The Democratic Deficit: Should This Be Paul Martin's

THE DEMOCRATIC DEFICIT: SHOULD THIS BE PAUL MARTIN’S NEXT BIG IDEA?

Thomas S. Axworthy

After successfully erasing Canada’s fiscal deficit as finance minister, Paul Martin has identified “the democratic deficit” as one of the most urgent issues as he becomes prime minister. Thomas Axworthy, Chairman of the Centre for the Study of Democracy at Queen’s University, agrees that Martin has identified three critical issues — low election turnouts by a disengaged public, a lack of accountability in government and relevance of Parliament, and the need for international governance in a globalized economy. Axworthy, himself a former principal secretary to a prime minister, offers some pertinent suggestions on how Martin might flesh out his ideas for eliminating the democratic deficit.

Après avoir épongé le déficit public à titre de ministre des Finances, Paul Martin a fait du « déficit démocratique » l’une des questions à régler d’urgence au poste de premier ministre. Avec raison, estime Thomas Axworthy, président du Centre for the Study of Democracy de Queen’s University, pour qui M. Martin a judicieusement identifié trois domaines critiques en la matière : faible participation électorale d’une population désengagée ; imputabilité du gouvernement et pertinence du Parlement ; gouvernance internationale dans une économie mondialisée. Ayant lui-même été premier secrétaire d’un chef de gouvernement, l’auteur y va d’intéressantes suggestions sur les moyens d’étoffer les idées de Paul Martin sur l’élimination de ce déficit démocratique.

n an important speech delivered to Osgoode law stu- attaining. In his famous funeral oration to Athenians, dents on October 21, 2002, Paul Martin articulated a Pericles declared, “we do not say that a man who takes no I central theme of his leadership campaign — the demo- interest in politics is a man who minds his own business: we cratic deficit — and how he proposed to reform Parliament say he has no business here at all.” The classical idea was “because under our democratic tradition, it is the House of that political community was a good in itself, and that our Commons where our greatest debates should occur; where humanity would be diminished if we were not engaged in duly elected Members of Parliament come together from civic business. Aristotle claimed that by nature we were every corner of our country and represent every communi- political animals and therefore that without full member- ty and constituency in between.” Martin’s emphasis on par- ship in a self-governing community we would live a life less liamentary reform was tactically brilliant because his core than fully human, no better in fact than slaves. supporters in the Liberal caucus had long been dissatisfied with their treatment by Jean Chrétien’s PMO, but more fun- ince classical times humankind has invented representa- damentally, Martin also recognized that “democratic and S tive institutions — parliament — as a means of achiev- institutional renewal” was a “vital precondition to our ing self-government in large communities when it is no future success as a country.” If Martin is serious about dem- longer possible to draw every citizen to the Pnyx hills to ocratic renewal and willing to extend his agenda beyond vote in a direct assembly, and mass democracy where the parliamentary reform to a much wider canvas, he might be United States in 1828 first extended the vote beyond the promoting the most galvanizing political idea since Pierre property-owning class to include farmers, labourers, and Trudeau’s advocacy of a “Just Society.” mechanics. Our ideal today is an engaged citizenry on a As democracy was first being invented, classical Greece mass scale, an ambitious goal, much like our ideal of uni- developed a concept of citizenship that we are still far from versal public education. Just as we strive for mass literacy in

