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doi:10.5477/cis/reis.169.123 Political Leadership and Local Elections: Nationalisation, Regionalisation or Localism? Liderazgo político y elecciones municipales: ¿nacionalización, regionalización o localismo? Carmen Ortega-Villodres and Fátima Recuero-López Key words Abstract Local Elections Municipal elections have traditionally been conceptualized as subordi- • Political Leaders nate to the national political situation, and thus considered second-or- • Localism der elections. However, voters could take into account national, regional • Nationalisation or specifically local factors in determining their vote in these elections. • Regionalisation Therefore, the aim of this study is to examine the electoral impact of these factors through political leadership. Thus, using binary logistic regression, we examine and confirm the impact of national, regional and local leaders in the municipal vote in the Autonomous Region of Anda- lusia. The results show that local candidates have a greater impact on municipal elections than national and regional leaders, so local elections have their own autonomy. Palabras clave Resumen Elecciones municipales Las elecciones municipales han sido tradicionalmente conceptualizadas • Líderes políticos como unas convocatorias de segundo orden, estando así supeditadas a • Localismo la situación política nacional. Sin embargo, los electores podrían tener en • Nacionalización cuenta factores nacionales, regionales o propiamente locales para definir • Regionalización su voto en estas convocatorias. Por ello, el objetivo de este estudio es examinar la incidencia electoral de dichos factores a través del liderazgo político. Así, se comprueba el efecto de los líderes nacionales, regionales y locales en el voto municipal en el ámbito de la comunidad autónoma de Andalucía. Se utiliza como técnica de análisis la regresión logística binaria. Los resultados muestran que los candidatos locales tienen un mayor impacto en las elecciones municipales que los líderes nacionales y regionales, de modo que las consultas locales tendrían una autonomía propia. Citation Ortega-Villodres, Carmen and Recuero-López, Fátima (2020). “Political Leadership and Local Elections: Nationalisation, Regionalisation or Localism?”. Revista Española de Investigaciones Sociológicas, 169: 123-142. (http://dx.doi.org/10.5477/cis/reis.169.123) Carmen Ortega-Villodres: Universidad de Granada | cortega@ugr.es Fátima Recuero-López: Universidad de Granada | frecuero@ugr.es Reis. Rev.Esp.Investig.Sociol. ISSN-L: 0210-5233. Nº 169, January - March 2020, pp. 123-142
124 Political Leadership and Local Elections: Nationalisation, Regionalisation or Localism? Introduction autonomy in municipal elections, and that it is local and not national factors that are taken Local elections have occupied a secondary into account in voting decisions (Brugué and place in electoral research (Capó 1991; Del- Gomà, 1998; Rallings and Thrasher, 1993; gado, 2010) in comparison with elections at Deschouwer, 1994; Blais et al., 2003; Marien other levels, such as national or regional. et al., 2015). In addition, the growing interde- This is due, among other reasons, to the lo- pendence between different levels of govern- cal arena being considered a political sphere ment (Thorlakson, 2006), along with the that lacks sufficient autonomy; which has strengthening of both regional (van Biezen even led to the questioning of the local char- and Hopkin, 2006; Schakel and Jeffery, 2013) acter of municipal elections (Curtice and and local spheres (Brugué and Gomà, 1998), Payne, 1991; McLean et al., 1996; Heath et could mean that voters may be taking criteria al., 1999; Quinlivan and Weeks, 2010). With- pertaining to all the political arenas into ac- in a segment of the academic literature, they count when they vote. are considered as second order elections Consequently, the arguments for nation- under the influence of the national political alisation, regionalisation and localism have situation (Reif and Schmitt, 1980). As a con- generated a deep theoretical debate regard- sequence, the study of municipal elections ing the criteria and factors that voters use in has been dominated by the theory of nation- deciding whom to vote for in municipal elec- alisation. From this perspective, it is argued tions. However, the majority of studies adopt that the electorate vote in municipal elec- an aggregate perspective, which does not tions based on factors relevant to the na- allow us to identify the factors that condition tional sphere (Capó, 1991; Thomsen, 1998; voting behaviour at the individual level Delgado, 1999), consistent with the second (Martínez and Ortega, 2010; Riera et al. order election model (Reif and Schmitt, 2017). This is particularly striking in research 1980; McLean et al., 1996; Heath et al., on nationalisation in municipal elections, as 1999). the fact that national parties dominate mu- This consolidated theoretical perspective nicipal political competition does not neces- is now the object of revision. New perspec- sarily imply that local factors are not involved tives are questioning the primacy of national in individuals’ voting decision, especially if politics on the local sphere, as factors spe- local political leaders are considered (Rall- cific to other geographic levels have been ings and Thrasher, 1993; Marien et al., 2015). acquiring importance in this sphere as well. In the Spanish context, there are few studies First, due to its great importance in Spain’s that specifically analyse the influence of po- political reality, it is suggested that the re- litical leadership in the local sphere, a para- gional component is reducing the hegemony doxical issue due to the greater personalisa- of national parties in the local arena. As a tion of politics that tends to be attributed to result, regionalisation could also be present the municipal arena (Carrillo, 1989), as well at the local level (Carrillo, 1989; Delgado, as to the growing electoral importance of 1998). Secondly, other authors defend the leaders with the decline of the traditional idea that local politics have been revitalised, conditioners of the vote (Mackie and Frank- as it is configured as the best arena for ad- lin, 1992; Knutsen, 1998; Dalton, 2000). dressing new and growing demands of pop- Among these, the studies by Delgado (1999), ulations in a context of globalisation. This Barreiro and Jaraiz (2013), Martínez and Or- would mean, in opposition to the arguments tega (2010) and Riera et al. (2017) stand out. for the nationalisation of local politics, that In this context, the objective of this article the local sphere has its own importance and is to analyse the different degree of national- Reis. Rev.Esp.Investig.Sociol. ISSN-L: 0210-5233. Nº 169, January - March 2020, pp. 123-142
