Canadian Politics - Critical Approaches [3 ed.] 0176167927

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: N e ls o n I Thomson Learnings 1120 Birchmount Road Scarborough, Ontario M1K 5G 4 www.nelson.com www.thomson.com Copyright © 2000 Nelson Thomson Learning, a division of Thomson Canada Limited. Thomson Learning is a trademark used herein under license. A LL R IG H T S R E SE R V E D . N o part of this work covered by the copyright hereon may be reproduced, transcribed, or used in any form or by any means— graphic, electronic, or mechan­ ical, including photocopying, recording, taping, W eb distribution, or information storage and retrieval systems— without the permission of the publisher. For permission to use material from this text or product, contact us by • Web: www.thomsonrights.com • Phone: 1-800-730-2214 • Fax: 1-800-730-2215 Statistics Canada information is used with the permission o f the Minister of Industry, as Minister responsible for Statistics Canada. Information on the availability of the wide range of data from Statistics Canada can be obtained from Statistics Canada’s Regional offices, its World Wide Web site at http://www.statcan.ca, and its toll-free access number 1-800-263-1136.

Canadian C ataloguing in Publication D ata Dyck, Rand, 1 9 4 3 Canadian politics : critical approaches 3rded. Includes bibliographical references and index. ISBN 0-17-616792-7 1.

Canada - Politics and government.

JL75.D 93 2000

320.971

C 99-932556-6

Evelyn Veitch Nicole Gnutzman Don Thompson Jenny A nttila Bob Kohlmeier Jim Leahy Sarah Weber Hedy Later Suzanne Peden Liz Harasymczuk Masterfile Elaine Andrews Webcom

Editorial Director Acquisitions Editor Marketing Manager Project Editor Production Editor Copy Editor Proofreader Production Coordinator A rt Direction Cover Design Cover Image Composition Analyst Printer Printed and bound in Canada 1

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Brief Contents Preface

Part 1 Chapter 1 Chapter 2

I ntroduction

Approaching the Study o f Politics

3

T h e Historical C o n text and Institutional Foundations

23

Part 2

Chapter 5

xxi

T he Societal Context

Chapter 3 Regional Econom ic Cleavages Chapter 4 Canada’s Aboriginal Peoples T h e French-English Cleavage and the Quebec Question Chapter 6 O ther E th nic Groups and Multiculturalism

Chapter 9

Chapter 7 Gender and Politics Chapter 8 Class Cleavages T h e U nited States and the G lobal Environm ent

Part 3

^ 39 63 83 105 119 139^ 167

L inking P eople to Government

Chapter 10

T h e Canadian Political Culture

Political Socialization, the Mass Media, and Public O pinion Polls Chapter 12 Elections and the Electoral System Chapter 13 Political Parties and the Party System Chapter 14 Parties, Voting, and the E lection Campaign Chapter 15 Pressure Groups and Lobbying

199

Chapter 11

Part 4 Chapter 16

Part 5

Chapter 20

1283 ) (319^ (3 4 0

T he C onstitutional C ontext

T h e Canadian Constitution and Constitutional Change Chapter 17 T h e Provinces and the Federal System Chapter 18 T h e Charter o f Rights and Freedoms

Chapter 19

229

G overning

Governing: T h e Policymaking Process and Policy Instruments

T h e Executive: Crown, Prime Minister, and C abinet Chapter 21 T h e Bureaucracy Chapter 22 Parliament Chapter 23 T h e Judiciary

