Democracies in Development: Politics and Reform in Latin America, Revised Edition (Economic and Social Progress in Latin America, Annual Report)

351 Pages·2007·2.52 MB·English

by  Mark Payne

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DEMOCRACIES
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IN DEVELOPMENT r
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Politics and Reform in Latin America t
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J. Mark Payne, Daniel Zovatto G., and Mercedes Mateo Díaz n
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Andrés Allamand Zavala, Fernando Carrillo-Flórez, Koldo Echebarría, cw
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Flavia Freidenberg, and Edmundo Jarquín rr
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Published by the © f
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Inter-American Development Bank, t i
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the International Institute for Democracy and Electoral Assistance, and gr
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the David Rockefeller Center for Latin American Studies, rm
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Harvard University pr
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Washington, D.C.
2007
©2007 Inter-American Development Bank
1300 New York Avenue, N.W.
Washington, D.C. 20577
Copyright © by the Inter-American Development Bank. All rights reserved. No part of this
book may be reproduced or utilized in any form or by any means, electronic or mechanical,
including photocopying, recording, or by information storage or retrieval system, without
permission from the IDB. .
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Produced by the IDB Office of External Relations
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1st edition, 2002 e
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Expanded and updated edition, 2007 s
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To order this book, contact:
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IDB Bookstore l b
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Tel: [phone] Au
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Fax: [phone] k./
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E-mail: [email protected] r
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www.iadb.org/pub B.
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The views and opinions expressed in this publication are those of the authors and do not ei
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necessarily reflect the official position of the Inter-American Development Bank.
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Cataloging-in-Publication data provided by the ve:
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Inter-American Development Bank Dsi
Felipe Herrera Library n b
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Democracies in development : politics and reform in Latin America / J. Mark Payne ... [et rir
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“Expanded and updated edition, 2007” ervi
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p. cm. Io

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Includes bibliographical references. hat
ISBN 1-59782-036-9 tm
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LCCN 2007920347 bor
© f
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1. Elections—Latin America. 2. Latin America—Politics and government—1980-. 3. Latin t i
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America—Economic conditions—1982–. I. Payne, J. Mark. II. Inter-American Development gr
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Bank. III. International Institute for Democracy and Electoral Assistance. IV. David rm
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Rockefeller Center for Latin American Studies. pr
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324 D36--dc21
JF1001 D36 2007
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Contents v
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Foreword ....................................................................................................................................v Au
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Acknowledgments ...................................................................................................................vii k./
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Preface .......................................................................................................................................ix r
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Chapter 1 ....................................................................................................................................1 ei
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The Role of the State and Politics in Latin American Development (1950–2005)
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Edmundo Jarquín and Koldo Echebarría ow
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Part I et
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Institutions and Democracy (I): Election Rules and Regime Design n b
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Chapter 2 ..................................................................................................................................17 i
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The Effects of Presidential Election Systems on Democratic Governability eu
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J. Mark Payne and Andrés Allamand Zavala At
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Chapter 3 ..................................................................................................................................37
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Legislative Electoral Systems and Democratic Governability Io

J. Mark Payne heati
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Chapter 4 ..................................................................................................................................81 bor
Balancing Executive and Legislative Prerogatives: © nf
The Role of Constitutional and Party-Based Factors t i
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Chapter 5 ................................................................................................................................117 pr
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Institutions of Democratic Accountability in Latin America: CF
Legal Design versus Actual Performance
Fernando Carrillo-Flórez
Part II
Institutions and Democracy (II): Political Parties
Chapter 6 ................................................................................................................................149
Party Systems and Democratic Governability
J. Mark Payne
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Chapter 7 ................................................................................................................................179 d
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Intraparty Democratic Processes and the Financing of Political Parties v
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Daniel Zovatto G. and Flavia Freidenberg e
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Part III
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Citizen Participation and Democracy ht
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Chapter 8 ................................................................................................................................221 l b
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Direct Democracy Institutions Au
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Daniel Zovatto G. k./
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Chapter 9 ................................................................................................................................241 B.
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Trends in Electoral Participation ntd
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Mercedes Mateo Díaz and J. Mark Payne ei
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Chapter 10 ..............................................................................................................................271 ow
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Gauging Public Support for Democracy vee:
Mercedes Mateo Díaz, J. Mark Payne, and Daniel Zovatto G. et
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Conclusions ............................................................................................................................301 ae
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Trends in Democratic Reform in Latin America i
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The authors eu
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About the Authors .................................................................................................................317 -s
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Index .......................................................................................................................................319 Io

