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doi: 10.1111/1467-9248.12010
Whereas research on political participation typically investigates a variety of socio-economic and attitudinal charac-
teristics, this cross-national study focuses on the relevance of norms when explaining political participation. We
examine respondents normative beliefs about the importance of various measures of good citizenship, and their
relationship to three modes of political engagement (activism, party membership and voting).We find assigning higher
importance to paying taxes/obeying the law is negatively linked to all forms of participation, whereas the opposite is
true for norms about the importance of voting and being active in associations. Greater emphasis on norms about
understanding others and shopping politically is positively associated with political activism but not with more
institutional forms of participation.The relationship between norms and participation differs somewhat across nations,
with the most differences between Eastern European respondents and those from Western European and Western
non-European respondents. In line with theories on democratic learning, we find that the relationship between
citizenship norms and participation is often weakest among Eastern Europeans. Conclusions about the subjective and
variable nature of democratic citizenship are discussed.
(including Western European countries, the US, Canada,Australia and New Zealand). Even
though political theorists have examined the qualities of good citizenship in depth,
empirical scholarship has produced only a handful of studies focusing only on a few
Western European countries and the US that analyze the publics understanding of this
concept (Almond and Verba, 1963; Conover et al., 1991; 2004; Dalton, 2008; Denters et al.,
2007;Theiss-Morse, 1993), and none has investigated the link between various citizenship
norms and different modes of political behavior in detail. Here a comprehensive, compara-
tive approach builds insights from theories of the importance of democratic norms (Dalton,
2008; Denters et al., 2007; Jasso and Opp, 1997) and investigates the relevance of democratic
learning theory for cross-national variation in normbehavior linkages (Gurin and Crte,
2004; Peffley and Rohrschneider, 2003).
Citizenship Norms
As cultural phenomena, norms can prescribe or proscribe behavior and are arguably
important regulators of social behavior (Hechter and Opp, 2001). A basic definition of
citizenship norms is a shared set of expectations about the citizens role in politics (Dalton,
2008, p. 78).Yet the extent and structure of such consensus may vary (Jasso and Opp, 1997;
Rossi and Berk, 1985).This opens the possibility that citizenship norms vary across nations
in strength and form, and in their relationship to participation. Moreover, different catego-
ries or dimensions of citizenship norms have been presented across literatures.Theoretical
approaches to the meaning of citizenship have vacillated between an emphasis on rights
(e.g. Marshall, 1950) and responsibilities (e.g. Sandel, 1998). The focus on norms of what
citizens should do explicitly taps into responsibility framings, and among these responsi-
bilities scholars have identified various dimensions. Many theoretical approaches emphasize
three principal themes political activity, civic duty and social responsibility (Janoski, 1998;
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Lister, 2003; Marshall, 1950), which have been substantiated by a limited body of empirical
research (Bolzendahl and Coff, 2009; Denters et al., 2007). Empirically, a political dimen-
sion combines beliefs in the importance of voting, being active in social and political
associations and keeping a watch on government; a civil dimension includes the importance
of paying taxes and obeying the law; and a social dimension has included the importance
of understanding the opinions of others, shopping for political reasons and helping those
worse off (e.g. Bolzendahl and Coff, 2009).Yet other studies have varied in their defini-
tions. For example, Jan Van Deth (2007) refers to a Swedish citizenship study that distin-
guishes four dimensions: solidarity, participation, law obeying and autonomy. In the US,
Russell Dalton (2008; 2009) empirically distinguishes two faces of citizenship norms:
engaged citizenship norms and duty-based citizenship norms.Whereas duty-based citizenship
primarily involves norms of social order, including the obligation to vote and pay taxes,
engaged citizenship incorporates participation in non-electoral activities and the need to try
to understand the opinion of others and help those who are worse off. Daltons studies have
been highly influential and formed the basis of a few studies linking norms to participation
(Dalton, 2008, 2009; Raney and Berdahl, 2009), as we describe below. Given the lack of
consensus in approaches to dimensions of citizenship norms, we will forgo a priori defini-
tions of dimensions, exploring potential patterns in similarities across norms and how they
are related to various forms of participation.
norms and behavior is complex. Rational choice theories and theories of self-selectivity
would argue that norms of citizenship and participation relate highly and positively with a
strong sense of civic duty producing high levels of participation (Armingeon, 2007).
