THE REFERENDUM EXPERIENCE IN EUROPE
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1 THE REFERENDUM EXPERIENCE IN EUROPE
2 Also by Michael Gallagher REPRESENTATIVE GOVERNMENT IN MODERN EUROPE (co-author) POLITICS IN THE REPUBLIC OF IRELAND (co-editor) Also by Pier Vincenzo Uleri DEMOCRAZIE E REFERENDUM (co-editor)
3 The Referendum Experience in Europe Edited by Michael Gallagher Lecturer in Political Science Trinity College, Dublin University and Pier Vincenzo Uleri Lecturer in Political Science University of Florence
4 First published in Great Britain 1996 by MACMILLAN PRESS LTD Houndmills, Basingstoke, Hampshire RG21 6XS and London Companies and representatives throughout the world A catalogue record for this book is available from the British Library. ISBN hardcover ISBN ISBN (ebook) DOI / First published in the United States of America 1996 by ST. MARTIN'S PRESS, INC., Scholarly and Reference Division, 175 Fifth Avenue, New York, N.Y ISBN Library of Congress Cataloging-in-Publication Data The referendum experience in Europe I edited by Michael Gallagher and Pier Vincenzo Uleri. p. em. Includes bibliographical references and index. ISBN I. Referendum-Europe. I. Gallagher, Michael, Uleri, Pier Vincenzo, 1950 JF497.E85R ' {lc CIP Selection and editorial matter Michael Gallagher and Pier Vincenzo Uleri 1996 Chapters 1-14 Macmillan Press Ltd 1996 Softcover reprint of the hardcover 1st edition 1996 All rights reserved. No reproduction, copy or transmission of this publication may be made without written permission. No paragraph of this publication may be reproduced, copied or transmitted save with written permission or in accordance with the provisions of the Copyright, Designs and Patents Act 1988, or under the terms of any licence permitting limited copying issued by the Copyright Licensing Agency, 90 Tottenham Court Road, London WIP9HE. Any person who does any unauthorised act in relation to this publication may be liable to criminal prosecution and civil claims for damages I ()()
5 Contents List of tables List of figures Preface v1 vii vm 1 Introduction 1 Pier Vincenzo Uleri 2 Austria: the referendum as an instrument of intemationalisation 20 Anton Pelinka and Sylvia Greiderer 3 Denmark: the referendum as minority protection 33 Palle Svensson 4 Finland: the referendum as a dormant feature 52 Markku Suksi 5 France: towards a less controversial use of the referendum? 66 Laurence Morel 6 Ireland: the referendum as a conservative device? 86 Michael Gallagher 7 Italy: referendums and initiatives from the origins to the crisis of a democratic regime 106 Pier Vincenzo Uleri 8 The Netherlands: national debates and local experience 126 loop van Holsteyn 9 Norway: six exceptions to the rule 139 Thomas Chr. Wyller 10 Russia, the former Soviet Union and Eastern Europe: the referendum as a flexible political instrument 153 Stephen White and Ronald J. Hill 11 Sweden: the referendum as an instrument for defusing political issues 171 OlofRuin 12 Switzerland: the referendum and initiative as a centrepiece of the political system 185 Alexander H. Trechsel and Hanspeter Kriesi 13 The United Kingdom: constitutional pragmatism and the adoption of the referendum 209 Denis Balsom 14 Conclusion 226 Michael Gallagher Notes on contributors 253 Index 255 v
6 List of tables 2.1 Austrian referendums, Party preference and voting behaviour in Zwentendorf Voting behaviour, by party preference, in Austrian EU nuclear power referendum, referendum, Danish referendums, Consultative referendums in Finland, Backgrounds of Yes voters in Finnish EU referendum, Voting intention in September 1994, and voting in the 58 EU referendum in October 1994, in Finland, by party supported French referendums during the revolutionary and 5.2 Napoleonic periods The founding referendums of the French Fourth Republic 70 French referendums, Irish referendums, Correlations between "conservative" votes in Irish referendums on abortion and divorce, Party allegiance and voting intention at "moral issue" referendums in Ireland, Initiators and outcomes of Irish referendums Topics of requests for abrogative initiatives and referendums promoted and voted in Italy, Institutional democratic referendums in Italy, Abrogative initiatives and referendums submitted to popular votes in Italy under Article 75 of the constitution, The referendums in Haarlem, Leiden and Amsterdam, 1991 and vi
