Proportional Representation: A Study in Methods of Election

by John H. Humphreys

The introduction of a complete scheme of proportional representation into Belgium was also rendered necessary by the intolerable position arising from the former methods of election. The rapid growth of the Socialist Party with a distinct organization created a situation which, as already explained, was in no way relieved by the system of second ballots in force. Indeed, the coalitions at the second ballots not only discredited the system but greatly embittered the relations between the various parties. "In 1899," says Count Goblet d'Alviella, "Belgium was on the eve of a revolution—a revolution which was only avoided by the immediate and complete introduction of proportional representation into parliamentary elections." This, however, was not the first trial of proportional representation in Belgium, for Belgium, like Switzerland, affords an example of the gradual but certain extension of the new method of election. In 1894 proportional representation had been applied partially and tentatively to the larger municipal councils, and although this application was of a partial character it achieved a considerable measure of success. M. Braun, the Burgomaster of Ghent, speaking in May 1899, described its results in the following terms:—

"During the four years that proportional representation has been applied to the communal elections of Ghent, every one has been able to appreciate the happy effects of the reform. Everybody recognizes that, far from being endangered, the material prosperity of the city has increased, and that the ameliorating and pacifying effects of the altered electoral method have even exceeded the expectations and hopes of its advocates." [3]

The system of proportional representation adopted for the parliamentary elections was much more complete, and so great has been its success that there has arisen a strong demand for its introduction into the elections for the provincial councils in which the old majority system, with second ballots, is still used. The parliamentary elections in May 1908 were followed by the provincial elections in the ensuing month, and thus a favourable opportunity was presented of contrasting the working of the two systems. The grossly unfair results of the provincial elections drew forth from many journals most caustic criticism. Le Peuple expressed the hope that these provincial elections would be the last instance of the use of the majority system in Belgium. "Is it not," it proceeded, "absurd, stupid, detestable that the provincial councils are alone excluded from the system of proportional representation? Once for all we must have done with this jumble of confusion, dishonesty, and corruption." The Etoile Belge declared that "One thing is certain, the provincial electoral system can no longer be maintained without exposing us to the laughter of Europe. To apply one system of proportional representation to the parliamentary elections, another to municipal elections, and to maintain the majority system for the provincial elections, is really too absurd. For once we agree with Le Peuple and join our hopes and wishes to theirs." That these comments were fully justified a few examples will show. In the province of Limbourg the forty-eight seats on the provincial council were all obtained by the Catholics, whereas in the parliamentary elections of the previous month the Liberals, owing to the proportional system, were able to obtain two seats out of six. In the "Agglomération Bruxelloise" no Catholic and only five Socialists were elected, although the Liberals numbered but a few more than a third of the voters. The provincial elections of former years afford further illustration. In 1898 at Ghent the Liberals of the first canton defeated the Socialists at the second ballots with the help of the Catholics, in the second canton they defeated the Catholics with the help of the Socialists, while in the third canton they were themselves defeated by the Catholics, who were assisted by the Socialists. In the same year at Brussels, where a second ballot took place in each of the five cantons, the Liberal minority captured every one of the forty-four seats. Sir Arthur Hardinge pointed out in his Report on the working of the Second Ballots in Belgium, that it was the failure of this electoral method that rendered a proportional system in parliamentary elections an absolute necessity; its failure in the provincial elections will result in its abolition from these also. No more convincing evidence of the satisfactory working of the proportional system can be given than this demand for its extension, the latest example of which in Belgium is its application by a new law passed in 1909 to the election of the Conseils de Prud'hommes.

German States.

Whilst the adoption of proportional representation in Switzerland and in Belgium was due to the pressure of particular circumstances, the marked success of the new method has not only resulted in its extension in those countries, it has also had a pronounced influence upon public opinion in neighbouring countries. The kingdoms of Southern Germany are following the example of the Swiss cantons. Würtemberg, in the new constitution adopted in 1906, decided that the seats set free by the removal of the "privileged" members of the Lower House should be filled by proportional representation. Legislative proposals have since been discussed in Saxony, and in May 1910 a vigorous debate took place in the Bavarian Parliament, in the course of which Dr. Müller declared that the advocates of the reform would not rest "until this unjust electoral system, this bulwark of short-sighted injustice and ill-omened party spirit, is set aside in the higher interests of justice and of civil and religious freedom." The principle has received a recognition even more general in character, for a ministerial decree issued in June 1901, relative to the associated committees of employers and workmen, enabled these bodies, if they so chose, to elect their members in accordance with the principle of proportional representation. Some sixteen towns, including Frankfort-On-Main, Munich, Carlsruhe, Fribourg, Mannheim, &c., availed themselves of the privilege, and the results have been most satisfactory. Much greater interest has been taken in the elections. In Carlsruhe, for instance, the number of voters increased from 1103 in 1897 to 3546 in 1903.

France

Similarly, the great success of the Belgian legislation gave birth to a fresh and more powerful movement in France. Founded in 1901, under the presidency of M. Yves Guyot, the Ligue pour la Représentation Proportionnelle enlisted the support of deputies drawn from all political parties. The Electoral Reform group within the Chamber of Deputies during the Parliament 1906-10 consisted of over two hundred members, and, under the auspices of this group large and enthusiastic meetings were held in the great towns. The reform has the support of many leading newspapers, and the authoritative reports of the French Parliamentary Committee, la Commission du Suffrage Universel, contain strong recommendations in favour of the adoption of proportional representation. The first of these reports prepared in 1905 by M. Chas. Benoist[4] contains an admirable statement of the case for the reform, a plea which is powerfully reinforced in the report prepared two years later by M. Etienne Flandin.[5] The Bill recommended in this latter report was discussed in the French Chamber of Deputies in October 1909. The first clause of the Bill read as follows: "The members of the Chamber of Deputies shall be elected by the scrutin de liste according to the rules for proportional representation." The first portion of this clause—the members of the Chamber of Deputies shall be elected by scrutin de liste—was carried by 379 votes against 142, or a majority of 237. The second portion—according to the rules for proportional representation—was carried by 281 votes to 235, or a majority of 46. The Prime Minister, M. Briand, urged by many of his Radical supporters, who were unwilling to forego the advantages which they obtained from the existing system, then made the question one of confidence in the Government, and the whole clause, when put to the final vote, was defeated by 291 votes to 225. A noteworthy feature of these divisions was the size of the majority by which the system of single-member constituencies was condemned. At the General Election in April 1910 no fewer than 315 Deputies were returned pledged to the reform. M. Briand at once introduced a Bill which, however, did not fully meet the demands of the reformers, and the Commission du Suffrage Universel made important modifications in it with a view to securing more completely the proportional representation of all political parties within the country. On the fall of M. Briand in February 1911, the government of M. Monis announced its intention of supporting the amended scheme. The success of the movement, commenced in 1901 is now, after a decade of active effort, no longer open to doubt.

Holland

Holland, too, has felt the influence of the legislation of its neighbour. A constitutional commission, appointed by the Dutch Government, reported in favour of amending the fundamental law so as to render possible the adoption of proportional representation. The recommendations of this Commission were embodied by the Government in Bills presented to the States General in 1907, and although the proposals were subsequently withdrawn, the reform has the support of many of the leading statesmen, and a favourable report is anticipated from the new Commission to which the question of reform has been referred.

Finland.