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Policy Dissension and Party Discipline: The July 2005 Vote on Postal Privatization in Japan
Published online by Cambridge University Press: 13 May 2008
Abstract
This article examines party discipline and party cohesion or defection, offering as an illustration the rebellion over postal privatization in 2005 by members of Japan's Liberal Democratic Party (LDP). It explores the importance of party rules – especially the seniority rule and policy specialization for district rewards – as intervening variables between election rules and party defection in a decentralized and diverse party. It is argued that in such cases, party rules like seniority can help prevent defection. When these rules are changed, as in the postal case of 2005, defection is more probable, but it is found that the relationship between defection and seniority is likely to be curvilinear, and also that the curvilinearity is conditional upon each legislator's having different incentives for vote, policy and office.
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Footnotes
The authors would like to thank Naofumi Fujimura, Chao-Chi Lin, Akitaka Matsuo, Megumi Naoi, Saadia Pekkanen, Taku Sugawara and Yūji Suzuki, as well as the Journal's Editor and the three anonymous reviewers for their advice and suggestions on this article. Ellis Krauss and Robert Pekkanen thank Taku Sugawara and Naoko Taniguchi for sharing data for this article, and Masahiko Tatebayashi, Yutaka Shinada and Meg McKean for sharing data on the pre-reform LDP. An earlier version was presented at the Association for Asian Studies Annual Meeting in San Francisco, 2006, where the authors benefited from the helpful comments and criticisms of Sadafumi Kawato, Mathew Soberg Shugart, Margaret McKean and others attending their panel. The authors alone are responsible for the contents of this article.
References
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15 Gaines and Garrett, ‘The Calculus of Dissent’.
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21 Kam, ‘Demotion and Dissent in the Canadian Liberal Party’.
22 Those members who assume ‘pivotal positions’ in a legislature are more likely to change their voting positions. See Krehbiel, Keith, Pivotal Politics: A Theory of U.S. Lawmaking (Chicago: The University of Chicago Press, 1998)CrossRefGoogle Scholar.
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24 Cox and Rosenbluth, ‘Anatomy of a Split’; Kato, ‘When the Party Breaks Up’. The insignificance of electoral variables is even more puzzling because they look only at the extreme case of dissension–defection in 1993, when personal vote should have mattered most.
25 Reed and Scheiner, ‘Electoral Incentives and Policy Preferences’.
26 One exception is made by Masahiko Tatebayashi, Giin Kōdō no Seiji Keizaigaku: Jimintō Shihai no Seido Bunseki [The Logic of Legislators’ Activities: Institutional Analysis of LDP Dominance in Japan], (Tokyo: Yūhikaku, 2004 [in Japanese]), who implies that there was a trade-off between the constituency servicing and policy specialization strategies in pre-1994 Japan. He reveals the negative correlation between politicians’ region-based vote-dividing strategy and the policy specialization likelihood in the same district.
27 For example, Carey and Shugart, ‘Incentives to Cultivate a Personal Vote’; Cox and McCubbins, ‘The Institutional Determinants of Economic Policy Outcomes’.
28 Extreme cases only actually happened before 2005 in 1976 and 1993. Only the 1993 event resulted in the fall of the LDP from the government. In 1960, 1974, 1979–80 and 2000, the dissidents in the LDP had opportunities to show dissension, but in these cases they were just persuaded and/or they managed only to show their grievances at best.
29 Therefore, we would add to the functional ‘party aggregation’ argument that exogenous shocks to a system would eventually cause local politicians whose re-election and policy incentives would not otherwise coincide with the leadership to co-operate, because a ‘provincialized’ structure does not require party aggregation at the national level. See Chhibber, Pradeep K. and Kollman, Ken, The Formation of National Party Systems: Federalism and Party Competition in Canada, Great Britain, India, and the United States (Princeton, N.J.: Princeton University Press, 2004)Google Scholar. We acknowledge the help of an anonymous reviewer in pointing out the relevance of this literature.
30 Flanagan, Scott C., ‘Mechanisms of Social Network Influence in Japanese Voting Behavior’, in Flanagan, Scott C., Kohei, Shinsaku, Miyake, Ichiro, Richardson, Bradley M. and Watanuki, Joji, The Japanese Voter (New Haven, Conn.: Yale University Press,1991), pp. 143–97Google Scholar; Ramseyer, J. Mark and Rosenbluth, Frances McCall, Japan's Political Marketplace (Cambridge, Mass.: Harvard University Press, 1993), pp. 23–8Google Scholar.