Socialization arguments would also favor the causal impact of norms on behavior; for
example, being raised to believe voting is an important aspect of good citizenship should
encourage voting when a person becomes of age (Alwin et al., 1991).
Although some research argues that it is participation that produces democratic values
(though norms have not been examined) (Gurin and Crte, 2004; Peffley and Rohr-
schneider, 2003), the literature generally treats norms as motivations for behavior (and not
vice versa) (Andersen and Hoff, 2001; Blais et al., 2000; Dalton, 2008; Horne, 2003; Schwartz
and Bardi, 1997; Theiss-Morse, 1993).Van Deth (2007, p. 403) highlights that people will
engage in politics and public affairs in ways consistent with their norms of citizenship.
Dalton (2009) makes a strong case for how changing norms between generations have
influenced the repertoire of political activities citizens engage in nowadays.Yet regardless of
the mechanism, research suggests that the link between norms and behavior is not always
straightforward. Especially if norms are not strongly internalized, a slippage between norms
and actual behavior may exist where behavior lags behind a more principled stance, as some
related research would suggest (Peffley and Rohrschneider, 2003). Further, given that norms
and forms of participation vary, the links between them may also be different.1
Literature studying single nations or regions suggests that a few potential patterns
between different types of norm and political behavior may be found. In the US, Dalton
(2008; 2009) proposes that his two dimensions of citizenship norms relate differently to
electoral and non-electoral participation. Norms involving engaged citizenship (e.g. the
importance of forming your own opinions, helping those worse off, being active politically
and in voluntary groups) are positively linked to all forms of participation but voting. In
contrast, duty-based norms (e.g. the importance of voting, obeying the law, serving on a
jury) positively influence voting, but do not matter for more activist types of participation.
In Western Canada,Tracey Raney and Loleen Berdahl (2009) came to a similar conclusion.
They found that a strong sense of duty to vote does not affect participation in what they
call non-traditional forms of participation (protests, petitions and boycotts), though it
positively impacts voting. Conversely, norms of volunteering in the community are posi-
tively related to non-traditional participation and negatively related to voting. Both Dalton
(2008; 2009) and Raney and Berdahl (2009) thus suggest that the most institutionalized
forms of participation are most affected by norms of voting and general norms of official
political engagement, while the most activist types of participation are more strongly
impacted by social/voluntaristic norms. More directly, a number of studies have shown that
norms about voting positively influence voting behavior (Armingeon, 2007; Blais et al.,
2000; Knack, 1992; Muller, 1982; Raney and Berdahl, 2009), and other research shows that
norms of participation influence engagement in protests and even illegal/aggressive
political behavior (Muller, 1982; Opp, 1986; 1994; Opp et al., 1981).
Based on the findings from this prior research and on common notions, we would expect
that norms about more formal citizenship duties, such as voting, paying taxes and obeying
the law, would be positively linked to the more formal and institutionalized forms of
participation (e.g. voting and political party membership), but not linked (or negatively
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related) to less formal types of participation. However, norms that are related to more
individual and informal types of citizenship should be positively linked to less formal types
of participation, and not related (or negatively related) to the more formal and institution-
alized types of participation.
Control Variables
We also control for a variety of characteristics traditionally related to political participation,
dropping missing values.9 Results for control variables are not presented below due to space
limitations. We include controls for gender, age, age-squared, employment status, occupa-
tion, education, marital status, urban residence, religious attendance, political trust, political
efficacy and social trust.Their operationalization is described in the Appendix and all results
for control variables are listed in Appendix Table A1.