Part 6 Chapter 24

373 399 ^29/

459 475 511 54H Ife ,

Conclusions C o n c lu s io n s 611 G lo s s o R ? 619 Append ix d B l 643 Index

661

Preface T his book presents the reality o f Canadian government and politics in a concise but compre­ hensive manner. In its aim to be comprehensive, it includes all the traditional aspects of the sub­ je ct— Parliament, Cabinet, federalism, elections, political parties, pressure groups, political culture, and so on— as well as those o f more recent origin or interest, such as the mass media and public opinion polls, the judiciary, and the Charter of Rights and Freedoms. A t the same time, the object is to present a lean account of the subject and to avoid unnecessary tangents or detail. T his text differs from its competitors in two principal ways. First, it gives greater emphasis to the societal setting o f the political system, with chapters on regional econom ic cleavages, Aboriginal peoples, the French-English cleavage, other eth n ic groups, gender, class, and the global environm ent, Second, it provides four analytical models w ith w hich to view the sub­ je c t m atter: the pluralist, public choice, class analysis, and state-centred approaches. T h e text refers to these four approaches wherever appropriate, and sets up an amalgamated analytical framework in w hich they all play a part. T h a t framework takes from public choice theory the constant priority o f those in power to enhance their chances o f re-election; from class analysis, the inequality o f political influence and the pervasive influence o f capitalist values; from pluralism, the predominant influence, in a contest o f floating coalitions o f groups and interests, o f business pressure groups; and from the state-centred model, the persistent influ­ ence o f the bureaucracy. A s the troubled Canadian political system enters the new m illennium , no text could be completely satisfied w ith the status quo. T his book therefore points out aspects o f the polit­ ical and governmental operations o f the country th at are not working as well as they might, and suggests possible reforms and alternative arrangements, sometimes drawing on the expe­ riences o f other countries. W ithout being rigidly ideological, the book is a critical account, and seeks to make informed critics o f its readers. T h e preparation o f this third edition gave me the opportunity to renew the acquaintance o f many o f those who assisted me in writing the earlier editions as well as to talk to a number o f new sources o f vital information. A t the governmental level, this included officials in many governm ent departments and agencies, especially from the Finance Department, Elections Canada, Statistics Canada, and Indian Affairs. M ost federal government departments and agencies now have impressive and very helpful websites, w hich are easily accessed. Individuals who were particularly valuable included James Ross Hurley, Jo h n W alsh, and David Elder o f the Privy C ouncil O ffice; Claude Emery and James R . Robertson o f the Library o f Parliam ent; A urele Gervais, Peter Julian, Steve Coupland, and N icole M utter o f the Liberal, NDP, PC, and Reform parties respectively; Ray B onin, MP; and G ordon Q uaiattini o f M oorcroft Q uaiattini Inc. Am ong the many research organizations and interest groups that gave me assistance, the Canadian C ouncil on So cial Development stood out. Here at Laurentian University, I acknowledge my indebtedness to my friends and colleagues Brian M acLean, Claude V incent, Richard T heoret, K eith Sinclair, Osvaldo C roci, Bob Segsworth, N icole Gagnier, the staff o f the library, as well as Paul Seccaspina o f O racle Research.

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Preface

The book is immensely better from having been vetted, in now three editions, by a variety of academics contacted by Nelson Thomson Learning. For this particular edition, John Carson, University of Toronto at Mississauga (Erindale); Christopher Dunn, Memorial University of Newfoundland; Avigail Eisenberg, University of British Columbia; Brenda O’Neill, University of Manitoba; Allan Tupper, University of Alberta; and particularly Jim Silver of the University of Winnipeg provided a large number of useful suggestions, although I do not hold them responsible for the results. The book is made much more readable too for its having been punc­ tuated with creative and generous additions from Canada’s leading cartoonists. It is always a pleasure to deal with the people at Nelson. This edition was guided to publi­ cation by the talents and dedication of Nicole Gnutzman, Jenny Anttila, Bob Kohlmeier, Sue Peden, Elaine Andrews, and Joanne Sutherland. As usual, my wife, Joan, provided the most supportive home environment that it is pos­ sible to imagine. I thank all of these people most profoundly.

Irftvoduction The introductory c l ^ o r l f o e book consists of tw o chap­ ters. The first p ro vid es^ sfin ^ ial. fram ew o rk on w hich the rest of the book is b u ilt^ ffid outlines a num ber of d if­ fe re n t

app roaches

to t n B p t u e y f o f

p o litics.

These

approaches reveal th at the s u ^ R t m atter of political sci­ ence is not all cut-and-dried f a d | j | f m aterial and th at the same topic can be view ed from d ifferen t perspectives. The second

ch ap te r

exp lo res

th e

l||sto rica l

co n te xt

of

Canadian politics and sketches itsfin stitu tio n a l fo un d a­ tions. In particular, it deals w ith thb-aspects of th e British and y.S . models th at Canada chose as the basis for its own and establishes the institutional differences betw een the Canadian and U.S. systems of governm ent.

Chapter 1

W here does one start in the study o f C anadian politics? How can the m aterial be organized? How m uch o f th e m aterial is o f a factual nature, and how m uch is a m atter o f opinion? W h a t different perspectives can be adopted in this study? T h ese are th e central questions addressed in this introductory chapter.

