How Ottawa Spends, 1993-1994: A More Democratic Canada…? 9780773595866

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Edited by Suson D. Phillips

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Suson D. Phillips

Carleton University Press Ottawa, Canada 1993

@Carleton University Press, Inc. 1993 ISBN 0-88629-201-8 (paperback) Carleton Public Policy Series # 13 Printed and bound in Canada

Canadian Cataloguing in Publication Data The National Library of Canada has catalogued this publication as follows: How Ottawa Spends 1983Annual. 1993-94 ed.: A More Democratic Canada ... ? Each vol. also has a distinctive title. Prepared at the School of Public Administration Carleton University Includes bibliographical references. ISSN 0822-6482 ISBN 0-88629-201-8 1. Canada-Appropriations and expenditures-Periodicals. I. Carleton University. School of Public Administration. HJ7663.S6

354.710072'2

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Oxford University Press 70 Wynford Drive Don Mills, Ontario Canada M3C 119 (416) 441-2941

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Cover design: Y Graphic Design Acknowledgements Carleton University Press gratefully acknowledges the support extended to its publishing program by the Canada Council and the Ontario Arts Council. The Press would also like to thank the Department of Communications, Government of Canada, and the Government of Ontario through the Ministry of Culture, Tourism and Recreation, for their assistance. The School of Public Administration gratefully acknowledges thesuJ?port of the Federal Provincial Relations Branch, Intergovernmental Affairs, Government of Ontario.

Contents Preface ........................................................................ vii CHAPTER 1 A More Democratic Canada ... ? Susan D. Phillips ........................................................... 1 CHAPTER 2 Reforming the Parties: Prescriptions for Democracy Alexandra Dobrowolsky and Jane Jenson .............................. 43 CHAPTER 3 Constitutionalizing Economic and Social Rights in the Charlottetown Round Miriam Smith ............................................................... 83 CHAPTER 4 Lobbying, the Voluntary Sector and the Public Purse A. Paul Pross and lain S. Stewart..................................... 109 CHAPTERS Constitutional Politics 1990-92: The Paradox of Participation Leslie A. Pal and F. Leslie Seidle ..................................... 143 CHAPTER 6 Efficiency-Democracy Bargains in the Reinvention of Federal Government Organization G. Bruce Doern .......................................................... 203 CHAPTER 7 Aboriginal Self-Government: The Two Sides of Legitimacy Paul L.A. H. Chartrand ................................................. 231 CHAPTER 8 Devolution and Development: The Urban Nexus N. Harvey Lithwick and Rebecca Coulthard......................... 2S7

CHAPTER 9 Canada's Balance of Payments and International Indebtedness Bruce W. Wilkinson ...................................................... 291 CHAPTER 10 The NAFTA, Democracy and Continental Economic Integration: Trade Policy as if Democracy Mattered

Ian Robinson ......................... ..................................... 333 CHAPTER 11 Lowering the Safety Net and Weakening the Bonds of Nationhood: Social Policy in the Mulroney Years James J. Rice and Michael J. Prince .... .............................. 381 CHAPTER 12 The Politics of Stealth: Child Benefits under the Tories

Ken Battle ................................................................. 417 CHAPTER 13 Accountability, Back-to-Basics and Choice: An ABC for Educational Change?

Saul Schwartz............................................................. 449 APPENDICES Fiscal Facts and Trends ................................................... 483 The Authors ................................................................ 505

Preface The purpose of the How Ottawa Spends series is to provide informed anal ysis and to stimulate debate about federal government policies and practices. In this fourteenth edition, a fundamental question about the process of governing is addressed: How can we make Canada a more democratic nation? The relationship between citizens and their governments is at a critical juncture in the 1990s and-in order to maintain its legitimacy and credibility with Canadians-the federal government needs to examine ways of enhancing democratic practices. In this election year, the authors explore some of the key election issues and consider a number of different routes for extending democratic governance. How Ottawa Spends is produced by the School of Public Administration at Carleton University. It is truly a collaborative effort that depends on the co-operation and contributions of many people. The authors and staff work under impossible deadlines and I thank all of them for their good cheer and scholarly integrity. On behalf of the authors, I would like to thank the many government officials and representatives of non-governmental organizations who have given generously of their time and their knowledge. As a peer-reviewed publication, How Ottawa Spends relies on the assistance of many academic colleagues who provide comments, criticism and advice to the editor. This year, thanks are due to Frances Abele, Amy Bartholomew, Calum Carmichael, Bruce Doern, Katherine Graham, Allan Maslove, Leslie Pal, Philip Ryan, Leslie Seidle, Donald Swartz, Gene Swimmer and Stan Winer, as well as the many individuals who provided constructive criticism directly to the contributors. Special appreciation is expressed to Jane Jenson for her editorial assistance and advice which were offered graciously and which extended well beyond the call of collegial duty. Carolyn Chisholm and Gordon Quaiattini provided expert research assistance. Under the direction of Allan Maslove, Carolyn Chisholm also produced the tables and charts that appear as the appendix, Fiscal Facts and Trends. The School's superb Administrator and bilingual in-house copy editor, Martha Clark, managed the production; our technical wizard and constructive critic, Amanda Begbie, caught our mistakes and industriously converted the manuscripts into an

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accurate and pleasing text. Shelley Henderson provided extraordinarily efficient copy editing. Invaluable professional service and support was provided by the Carleton University Press staff, Michael Gnarowski, Steven Uriarte and Anne Winship; and by our French translator, Fran