Carmen Ortega-Villodres and Fátima Recuero-López 125 isation, regionalisation and localism in mu- there is less at stake in them1. This means nicipal elections at the individual level. In that in local elections, due to their lesser im- particular, we analyse the impact of national, portance, voters make their voting choice regional and local political leaders on the considering existing circumstances in the 2011 and 2015 municipal elections in Anda- national political arena. As a result, according lusia. The Andalusian context as the setting to this perspective, factors relevant to other for our analysis is justified for two main rea- governing levels, specifically the national, are sons. First, Andalusia is one of the four Au- determinant. In fact, diverse studies have revealed the secondary character of local tonomous Regions in Spain where local elec- elections (McLean et al., 1996; Heath et al., tions do not take place simultaneously with 1999; Curtice and Payne; 1991; Delgado, regional elections, so the effects of “contam- 2010; Quinlivan and Weeks, 2010), finding ination” are reduced. Secondly, and for that it is national factors that have deter- methodological reasons, Andalusia is the mined the vote (McLean et al., 1996; Heath only region where survey data exists that in- et al., 1999). cludes variables related to political leader- Along these lines, and particularly in ship on the three different geographic levels, Spain, academic contributions to the study provided in this case by the Centro de Análi- of municipal elections reveal a high level of sis y Documentación Política y Electoral de nationalisation2. Primarily through aggre- Andalucía (CADPEA). gate analyses, it has been found that nation- With this aim, first we examine the theo- al political parties control municipal rep- retical postulates of nationalisation, regional- resentation to the detriment and decline of isation and localism in regard to municipal truly local candidatures. The high level of elections. Secondly, we review studies on the representation of national parties in the mu- impact of political leadership on these types nicipal sphere implies that national interests of elections and introduce our main working are imposed over local ones, as there is hypotheses. Thirdly, we carry out an analysis great consistency between municipal and at the aggregate level of the degree of na- national elections, both in terms of results and in terms of the resulting party systems tionalisation, regionalisation and localism in at each level of government (Carrillo, 1989; the two municipal elections in Andalusia. Capó, 1991; Curtice and Payne, 1991; Bru- Fourthly, we present the methodology used gué and Gomà, 1998; Thomsen, 1998; Del- in the analysis of the effect of leaders on the gado, 1999, 2010; Quinlivan and Weeks, vote at the individual level and our results. 2010). In addition, studies show that the Lastly, we present our conclusions. nationalisation of the local sphere has been strengthened over time, so that national pol- Nationalisation, regionalisation and localism in municipal 1 Second order elections are characterised by lower elections levels of participation than first order (national) elections, by better results for small and new parties, and by the Municipal elections have traditionally been loss of votes for the governing party (Reif and Schmitt, 1980). examined through the lens of the nationalisa- 2 Concretely, in the Spanish case, national political par- tion thesis and the second order election ties colonized the new local political system that emerged model. According to this paradigm devel- after the processes of democratisation and decentrali- sation. This was fostered by institutional design, which oped by Reif and Schmitt (1980), all non-na- created obstacles for the formation and success of spe- tional elections are second order elections as cifically local parties and candidatures (Botella, 1992). Reis. Rev.Esp.Investig.Sociol. ISSN-L: 0210-5233. Nº 169, January - March 2020, pp. 123-142
126 Political Leadership and Local Elections: Nationalisation, Regionalisation or Localism? itics increasingly dominates local political tional parties in municipal elections (Marien arenas (Carrillo, 1989; Capó, 1991; Delga- et al., 2015). do, 1998). Therefore, from this perspective, Within the framework of this theoretical the municipal level becomes a new space controversy on the impact of nationalisation for political and electoral competition and localism in the municipal sphere, a new among national political parties (Carrillo, current has emerged that argues for interde- 1989; Delgado, 1999). These findings lead pendence between levels of government to the conclusion that voters use these elec- (Thorlakson, 2006). From this perspective, tions as a means to express opinions re- voters may be motivated by factors of any garding national politics, as votes are decid- political arena when deciding on their vote ed using national criteria and not factors of in a specific electoral process (Bechtel, a local character. 2012), as there is an overlap among the dif- However, new studies have begun to ferent geographic levels. As a result, individ- emerge that question the secondary char- uals could decide on their vote in municipal acter of municipal elections and, therefore, elections based on national, regional and/or the postulates of nationalisation, particular- local factors. Along these lines, some au- ly given the lack of studies that confirm the thors have suggested that a tendency to- arguments of nationalisation on the individ- ward the regionalisation of local politics ex- ual level and in the face of growing compe- ists, due to the presence of regionalist and tition in the local arena. As a result, there nationalist parties (Carrillo, 1989; Delgado, has been increased academic interest in the 1999). Thus, this push toward regionalisa- importance of local issues on municipal pol- tion could limit the nationalisation of the mu- itics. In this sense, Brugué and Gomá (1998) nicipal arena and the penetration of state argue that in the Spanish context the na- level parties4. tionalisation thesis is being substituted for In short, nationalisation, regionalisation one of localism, as local governments have and localism could coexist in the local polit- acquired greater autonomy3, contributing to ical arena, making