THE POLITICAL SYSTEM Perhaps it is best to begin w ith the 3 0 m illion individuals who inhabit th e territory called Canada. A ll o f these individuals have an array o f needs th at they attem pt to satisfy, ranging from water and food through security and friendship to self-esteem and self-fulfillm ent. T hese needs have be en ranked by th e psychologist A braham Maslow into a hierarchy, some being m ore basic th an others.1 Political scien ce sometimes lumps such needs together w ith interests, preferences, opinions, m otivations, expectations, and beliefs, and calls them “wants.” It is quite obvious th at m ost o f us spend m uch o f our tim e trying to satisfy such needs or wants. M ost o f us do so, in th e first instance, by our ow n efforts, in pairs, in fam ilies, in organiza­ tions o f all kinds, at work and at play, and do n o t autom atically call for governm ent support. A t some point, however, we may begin to feel th at th e satisfaction o f these needs or wants is beyond such personal, interpersonal, family, or group capacity, and com e to th e conclusion th a t th e governm ent should step in to help us. W h e n we express the op inion th at th e gov­ ernm ent should take some action, we are converting a w ant in to a “demand” and crossing the threshold betw een th e private and public sectors. W e are thus introduced to th e co n cep t o f governm ent, w hich can be defined as th e set o f institutions th a t m ake and enforce co llectiv e, public decisions for a society. W e must also deal w ith th e co n cep t o f pow er, w hich is often defined in p o litical scien ce as th e ability o f one actor to impose its will o n another, w hether through force o f personality or m aterial induce­ m ent. G overnm ent, backed up by armed forces, police, and punishm ents, if necessary, pos­ sesses a particular kind o f power called co ercio n . T h a t is, th e governm ent has th e ability to impose its will o n us by m eans o f sanctions or penalties. Indeed, as a general rule, only the

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4

Introduction

government is allowed to use force or coercive power in society. But if we (or our ancestors) had a hand in the creation of such a government apparatus, as well as in the selection of the current governors, then we have in a sense agreed to be bound by its decisions, and we have cloaked it with “legitimacy.” Such legitimate power is often called “authority,” and a synonym for government is “the authorities.” To some extent, we obey the government because o f the threat or expectation of penalties if we do not, but we also obey because we accept govern­ ment decisions to be binding on us and necessary for the general good. Think of stopping at a red light as an example. Coming back to the definition of demands, therefore, we can say that a dem and is the expression o f opinion that some authoritative action be taken. W hat governments do is make and execute decisions for a society or formulate and enforce social or public policies. W ho are these authorities? As can be seen in the diagram of the political system in Figure 1.1, we usually divide them into four branches of government: the legislature, the executive, the bureaucracy, and the judiciary. T he authoritative decision that a demand seeks can some­ times be made by a single branch of government. If the demand requires the adoption of a pri­ vate bill— a company seeking incorporation, for example— then action of the legislative branch will be necessary. If an individual desires a patronage appointment or if a corporation wants a large monetary grant, then the political executive or Cabinet can respond to such entreaties. If the demand is for the provision of routine government services, such as disability benefits under the Canada Pension Plan, or for changes in technical regulations, then bureau­ cratic action will probably suffice. Finally, if the demand can only be settled by judicial inter­ pretation or adjudication, then it should be addressed to the courts. In many instances, however, the demand will require combined actions of any two of the executive, legislative, and bureaucratic branches, or even all three working together, such as in the formulation, passage, and implementation of a new law. The courts normally stand somewhat apart from the other three organs of government, operating on the principle of the

Figure 1.1

A M odel o f th e Political System ENVIRONMENT

fWants

— Feedback — Demands

M

Issues

EXECUTIVE BUREAUCRACY LEGISLATURE JUDICIARY Individuals

Pressure Parties & Groups Elections ased on the periodicPooDularelectiop_.of themembers of the House of Commons. Parliament alsohasa seconct or “upper” chamber, which in Britain was the hereditary"Honse of Lords. Canada Tacked the historic landed nobility found in Britain, however, so it was decided that the members of thq, Canadian Senate wpnld he^ appointed by the prime minister. Tire third part oT~British Parliament is the pnonprrh o r the Crown, and approval of all three pam~fs~necessary for the

T h e H isto ric a l C o n tex t a n d In stitu tio n a l F ou n d atio n s

passage o f legislation and certain other aurbnrirai-ivptjprision.s. Canada would, o f course, conH » » * I