POLICY OPTIONS 15 DECEMBER 2003 – JANUARY 2004 Thomas S. Axworthy

reading or mathematics, so too must ● Democratic international gover- 1970. Novelist Douglas Copeland has we strive for mass civic literacy. Citizen nance to bring some measure of described his generation as “Generation capacity is not only the ability to political accountability to the X,” and among Generation X-ers, non- secure our rights and influence deci- forces of globalization. voting increased by 14 points between sion makers, participation itself is a Slowly changing macro-forces 1993 and 2000. In the 2000 election, critical good. As Charles Taylor rarely force political attention until it for example, 83 percent of those over describes this ideal: is too late and a crisis hits us with a 68 voted, while only 22 percent of those 18-20 voted. In short, Slowly changing macro-forces rarely force political attention only 25 percent of youth until it is too late and a crisis hits us with a gale force: Thus voters 18-20 participate in rising prices slowly start to accelerate bit by bit and suddenly elections compared to 75 percent for those 40 years you are in an inflationary spiral or deficits begin to old and up. We have a dis- accumulate and eventually you are in a debt trap borrowing engaged, if not disaffected, money to pay interest on yesterday’s loans. With the youthful generation that has democratic deficit we are in a similar situation today. turned off politics. Reasons for nonvoting Full participation in self-rule is gale force: Thus rising prices slowly are complex but there are clear correla- seen as being able, at least part start to accelerate bit by bit and sud- tions between knowledge, personal of the time, to have some part denly you are in an inflationary spiral efficacy, and voting. The more people in the forming of a ruling con- or deficits begin to accumulate and know about our history and political sensus, with which one can eventually you are in a debt trap bor- institutions the more likely they are to identify along with others. To rowing money to pay interest on yes- participate in political life. If this rule and be ruled in turn means terday’s loans. With the democratic assumption is correct we should not be that at least some of the time deficit we are in a similar situation surprised by the decline in youth par- the governors can be ‘us’ and today — all the trend lines on voting, ticipation because there has also been not always ‘them.’ the easiest form of civic engagement, a generation of educational neglect in Jurgen Habermas, who has popular- are down, and with youthful voters our schools about history and civics. ized the concept of “deliberative democ- they are in a free-fall. For a generation, Barely a majority of youth know that racy,” a citizen engagement beyond the the young have endured a cycle of Sir John A. Macdonald was our first simple act of voting, writes that active neglect and now they are opting out of prime minister, so it should not come citizenship “no longer hinges on the the political system in unprecedented as a surprise that only 22 percent of assumption of macro-subjects like the numbers. The first item in any demo- those 18-27 in 2000 could identify the ‘people’ of the ‘community’ but anony- cratic agenda must be to end the dis- minister of finance. The Council of mously interlinked discourses or flows engagement of our youth from Education Ministers needs to make of communication.” Citizens should politics. The way to do so is first to civic literacy as great an education pri- vote but, just as important, delibera- increase their basic civic literacy and ority as language arts or numeracy. The tions within the decision-making bodies next to put on the policy agenda issues federal Department of Heritage would like parliament should be open for and that address their concerns about jobs be much wiser making a financial con- sensitive to the values and contributions and education access. tribution to the Council of Education of ordinary citizens. This is a much Ministers for civics education, rather wider agenda than procedural democra- he 2000 election had the lowest than giving away Canadian flags. cy for it requires innovation in how our T recorded turnout in a federal elec- decision-making bodies operate. tion since Confederation. At 61 per- Reducing the democratic deficit there- cent, the turnout was 14 points below VOTER TURNOUT IN FEDERAL fore requires action on three urgent the 75 percent rate achieved in 1988, ELECTIONS FROM 1988 TO 2000 fronts, not just the parliamentary focus which was itself the average of elections 80 initially identified in Martin’s Osgoode 1945-1988. Turnout has declined from 70 speech. They are: 75 percent in 1988 to 70 percent in 60 ● Democratic civic literacy, especially 1993 to 67 percent in 1997 to 61 per- 50 among our disengaged young cent in 2000. The explanation for the 40 ● Democratic accountability in our decline is quite straight/forward: Percent 30 institutions of governance, includ- turnout has not declined in the elec- 20 ing parties, the Senate, House of torate as a whole but it has fallen like a 10 0 Commons, and the public service stone among Canadians born after 1988 1993 1997 2000

16 OPTIONS POLITIQUES DÉCEMBRE 2003 – JANVIER 2004 The democratic deficit: should this be Paul Martin’s next Big Idea?

CP Photo Paul Martin’s world: the new Liberal leader meets reporters on Parliament Hill. In redressing “the democratic deficit,” Martin has prom- ised to restore the pre-eminent role of Parliament as the place where the great debates of the day occur.