it necessary to determine a revitalisation of local politics and issues. which of these tendencies prevails, although This argument is also found at the compar- not (necessarily) being exclusive. In this ative level where nationalisation is also los- sense, the majority of studies that have ad- ing ground (Claggett et al., 1984), despite dressed these issues focus on analysing the local reforms established to merge and re- electoral support that national, regional and duce municipalities (Deschouwer, 1994). local parties receive in municipal elections Regarding these arguments in favour of lo- at the aggregate level. However, the identi- calism, other authors argue that citizens fication of voting motives requires an analy- may vote in municipal elections motivated sis at the individual level to determine if na- by specifically local factors and not based tional, regional and/or local factors condition on national criteria (Rallings and Thrasher, the vote in these types of elections. Among 1993; Cutler, 2008) even if they choose na- these factors, we consider, given their grow- ing importance, the influence of national, regional and local leaders on municipal 3 The strengthening of local governments is a conse- elections. quence of the increase in the services they provide in a context of increasing citizen demands and globalisa- tion, both phenomena that locate the local sphere as the most adequate to face and resolve problems de- 4 Regionalisation has also been operationalised at the rived from them due to its closeness to the population aggregate level through electoral support for regionalist (Brugué and Gomá, 1998). parties. Reis. Rev.Esp.Investig.Sociol. ISSN-L: 0210-5233. Nº 169, January - March 2020, pp. 123-142
Carmen Ortega-Villodres and Fátima Recuero-López 127 The impact of political isation of the municipal arena could lead to leadership in municipal local candidates having a greater impact. elections Along these lines, different studies confirm that voters can split their votes in general and If, as pointed out before, municipal elections municipal elections; in other words, choose have not been a preferred object of study in a candidate in the local election from a party electoral research (Capó, 1991; Delgado, different from the one they vote for in the na- 2010), the study of the impact of leadership tional election because they know the can- on them is an issue that has been even more didate personally (Rallings and Thrasher, ignored. There are practically no empirical 2003)5. Thus, one of the main reasons for studies that analyse the impact of local can- split voting would be knowing the local can- didates on municipal elections, and even didates (Marien et al., 2015). Consequently, fewer in the Spanish case. The few referenc- local candidates of national formations may es that can be found in this respect, are adopt an electoral strategy distancing them- framed within studies examining local elec- selves from their own political party so that tions from a more general perspective they are not disadvantaged in the case that (Martínez and Ortega, 2010; Riera et al., their party is in a precarious position in the 2017). This is particularly paradoxical in a po- national political arena (Rallings and Thrasher, litical arena with the nature the local level has 1993). Therefore, voters could vote for a na- and in a context in which, due to the weak- tional level party in municipal elections but ening of traditional conditioners of voting de- because of the specific local candidate (Ma- cisions (Mackie and Franklin, 1992; Knutsen, rien et al., 2015), breaking with the argument 1998; Dalton, 2000), leadership is acquiring of nationalisation and the second order elec- greater importance in voting (Rico, 2009). tion model, suggesting greater personalisa- The nationalisation thesis and the second tion in the local sphere. order election model assume that local can- The relevance of local leadership in voting didates have practically no influence on the is evident in the Canadian context, where vote in municipal elections, as specifically even local candidates running on party lists local factors are not an object of considera- in different districts for federal elections had tion (Claggett et al., 1984; Carrillo, 1989; Del- an impact on the vote (Cunningham, 1971; gado, 1998; Thomsen, 1998). Hence, the Blais et al., 2003). Marien et al. (2015) also argument is that national leaders have great- found this to be the case in Belgium, as the er impact than local candidates in municipal importance of local candidates in the munic- elections, as voters base their vote on factors ipal sphere meant that voters did not take of the national political arena. These postu- into account considerations of a national lates were confirmed by Delgado (1999) in character in municipal elections. In Spain, examining the 1995 municipal elections in and in contrast to the studies mentioned on Spain, as national leaders had a significant nationalisation, Barreiro and Jaráiz (2013) effect on the results, while local candidates found, in examining local elections in Galicia, were found to have had no importance in de- that national leaders did not have an impor- termining voting behaviour. tant impact on the vote, while strictly local Questioning the nationalisation of local politics (Brugué and Gomá, 1998) and the second order nature of municipal elections is 5 This split voting in many cases favours candidates from based on a consideration that local issues strictly local parties and candidatures (Waller, 1980), so that independent local leaders are at less of a disadvan- can be at the forefront of citizens’ electoral tage in municipal elections in relation to local leaders motivations (Marien et al., 2015). The revital- from national parties (Quinlivan, 2015). Reis. Rev.Esp.Investig.Sociol. ISSN-L: 0210-5233. Nº 169, January - March 2020, pp. 123-142
