ABSTRACT
The thirteenth convocation of the Verkhovna Rada (1994-8) was in several
respects pivotal for parliamentary institutionalization. First, the convocation was
faced with crucial choices relating to ‘institutional design’ during the
constitutional process. These choices would decide parliament’s position and
prerogatives in the institutional framework of the state. Second, internal
institutional engineering via the adoption of the Rada’s ‘internal constitution’,
the Reglament, laid the formal basis for the establishment of factions as key
sub-institutions in parliament. Faction development during the convocation was
seemingly paradoxical. On one hand, factions acquired more defined organiza-
tion, exhibiting signs of early institutionalization, which was encouraged by
endogenous institutional engineering. On the other hand, the internal rules did
not create thoroughgoing incentives for faction coherence, so that they remained
weak and mutable institutions. This institutional weakness was conditioned and
augmented by a combination of exogenous factors, particularly the ongoing lack
of a clearly defined role for parliament, the weak party system and the strategic
action of President Kuchma, who sought to weaken the Rada. Therefore,
although institutionalization was detectable in some areas, factions developed
only limited capacities for strategic action. In turn, this shaped the Verkhovna
Rada’s ability to act autonomously and fulfil its functions effectively.
