaret Levi, Vicky Murillo, Işik Özel, Lucan Way, and Erik Wibbels. Val Bunce, Bill Clark, Keith Darden, Abby Innes, Orit Kedar, Kelly McMann, Rob Mickey, Grigo Pop-Eleches, Cindy Skach, Barry Weingast, Rebecca Weitz- Shapiro, and Daniel Ziblatt read chapters of the book, improving them immensely. Along the way, Jake Bowers, Tim Colton, Grzegorz Ekiert, Venelin Ganev, Don Green, Peter Hall, Allen Hicken, Gary King, Orit Kedar, Ken Kollman, Kaz Poznanski, Jim Vreeland, and Barry Weingast all provided very helpful criticism and advice. Gary Bass, Heather Gerken, and Jennifer Pitts greatly helped in the final stages. Daniel Hopkins analyzed public opinion data, and Ben Lawless, Jesse Shook, and Shubra Sohri provided research assistance. Lew Bateman was the pluperfect editor, encouraging and exacting. I am especially grateful to Margaret Levi, not only for editing the series and arranging a manuscript workshop at the University of Washington, Seattle, but for her terrific mentoring. I am one of the many scholars who have benefited from her generosity and support. xi

8 Acknowledgments The University of Michigan, the Center for European Studies at Harvard University, the Harvard Academy, and Yale University were congenial settings in which to research, think, and write. For their financial and intellectual support, I am grateful to IREX, NCEEER, the Institution for Social and Policy Studies at Yale University, the Yale Center for International and Area Studies, and the International Institute at the University of Michigan. The ideas for this book first sprouted at the Rethinking the Post- Communist State conference Pauline Jones Luong and I organized at Yale University in They grew as parts of this manuscript were presented at the University of California-Berkeley, the University of Chicago, Cornell University, Harvard University, McGill University, the Massachusetts Institute of Technology (MIT), the University of Michigan, the University of Wisconsin-Madison, the World Bank, and Yale University. The careful readers and listeners at these institutions helped me to sharpen the argument and clarify my thinking. My wonderful parents and brothers, as always, provided inspiration, love, and perspective. My final and greatest thanks go to Joshua Berke, for his intelligence, sense of humor, and passion. As I was finishing this book, our first formal collaboration arrived. This book is dedicated to him, with his parents love. xii

9 List of Political Party Abbreviations and Acronyms Acronym Organization Translation Country AWS Akcja Wyborcza Election Action Solidarity Poland Solidarność BSP Balgarska Socialisticheska Bulgarian Socialist Party Bulgaria Partija ČSSD Česká strana sociálně demokratická Social Democratic Party of the Czech Czech DemOS Demokratska Opozicija Democratic Opposition of Slovenia Slovenije Slovenia DP Darbo Partija Labor Party Lithuania DU Demokratická Únia Democratic Union Slovakia EK Eesti Keskerakond Center Party Estonia Fidesz-MPP Fiatal Demokraták Alliance of Young Hungary Szövetsége Magyar Polgári Szövetség Democrats Hungarian Civic Party FKgP Független Kisgazda, Smallholders Party Hungary Földmunkás és Polgári Párt HZDS Hnutie za Demokratické Movement for a Slovakia Slovensko Democratic Slovakia JL Jaunais Laiks New Era Latvia KDU-ČSL Křest anská a demokratická Christian Democrats Czech LC Latvijas Ceļš Latvia s Way Latvia LDDP Lietuvos Demokratinė Lithuanian Democratic Lithuania Darbo Partija Labor Party LDS Liberalna Demokracija Liberal Democratic Party Slovenia Slovenije of Slovenia MDF Magyar Demokrata Fórum Hungarian Democratic Forum Hungary xiii

10 Political Party Abbreviations and Acronyms Acronym Organization Translation Country MIEP Magyar Igazság és Élet Justice and Life Party Hungary Pártja MSzP Magyar Szocialista Párt Hungarian Socialist Party Hungary NDSV Nacionalno Dvizhenie National Movement Bulgaria Simeon Vtori Simeon II PC Porozumienie Centrum Center Alliance Poland PCTVL Par Cilvēka Tiesībām For Human Rights in a Latvia Vienotā Latvijā United Latvia PiS Prawo i Sprawiedliwosc Law and Justice Poland PO Platforma Obywatelska Civic Platform Poland PSL Polskie Stronnictwo Polish Peasants Party Poland Ludowe PZPR Polska Zjednoczona Partia Polish United Workers Poland Robotnicza Party NS Naujoji sajunga New Union Party Lithuania ODA Občanská Democratická Aliance Civic Democratic Alliance Czech ODS Občanská Demokratická Strana Civil Democratic Party Czech OF Občanské Forum Civic Forum Czech SDK Slovenska Demokraticka Democratic Coalition of Slovakia Koalície Slovakia SDS Sajuz na demokratichnite Union of Democratic Bulgaria sili Forces SdRP Socjaldemokracja Social Democracy of the Poland Rzeczpospolitej Polskiej of Poland SLD Sojusz Lewicy Democratic Left Alliance Poland Demokratycznej SLS Slovenska Ljudska Stranka Slovenian People s Party Slovenia SzDSz Szabad Demokraták Alliance of Free Democrats Hungary Szövetsége TS/LK Tėvynės Sajunga/Lietuvos Homeland Lithuania Konservatoriai Union/Lithuanian Conservatives UD Unia Demokratyczna Democratic Union Poland US Unie Svobody Freedom Union Czech UW Unia Wolności Freedom Union Poland VPN Verejnost proti násiliu Public Against Violence Slovakia ZRS Združenie robotníkov Slovenska Association of Slovak Workers Slovakia xiv