128 Political Leadership and Local Elections: Nationalisation, Regionalisation or Localism? candidates did. Riera et al. (2017) came to However, there are no studies either at similar conclusions. the comparative level or specifically regard- However, nationalisation and localism are ing Spain that examine the comparative not necessarily mutually exclusive in regard impact of national, regional and local lead- to voters’ motivations (Delgado, 1999; Clark ers on the vote in municipal elections. The and Rohrschneider, 2009). Therefore, from actual impact of regional leaders on local this perspective, both national and local elections has never been measured. In ad- leaders could impact the vote in municipal dition, the majority of studies that present elections, making it necessary to determine findings on the effect of national and local the influence of both. In this sense, Martínez leaders on municipal election results have used the aggregate level, with a few excep- and Ortega (2010) suggest that the 2007 mu- tions, such as the studies of Delgado (1999) nicipal elections in Andalusia had both a na- and Martínez and Ortega (2010). The few tional and local character, with both nation- studies that have looked at the individual alisation and localism coexisting. In this case level lack specific variables regarding vot- it would be necessary to take into account ers’ evaluations of political leaders at the that the impact of national and local factors three levels, as there is an absence of em- could be relatively stable or conditioned by pirical survey data. As a result, this article the context (Rallings and Thrasher, 1993, intends to contribute to expanding current 2003), in other words, by the type of issues knowledge on the impact of political leader- (national, regional or local) that had the most ship on municipal elections, carrying out an importance during the campaign (Delgado, analysis at the individual level to determine 1999; Quinlivan and Weeks, 2010). Quinlivan the effect of national, regional and local and Weeks show, in regard to Ireland, that leaders on the vote in municipal elections, when a specific party focuses their cam- focusing on the case of Andalusia. paign on the local arena due to their poor Our initial working hypothesis is based on position in the national arena, the local can- the thesis of interdependence, that is, that didate will be more important to the voters of the vote can be influenced by factors related this party. to different levels of government. In this Due to this interdependence across the sense, hypothesis 1 is the following: different political arenas (Thorlakson, 2006) — National, regional and local leaders im- and the mentioned regionalisation of local pact the vote in municipal elections. politics (Carrillo, 1989; Delgado, 1999), re- gional factors can also be an object of con- Our second, more specific hypothesis, sideration in the municipal vote. As a result, and based on the literature, is the following: regional leaders could also have influence on — National and regional leaders impact the the vote in local elections, which makes vote in municipal elections, but the influ- sense given the important degree of regional ence of local leaders is greater, especially autonomy and competencies acquired by in smaller municipalities. regions in western countries (van-Biezen and We have limited the present study to the Hopkin, 2006; Cutler, 2008; Schakel and Autonomous Region of Andalusia. This is Jeffery, 2013). The importance acquired by justified, as mentioned, for two important the autonomous regional arena in Spain reasons. First, Andalusia is one of the four places regional leaders in an important posi- autonomous regions in Spain (along with tion; they are able, like their parties, to ex- Catalonia, Galicia and the Basque Country) pand their influence to other political arenas where municipal elections are celebrated (Delgado, 1999). separately from regional elections. This Reis. Rev.Esp.Investig.Sociol. ISSN-L: 0210-5233. Nº 169, January - March 2020, pp. 123-142
Carmen Ortega-Villodres and Fátima Recuero-López 129 makes it possible to isolate voters’ motives tion of local elections at the regional level in municipal elections with less risk of con- permits us to generalise the results found. tamination due to the existence of concur- Lastly, we incorporated the municipal rent elections of another type. Secondly, the elections in 2011 and 2015 to make possi- Andalusian context is the only regional one ble their comparison. The inclusion of both that permits us to examine the effect of elections also permits us to confirm the re- leaders of the three governmental levels in liability of the results, as they refer to differ- municipal elections at the individual level, ent political realities, due to a transforma- due to methodological limitations in other tion in the electoral behaviour of citizens places and the existence of post-electoral and consequently in the party system with surveys carried out by the CADPEA incor- the appearance of new political formations porating questions about the evaluation of in the 2015 elections. national, regional and local leaders in the context of the municipal elections in Anda- lusia. In particular, we use the CADPEA data The 2011 and 2015 municipal for the 2011 and 2015 elections (EGOPA elections in Andalusia Verano 2011 and EGOPA Verano 2015). This In what follows, and in line with the majority means locating the level of analysis in the of previous studies, we carry out an aggre- regional sphere, which, although presenting gate analysis of the degree of nationalisation, some limitations, also generates some im- regionalisation and localism in the 2011 and portant methodological advantages. Thus, 2015 municipal elections in Andalusia. To do although our analysis of municipal elections this we use the main indicator used in the is not carried out in the context of one or majority of existing studies on the nationali- more concrete municipalities, our examina- sation of local politics: the percentage of GRAPH 1. Votes for national, regional and local parties in 2011 and 2015 municipal elections in Andalusia (% candidatures) 86,02% National parties 0,00% 6,00% Regional parties 0,00% 7,98% Local candidatures 0,00% 0,00% 20,00% 40,00% 60,00% 80,00% 100,00% 2011 2015 Source: By authors based on data from the Ministerio del Interior. Reis. Rev.Esp.Investig.Sociol. ISSN-L: 0210-5233. Nº 169, January - March 2020, pp. 123-142
