Cohabitation in French Politics

In the framework of French politics, cohabitation refers to a distinctive political arrangement under the Fifth Republic in which the President of the Republic and the Prime Minister, together with the parliamentary majority, belong to opposing political parties. It is a constitutional yet exceptional situation that arises when the President’s party does not hold a majority in the National Assembly, compelling the President to appoint a Prime Minister from the rival political camp. This phenomenon, though infrequent, has played a major role in shaping the dynamics of power between the President and the Parliament in modern France.

Background and Institutional Context

The concept of cohabitation is a product of the semi-presidential system established by the Constitution of the Fifth Republic (1958), which was designed to balance executive authority between the President and the Prime Minister. Under this system, executive power is shared between:

• The President, directly elected by universal suffrage since 1962, responsible for national sovereignty, defence, and foreign policy; and
• The Prime Minister, who leads the government and is accountable to the National Assembly.

Normally, the President appoints a Prime Minister from his own political camp, ensuring alignment between the presidency and the legislature. However, when legislative elections produce a parliamentary majority from an opposition party, the President is constitutionally obliged to appoint a Prime Minister who commands the confidence of that majority. This situation is termed cohabitation, symbolising a “forced coexistence” between political opponents within the same executive framework.

Definition and Operation

Cohabitation occurs when the President and the Prime Minister represent opposing political forces. While the President remains the Head of State, the Prime Minister assumes effective control over domestic and economic policy, given that the government is responsible to the National Assembly rather than to the President.
Under cohabitation:

• The Prime Minister directs government policy, oversees legislation, and handles internal affairs such as the economy, education, and welfare.
• The President retains control over foreign affairs, defence, and certain constitutional prerogatives, including the power to dissolve the National Assembly and to refer matters to a public referendum.

This division of authority transforms the traditional dominance of the President into a more balanced or even subordinate role, depending on the degree of political cooperation between the two leaders.

Historical Instances

France has experienced three major periods of cohabitation since the establishment of the Fifth Republic:

1. 1986–1988: The first cohabitation occurred between President François Mitterrand (Socialist Party) and Prime Minister Jacques Chirac (right-wing Rally for the Republic). Despite ideological differences, both leaders managed to coexist pragmatically, with Chirac focusing on domestic reform and privatisation, while Mitterrand maintained influence in foreign affairs.
2. 1993–1995: The second cohabitation again involved Mitterrand, this time with Prime Minister Édouard Balladur, another right-wing leader. This period was relatively calm, with both figures maintaining an understanding to avoid institutional conflict during Mitterrand’s final years in office.
3. 1997–2002: The third and longest cohabitation saw President Jacques Chirac (right-wing) working with Prime Minister Lionel Jospin (Socialist Party). The arrangement followed Chirac’s decision to dissolve the National Assembly, which unexpectedly brought a leftist majority to power. During this period, the government pursued progressive social and economic reforms while Chirac focused on foreign relations.

Each instance demonstrated the constitutional flexibility of the French system but also revealed the political complexities of shared governance between rival camps.

Causes of Cohabitation

Cohabitation arises primarily due to electoral misalignment between the presidential and parliamentary cycles. Before the year 2000, the presidential term was seven years while the legislative term was five years. This mismatch meant that over time, voters could express dissatisfaction with the incumbent President’s policies by electing an opposition majority in the National Assembly.
Other causes include:

• Shifting voter sentiment in mid-term legislative elections.
• Political fragmentation leading to changing alliances within the Assembly.
• Constitutional obligation for the President to appoint a Prime Minister acceptable to the parliamentary majority.

Following constitutional reforms in 2000, the presidential term was reduced to five years, aligning it with the legislative cycle to minimise the likelihood of cohabitation.

Division of Powers during Cohabitation

The French Constitution of 1958 does not explicitly prescribe how powers should be shared during cohabitation. However, practical convention and political necessity have created an informal division:

• The President exercises authority in foreign affairs, national defence, and key diplomatic appointments.
• The Prime Minister oversees domestic governance, economic management, social policy, and day-to-day administration.

This balance requires mutual restraint. The President refrains from interfering in government policy, while the Prime Minister avoids undermining the President’s constitutional functions. Successful cohabitation depends on both leaders’ ability to maintain institutional harmony despite ideological opposition.

Political and Institutional Implications

Cohabitation has profound implications for the French political system:

• Redefinition of Executive Power: It transforms the normally dominant presidency into a more ceremonial and diplomatic role, restoring greater prominence to parliamentary governance.
• Democratic Balance: It acts as a democratic counterweight, ensuring that power does not become overly centralised in the presidency.
• Policy Moderation: As both sides must cooperate, policies tend to become more centrist and pragmatic, reflecting compromise rather than confrontation.
• Institutional Tension: Differences in political orientation can create friction, leading to legislative gridlock or public confusion over accountability.

While critics argue that cohabitation weakens executive coherence, supporters view it as evidence of the flexibility and resilience of the Fifth Republic’s constitutional design.

Advantages and Disadvantages

Advantages:

• Promotes checks and balances within the executive.
• Reflects the pluralism of voter preferences in a dynamic democracy.
• Encourages political cooperation and consensus-building across party lines.
• Reinforces the parliamentary component of the semi-presidential system.

Disadvantages:

• May lead to policy paralysis or administrative inefficiency if the President and Prime Minister are unwilling to cooperate.
• Creates ambiguity in leadership, particularly in times of crisis or on issues overlapping domestic and foreign policy.
• Risks political instability, as public confidence can decline if executive conflict becomes visible.

Reforms to Prevent Frequent Cohabitation

To reduce the likelihood of future cohabitations, several institutional adjustments have been introduced:

• The 2000 constitutional amendment reduced the presidential term from seven to five years, aligning it with the parliamentary term.
• Legislative elections are now held shortly after the presidential election, allowing the newly elected President’s party to capitalise on electoral momentum and secure a parliamentary majority.
• These reforms have made cohabitation less probable, although it remains constitutionally possible if electoral shifts occur mid-term.

Significance in French Political Evolution

Cohabitation has played a pivotal role in shaping the balance of power in the French political system. It has tested the durability of the semi-presidential model and demonstrated the adaptability of French institutions. The periods of cohabitation have shown that the Constitution can withstand divided government without constitutional crisis, reaffirming the robustness of the Fifth Republic.