Accommodating Diversity: Asymmetry in Federal States

Transcription

1 Robert Agranoff (ed.) Accommodating Diversity: Asymmetry in Federal States Nomos Verlagsgesellschaft Baden-Baden

2 Table of Contents Preface 9 I: Power Shifts, Diversity and Asymmetry, Robert Agranoff 11 A. Introduction The Problem Asymmetrical Federalism Federalism, Federation, and Federal Arrangements 12 B. Diversity within Federal Systems 13 C. Unity within Diversity 14 D. Guiding Principles of Asymmetrical Federalism De jure and de facto Asymmetry Conditions and Outcomes Two Levels of Asymmetry Asymmetry's Normative Dimension Asymmetry's Analytic Dimension Asymmetry and Federal Stability Relational Symmetry and Asymmetry Asymmetry is a Neutral Concept Asymmetry is a Social Reality 22 E. Continuing the Dialogue of Asymmetry 22 II: The Theoretical and Practical Implications of Asymmetrical Federalism, Ronald L. Watts 24 A. Introduction 24 B. Conceptual Issues Defining Symmetry and Asymmetry 26 a) Tarlton's definition of symmetry and asymmetry within federal systems 26 b) Aspects of structural asymmetry in federal systems De facto and de jure Structural Asymmetry Asymmetry of Full-fledged and Peripheral Constituent Units Transitional or Permanent Asymmetry The Tension Between Pressures for Symmetry and Asymmetry Is Asymmetry in Federal Systems Functional or Dysfunctional? 29 C. The Comparative Context Mapping the Bases for Comparison A Preliminary Map Identifying Structural Asymmetry in Federal Systems De facto Asymmetry of Basic Members States 30 a) Variations in size and wealth of constituent units 30 b) Relative autonomy, jurisdiction and powers of units 33 c) Representation of member states in central institutions 33

3 d) Representation in intergovernmental institutions or processes 34 e) Application of bills of rights 34 f) Relative power in constitutional amendments 35 g) The constitutions of the member states De jure Asymmetry of Basic Member States 36 a) Delineating the constituent units 36 b) Relative autonomy, jurisdiction and powers of units 36 c) Representation of member states in central institutions 38 d) Representation in intergovernmental institutions or processes 39 e) Application of bills of rights 40 f) Relative power in constitutional amendments 40 g) The constitutions of the member states De jure Asymmetry of Peripheral Political Units Permanent and Transitional de jure Asymmetry 42 D. Conclusion 42 III: Symmetry and Asymmetry Revisited, Michael Burgess and Franz Gress 43 A. Introduction 43 B. The Concepts of Symmetry and Asymmetry Explored 44 C. The Pre-conditions of Asymmetry Political Cultures and Traditions Social Cleavages Territorially Socio-economic Factors Demographic Patterns 49 D. Asymmetrical Outcomes De facto Asymmetries 50 a) The constituent state units 50 b) Fiscal power and autonomy 51 c) Representation and protection in federations 52 d) Political parties and party systems De jure Asymmetries 53 a) Constitutions and constitutional reform 53 b) The law and legal processes 53 E. Asymmetrical Relations Today. 54 F. Conclusion: Theoretical Reflections 55 IV: Asymmetric Political Association: The Australasian Experiment, Brian Galligan and Richard Mulgan 57 A. Introduction 57 B. Similarities and Differences 58 C. Closer Social and Economic Relations 59 D. Closer Political and Intergovernmental Relations 63 E. Asymmetric Institutional Arrangements 69

4 V: The Normative Basis of Asymmetrical Federalism, Alain-G. Gagnon and Charles Gibbs 73 A. Introduction 73 B. Federalism, Federation 74 C. The Normative Dimension 77 D. Communitarian Principle 78 E. Functional Principle 83 F. Democratic Principle 85 G. Conclusions 92 VI: Intergovernmental Relations and the Management of Asymmetry in Federal Spain, Robert Agranoff 94 A. Introduction 94 B. The Asymmetry Question 96 C. Structural Asymmetry Levels of Powers Taxation and Finance ' Bilingualism Special Provisions 101 D. Elements of Asymmetry in Practice 103 E. The Process of Creating Asymmetry and Symmetry 105 F. Managing Diversity through Intergovernmental Relations: The Quest for Symmetry 107 G. Conclusion 112 VII: The-Canadian Experience with Asymmetrical Federalism, Ronald L. Watts 118 A. Introduction 118 B. The First One-hundred Years of the Canadian Federation De facto Asymmetry De jure Asymmetry Counter-pressures for Symmetry 122 C. Asymmetry and Symmetry in the Era of Mega-constitutional Politics : The Issues The Period from 1960 to The Period from 1976 to The Period from 1984 to The 'Canada Round' The Period since D. Conclusions 134

5 VIII: The Constitution under Pressure: Emerging Asymmetrical Federalism in Germany?, Roland Sturm 137 A. Introduction 137 B. Unification and Its Consequences 138 C. Social Disparities and Differences in Political Culture 139 D. Homogenization Pressures 142 E. Existing de jure Asymmetries of German Federalism as Opportunity Structures for East German Interest Representation? 144 F. First Efforts to Institutionalize East German Interest Representation on the Federal Level 145 G. Prospects for Asymmetrical Federalism in Germany 147 IX: Asymmetry in Spain: Federalism in the Making?, Luis Moreno 149 A. Introduction 149 B. The Making of a Multiple Ethnoterritorial Concurrence Spain: A Plural and Asymmetrical Reality Majority and Minority Nationalisms in Spain 153 C. Internal Competition within Spain 156 D. Conclusion 167 X: Asymmetrical Federalism in Canada, the United States and Germany: Comparative Perspectives, Michael Burgess and Franz Gress 169 A. Introduction 169 B. The Pre-conditions of Asymmetry Federalism: Political Culture and Traditions Social Cleavages Territoriality Socio-economic Factors Demographic Patterns 177 C. Asymmetrical Federation Outcomes De facto Asymmetries 178 a) Constituent state units 178 b) Fiscal power and autonomy 180 c) Representation and protection 182 d) Political parties and party systems De jure Asymmetries 184 a) Constitutions and constitutional reform 184 b) Law and legal processes 186 D. Conclusion: Comparative Reflections 188 XI: Selected Bibliography 189 XII: Index of Head Words 193 XIII: List of Contributors 195