130 Political Leadership and Local Elections: Nationalisation, Regionalisation or Localism? electoral support that national parties obtain didates in the municipal elections, which is in comparison to local and regional parties. still a limited number. Thus, in Graph 1 we see the percentages of The results confirm the major penetra- the vote that parties in the national, regional tion of national formations in the local polit- and local spheres received in the two munic- ical arena, which suggests that the Andalu- ipal elections analysed. There are important sian municipal party system is strongly differences in the two elections regarding nationalised. However, this does not mean party competition. Concretely, the 2015 elec- that voters use mainly national criteria in de- tion saw the participation of two new political ciding their vote; as discussed earlier, they formations, Ciudadanos and Podemos6, that could be choosing national parties but had earlier participated in regional election in based on local factors (Marien et al., 2015). March of 20157. As a result, it is necessary to carry out an Despite the different political context, we analysis at the individual level to determine find no relevant differences in the percent- if Andalusian voters are motivated by na- age of votes for national, regional and local tional, regional or local factors when voting parties between the two elections. As shown in municipal elections and, if they are, to in previous studies, there is a high level of what extent. We use political leadership as nationalisation in the local political arena at the indicator. the aggregate level. Thus, support for na- Before proceeding to our analysis, and to tional political formations was above 80% in provide context, we will examine the percep- both 2011 and 2015. As a result, the degree tion that voters had over what the issues of aggregate regionalisation is very limited in were that dominated the electoral cam- municipalities in Andalusia; only 6% of vot- paigns in their municipalities. We do this be- ers chose regional parties in 2011 and only cause the types of issues (national, regional 3.98% in 20158. Regarding localism, the or local) that voters give the greatest atten- specifically local parties and candidatures tion to during the campaign could condition received 7.98% of the vote in 2011 and the criteria they use in deciding their votes 13.25% in 2015, the latter increase associ- (Rallings and Thrasher, 1993, 2003; Delgado, ated with the participation of local candi- 1999; Quinlivan and Weeks, 2010). In this dates linked to Podemos. Thus, a bit more sense, based on the data shown in Graph 2, than one of every ten voters chose local can- we can see that 57.9% of voters in 2011 and 64.1% in 2015 were focused on local issues. Those that considered the political debate 6 However, the local sphere is different from the regional during the campaign to have been monopo- one, as reflected in the fact that these new formations lised by national issues made up only 22% received less support in the municipal elections in aggre- of voters. gate terms, though not in regard to certain concrete mu- nicipalities, perhaps because of the impossibility to pre- sent candidatures in all of the municipalities in the region. 7 It is necessary to point out that Podemos did not par- Methodology ticipate in these elections as a national party, but its smaller geographic bases were given the freedom to To analyse the effect of political leaders on the present specifically local candidatures, although these ultimately did have a connection to the national party. vote in municipal elections in 2011 and 2015, As a result, by presenting independent candidates in we used data from the EGOPA (Estudio Gen- each municipality we have chosen to include them within eral de Opinión Pública de Andalucía) from the the typology of local candidates in Graph 1. CADPEA. In particular, we used the waves that 8 The decline from 2011 to 2015 was a result of a de- cline in support for the Partido Andalucista, the main constituted the post-electoral studies for both regional political formation. elections: EGOPA Verano 2011 (N=3200) and Reis. Rev.Esp.Investig.Sociol. ISSN-L: 0210-5233. Nº 169, January - March 2020, pp. 123-142
Carmen Ortega-Villodres and Fátima Recuero-López 131 GRAPH 2. Issues on which the electoral campaign was focused in the 2011 and 2015 municipal elections in Andalusia (percentage) National Local Both equally Depends, sometimes NR/DK one and sometimes the other Source: By authors based on data from EGOPA Verano 2011 and EGOPA Verano 2015. EGOPA Verano 2015 (N=1200). We use binary vote PSOE” and “vote IU versus vote PSOE”. logistic regression to carry out our analysis. Given the two elections analysed, this results This technique permits us to examine the fac- in eight logistical regression models (four with- tors that impact on two opposed phenomena. out interaction and four with interaction). In this case, we analyse the vote for one party The definition and operationalisation of in contrast to the vote for its main competitor9. the independent variables are the following: We focus on the traditional parties (PP, PSOE — “National, regional and local political lead- and IU) due to the limited number of cases for ers”. These are the most important indica- the new formations (Podemos and Ciu- tors in the analysis, as they permit us to dadanos)10. Therefore, we use two dichoto- measure the degree of nationalisation, re- mous dependent variables: “vote PP versus gionalisation and localism behind the indi- vidual motivations of voters. They include nine variables related to political leaders, 9 This analytical decision allows us to examine the mo- one for each of the three parties included tivations behind the most frequent voting decisions in the analysis (PSOE, PP and IU) at each among the voters. We have discarded operationalising the dependent variables referring to the vote for one of the three levels of government where party versus the vote for the rest of the formations be- they exercise their political activity (nation- cause the latter category would include very different al, regional and local). The assessment of parties, which could distort the results. In addition, we rejected the possibility of examining the vote for a party national, regional and local leaders11 is versus the fact of not voting for it, as that would include based on a scale of 1 to 5. abstentions, a behaviour in which political leaders tradi- tionally do not exercise any influence. 10 The candidatures associated with Podemos remain outside of the analysis, as they constitute specifically 11The variables regarding municipal leaders reflect the local candidatures. assessment of local electoral lists. Reis. Rev.Esp.Investig.Sociol. ISSN-L: 0210-5233. Nº 169, January - March 2020, pp. 123-142
