POSC 1000Introduction to Politics

Parliamentary Systems

Russell Alan Williams

Unit Five: Formal Political Institutions

“Parliamentary Systems”

Required Reading:MacLean and Wood, Chapter 5

Outline:1. Introduction – Formal Institutions2. Parliamentary Systems

1. Legislative Institutions2. Executive Institutions

3. Conclusions

1) Introduction - Formal Institutions:

Formal institutions include:

“Unitary” vs. “Federal Systems” (Unit Six)

“Presidential” vs. “Parliamentary” Systems

• More important distinction

Basis of major differences between Canada and the U.S.

All government systems involve “branches” of Government:

“Legislative”: Body responsible for making laws, passing legislation (E.g. New bills etc.)

“Representation”: Legislatures are made up of members elected to represent the interests of different communities

“Executive”: Branch of government in charge of government administration – the “top” level of government (?)

Implementing and administering laws - the actual work of governing (E.g. Overseeing the work of ministries)

All government systems involve “branches” of Government:

“Judiciary”: The courts and legal system

Resolve disagreements about interpretation of laws• E.g. Interpreting the “Constitution”Enforce existing laws

In “Parliamentary Systems”: “Fusion of Powers” - Close relationship between executive and legislative activities

Government must have support of legislature• Government selected from legislature, not elected by

people!

In “Presidential Systems”: “Separation of powers” between different activities

President and bureaucracy = executiveCongress = legislative

Neither is dependent on the other as both have been elected

Results in more “checks and balances”???

2) Parliamentary Systems:

2) Parliamentary Systems:A) Legislative Institutions:

Parliament = Generally is “bicameral” = Two houses

Britain: HoC and House of Lords

Canada: HoC and Senate

• “upper house” not elected – not the “norm”

i) “House of Commons”: Elected chamber in CanadaEach “Member of Parliament” (MP) is elected from a geographical constituency

The government:

“Head of Government”: Person who runs governmentIn parliamentary system this is normally the leader of the party with the most MP’s in the House of Commons = the prime minister

“Cabinet”: Members of the political executiveIn parliamentary system these are normally MP’s selected by prime minister from their own partyCabinet proposes all major legislation and controls the budget

Principles: “Cabinet Secrecy” & “Cabinet Solidarity”

“Majority Government”: When one party has more than 50% of MP’s

• Easy for PM and cabinet to pass legislation

E.g. Dunderdale government (2011-????)Harper Government (2011 – until the end of

time . . . )

“Minority Government”: When party with most MPs (but not majority) forms a government but cannot pass legislation without support of other parties

E.g. Paul Martin Government (2004-2006)E.g. Harper Government (2006-2009)

Traditionally = requires formal arrangement

In Canada = ??????

“House of Commons” . . . .

The “opposition”: One or more parties that are not part of government, but form a check on the ruling power of the governing party

“Official Opposition”: Party with 2nd most MP’s• Always leads “question period” and criticisms of

government policy“Loyal Opposition”: Other parties – loyal to the state, not to the government

Other key concepts:“Private Members”: All MPs not in Cabinet

Can propose own legislation, but hard to get on the “order paper” for debateNormally vote “party lines” on all legislation = “Party Discipline”

“Non Confidence Motion”: Vote on whether the Gov’t has the support of the House of Commons

Government defeat = election or new government

House of Commons Committees: Divided by policy area – do the work of the HoC

Investigate issues, hold hearings, debate early legislationImportant in parliamentary system? Not so much . . . .

“Filibuster”: The use of delaying tactics to prevent government legislations from passing.

E.g. An MP gives a never-ending speech

“Closure”: A procedure that allows government to end debate on legislation with a majority vote

E.g. Ends a filibuster

“Prorogation”: The suspension or end of a Parliamentary session by the Governor General . . . At the request of the PM

E.g. Ends all the fun and games . . . .

ii) “Senate”: Upper chamber in Canada – appointed by the prime minister

Terms last until age 75 – Good work if you can get it!

Functions:“Sober second thought” – Senate can block HOC legislationRegional representation – All four major regions are allocated senators

Central Canada Ontario = 24Quebec = 24

Western Canada Manitoba = 6Saskatchewan = 6Alberta = 6British Columbia = 6

Eastern Canada Nova Scotia = 10New Brunswick = 10Prince Edward Isl. = 4

Newfoundland = 6Northern Canada Yukon = 1

Northw’t Territories = 1Nunavut = 1

ii) “Senate”:

PM can add 8 additional Senators anytime “the Queen sees fit” (?)

• E.g. 1991 GST debate

Who gets in?Former politicians, cabinet ministers and hockey players . . .

How are they removed?Miss two entire sessions of parliament (!)Serious crime (!)Many senators can serve for thirty + years

Activities?Similar organization to HoC – Committees etc.Can engage in independent policy investigationsSenators have larger office budgets than MP’s

ii) “Senate”: Views of the Senate?

Public indifference – it just doesn’t matter

• However Senate can be influential– Informal – Banking legislation– Formal – Has blocked

legislation– GST– Senate reform(!)

Public hostility – calls for abolishment of Senate or reform

• E.g. “Triple E” Senate• Alberta “elected” senators in 1989

and 2004

Parliamentary Systems Cont.

B) Executive Functions

“Head of State”: The head of all government institutions

In parliamentary systems “Head of State” is mainly ceremonial

“Constitutional Monarchy”: System where powers of monarch have been reduced to a largely symbolic role

– E.g. Head of state is either the Monarch or a representative of the Monarch

Canadian Federal Government = “Governor General”

Appointed for five year terms on recommendation of the PM

Canadian Provinces = “Lieutenant-Governor”

Example: GG in practice . . .

The “King-Byng Affair”!Mackenzie King (Lib) was PM in minority government

Conservatives had more seatsGov could not pass legislation

Asked Governor General Lord Byng to call an election

GG refused – invited the Conservatives to form a government!Byng was constitutionally correct, but this meant the GG was exercising power – turned out out to be unpopular move

Controversy: Should we elect our Head of State?

“Head of Government”: Prime ministerPremiers (in Provinces)

Chooses cabinet ministersOversees “Central Agencies”: Organizations that coordinate government activity

• Privy Council Office• Prime Ministers Office• Treasury Board• Department of Finance

Drafts legislation and BudgetsOversees the “Bureaucracy”: Civil servants and unelected officials responsible for carrying out public policy of governments

Canadian PM is particularly powerful:Appoints: Judges, Senators, Cabinet ministersDominates own party caucus

= “Executive Dominance”: Little role for legislature in day to day operations of government

3)Conclusions on Parliamentary System:Key points:

a) Government “executive” is formed from parliamentary “caucus”

• All ministers are either an MP or a Senator - Ensures close link between executive and legislature

• Virtue: Government can always be questioned– E.g. “Question Period”: time allotted in Parliament for

private members to question members of cabinet and prime minister

b) Conflicting Principles:

“Responsible Government”: Cabinet is responsible to the HoC

• Not the public!HoC can “throw out” a government“Ministerial Responsibility” Principle that individual members of the executive (cabinet) remain accountable to the legislature.

• E.g. Constitutional convention - Mistakes by the Cabinet ministers’ staff require that the Minister should resign!

“Party Discipline”: Ensures all MP’s vote along party lines

Particularly strong in Canada - Gov’t members rarely vote against gov’t bills

=Little role for parliament in designing legislation

=Little role for parliament in holding majority gov’ts accountable

Just who is cabinet “responsible” too?“Fusion of Powers”: Executive and legislative branches of government are combined.

Reduces access points to influence government – little “pluralism”