7 9.1 Referendums in Norway, Percentage who voted No to Norwegian membership of the EU in 1994, by geographical region and the population of municipalities Percentage No votes in Norwegian EU referendum 1994, by gender Swedish referendums, Swiss federal forms of initiatives and referendums The use of direct democratic devices in Switzerland, Votes by issue domain in Switzerland, , in percentages (figures for in parentheses) Referendum on constitutional future of Northern Ireland, 8 March United Kingdom referendum on EC membership, Referendums on devolution proposals for Scotland and Wales, 1 March Constitutional provisions for mandatory referendums in western Europe Constitutional provisions for optional decisionpromoting referendums and initiatives in western Europe Constitutional provisions for optional decisioncontrolling referendums and initiatives in western Europe National referendums and initiatives in 19 west European countries, to 31 December List of figures 1.1 A typology of the referendum phenomenon Public opinion on Austrian membership ofeu, Political effects of Danish referendums Importance of party recommendations, Switzerland 200 vii
8 Preface The referendum is an important aspect of democratic government in many European countries. In some, such as Switzerland, it is an integral part of the political system; in several others, it is a routine feature, occurring about as frequently as general elections; in others again, such as the United Kingdom and the Netherlands, it is very rare or even unknown. The merits or otherwise of using referendums to decide certain matters of public policy are debated in most of the countries that use the institution, and, sometimes even more intensely, in those that do not use it. This is not the first comparative study to be published of the referendum. In particular, David Butler and Austin Ranney's Referendums around the World (Macmillan, 1994), provides an invaluable survey of the institution in a number of settings. Our work sets out to build on that of Butler and Ranney, not to supersede it. By concentrating on Europe (east as well as west), it is able both to present a full picture of the referendum experience in a number of different settings and to identify variations and similarities across the countries of the continent, countries that in many respects possess a common cultural heritage. One area where we have followed the lead of Butler and Ranney concerns the contentious issue of the plural of the word "referendum". A respectable case has been put forward to us for "referenda", using the argument that in Latin "referendum" is a neuter singular of the gerundive and, as such, it has a plural, so, on an analogy with "agenda", one should speak of "referenda". The counter-argument is put forward in the Oxford English Dictionary (1989 edition, p. 466):"referendums is logically preferable as a modern plural form meaning ballots on one issue (as a Latin gerund referendum has no plural); the Latin plural gerundive referenda, meaning 'things to be referred', necessarily connotes a plurality of issues". Faced with conflicting sets of expert advice, we have opted for "referendums", in line with the practice of Butler and Ranney, so as not to confuse an already tangled terminological field further. Early versions of some of the chapters in this book were presented at a workshop on "The referendum experience in Europe" held as part of the Joint Sessions of the European Consortium for Political Research in Madrid in April The editors have been clear in their minds from the start about the major difference between a book, on the one hand, and a collection of workshop papers on the other, and we should like to record our thanks to our contributors for amending or completely rewriting their papers in such a way as to viii
9 Preface ix ensure that their chapters conformed with the framework adopted in this book. In most cases, the contributors' patience did not seem to evaporate even after the fourth or fifth request for amendments, further information or clarification. We are particularly grateful to those contributors - and there were some - who actually met the editors' deadlines. We should also like to thank those researchers who attended the Madrid meeting but whose papers could not, for one reason or another, be included in this book: Daniel Hug, Lorenz Kummer, Larry LeDuc and Yannis Papadopoulos. Their constructive suggestions on many of the papers presented there means that they, too, have contributed to this book. Others have helped in various fashions, by commenting on individual chapters, giving advice on specific points, generally encouraging, or in other ways playing a constructive part in the process of completing the book. We should like to record our thanks to Fabienne Greffet, Manthou's, Michael Marsh, Thomas N. Mitchell, Richard Sinnott, Gniinne Twomey (our patient editor at Macmillan), Uli Winkler and Rosnida YS. The editors reserved to themselves alone the pleasurable experiences of preparing camera-ready copy for, and indexing, this book. Michael Gallagher and Pier Vincenzo Uteri Dublin and Firenze, December 1995
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