31 Takashi Inoguchi and Tomoaki Iwai, Zoku Giin no Kenkyū [The Study of Policy Tribes] (Tokyo: Nihon Keizai Shimbun Sha, 1987 [in Japanese]); Ramseyer and Rosenbluth, Japan's Political Marketplace, pp. 28–34.
32 Ramseyer and Rosenbluth, Japan's Political Marketplace, pp. 50–7.
33 Cox, Gary W. and Rosenbluth, Frances, ‘The Electoral Fortunes of Legislative Factions in Japan’, American Political Science Review, 87 (1993), 577–89CrossRefGoogle Scholar; Cox, Gary W. and Rosenbluth, Frances, ‘Factional Competition for the Party Endorsement: The Case of Japan's Liberal Democratic Party’, British Journal of Political Science, 26 (1996), 259–69CrossRefGoogle Scholar.
34 Krauss and Pekkanen, ‘Explaining Party Adaptation to Electoral Reform’.
35 Seisaburō Satō and Tetsuhisa Matsuzaki, Jimintō Seiken [The LDP Administration] (Tokyo: Chūō Kōron, 1986 [in Japanese]).
36 Sadafumi Kawato, ‘Jimintō ni Okeru Yakushoku Jinji no Seidoka‘[The Institutionalization of Rules Governing Promotion in the LDP], Hōgaku, 59 (1996), 933–57 [in Japanese]; Sadafumi Kawato, ‘Sinioriti Rūru to Habatsu: Jimintō ni Okeru Jinji Haibun no Henka’ [The Development of Seniority and Interfactional Balancing Rules in the LDP], Revaiasan, Extra Issue (1996), 111–45 [in Japanese]; Satō and Matsuzaki, Jimintō Seiken.
37 Christensen, Raymond V., ‘Electoral Reform in Japan:HowIt Was Enacted and Changes It May Bring’, Asian Survey, 34 (1994), 589–605CrossRefGoogle Scholar; Curtis, Gerald L., The Logic of Japanese Politics: Leaders, Institutions, and the Limits of Change (New York: Columbia University Press, 1999), pp. 137–70Google Scholar; Reed, Steven R. and Thies, Michael F., ‘The Causes of Electoral Reform in Japan’, in Shugart, Matthew Soberg and Wattenberg, Martin P., eds, Mixed-Member Electoral Systems: The Best of Both Worlds? (Oxford: Oxford University Press, 2001), pp. 152–72Google Scholar.
38 They are summarized in Masato Shimizu, Kantei Shudō [The Cabinet Office Initiative] (Tokyo: Nihon Keizai Shimbun Sha, 2005 [in Japanese]); Harukata Takenaka, Shushō Shihai [The Rule of Prime Minister] (Tokyo: Chūō Kōron Sha, 2006 [in Japanese]). Also see George-Mulgan, Aurelia, ‘Japan's “Un-Westminster” System: Impediments to Reform in a Crisis Economy’, Government and Opposition, 38 (2003), 73–91CrossRefGoogle Scholar; and her ‘Japan's Political Leadership Deficit’, Australian Journal of Political Science, 35 (2000), 183–202, for the weakness of prime ministers in Japan.
39 Theoretically SMD systems do not necessarily completely eliminate the need for candidates to mobilize a personal vote. See Cain et al., ‘The Constituency Service Basis of the Personal Vote for U.S. Representatives and British Members of Parliament’. There is also ample empirical evidence that kōenkai survived: see Krauss and Pekkanen, ‘Explaining Party Adaptation to Electoral Reform’; Ichiro Miyake, Seitō Shiji no Kōzō [The Structure of Partisan Support] (Tokyo: Bokutakusha, 1998 [in Japanese]); Masaki Taniguchi, Gendai Nihon no Senkyo Seiji: Senkyo Seido Kaikaku wo Kenshōsuru [Electoral Politics in Contemporary Japan: Analyzing the Electoral Reform] (Tokyo: Tokyo Daigaku Shuppankai, 2004 [in Japanese]). The PR portion of the mixed-member system only encouraged PR candidates to act as local candidates; except for pure PR members, losers in an SMD can be saved as so-called ‘zombies’ by the PR portion, where rank is determined by their vote margin from the SMD winner. For more elegant descriptions on this complicated system, see McKean, Margaret and Scheiner, Ethan, ‘Japan's New Electoral System: La plus ça change …’, Electoral Studies, 19 (2000), 447–77CrossRefGoogle Scholar; Pekkanen, Robert, Nyblade, Benjamin and Krauss, Ellis S., ‘Electoral Incentives in Mixed Member Systems: Party, Posts, and Zombie Politicians in Japan’, American Political Science Review, 100 (2006), 183–93Google Scholar.