Analytical Strategy
To study the link between citizenship norms and political participation, we explore pooled
and country-specific regressions including all controls for the relationship between citizen-
ship norms and political participation. Pooled models allow us to establish a general baseline
set of expectations. Country-specific regressions highlight the extent to which individual
nations conform to the baseline patterns or form other sub-national groups. Pooled models
include country fixed effects and robust standard errors clustered by nation.The ordinal scale
of political activism is analyzed using ordered logit regression, and binary logistic regressions
are used to investigate political party membership and voting behavior. We caution that
because effect size is confounded with the variance of the errors in each model, neither
coefficients nor odds ratios can be compared across models (i.e. across nations) (Long, 2007).
Pay taxes/ Be active Keep watch Understand Buy/ Help others in Political Party
obey law Vote in assn on govt reasoning boycott country/world activism member Voted
Australia 0.88 0.86 0.55 0.84 0.82 0.69 0.72 0.56 0.04
Austria 0.80 0.78 0.55 0.74 0.78 0.68 0.74 0.63 0.18 0.83
Bulgaria 0.91 0.72 0.44 0.57 0.75 0.27 0.68 0.22 0.07 0.72
Canada 0.90 0.90 0.60 0.89 0.84 0.66 0.72 0.62 0.18 0.91
Czech Republic 0.78 0.60 0.40 0.53 0.63 0.43 0.57 0.25 0.08 0.43
Denmark 0.84 0.92 0.48 0.73 0.80 0.61 0.72 0.60 0.08 0.92
Finland 0.82 0.74 0.34 0.61 0.75 0.54 0.61 0.49 0.10 0.80
Flanders 0.73 0.73 0.40 0.66 0.76 0.53 0.64 0.42 0.11
France 0.79 0.88 0.56 0.70 0.78 0.61 0.67 0.63 0.05 0.86
Germany 0.81 0.69 0.46 0.71 0.76 0.55 0.68 0.55 0.05 0.90
Hungary 0.85 0.74 0.37 0.63 0.71 0.55 0.55 0.12 0.01 0.82
Ireland 0.87 0.86 0.53 0.82 0.81 0.64 0.81 0.45 0.10 0.84
Latvia 0.81 0.71 0.43 0.59 0.70 0.45 0.63 0.32 0.02 0.69
Netherlands 0.77 0.83 0.52 0.78 0.82 0.56 0.71 0.60 0.12 0.94
Norway 0.80 0.86 0.53 0.76 0.79 0.53 0.69 0.56 0.17 0.88
New Zealand 0.86 0.85 0.46 0.75 0.78 0.57 0.61 0.60 0.11 0.92
Poland 0.87 0.77 0.55 0.78 0.77 0.48 0.77 0.14 0.01 0.69
Portugal 0.88 0.84 0.65 0.81 0.83 0.75 0.82 0.38 0.06 0.76
Slovenia 0.80 0.68 0.44 0.66 0.76 0.65 0.72 0.27 0.06 0.76
Spain 0.85 0.80 0.58 0.71 0.80 0.73 0.82 0.43 0.06 0.84
Slovakia 0.88 0.71 0.42 0.63 0.76 0.54 0.73 0.41 0.08 0.82
Sweden 0.79 0.89 0.41 0.82 0.79 0.60 0.65 0.54 0.10 0.92
Switzerland 0.77 0.74 0.54 0.67 0.80 0.66 0.73 0.54 0.10 0.63
UK 0.89 0.72 0.41 0.71 0.78 0.55 0.65 0.46 0.10 0.74
US 0.91 0.87 0.61 0.86 0.81 0.64 0.74 0.51 0.43 0.64
Average 0.83 0.79 0.49 0.72 0.78 0.58 0.70 0.46 0.10 0.79
Notes: Descriptive statistics shown based on missing values dropped for political activism and party membership. Missing values for voting behavior are dropped separately. Shaded cells are formerly communist nations.
vary in their overall patterns of norms and behavior, which may ultimately also influence
the relationship between the two.