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Appendix 1 bor
Summary of Selected Political Institutional Rules by Country © nf
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Appendix 2 gr
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Electoral Turnout in Latin America, 1978–2006 rm
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Appendix 3 CF
Results of Presidential and Legislative Elections, 1978–2006
iv Democracies in Development
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Foreword v
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More than 200 years ago, Charles de Montesquieu and Adam Smith identified the rela- ntd
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tionship between the well-being of nations and a sound legal framework capable of ei
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ensuring certain fundamental rights. Since that time, institutions have remained a signif-
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icant focus of discussion and debate in both academic and political forums. Throughout ow
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the past century, the vital role played by institutions has been examined by Ronald Coase vee:
and neo-institutionalist academics like Douglass North, acquiring renewed salience in et
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the 1990s as research and thinking in the area converged to shed light on major world n b
events. ae
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Today, demanding markets and increasingly globalized economies compel countries to i
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have the capacity to adapt quickly to change. The necessary adaptability is built on many eu
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qualities—chief among them confidence in a predictable legal system and public policies; At
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a reliable and flexible regulatory framework that stimulates business growth and labor -s
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market expansion; efficient investment in human capital and infrastructure; and social
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policies that cultivate both a well-prepared labor force and effective mechanisms of social Io

protection. All these components necessarily depend on a system of strong institutions heati
that facilitate the design and implementation of reforms that are sound, gradual, and well- tm

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adapted to specific realities. bor
During the past 25 years, countries in Latin America and the Caribbean have expe- © nf
rienced the progressive consolidation of democratic freedoms, and political actors and t i
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citizens have accepted the rules of the electoral game. Representatives of the region’s gr
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governments have agreed to take part in competitive electoral processes in which they sub- rm
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ject their political performance to periodic voting. The current period is the region’s most pr
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protracted and geographically extensive electoral phase in history. In some cases, this has CF
brought considerable political realignment, the opening of representative institutions to
new political groups and, certainly, along with that, the advancement of novel ideas. The
current challenge is now to ensure that democratic institutions endure and are consolidated
and strengthened by such processes.
The present study focuses precisely on these institutions. It examines prevailing reform
trends as well as the principal governance challenges confronting the region. It is our thesis
that while the interactions, negotiations, and agreements among political actors are cer-
tainly significant, even more significant are the institutions within which such interactions
take place.
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Written in this spirit, this book is the result of a joint effort initiated by the Inter-American d
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Development Bank and the International Institute for Democracy and Electoral Assistance in v
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2002 with the publication of the first edition of Democracies in Development. The great demand e
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for both the English and Spanish editions prompted the preparation of this expanded and e
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updated edition. We hope that this book, like the first edition, stimulates useful debate on
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the central institutional questions shaping the course of development in the region. ht
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Luis Alberto Moreno Vidar Helgesen l b
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President Secretary-General Au
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Inter-American Development Bank International IDEA k./
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vi Democracies in Development
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Acknowledgments v
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Assembling this book depended on contributions from many people. Edmundo Jarquín, ntd
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former chief of the State, Governance, and Civil Society Division of the Sustainable ei
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Development Department at the Inter-American Development Bank (IDB), and Bengt Säve-
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Söderbergh, the former secretary-general of the International Institute for Democracy and ow
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Electoral Assistance (International IDEA), provided solid intellectual and institutional sup- vee:
port to the project. Marco Ferroni, deputy manager of the IDB’s Sustainable Development et
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Department, ensured that this institutional commitment was carried through to the com- n b
pletion of this revised edition. Special thanks are also due Andrés Allamand Zavala, who ae
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conceived the idea of producing the first edition of this book and, through his enthusiasm i
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and leadership, helped to move it forward in its early stages. eu
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The theoretical and conceptual discussions in each chapter drew on insights and analy- At
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sis in the published works of numerous scholars. Given their studies’ particular importance -s
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to the conceptual frameworks and theoretical ideas presented in various chapters of the
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book, we owe special gratitude to the following scholars: Manuel Alcántara, John Carey, Io

