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Proquest Dissertations nm u Ottawa L'Universite' canadieniie Canada's university FACULTE DES ETUDES SUPERIEURES ISHH FACULTY OF GRADUATE AND ET POSTOCTORALES u Ottawa POSDOCTORAL STUDIES L'Universite canadienne Canada's university Marc Gervais AUTEUR DE LA THESE / AUTHOR OF THESIS Ph.D. (Political Science) GRADE/DEGREE School of Political Studies FACULTE, ECOLE, DEPARTEMENT / FACULTY, SCHOOL, DEPARTMENT Minority Governments in Canada: A Study of Legislative Politics TITRE DE LA THESE / TITLE OF THESIS Caroline Andrew DIRECTEUR (DIRECTRICE) DE LA THESE / THESIS SUPERVISOR CO-DIRECTEUR (CO-DIRECTRICE) DE LA THESE / THESIS CO-SUPERVISOR Linda Cardinal Francois Rocher Louis Massicotte Genvieve Tellier Universite de Laval Gary W. Slater Le Doyen de la Faculte des etudes superieures et postdoctorales / Dean of the Faculty of Graduate and Postdoctoral Studies MINORITY GOVERNMENTS IN CANADA: A STUDY OF LEGISLATIVE POLITICS Marc Gervais Thesis submitted to the Faculty of Graduate and Postdoctoral Studies in partial fulfillment of the requirements for the Ph.D. degree in Political Science School of Political Studies Faculty of Social Sciences University of Ottawa © Marc Gervais, Ottawa, Canada, 2011 Library and Archives Bibliotheque et 1*1 Canada Archives Canada Published Heritage Direction du Branch Patrimoine de I'edition 395 Wellington Street 395, rue Wellington OttawaONK1A0N4 Ottawa ON K1A 0N4 Canada Canada Your file Votre inference ISBN: 978-0-494-79720-4 Our file Notre r6f6rence ISBN: 978-0-494-79720-4 NOTICE: AVIS: The author has granted a non­ L'auteur a accorde une licence non exclusive exclusive license allowing Library and permettant a la Bibliotheque et Archives Archives Canada to reproduce, Canada de reproduire, publier, archiver, publish, archive, preserve, conserve, sauvegarder, conserver, transmettre au public communicate to the public by par telecommunication ou par I'lnternet, preter, telecommunication or on the Internet, distribuer et vendre des theses partout dans le loan, distribute and sell theses monde, a des fins commerciales ou autres, sur worldwide, for commercial or non­ support microforme, papier, electronique et/ou commercial purposes, in microform, autres formats. paper, electronic and/or any other formats. The author retains copyright L'auteur conserve la propriete du droit d'auteur ownership and moral rights in this et des droits moraux qui protege cette these. Ni thesis. Neither the thesis nor la these ni des extraits substantiels de celle-ci substantial extracts from it may be ne doivent etre imprimes ou autrement printed or otherwise reproduced reproduits sans son autorisation. without the author's permission. In compliance with the Canadian Conformement a la loi canadienne sur la Privacy Act some supporting forms protection de la vie privee, quelques may have been removed from this formulaires secondaires ont ete enleves de thesis. cette these. While these forms may be included Bien que ces formulaires aient inclus dans in the document page count, their la pagination, il n'y aura aucun contenu removal does not represent any loss manquant. of content from the thesis. 1+1 Canada ABSTRACT Despite their prevalence, the study of Canadian minority governments has been the object of few published studies. In particular, the issue of how governments that must rely on the support of one or more opposition parties in Parliament manage to remain in power (viability) and pass their legislative proposals (effectiveness) has not been thoroughly investigated. This study examines the parliamentary dynamics at play in these situations by applying a majority building framework grounded in and supported by three theoretical perspectives, namely the rational choice tradition, new institutionalism, and the role of party politics and party systems, to four minority governments that have occurred in the last 50 years or so: 1- Diefenbaker (1957-1958), 2- Pearson (1963-1965); 3- Clark (1979-1980); and, 4- Harper (2006-2008). The data on the specific circumstances that held during these minority governments has been gathered from archival records, from the recorded debates and votes in the House of Commons, from previous Canadian studies on minority government, from political autobiographies, and from third party accounts of the events at the time. The study finds that majority building is a function of primarily two interrelated variables: 1- bargaining power (interparty dynamics and intra-party cohesion) and 2- agenda control (House business, confidence tests, other institutional features). It also stresses the importance of government concessions as an effective means of achieving desired goals and outcomes. Furthermore, this study highlights the capacity and skill of individual parliamentary actors in the exercise of legislative politics generally and in manipulating institutional and party system levers specifically, as a contributing factor to their government's duration and legislative output. This study adds to the empirical knowledge of the minority experience in Canada and provides a conceptual framework to better understand