40 See Scheiner, Democracy Without Competition in Japan, on how locally-oriented legislators maintained their clientelistic networks through the centralized fiscal structure of Japan, even after 1993–94. A rather journalistic account is available in Iwai, Tomoaki, ‘Shin “Zoku Giin no Kenkyū” ‘ [The New ‘Study of Policy Tribes’], Ekonomisuto, 80 (2002), 33–7Google Scholar [in Japanese]. Also see Mishima, Ko, ‘The Changing Relationship between Japan's LDP and the Bureaucracy: Hashimoto's Administrative Reform Effort and Its Politics’, Asian Survey, 38 (1998), 968–85CrossRefGoogle Scholar, for how zoku giin interrupted and ultimately halted Hashimoto's administrative reform initiative. On the continuous importance of factions, see Cox, Rosenbluth and Thies, ‘Electoral Reform and the Fate of Factions’; Krauss and Pekkanen, ‘Explaining Party Adaptation to Electoral Reform’.
41 The largest opposition party in 1996 was the New Frontier Party, which gained 156 seats, or 31.2 per cent of the total lower-house seats, but the party was soon split. The Democratic Party of Japan emerged as a new force, but it also failed to gain a substantial portion in the 2000 election: 127 seats, or 26.5 per cent.
42 In fact, individual members were ideologically similar to the LDP. See Miura, Mari, Lee, Kap-Yun and Weiner, Robert J., ‘Who Are the DPJ? Policy Positioning and Recruitment Strategy’, Asian Perspective, 29 (2005), 49–77Google Scholar.
43 The average number of terms served by LDP members in the cabinet was radically decreased from 7.41 (the 1997 Hashimoto cabinet) and 7.45 (the 2000 Obuchi cabinet) to 5.18 (the 2002 Koizumi cabinet). Four of the important party posts were distributed to Koizumi's favourites, including Shinzō Abe, who became Secretary-General when he had experienced only three terms in the lower house, although traditionally only the most senior members could assume this powerful post.
44 The Hashimoto faction, the biggest faction, did not get any of the big four posts in the LDP until 2003 with Koizumi as prime minister, although the faction had always secured one or more of the big four posts between the late 1970s and 2001.
45 Ellis S. Krauss and Benjamin Nyblade, ‘ “Presidentialization” in Japan? The Prime Minister, Media and Elections in Japan’, British Journal of Political Science, 35 (2005), 357–68.
46 Koizumi even strategically used the mass media to label the antagonistic force inside his own party as the ‘resistance force’ (teikō seiryoku) obstructing the reform. Many feared being labelled so, for electoral reasons.
47 Maclachlan, Patricia L., ‘Post Office Politics in Modern Japan: The Postmasters, Iron Triangles, and the Limits of Reform’, Journal of Japanese Studies, 30 (2004), 281–313Google Scholar.
48 Koizumi continued to imply that he would dissolve the lower house (Sankei Shimbun, 2 April 2005, p. 1; Sankei Shimbun, 17 May 2005, p. 1), and two-thirds of LDP members believed that he would surely dissolve it (Sankei Shimbun, 4 June 2005, p. 1).
49 Koizumi dissolved the House of Representatives (HOR) even though the bill passed it and could not pass the HOC, because Japanese prime ministers can only dissolve the HOR. The rationale for this move was to offer the general voter a yes-or-no vote on the bill and Koizumi.
50 For example, Mainichi Shimbun, 9 August 2005, p. 2.
51 As the vote approached, the leadership implied that it would give no endorsement in the next election (Mainichi Shimbun, 27 June 2005, p. 2; Sankei Shimbun, 2 July 2005, p. 4). We know that at least some possible rebels received specific threats from the LDP leadership: some changed their minds and voted for the bill because they knew expulsion or other types of sanction would be a huge loss (Yomiuri Shimbun, 2 July 2005, p. 2; Yomiuri Shimbun, 5 July 2005, p. 3). One defector even revealed in an interview that the party leadership had told him on the very morning of 5 July that the party would not give him an endorsement and would support the party's candidate in his district (Tokyo Shimbun, 10 July 2005, p. 3). Since these were reported in the media, it is plausible to believe that all or at least many potential rebels were aware of these threats, and thus the possible consequences of their actions.