Respondents in all the nations feel that paying taxes and obeying the law is very
important, and there is little cross-national variation.The same is true with regard to voting,
with no clear patterns of cross-national difference. Being active in associations is less
important overall, and members of the formerly communist nations tend to place less
importance than average on this, but the pattern does not appear particularly strong. This
weak pattern of difference is also seen with regard to the importance of keeping a watch
on government, understanding the reasoning of others and helping others who are worse
off. The only clear pattern seems to be with regard to political consumerism as a norm,
where most of the newer democracies feel it is much less important than average to buy or
boycott goods for political/ethical/environmental reasons. Overall it does appear that the
political system in a country influences support for normative aspects of citizenship, with
the newest democracies tending to assign less importance than average to engaged types of
norm, but the patterns are not stark or consistent.
The main differences are found with regard to political participation where the formerly
communist nations have the lowest levels of activism and party membership. The pattern
does not extend to voting, where the Czech Republic reports the lowest level of voting (43
per cent), while other former Eastern European countries such as Hungary and Slovakia
have high levels (82 per cent). Thus, looking at the descriptive patterns, we see some
evidence that democracy as represented by norms and participation is weaker in the
newest democracies, but any patterns depend on the measure examined, and similarities
among nations are common.
Table 2: Unstandardized Regression Coefficients,a Robust Standard Errors and Odds Ratios
for the Relationship between Citizenship Norms and Political Participation
Pay taxes and obey the law -1.09*** 0.34 -0.63*** 0.53 -0.88*** 0.41
(0.15) (0.16) (0.16)
Vote in elections 0.36*** 1.43 1.23*** 3.43 2.75*** 15.63
(0.07) (0.16) (0.18)
Be active in social and 0.78*** 2.18 1.76*** 5.82 -0.05 0.95
political associations (0.11) (0.24) (.11)
Keep a watch on the actions 0.09 1.10 0.33* 1.39 -0.03 0.97
of government (0.10) (0.16) (0.12)
Understand reasoning of 0.61*** 1.84 -0.26 0.77 -0.11 0.89
people with other opinions (0.11) (0.22) (0.13)
Buy or boycott goods for 0.60*** 1.83 -0.03 0.97 0.09 1.10
political/ethical reasons (0.10) (0.12) (0.08)
Help those worse off in your 0.21* 1.23 -0.25 0.78 -0.28 0.75
country and the world (0.09) (0.15) (0.16)
Cut-points/constant 0.03/1.09/2.04/2.90/3.77 -3.06 -3.39
(0.16/0.14/0.14/0.14/0.14) (0.25) (0.23)
Observations 25,177 25,177 21,518
Pseudo R2 0.11 0.18 0.25
Notes: *p < 0.05; **p < 0.01; ***p < 0.001; two-tailed tests. a Models include all control variables as well as nation fixed effects and
utilize robust standard errors clustered by nation. b Ordered logit regression; c Binary logit regression; d Models for voting exclude
Australia and Flanders, which have compulsory voting.
Source: ISSP 2004.
about voting, being active in associations and keeping a watch on government are positive
influences on membership.Thus, those who value political aspects of citizenship are more
likely to be party members.
Finally, looking at electoral participation, we find, perhaps surprisingly, that those who
most value the duties of paying taxes and obeying the law are not more likely to vote, again
supporting the conclusion that if these are all duties, in the minds of respondents they are
very different types of duty. As expected, stronger voting norms are related to a greater
likelihood of having voted (Blais et al., 2000; Dalton, 2008; Jasso and Opp, 1997; Raney and
Berdahl, 2009).
In sum,voting emerged as a somewhat distinct norm and mode of participation.Those most
likely to vote are those who view voting as most important,and those who view voting as most
important are also more likely to engage in a variety of forms of participation beyond voting.
In this way, norms of voting may be the most influential citizenship norm in democracies.
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Notes: * indicates that this norm was significantly related to activism in the pooled model. Shaded cells are formerly communist nations. Positive (+) or negative (-) relationships significant at p < 0.05, two-tailed tests;
a Models include all control variables.
Notes: * indicates that this norm was significantly related to activism in the pooled model. Shaded cells are formerly communist nations. Positive (+) or negative (-) relationships significant at p < 0.05, two-tailed tests;
a Models include all control variables.