132 Political Leadership and Local Elections: Nationalisation, Regionalisation or Localism? — “Partisan identification”. This has five nicipalities between 20,0001 and 50,000 possible values: 1 for those identified inhabitants; and 4 for municipalities with with the party; 2 for those close to the more than 50,000 inhabitants. party; 3 for those not identified or close Interaction effects: to the party or to its main competitor; 4 for those close to the party’s main com- — “Local political leaders*size of municipal- petitor; and 5 for those identified with the ity”. This interaction is introduced in the party’s main competitor. This variable analysis to observe the impact of local has two variants based on the depend- candidates by size of habitat (hypothesis ent variables: “partisan identification 2). An interaction is incorporated for each with the PP versus with the PSOE” and one of the political parties included in the “partisan identification with the IU versus analysis. Size of municipality is consid- the PSOE12”. ered as a nominal variable, using the val- — “Ideology”. This variable is constituted by ue 1 (up to 10,000 inhabitants) as the ref- five values: 1 for the extreme left; 2 for the erence category, that is, the smallest size left; 3 for the centre; 4 for the right; and 5 municipalities. for the extreme right. These three main independent variables The impact of national, regional have been treated as scale variables with and local leaders in municipal values from 1 to 5 to standardise their ef- elections fects. We have introduced the following as con- The results of the regression models are trol variables: presented in Table 113. The analysis shows — “Education level”. This indicator has the that local, regional and national leaders im- value of 1 for without education or incom- pact on the municipal vote, with the specif- plete primary level education; 2 for prima- ically local candidates having greater im- ry school education; 3 for obligatory sec- pact. In this sense, local electoral lists have ondary school education or basic a statistically significant effect in all the vocational training; 4 for upper secondary elections analysed and in the case of all the education or advanced vocational train- political parties. As a result, the probability ing; and 5 for university education. of voting for a political party in municipal — “Age”. This variable has five categories. elections increases the more positively its 1 for persons from 18 to 34 years of age; municipal candidate is valued, and the more 2 for those from 35 to 44 years of age; 3 negatively the local leader of the main com- for those from 45 to 54 years of age; 4 peting formation is perceived. The data also for those from 55 to 64 years of age; and reveal an important finding: the influence of 5 for persons 65 years of age and over. local leadership in municipal elections has — “Size of municipality”. This has four cate- increased in recent years. In this respect, gories: 1 for municipalities of up to 10,000 the effect of local lists was significantly inhabitants; 2 for municipalities between higher in the 2015 elections than in the 2011 10,001 and 20,000 inhabitants; 3 for mu- elections; this is the case for all the political formations examined. 12 The coding for this independent variable reflects the adequacy of using binary logistical regression versus 13 The value of the unstandardised coefficient is presen- multinomial logistical regression. ted (b) and the level of significance. Reis. Rev.Esp.Investig.Sociol. ISSN-L: 0210-5233. Nº 169, January - March 2020, pp. 123-142
Carmen Ortega-Villodres and Fátima Recuero-López 133 TABLE 1. Binary logistic regression model to explain the impact of national, regional and local leaders on the 2011 and 2015 municipal elections in Andalusia Vote PP vs. PSOE Vote IU vs. PSOE 2011 2015 2011 2015 Local PP leader -1.200*** -1.788*** Local PSOE leader 0.923*** 1.262*** 1.109*** 1.295*** Local IU leader -1.184*** -2.245*** Regional PP leader -0.393* -1.144** Regional PSOE leader 0.461** 1.029** 0.730** 1.386* Regional IU leader -0.278 -2.412** National PP leader -0.241 -0.853** National PSOE leader 0.331* 0.827* 0.748** 1.317* National IU leader -0.890** -1.038 Partisan identification 1.332*** 0.608* 0.716*** 2.472*** Ideology -1.329*** -0.909 0.826* 0.834 Size of municipality (1) Up to 10,000 inhab. (ref.) (2) Between 10,001 and 20,000 inhab. -0.523 -1.063 -1.019 -2.177 (3) Between 20,001 and 50,000 inhab. -0.099 -0.749 0.335 -1.958 (4) More than 50,000 inhab. -0.540 -0.573 0.739 0.503 Education level Without education or incomplete (ref.) Primary level -0.885 -3.550* 0.515 7.899 Obligatory secondary or basic vocational training -0.794 -2.292 2.109* -1.938 Advanced secondary or advanced vocational training -0.417 -2.210 -0.125 2.105 University education -0.941 -2.809 0.177 2.697 Age From18 to 34 years of age (ref.) 35 to 44 0.152 -0.427 0.595 2.306 45 to 54 0.408 -0.585 0.752 0.615 55 to 64 -0.197 0.675 -0.204 1.593 65 and up -0.580 -0.387 0.033 -1.555 Constant 0.964 5.528 -5.909*** -5.070 -2 log likelihood 364.477 94.808 150.064 51.097 Cox-Snell R2 0.625 0.638 0.543 0.603 Nagelkerke R2 0.835 0.854 0.744 0.826 * p≤0,1; ** p≤0,05; ***p≤0,01 Source: By authors based on data from the CADPEA: EGOPA Verano 2011 and 2015. Reis. Rev.Esp.Investig.Sociol. ISSN-L: 0210-5233. Nº 169, January - March 2020, pp. 123-142
134 Political Leadership and Local Elections: Nationalisation, Regionalisation or Localism? Regarding the impact of national leaders In Graph 3 we can see the evolution of on the vote in municipal elections, the results the probabilities of voting for each party ver- also show that they conditioned the munici- sus its main competitor based on the eval- pal vote in the case of all the political parties uation made of national, regional and local and elections with the exception of the na- leaders14. Thus, the probability of voting for tional leader of the PP in the 2011 elections the PSOE versus voting for the PP declined and the national leader of the IU in the 2015 by 82.82 percentage points when the eval- elections. The magnitude of the effect of na- uation of the local leader of the PP shifted tional leaders is also important, although it is from the worst to the best in the 2011 elec- below that exercised by specifically local tions, with this figure being 89.80 percent- leaders, with the only exception being the age points in 2015. In contrast, the proba- national leader of the PSOE in determining bilities increased by 71.99 percentage the vote between the IU and PSOE in 2015. points in 2011 and 74.89 points in 2015 In that regard, the impact of national leaders when the evaluation of the local PSOE lead- on the municipal vote is greater in the deci- er shifted from worst to the best. In addition, sion to vote between the IU and PSOE than in the voting decision between the IU and in the vote between the PP and PSOE. PSOE, the probability of voting for the latter declined by 82.26 points in 2011 and by Regarding the effect of regional leaders, 84.18 points in 2015 based on the shift in the data reveal they had influence on the mu- the evaluations of the local