Colleagues or Adversaries: Ministerial Cooperation across Party Lines

In multiparty governments, policymaking is a collaborative effort among the different incumbent parties. Often hidden by public debates about broader government policy, the necessary coordination routinely happens at the ministerial level, where ministries of different parties jointly devise viable and equitable policy solutions. However, since coordination involves substantial transaction costs, governments must carefully gauge the potential benefits. We study the political rationales that motivate governments to make this investment. We argue that coordination during the process of ministerial policy design hinges on both a conducive ministerial structure and sufficient authority. Once these conditions are met, cross-party coordination is more likely in policy areas where the implementation of government policy cannot be taken for granted. We investigate these claims, drawing on two new datasets. The first contains information about ministerial collaborations on all legislative projects sponsored by German governments, while the second maps the distribution of policy responsibilities among German ministries from 1976 until 2013, based on data about the policy briefs of all individual working units within the top-level federal executive. Given that ministries imprint their own perspective on legislation, our results are beyond administrative pedantries, but have substantial implications for the type and content of policies coalition governments formulate.