52 Asahi Shimbun, 6 July 2005, p. 1. Technically, the LDP had 250 Lower House members in total in July 2005, but two could not be present because one was bed-ridden (Seisaburō Nakamura) and the other was in a foreign country (Toshitsugu Saitō). We have excluded them from the analysis.
53 Asahi Shimbun, 6 July 2005, p. 4.
54 Although not directly relevant to our arguments, readers may be interested in more recent developments involving the rebels. In December 2006, a dispute emerged about whether the former rebels should be allowed to return to the party. As the House of Councillors July 2007 election approached, some leaders in the LDP, especially those in the HOC, started to demand that the LDP should recall ex-LDP members to increase the LDP's electoral strength (Nihon Keizai Shimbun, 29 May 2006, p. 2). The former ‘assassins’ did not like the idea, as they had challenged the rebels in the election and knew there would be endorsement conflicts in the next HOR election. Also, public opinion was generally critical of the return. Abe Shinzō, Koizumi's successor as party president and prime minister, and the new party leadership were ambivalent about the issue (Nihon Keizai Shimbun, 24 October 2006, p. 2). Despite this internal division, the LDP finally decided to let those who submitted themselves to strict requirements return to the party. The conditions included writing an essay repenting of anti-party misdeeds, stating that they supported postal privatization and promising not to oppose the party in the future.
Some interpret the party's action as an indication of its return to its pre-Koizumi days. Indeed, Prime Minister Abe's popularity among the public has dropped as a result; but it should be noted that previously when conservative independents had challenged LDP candidates and won, they had afterwards been admitted to the party unconditionally. The stringent conditions for re-admission this time can also be seen as a sign of the more centralized party leadership after Koizumi (Nihon Keizai Shimbun, 11 November 2006, p. 2). Eleven of the twelve former rebels who had applied for re-instatement submitted to the requirements and were allowed to return to the party on 4 December 2006.
55 Krauss and Pekkanen's Japan Legislative Organization Database [J-LOD]. It includes all LDP Diet Members in 1980–2006, with their constituency characteristics, personal backgrounds, election results, and all their party, legislative and executive posts from 1986 to 2006. The primary source is Seiji Handobukku (Tokyo: Seiji Kōhō Sentā, various years) and Seikan Yōran (Tokyo: Seisaku Jihōsha, various years).
56 The 1994 electoral reform and the resultant redistricting created the co-ordination problem. The problem was easily solved if some candidates had few regional overlaps in the old district, while it was hard if candidates’ kōenkai were regionally overlapped. In some of the latter cases, two candidates agreed that one would run in an SMD and the other in PR in one election and vice versa in the next.
57 On this point, see Greene, William H., Econometric Analysis, 5th edn (Upper Saddle River, N.J.: Prentice Hall, 2003), pp. 736–40Google Scholar.
58 Therefore, for an SMD winner, Strength represents the margin between him/her and the best loser. For a ‘zombie’ saved by PR, Strength becomes negative, meaning the distance between him/her and the winner.
59 In fact, the big three were the Hashimoto, Mori and Horiuchi factions as of June 2005, but we do not include the Mori faction in the big three as it was the mainstream – Koizumi was from the Mori faction.
60 Scheiner, Democracy Without Competition in Japan; Scheiner, ‘Pipelines of Pork’.
61 Technically, DIDs are those areas that satisfy two conditions: first, they should have a population density of more than 4,000 people per square kilometre; and, secondly, they should have a population of more than 5,000 people. The DID ratio is now a commonly used urbanization index, for example as used by Scheiner, Democracy Without Competition in Japan. The data is available at Taku Sugawara's website (<http://freett.com/sugawara_taku/data/2003did.html>). We thank Taku Sugawara for making this data public.
62 We thank Naoko Taniguchi for sharing this data.
63 Michael Tomz, Jason Wittenberg and Gary King, CLARIFY: Software for Interpreting and Presenting Statistical Results, Version 2.1 (Stanford University, University of Wisconsin and Harvard University, 2003). Available at <http://gking.harvard.edu/>.
64 On these developments, see Estévez-Abe, Margarita, ‘Japan's Shift toward a Westminster System: A Structural Analysis of the 2005 Lower House Election and Its Aftermath’, Asian Survey, 46 (2006), 632–51CrossRefGoogle Scholar.
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