Notes: * indicates that this norm was significantly related to activism in the pooled model. Shaded cells are formerly communist nations. Positive (+) or negative (-) relationships significant
at p < 0.05, two-tailed tests; a Models include all control variables; b We did not perform analyses for voting for Australia and Flanders, which have compulsory voting.
Source: ISSP 2004.
Discussion
The meaning of democracy has always been a vital area of debate.While scholars agree on
the importance of participation and shared values, there is little consensus regarding what
types of participation and values matter most or how these relate. However, some work
suggests that the best way to understand why people participate is related to the norms they
have about good citizenship (Blais et al., 2000; Dalton, 2008; 2009; Knack, 1992; Opp, 1986;
Raney and Berdahl, 2009). Here we tested that premise cross-nationally across different
types of participation and allowed for the presence of a variety of citizenship norms, which
represent viable and meaningful differences in core aspects of democracy (Theiss-Morse,
1993).
The findings provide key insights into two main questions. First, on average, do norms
vary in their impact on types of participation? Yes, and not always in ways found by prior
research. Had we followed previous research (e.g., Blais et al., 2000; Dalton, 2008; Knack,
1992; Raney and Berdahl, 2009) and collapsed norms into engaged and duty-based
citizenship, we would have missed important variation in their effects. Duties such as paying
taxes and obeying the law are widely regarded as important but are negatively related to all
types of participation, a finding that is often mirrored in country-specific analyses. Con-
versely, the duty to vote is positively linked to all forms of participation.The effect of the
duty to watch government is weak for most types of participation and among the majority
of the countries.
Thus, our results suggest that the characterization of different duty-based citizenship
norms as one overall dimension of norms may be too broad an approach.Voting emerges
as a distinct activity, apparently valued as an independent democratic good and not as part
of a larger framework of citizenship duties. Respondents agree that citizens should pay their
taxes and obey the law but this provides no impetus to participate. In fact those who value
such norms most may participate less than others. Perhaps those most supportive of the tax
and legal system see no reason to engage beyond such realms.
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Further, more engaged types of citizenship norms are also not unidimensional. Some
aspects matter for political activism, but not with regard to party membership, and none for
voting. This variation in the effect of engaged citizenship norms suggests the need for
multiple dimensions of normative citizenship beliefs and that social and political citizen-
ship norms do not entirely overlap as engaged citizenship (Dalton, 2009). Ultimately, if the
relationships between citizenship norms and participation reflect some level of internaliza-
tion (and fear of sanction), we find that tax/law (i.e. civic) citizenship norms are not
internalized participation norms, but voting and association activity (i.e. political) citizen-
ship norms are strongly internalized participation norms in general. Norms such as
shopping politically and understanding the reasoning of others (i.e. social) citizenship
norms are internalized for activism, but not more institutional forms of participation.As we
suggested earlier, theorists have often pointed to three dimensions of citizenship (e.g.
Marshall, 1950), with some empirical work supporting that distinction (Bolzendahl and
Coff, 2009; Denters et al., 2007). It may be possible for future work to focus on these
theoretical categories in detail and understand how they are, or whether they are, present
in all democracies.
The second question is: how well do the general findings describe patterns in individual
nations? Here results are mixed. Political activism findings for each nation correspond most
closely to pooled results, with the exception of Eastern Europe. In line with theories on
democratic learning, patterns are suggestive of some moderate Eastern European differences
when it comes to the least formal type of participation. In particular, the extent to which
citizenship norms are related to such participation is generally weaker among newer
democracies.This finding suggests that a lack of experience in democratic participation may
have reduced the opportunity to associate citizenship norms with political behavior, with
the result that the translation of norms into actual behavior is smaller as compared to
citizens from older democracies. Otherwise, there is a great deal of similarity across the
nations.