It is part of this vicious circle of dis- of community service in the transition know who to hold accountable for engagement that issues of primary con- from high school to work or high school what but in Canada this key require- cern to young people are seldom to higher education would be a concrete ment is hopelessly muddled. The elec- discussed. Youth do not vote so politi- way of showing our young people that toral system no longer does a very cians do not listen which further alien- they matter as well as giving domestic good job in translating voter prefer- ates the young and so it goes spiralling and international communities valuable ence into responsible government, ever downwards. Access to higher edu- projects. Engaging young people in the parties no longer seem to be very cation, rising tuition fees, and student their communities would be the best good at political education or articu- debt levels must be part of any future kind of active citizenship. lating their value systems, the Senate productivity agenda. Ireland has pros- remains appointed , the House of pered not only by cutting corporate ccountability — the requirement Commons no longer has the means to taxes but by increasing access to higher A to answer for the responsibility hold the executive accountable for its education. Thanks to Jacques Hébert, of having been given power by citi- actions, and the public service has Canada has private sector/philanthropic zens — is at the heart of democratic forgotten the distinction between initiatives like Canada World Youth and government. Answering the question, clients and citizens. To reduce the Katimavik but no national youth service who is responsible to whom for what, democratic deficit we must restore program like AmeriCorp in the United is the key concept in self-government. accountability to every one of our States. Giving a young person an option For citizens to be engaged they must political institutions.

POLICY OPTIONS 17 DECEMBER 2003 – JANUARY 2004 Thomas S. Axworthy

Elections are not just about repre- think tanks and education foundations ll six of his ideas, including an sentation, they are also about forming to develop policy and debate ideas. A independent ethics commission- an effective executive, and this central German parties are more than electoral er, a renewed system of private mem- point is often lost in the critique of our machines. As part of the subsidy ber’s bills, fewer three-line whips first-past-the-post electoral system. authorized by C-24, at least 10 percent (government confidence votes), the Elections must be about aggregating of the total should be allocated to pub- selection of committee chairman by interests as well as articulat- ing interests. Canada’s elec- Elections are not just about representation, they are also toral system does this well about forming an effective executive and this central point is and one of Canada’s inter- often lost in the critique of our first-past-the-post electoral national advantages is that we have a parliamentary system. Elections must be about aggregating interests as well system that enables our gov- as articulating interests. ernments to take decisions. But any system can be improved and lic education. Mr. Martin can especially the committee itself, committee review our system, based on strong regional lead here. In an enormously successful of government appointments, and identities, has discriminated against fundraising appeal for his leadership enhanced measures to review estimates many Canadian voters. Thus Liberal campaign, it is reputed that Martin should be implemented. But even support in the West is not translated raised $10-12 million. After paying off more needs to be done. Parliament into seats, as is Conservative support in his campaign debts, the residue could needs sources of expertise and research Quebec, or Green Party support any- be used to create a Liberal Party comparable to the executive. The Privy where. One reason for declining Education Foundation. Council Office and the Department of turnout may be the feeling that “my Senate reform must also be part of Finance, with no program responsibili- vote doesn’t count” because the system any democratic agenda. To have an ties, have between them 1500-2000 only responds to concentrated local appointed Senate a century after we policy experts whose only job is to majorities. Keeping the basic geograph- achieved universal suffrage in electing advise the Cabinet. The 300 Members ic first-past-the-post system for 80 per- the House of Commons is a dubious of Parliament have only 80 researchers cent of the seats in the House of and poor joke on Canadian citizens. in the Library of Parliament. As Patrick Commons but allocating 20 percent of Without formally changing the consti- Boyer, a former Member of Parliament, the seats according to regional vote tution our new prime minister can writes in his cri de coeur, Just Trust Us: shares would not unduly impair effec- begin by only appointing senators who “for most MP’s, getting to Parliament tiveness while improving representa- have stood for election and agreed to Hill is like going to play hockey in an tion. Allocating some Members of resign after a fixed term of four years. arena but finding no ice to skate on.” Parliament to party lists would also Once this system becomes established To regain control of the expenditure increase the representation of women, de facto, in time it can be institutional- process, Parliament needs a source of aboriginals, and visible minorities, ized by constitutional amendment. expertise like the Congressional Budget most of whom have difficulties in win- In raising the democratic deficit as Office in the United States whose ning party nominations. a major campaign theme in the fall of budget forecasts are much more reli- 2002, Martin began with a six-point able than the president’s. Each of the arties are not just about winning plan to reform the House of Commons. major committees of parliament P elections, they are also about edu- He based his rationale squarely on the should have a research staff that can cating citizens about issues and ideolo- principles of accountability: build up expertise and memory over gies. Parties in some countries take this Under our system of representa- time. The institution of Parliamentary responsibility seriously. In Canada they tive government, there should be Secretary, once a linchpin between do not. To his great credit, fairness in a direct line that runs from the Members of Parliament and the execu- party election financing was addressed people to their representatives — tive, should also be restored to its for- by Jean Chrétien in his final burst of their Member of Parliament — mer prominence. Pierre Trudeau and reform which led to Bill C-24, which and through them to the execu- Jean Chrétien both served as parlia- included public subsidies and restricted tive. The problem is, over time, mentary secretary to the prime minis- corporate and union financing. In that line has become obscured. ter. Politics is a craft, not a science, and future, parties will receive the vast pro- Unfortunately, the authority of there should be an apprenticeship portion of their finances from taxpay- the individual Member of beginning as a member, then a chair- ers, and voters have the right to ask Parliament has been allowed to person of a committee, then parlia- how their money is being used. erode while the power of the mentary secretary, junior minister, and German parties each have independent executive has grown steadily. finally a senior position.

