Federalism

5. Asymmetrical federalism
Symmetry and asymmetry
Asymmetrical federalism is a form of federalism in which different parts of a 
country’s territory have different degrees of autonomy. It can be contrasted with 
symmetrical federalism, in which all subnational units have equal juridicial status 
and powers. Asymmetry is usually—although not necessarily—a product of 
‘holding together’ federalism. When independent states are coming together to 
form a federation, they usually do so on equal terms, but when an existing 
country is dividing itself into federalized components in order to accommodate 
desires for autonomy, it often has to accommodate different parts of the country 
to different extents, depending on the different intensities of separate identity or 
interest, rooted in cultural, historical or geographic particularities.
• In Spain, a distinction was made between so-called ‘historical’ regions—
those with a history of self-government and, often, a distinct linguistic 
identity—and other parts of the country, with additional powers being 
granted to the historical regions but not to the other regions. For example, 
the Basque Country and Navarra have particular rights in regard to the 
levying and collection of their own taxes, while Catalonia has its own 
police force, which has largely replaced the Spanish state’s national police 
and Civil Guard forces. Some, but not all, of the regional autonomous 
communities have their own co-official language.
• In Canada, the Constitution recognizes various small asymmetries, since ‘a 
number of [constitutional] provisions apply only to one, or more 
provinces, but not all. Many of these provisions address the 

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22 International IDEA
Federalism
accommodation of minority groups, linguistic minorities in general, and 
the circumstances of Quebec in particular’ (Bodnar 2003).
Asymmetry may also be a response to differences in capacity for autonomy. A 
poor or less developed area may have a lower capacity for self-government than a 
prosperous one, and may be more heavily dependent on transfer payments from 
other parts of the country via the central government.