leader of the IU nicipal vote in almost every case. In this (from worst to best). In the case of the local sense, regional leaders influenced the vote leader of the PSOE the probabilities in- for the PP versus the vote for the PSOE in creased by 79.69 percentage points in 2011 both elections. They also did so in the deci- and by 45.17 points in 2015 when voters’ sion to vote between the IU and PSOE, al- evaluations shifted from the worst to the though in the 2011 election only the regional best. leader of the PSOE had influence. In Table 215 we see the results from the Looking at the results for each of the de- binary logistic regression models carried out pendent variables, we can point out that in to measure the impact of local leaders on the the decision to vote between the PP and municipal vote by size of municipality. As can PSOE, local candidates had significant im- be seen, the interaction is only significant in portance. After them are situated regional the case of the vote between the PP and the leaders in terms of the magnitude of their in- PSOE and in respect to local leaders of the fluence on the municipal vote. National lead- PSOE in 2011. In particular, we find signifi- ers, for their part, also had a statistically sig- cant differences in the impact of local leaders nificant effect, although less than that of the PSOE between small municipalities exercised by local and regional leaders. and large cities. It is in the small municipali- In the decision to vote between the IU ties where the evaluation of the party’s mu- and the PSOE we again see the important nicipal candidates generates a greater prob- impact of local leaders. National leaders ability of voting for the PSOE versus voting also have a considerable impact; the effect for the PP. In the 2015 elections, we do not of the national leader of the PSOE being greater than that of the local candidate of that party in 2015. Regional leaders, for their 14 The probabilities were calculated leaving the rest of the independent variable constant in their average cate- part, also had influence, having a greater gories. impact than local candidates in the 2015 15 The value of the unstandardised coefficient is presen- municipal elections. ted (b) and the level of significance. Reis. Rev.Esp.Investig.Sociol. ISSN-L: 0210-5233. Nº 169, January - March 2020, pp. 123-142
Carmen Ortega-Villodres and Fátima Recuero-López 135 GRAPH 3. Probabilities of the effect of national, regional and local leaders in municipal elections (2011-2015) Voto PPvs. Vote PP vs PSOE PSOE (2011) (2011) Voto PP vs. Vote PP vs PSOE PSOE (2015) (2015) 1 1 0,8 0,8 0,6 0,6 0,4 0,4 0,2 0,2 0 0 1 2 3 4 5 1 2 3 4 5 Líder PP Local local PP leader Líder Local local PSOEPSOE leader Líder Local local PP PP leader Líder Locallocal PSOEPSOE leader LíderPP Reg. reg. PP leader Líder reg. PSOE Reg. PSOE leader Líder reg.leader Reg. PP PP Líder Reg. reg. PSOE PSOE leader LíderPP Nat. nac. PP leader Líder nac. PSOE Nat. PSOE leader Líder nac. Nat. PP PP leader Líder nac. PSOE Nat. PSOE leader Voto IUvs. Vote IU vs PSOE PSOE (2011) (2011) Voto IU vs. Vote IU vs PSOE PSOE (2015) (2015) 1 1 0,8 0,8 0,6 0,6 0,4 0,4 0,2 0,2 0 0 1 2 3 4 5 1 2 3 4 5 Líder Local local IU IU leader Líder Local local PSOEPSOE leader Líder Local local IU IU leader Líder PSOE Local local PSOE leader Líder reg. Reg. IU IU leader Líder reg. PSOE Reg. PSOE leader Líder reg. Reg. IU IU leader LíderPSOE Reg. reg. PSOE leader Líder nac. Nat. IU IU leader Líder nac. PSOE Nat. PSOE leader Líder Nat. IUnac. IU leader LíderPSOE Nat. nac. PSOE leader Source: By authors. find significant differences in the impact of tional, regional and local— influence elec- local leaders between small municipalities tion results. However, we can only partially and large cities. accept hypothesis 2; although we have In short, we accept hypothesis 1, as we found that the impact of local candidates is have confirmed the impact of national, re- greater than that of national and regional gional and local leaders on municipal elec- leaders, we do not find conclusive results tions. Thus, there is an interdependence regarding their impact by size of municipal- among the different levels of government, as ity in the decision to vote for one party ver- factors specific to each of the arenas —na- sus its competitor. Reis. Rev.Esp.Investig.Sociol. ISSN-L: 0210-5233. Nº 169, January - March 2020, pp. 123-142
136 Political Leadership and Local Elections: Nationalisation, Regionalisation or Localism? TABLE 2. Binary logistic regression models to explain the impact of local leaders in municipal elections by size of municipality (2011-2015) (continuation) Vote PP vs. PSOE Vote IU vs. PSOE 2011 2015 2011 2015 Local PP leader -1.226*** -2.428*** Local PSOE leader 0.977*** 2.051** 1.331*** 0.361 Local IU leader -1.327*** -2.445* Regional PP leader -0.418* -1.280** Regional PSOE leader 0.501** 1.104** 0.716** 2.519** Regional IU leader -0.202 -3.707** National PP leader -0.250 -0.798* National PSOE leader 0.334* 1.166* 0.707** 1.720* National IU leader -0.868** -1.257 Partisan identification 1.346*** 0.656* 0.737*** 3.175*** Ideology -1.272*** -1.120 0.803* 1.646 Size of municipality (1) Up to 10,000 inhab. (ref.) (2) Between 10,001 and 20,000 inhab. -2.225 4.055 -1.924 0.342 (3) Between 2,.001 and 50.000 inhab. -0.385 0.937 0.657 -4.170 (4) More than 50,000 inhab. 2.054 -1.676 2.227 -6.697 Education level -1.844 -0.138 No education or incomplete (ref.) Primary school -0.905 -4.509* 0.511 10.816 Obligatory secondary or basic vocational -0.841 -1.946 2.101* -1.428 Upper secondary or advanced voc -0.386 -2.128 -0.083 4.039 University -0.952 -3.156 0.286 3.969 Age -0.097 From 18 to 34 years of age (ref.) From 35 to 44 0.117 -0.561 0.628 4.195* From 45 to 54 0.466 -0.718 0.745 0.665 From 55 to 64 -0.187 0.265 -0.063 1.367 65 and above -0.656 -0.767 0.063 -1.780 Local PP leader * Size of municipality Local PP leader * mun. 1 (ref.) Local PP leader * mun. 2 0.256 0.333 Local PP leader * mun. 3 -0.186 1.426 Local PP leader * mun. 4 0.047 -0.486 Reis. Rev.Esp.Investig.Sociol. ISSN-L: 0210-5233. Nº 169, January - March 2020, pp. 123-142