Fernando Cepeda, Rodolfo Cerdas, Larry Diamond, Scott Mainwaring, Dieter Nohlen, Pippa heati
Norris, Guillermo O’Donnell, Marc F. Plattner, Juan Rial, Dani Rodrik, Andreas Schedler, tm

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Timothy R. Scully, Amartya Kumar Sen, and Matthew Soberg Shugart. bor
We also thank Manuel Alcántara, Humberto de la Calle, Fernando Cepeda, Ricardo © nf
Córdova, Flavia Freidenberg, Mark P. Jones, Fabrice Lehoucq, José Enrique Molina, Dieter t i
he
Nohlen, Guillermo O’Donnell, Juan Rial, Daniel Sabsay, and Michael Shifter for the valu- gr
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able comments they provided on various chapters of the first edition. This new edition also rm
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benefited from comments from participants in the seminars and conferences at which the pr
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first edition was presented and discussed, and from the helpful remarks of two anonymous CF
reviewers.
We are also grateful for the contributions of numerous country experts who enthusias-
tically committed themselves to filling gaps and checking the information on institutional
rules and structures for particular countries—information that provided the foundation
for the cross-country comparisons presented in the chapters and the country tables pre-
sented in Appendix 1. Without their generous collaboration, this book would not have
been possible. The following persons deserve our deepest gratitude: Delia Ferreira Rubio,
Laura Velásquez, Delia Matilde Ferreira, Daniel Sabsay, and Hernán Gonçalvez (Argentina);
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Jorge Lazarte, René Mayorga, and Alfredo Bocángel (Bolivia); David Fleischer, Torquato d
e
Jardim, Fernando Neves, and Bruno W. Speck (Brazil); Rolando Franco, Pedro Ignacio v
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Mujica B., and Juan Ignacio García (Chile); Gabriel de Vega, Augusto Hernández Becerra, e
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and María Magdalena Forero (Colombia); Rubén Hernández, Gonzalo Brenes, and Fabrice e
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Lehoucq (Costa Rica); Flavio Darío Espinal, José Ángel Aquino, Luis Arias, and Isis Duarte
s
(Dominican Republic); Alexandra Vela, Medardo Oleas Simón Pachano, and Andrés Mejía ht
Acosta (Ecuador); Francisco Bertrand and Félix Ulloa (El Salvador); Jorge Mario García La g
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Guardia and Gabriel Medrano (Guatemala); Mario Aguilar and Adán Palacios (Honduras); l b
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José M. Serna de la Garza, Carlos Vargas, Arturo Núñez, and Fabrice Lehoucq (Mexico); Au
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Rosa Marina Zelaya (Nicaragua); Eduardo Valdés and Ermitas Pérez (Panama); Rafael k./
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Dendia, Jorge Silvero Salgueiro, and Line Bareiro (Paraguay); Fernando Tuesta, Ximena r
ao
Zavala, Jorge Valladares, and Adelaida Bolívar (Peru); Liliana Cella, Juan Rial, and Rodolfo B.
b

González (Uruguay); Mercedes de Freitas, José Enrique Molina, and Jacqueline Mosquera ntd
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(Venezuela), and Ronny Rodríguez (Honduras, Guatemala, and El Salvador). ei
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For the care devoted to editorial production, we thank the IDB’s Office of External
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Relations, where the work on this volume was coordinated by Rafael Cruz and Elisabeth ow
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Schmitt. The manuscript was edited by Steven B. Kennedy and proofread by Naomi vee:
Chernick-Berman. Michael Harrup served as production editor, and Cathy Conkling-Shaker et
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provided editorial assistance. The cover was designed by Cinthya Cuba, and the interior n b
design and layout were handled by Sandra Reinecke of The Word Express, Inc. ae
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We are also indebted to Ileana Aguilar at International IDEA and Juan Cruz Perusia, i
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Ana Inés Basco, Mauricio Granillo, and Ingrid Carlson of the IDB, for their valuable research eu
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and editorial assistance for this new edition. Nor can we fail to mention Marcelo Varela at At
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International IDEA and Stephanie Hogan, Claudio Galán, Sean Reagan, and Elisa Vannini -s
ervi
of the IDB, for their contributions to the first edition.
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viii Democracies in Development