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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”