How Brexit threatens pluralist democracy in the UK

A pluralistic democracy is a democracy with many centres of power. Typically that involves an executive (the government) and parliament, central and local government, an independent judiciary and an independent press. Countries differ in how pluralist they are: the UK has a more permanent civil service than the US but its second house of parliament does not have equal power to the first.

Plurality is embodied in conventions as well as institutions. In a two party system the other side is respected as embodying the wishes of part of the population, and there may on occasion be cooperation between politicians on different sides over certain issues. In addition plurality itself is respected: the government does not normally contest the power of parliament and the judiciary, for example.

Although there was room for improvement before Brexit (power was pretty centralised), the UK was a pluralist democracy. This post is about how Brexit has begun to threaten that. It began with how the Prime Minister, encouraged by a section of her party and a large section of the press, interpreted the referendum result. The country was almost equally divided. That should have meant that the form of Brexit should have tried to take account of the fact that almost half of those voting wanted to stay in the EU. Instead the Prime Minister chose a form of Brexit that appealed to a clear minority of parliament.

Perhaps partly because of this (but I suspect also because of her temperament), Theresa May chose to marginalise parliament as much as she could. She didn’t want it to vote on whether Article 50 should be invoked. That battle went to the supreme court, and she lost. The press that had played such a crucial part in getting a majority for Brexit called the judges ‘enemies of the people’ or similar. If judges had hoped for some defence of an independent judiciary from the government they were disappointed.

However the executive did not only aim to take power away from parliament on this one decision. In the bill that transfer EU laws to the UK, various Henry VIII clauses were inserted which gave the executive the power to ignore parliament. The opposition voted against these clauses, and eventually May was forced to retreat when some Conservative MPs rebelled. These rebels have been branded saboteurs on the front pages of the right wing press. As of now it remains the case that MPs will not be given a meaningful vote on the terms of the final Brexit deal: if they vote against the government says it will leave with no deal.

The government has also done its best to try and conceal the analysis the civil service has done on different forms of Brexit, and ministers have lied to parliament and the public in the process. The Prime Minister and ministers seem happy to lie to the public about the imaginary Brexit dividend, and the broadcast media fails to question these lies. Ministers appear to have no qualms in calling the leader of the opposition a traitor based of fanciful stories in the right wing press.

Is there something inherent in Brexit that has brought about these attacks on pluralistic democracy? To an extent I think there is. Brexit is a fantasy project that will actually do the economy harm, and as I argued here when politicians attempt to conceal the truth from the public they tend to become more authoritarian. As the dreams of some Brexiters fall apart on the rocks of the EU negotiations and the Irish border, no doubt similar attempts will be made to conceal that truth from the public as well.

However I think there are two other factors linked to Brexit that have helped this form of populism emerge in the UK. The first is the character of Theresa May herself. She shows a disregard for people that I cannot remember in previous Prime Ministers. The current excesses of the Home Office with respect to immigrants who have lived here for decades is a direct result of her ‘hostile environment’ policy, which she seems happy to continue. She took the decision to ignore the wishes of the 48%, and she also decided to use EU migrants in this country as bargaining chips in the negotiations. The government seems largely indifferent to the increase in attacks on immigrants since the Brexit vote. Her focus seems entirely on keeping her party together, whatever the collateral damage in terms of broken individual lives.

The second factor is the right wing press. In other countries we have seen the dangers of the state (or head of government) controlling large parts of the media. The same problem arises with Brexit. At its best the press can expose government failure and corruption, but at its worst it just acts in its owners self-interest. When those interests happen to be aligned with the interest of the government then the press acts as the state's propaganda arm. It has been the right wing’s press that has banged the ‘will of the people’ drum, which is classic populist (as in anti-pluralist) trope. The situation has been made much worse by the BBC’s apparent indifference to negative news about Brexit: its lack of interest in the Cambridge Analytica link to referendum overspending allegations is deeply worrying.

Understanding why we have seen attacks against pluralist democracy in the UK helps answer the question of how permanent these threats might be. Parliament is to some extent fighting back at the attempts by the executive to reduce its power. If Brexit is neutralised as an issue, the force behind attacks on pluralistic democracy disappears, unless of course it is replaced by something else. However Theresa May could remain as Prime Minister for a lot longer than people imagined after the election of 2017 [1]. The right wing press will still be with us, with their message amplified by the BBC. The situation in the UK is not as bad as it is in the US, where the entire Republican party seems to have given up on pluralistic democracy, but that is cold comfort for a country that often boasts of its democratic heritage.