Conclusion
Despite variation, one conclusion is clear: norms about good citizenship matter for
political participation, and particularly so for the least institutionalized type of political
participation (political activism). For participation researchers, the findings suggest that
measures of citizenship norms are central to explaining variation in participation. Our more
direct measures of the norms of good citizenship (in effect, what a citizen ought to do) are
consistently related to a variety of political behaviors, regardless of controls for such political
attitudes. Hence, norms matter substantially and in addition to general political attitudes.
Simultaneously, our findings indicate that norms matter differently for a variety of types
of participation. Different modes of participation may not be competing forms of repre-
sentation in the political system (Saward, 2006), per se, but our findings indicate that they
are based on competing notions of norms associated with good citizenship. For those
concerned with increasing participation, this suggests that finding ways to boost the
importance with which citizens imbue political and social responsibilities may be a
necessary step, whereas more legalistic, civic duty-based norms tend to undermine an active
citizenry.
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Notes
This research was financially supported by the University of California and Utrecht University Collaborative Grant Program.We thank
the Utrecht University Department of Sociology and the University of California, Irvine, Department of Sociology and Center for
the Study of Democracy for instrumental support. We also thank Nina Bandelj, Cynthia Feliciano, Matt Huffman, Andrew Penner,
Brea Perry, Joy Pixley, Shawna Smith and Laura Stoker, as well as the participants of the Citizenship Session at the 2009 Dutch/
Flemish Conference of Sociology for helpful comments on previous drafts.
1 To understand political participation, studies have often focused on voting and political party membership, but increasingly include
other types of participation in order to provide a more complete picture of participation. For example, some scholars have focused
on political consumerism as a new type of political behavior and distinguished more private and individual types of political behavior
from more collective modes of political participation such as attending meetings and participation in demonstrations (e.g.Andersen
and Tobiasen, 2004; Pattie et al., 2003; Stolle et al., 2005). It is also increasingly common to distinguish between electoral or more
institutional forms of participation (e.g. voting and party membership) as compared to more voluntaristic or activism-oriented
types of participation (e.g. Marien et al., 2010; Raney and Berdahl, 2009; Teorell et al., 2007).
2 The ISSP only includes data for the Belgian Dutch-speaking region Flanders. Flanders was also excluded from the analysis on
voting, since the question on voting behavior was not included in the Flemish survey.
3 The sample includes 24 nations as a whole, and one nation measured as a region (Flanders). In Austria, Australia, the Czech
Republic, Spain and Flanders the sample refers to citizens of the nation. In all other nations the sample was random and may
include non-citizens.The data do not provide a way of controlling for whether the respondents citizenship matched the nation
of interview, and we avoid referring to respondents as citizens per se.
4 Due to high numbers of missing values on voting, and the fact that the item was not asked in Flanders, missing values were dropped
separately for this item, with a final pooled N of 25,306.
5 The inter-item correlation was strong across nations with a > 0.6. Because the items are dichotomous, a Mokken scale procedure
(Van Schuur, 2011) conducted in Stata (v 11.2) revealed one scale with Loevinger H coefficients between 0.35 and 0.63 (root pair)
(Hardouin, 2004). All items significantly integrate with the root pair (petitions and political/ethical consumerism).
6 Respondents in the Western democracies were highly likely to have engaged in two or more of the activities, while those in the
formerly communist nations were more likely to have performed none of these actions, as reflected by the mean values presented
in Table 1.
7 Results are consistent with ordinal logistic regressions of the original four-outcome coding, further indicating that the ordinal
model mainly explained this dichotomous relationship. Ordinal logistic results and predicted probabilities are available upon
request.
8 Because Australia has compulsory voting, all voting models were run excluding it.This did not change any of the findings (other
than strengthening some already significant relationships).
9 Religious denomination and political ideology had to be excluded because these are not available as consistent measures across
the nations. Models run where their inclusion was possible indicate no significant differences in the results.
10 A more accurate figure for US party membership is between 4 and 14 per cent.Throughout the twentieth century parties in the
US (and Canada) did not focus on developing centrally coordinated membership organizations, which also explains why
respondents may view membership differently than in other nations (Scarrow, 2002).
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