Carmen Ortega-Villodres and Fátima Recuero-López 137 TABLE 2. Binary logistic regression models to explain the impact of local leaders in municipal elections by size of municipality (2011-2015) (continuation) Vote PP vs. PSOE Vote IU vs. PSOE 2011 2015 2011 2015 Local PSOE leader * Size of municipality Local PSOE leader * mun. 1 (ref.) Local PSOE leader * mun. 2 0.261 -2.018 -0.082 11.971 Local PSOE leader * mun. 3 0.272 -1.951* -0.271 -0.390 Local PSOE leader * mun. 4 -0.938* 0.923 -0.933 3.011 Local IU leader * Size of municipality Local IU leader * mun. 1 (ref.) Local IU leader * mun. 2 0.361 -12.744 Local IU leader * mun. 3 0.154 0.864 Local IU leader * mun. 4 0.316 -0.653 Constant 0.654 4.789 -6.311*** -7.434 -2 log likelihood 356.844 85.736 147.460 38.889 Cox-Snell R2 0.628 0.650 0.547 0.638 Nagelkerke R2 0.840 0.870 0.750 0.874 * p≤0,1; ** p≤0,05; ***p≤0,01 Source: By authors based on data from the CADPEA: EGOPA Verano 2011 and 2015. Discussion and conclusions direct contact. We have used the evaluation of national, regional and local leaders as in- The limited scholarly attention given to mu- dicators of these factors, which has permit- nicipal elections and the predominance of ted us to address another of the important existing studies based on the nationalisation existing controversies in this field: the impact thesis the second order election model make of local candidates on the vote in municipal these elections an important object of study. elections. In this context, the objective of this study has Given our objectives, we used a quantita- been to examine the effects that nationalisa- tive methodology based on survey data. For tion, regionalisation and localism have on methodological reasons we chose the Auton- municipal elections. Beyond the traditional omous Region of Andalusia as our sphere of aggregate approach, it was necessary to analysis. This limited possible contamination look at their effects at the individual level to effects from regional elections, as Andalusia understand the motives involved in citizens holds these different level elections separate- voting decisions in municipal elections. Our ly, and provided us with adequate data for intention was to discover if voters are guided comparing the impact of national, regional by national, regional or specifically local fac- and local leaders in municipal elections. tors at the municipal level, the one they are Based on our analysis we found that the closest to and with which they have the most predominance of national parties in the mu- Reis. Rev.Esp.Investig.Sociol. ISSN-L: 0210-5233. Nº 169, January - March 2020, pp. 123-142
138 Political Leadership and Local Elections: Nationalisation, Regionalisation or Localism? nicipal sphere is compatible with the elector- pañol de Ciencia Política y de la Administración. al importance of specifically local factors, Sevilla: Asociación Española de Ciencia Política. such as municipal candidates. As a result, Bechtel, Michael M. (2012). “Not always Second Or- we have to distinguish two types of nation- der: Subnational Elections, National-level Vote alisation. First, there is the nationalisation of Intentions, and Volatility Spillovers in a Multi-level the party system, of an aggregate character; Electoral System”. Electoral Studies, 31: 170-183. doi.org/10.1016/j.electstud.2011.10. 005 and secondly, there is the nationalisation of the vote at the individual level. Consistent Biezen, Ingrid van and Hopkin, Jonathan (2006). “Par- with this, we found that voters chose parties ty Organisation in Multi-level Contexts”. In: Hough, D. and Jeffery, C. (eds.). Devolution and of the national sphere in municipal elections, Electoral Politics. Manchester: Manchester Uni- but they were primarily motivated by local versity Press. factors. This could be due in part to the se- Blais, André; Gidengil, Elisabeth; Dobrzynska, Ag- lection of candidates that national forma- nieszka; Nevitte, Neil and Nadeau, Richard (2003). tions carry out in the local arena, which sug- “Does the Local Candidate Matter? Candidate gests a new path of analysis. In the case of Effects in the Canadian Election of 2000”. Cana- municipal elections, voters were strongly dian Journal of Political Science, 36(3): 657-664. influenced by specifically local candidates, Botella, Joan (1992). “La galaxia local en el sistema as well as by national and regional leaders, político español”. Revista de Estudios Políticos, although to a lesser extent. The impact of 76: 145-160. local leaders on the arena in which they ex- Brugué, Quim and Gomà, Ricard (1998). “Gobierno ercise their political labours was found in all local: de la nacionalización al localismo y de la the elections and for all the political parties gerencialización a la repolitización”. In: Brugué, examined. Q. and Gomà, R. (coords.). Gobiernos locales y This finding contributes new arguments políticas públicas: bienestar social, promoción económica y territorio. Barcelona: Ariel. to the debate over the personalisation of lo- cal politics, as the results we obtained show Capó, Jordi (1991). “Elecciones municipales, pero no the great importance of local leaders, who locales”. Revista Española de Investigaciones are not found to be subordinate to the na- Sociológicas (REIS), 56: 143-164. tional leaders of their parties in terms of their Carrillo, Ernesto (1989). “La nacionalización de la electoral influence. However, we also found política local”. Política y Sociedad, 3: 29-46. evidence of interdependence across levels of Claggett, William; Flanigan, William and Zingale, Nan- government, as although local leaders signif- cy (1984). “Nationalization of the American Elec- icantly condition the municipal vote, so do torate”. The American Political Science Review, national and regional political leaders. There- 78(1): 77-91. doi: 10.2307/1961250 fore, we can conclude that voting behaviour Clark, Nick and Rohrschneider, Robert (2009). “Se- at the individual level in municipal elections cond-order Elections versus First-order Thinking: is determined by localism and, to a lesser How Voters Perceive the Representation Process in a Multi-layered System of Governance”. Jour- extent, by nationalisation and regionalisation. nal of European Integration, 31(5): 645-664. doi. In short, we have revealed the impact of po- org/10.1080/07036330903145906 litical leaders on voting in municipal elec- Cunningham, Robert (1971). “The Impact of the Local tions, particularly local leaders. Candidate in Canadian Federal Elections”. Cana- dian Journal of Political Science, 4(2): 287-290. doi.org/10.1017/S0008423918000367 Bibliography Curtice, John and Payne, Clive (1991). “Local Elec- Barreiro, Xosé L. and Jaráiz, Erika (2013). “Cuando tions as National Referendums in Great Britain”. los líderes no ayudan: crisis de liderazgo en las Electoral Studies, 10(1): 3-17. doi.org/10.1016/ elecciones gallegas”. Actas del XI Congreso Es- 0261-3794(91)90002-A Reis. Rev.Esp.Investig.Sociol. ISSN-L: 0210-5233. Nº 169, January - March 2020, pp. 123-142
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