[1] That includes myself. When I wrote about the Conservative zugswang, I actually underestimated the bind the Conservatives were in. I confidently said “The Conservatives will not fight another election with May as their leader.” That is now less clear. As long as Brexit remains a live issue, which it will do until the end of 2020 at least, the majority of Conservative MPs dare not replace May because the party could elect someone like Rees-Mogg to take her place.

The two types of populism within Brexit

When I read this by Hungarian academic Tamas Dezso Ziegler, I could not help thinking he had a point. The point, as I understand it, is that by calling people like Trump or Farage populist, when at the same time we call Syriza or Podemos populist, we are in danger of diminishing or normalising the danger the former pose. He suggests this wide definition of populism

“could be useful because there is not necessarily a moral evaluation behind it: if they would use far right demagoguery, or fascist politics, it would show something dangerous, extreme. It would ring the bell to us all. Populism does not do so.”

We could add that talking about “right populists” and “left populists” allows the academic to show a kind of balance.

There seem to me to be two definitions of populism. Dani Rodrik defines populism here as parties/politicians/movements with

“an anti-establishment orientation, a claim to speak for the people against the elites, opposition to liberal economics and globalisation, and often (but not always) a penchant for authoritarian governance.”

The problem I have with definitions like this is that they seem to be encompassing rather than natural. By this I mean that it includes things that do not obviously go together, but instead are chosen so that they encompass some list of political parties. Virtually every candidate for Congress in the US declares that they will ‘sort out Washington’, so appears anti-establishment and for the people rather than elites. In contrast, authoritarian governance is optional. What seems to be doing the work here is opposition to liberal economics and globalisation.

It seems to me that a quite different conceptualisation of populism is expressed by Jan-Werner Müller. You can tell a populist by whether they claim to represent ‘the people’, which is certainly not all the people, but instead just the ‘real people’. The others, be they immigrants or the 48%, just do not count, or worse still are ‘saboteurs’ trying to thwart the ‘will of the people’. And, critically in my view, populists are prepared to overturn the institutions of democracy if they believe they are frustrating what they perceive as the will of the people. The populist, if you accept Müller’s account, denies pluralism. They are naturally authoritarian, and so are happy to tear down the elements of a pluralist democracy. [1]

Thinking in terms of left or right tends to get in the way here. The more appropriate axis to thinking about this definition of populism is social liberalism and conservatism. A social liberal, almost by definition, is not going to attack democratic pluralism. Once we recognise that, we can see why parties of the right that use socially conservative policies to attract votes are particularly vulnerable to morphing into (or being taken over by) populists in the Müller sense. Indeed this is a point he himself makes, as I quote here.

It seems to me that Brexit can illustrate both types of populism. The definition of populism based on anti-globalisation might describe quite well the average Leave voter. The Leave voter tends to be against immigration, and as a result be prepared to roll back globalisation, and this often goes with a belief that the elite or establishment no longer listens to them. In contrast some of the prominent Brexiters, and certainly the newspapers that swung the referendum vote, are populists in Müller’s sense. They are quite happy to talk about the will of the people, and take away power from judges and parliament to ensure the will of the people as they see it prevails.

This is why I have considerable sympathy with the Hungarian academic who I quoted at the start of this post. Populists in the anti-globalisation sense may be a problem, depending on your view of globalisation and liberal economics, but they are not really dangerous for democracy. Populists of the kind Müller describes are, as our history tells us.

In the US, we are not just talking about Trump, but most of the Republican party: a party that appears to go to any length to preserve its gerrymandering of voting districts. In Hungary and Poland we have seen many attacks on pluralistic democracy justified by nationalism and racism. Both, like Russia or the far right in the US, are happy to scapegoat someone who happens to be a wealthy Jew as an enemy of the people for the crime of standing up for liberalism. That certain UK newspapers find common cause with these authoritarian regimes and the far right in the US by scapegoating the same wealthy Jew on their front pages should be a wake-up call that these newspapers are no longer part of a pluralist democracy but have become instead its enemy.

[1] Tear down rather than reform. Of course when reform becomes destroy has to be judged, but in most cases that is not very difficult.