The Semisovereign State Revisited

Inhaltsangabe:Abstract: In the Federal Republic of Germany, party changes in the federal government have rarely altered the general direction of national policy. Apart from the short periods 1949-53, 1969-74, and the mid-1980s the major parties have agreed on most matters of political substance. The major opposition party either did not propose alternative blueprints for policy or, once its politicians had assumed responsibility in government, they found themselves moderating the stances they had held during their years in opposition. In explaining the steadiness of policy in Germany compared to other industrialised countries, policy-making in Germany has often been described as greatly constrained by a corporatist institutional design. Katzenstein (1987) argued that the resulting multiplicity of constraints on the leeway of the federal government to change the direction of policy warrants a characterisation of West Germany as a „semisovereign state”. Studies of various policy areas showed that successful policies tended to be passed and implemented in broad consensus between corporatist actors and were geared towards incremental as opposed to comprehensive political change (see e.g. Webber 1992). Attempting to explain this bias towards consensus and incremental change, the political science literature has identified distinct stages in Germany’s policy formation process where bargaining political and corporatist actors search for a policy compromise. These findings have led to the development of alternative hypotheses about which stages in the policy formation process are responsible for the consensual nature of German politics. Focusing on the consensus-building impact of catch-all parties, coalition government, cooperative federalism and sectoral corporatism respectively, these hypotheses are not dependent on each other for their validity; any hypothesis might be true while any others are true or false. Pension policy-making, an area which has often been invoked as a prime example for consensual policy-making, encompasses all parts of the policy process highlighted in these hypotheses. The hypotheses about the constrained character of German policy-making were developed during an era when the welfare state was still in the process of expansion. More recently, however, welfare state programmes have come under pressure. Governments in many industrialised countries, including Germany, have cut spending on social provisions. As work by Pierson [...]