legislative politics and its impact on the success of minority governments in Canada and elsewhere. RESUME Malgre leur frequence, les gouvernements minoritaires au Canada n'ont pas souvent fait I'objet d'etudes. En particulier, peu d'attention a ete portee a la question de comment un gouvernement minoritaire reussi a obtenir I'appui d'un ou de plusieurs partis d'opposition dans le but de rester au pouvoir (viabilite) et de faire passer ses propositions legislatives (efficacite). Notre etude examine les dynamiques parlementaires qui se deploient dans ses situations. Plus precisement, elle cherche a les comprendre a la lumiere d'un modele de strategies menant au consensus sur un vote parlementaire. Ce modele est fonde sur trois perspectives theoriques, soit la tradition du choix rationnel, le nouvel institutionnalisme et le role de la politique partisane et du systeme de partis. Nous etudions quatre gouvernements minoritaires des cinquante dernieres annees: 1- Diefenbaker (1957-1958), 2- Pearson (1963-1965), 3- Clark (1979-1980) et Harper (2006-2008). Nous avons accumule nos donnees sur ces gouvernements minoritaires a partir de documents d'archives, de la transcription des debats et des votes a la Chambre des communes, d'etudes canadiennes sur les gouvernements minoritaires, d'autobiographies politiques et des souvenirs de tierces parties presentes lors du deroulement des evenements que nous etudions. Notre etude identifie deux variables liees a la creation de majorites legislatives au Parlement, soit: 1- le pouvoir de negotiation (la dynamique entre les partis et la cohesion a I'interieur des partis) et, 2- le controle de I'agenda parlementaire (affaires decoulant de la Chambre, les motions de confiance et d'autres facteurs institutionnels). De plus, elle identifie l'importance des concessions gouvernementales dans I'atteinte de ses objectifs. Notre etude souligne l'importance de la capacite et du doigte des joueurs parlementaires particuliers dans I'exercice de la politique legislative en general et dans la manipulation des composantes institutionnelles et partisanes en particulier pour garantir la longevite et I'efficacite de leur gouvernement. Notre etude contribue a ajouter a notre connaissance de I'experience minoritaire au Canada et nous offre un modele nous permettant de mieux comprendre la politique legislative et sa contribution au succes des gouvernements minoritaires au Canada et ailleurs. iii TABLE OF CONTENTS Chapter 1: Introduction 1 Chapter 2: Review of the Literature 7 I Western European Literature 7 II Legislative Studies in Canada 21 Chapter 3: Research Plan 33 I Theoretical Framework 33 II Hypothesis 69 III Methodology 69 Chapter 4: Diefenbaker (1) 80 Chapter 5: Pearson (1) 128 Chapter 6: Clark 200 Chapter 7: Harper (1) 252 Chapter 8: Conclusion 332 Bibliography 349 iv APPENDICES Appendix A Canada's 12 Minority Governments 363 Appendix B Chronology of Events - Diefenbaker (1) 364 Appendix C Key Votes- Diefenbaker (1) 365 Appendix D Government Bills- Diefenbaker (1) 367 Appendix E Chronology of Events - Pearson (1) 368 Appendix F Letter to Governor General (April 12, 1963) 373 Appendix G Key Votes- Pearson (1) 376 Appendix H Government Bills- Pearson (1) 381 Appendix I Chronology of Events - Clark 384 Appendix J Key Votes - Clark 385 Appendix K Government Bills - Clark 386 Appendix L Gallop Polls, July to December 1979 387 Appendix M Chronology of Events - Harper (1) 388 Appendix N Key Votes- Harper (1) 390 Appendix O Government Bills (1) - Harper (1) 393 Appendix P Government Bills (2) - Harper (1) 395 V LIST OF TABLES Table 3.1 Majority Building Framework 68 Table 3.2 Duration of Canada's Minority Governments 70 Table 3.3 Legislative Output of Canada's Minority Governments 72 Table 3.4 How and Why Canada's Minority Governments Ended 73 Table 3.5 Object of Our Study 75 Table 4.1 Government Activities - Diefenbaker (1) 107 Table 5.1 Interesting Facts on Key Votes- Pearson (1) 190 Table 5.2 Closest Votes - Pearson (1) 191 LIST OF FIGURES Figure 4.1 Seat count of the 23rd General Election (June 10, 1957) 81 Figure 5.1 Seat count of the 26th General Election (April 8, 1963) 129 Figure 6.1 Seat count of the 31st General Election (May 22, 1979) 200 Figure 7.1 Seat count of the 39th General Election (January 23, 2006)....253 LIST OF DIAGRAMS Diagram A Duration / Output Axis 76 VI LIST OF ACRONYMS CCF Co-operative Commonwealth Federation CPC Conservative Party of Canada LPC Liberal Party of Canada MP Member of Parliament NDP New Democratic Party PC Progressive Conservative PMB Private Members' Business SC Social Credit SFT Speech from the Throne VII CHAPTER 1 INTRODUCTION The first sentence of The Canadian Democratic Audit on legislatures reads: "Legislatures, and the men and women who serve in them, are at the very heart of Canadian democracy" (Docherty, 2005, p. 3). To be sure, legislatures are key democratic institutions where elected representatives give binding assent to measures of public policy on behalf of the electorate. By doing so, "they confer legitimacy on a particular measure of public policy" (Norton, 1998, p. xiii).
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