18 OPTIONS POLITIQUES DÉCEMBRE 2003 – JANVIER 2004 The democratic deficit: should this be Paul Martin’s next Big Idea?

Parliament, too, should be the cen- Department of Public Works is bullied ● Expand the G-8 to include Brazil, tre of the action on public consulta- into breaking all the rules in awarding Nigeria, South Africa, India, and tions. Ottawa is swarming with communications contracts. Like Great when it finally democratizes, consultations but most of them are run Britain, which makes permanent secre- China by departments. Running a process of taries “accountability officers” answer- ● Work to reform the Security deliberative democracy about values, able to Parliament for the honest Council to include as permanent trade-offs, and mutual learning should administration of their department, members countries like Japan, be the job of politicians not public ser- we too should make deputy ministers Germany, India, Brazil, and South vants. Politicians bring energy and ideas as accountable for administration as Africa to the political system, public servants ministers are for policy. ● Create a Civil Society Assembly of bring expertise and management. We It is not only Canadian citizens NGOs to meet concurrently with should give parliament the resources to and members of Parliament who suffer the General Assembly engage with Canadians about future from a democratic deficit. Most of the directions or goals while restricting pub- world is underrepresented in institu- anadians are not only citizens of lic servants to meeting with the public tions of world governance like the UN C this territorial state, they are also on implementation or means. Security Council, the International citizens of the world, and world insti- On accountability criteria, the pub- Monetary Fund, the World Bank, and tutions are in desperate need of more lic service of Canada is a mess. Starting the World Trade Organization. Demon- democratic accountability. in the 1980s, the public service in a strators in Seattle or Quebec City were Paul Martin is the man most respon- burst of faddism adopted the sible for slaying Canada’s fiscal “new public management” Paul Martin is the man most deficit. He has also importantly which attempted to introduce responsible for slaying Canada’s raised the issue of Canada’s dem- business standards into govern- fiscal deficit. He has also ocratic deficit. If he succeeds in ment. But business has a bottom reforming Canada’s political line — profits or loss — while importantly raised the issue of institutions to truly engage our government has multiple goals: Canada’s democratic deficit. If he citizenry he will put his earlier winning elections, running a fair succeeds in reforming Canada’s deficit-busting accomplishments process, keeping the country political institutions to truly in the shade. Balancing a budget united, social equality, and serv- is momentary; balancing institu- ice efficiency to mention only a engage our citizenry he will put tional power to achieve better few. Citizens became customers his earlier deficit-busting accountability could be funda- or clients and, as customers, accomplishments in the shade. mental and long lasting. departments engaged in an end- Widening and deepening his less series of discussions to see what the forcibly making the point that in a democratic deficit agenda also has the client wanted. Decision-making in globalized world they were being vital- advantage that in a time of scarce fiscal Ottawa is now a never-ending series of ly affected by globalization’s impact resources it doesn’t cost much. Indeed, consultations between civil servants, while having no voice on globaliza- de-layering the public service, establish- lobbyists, and service providers, mostly tion’s direction. There is a huge gap ing single point administrative accounta- held in private with no public account- between the private power of interna- bility for deputy ministers, and restoring ability. To restore political accountabili- tional commerce and the lack of power Parliament’s ability to scrutinize expendi- ty this iron triangle has to be broken. by most states in the international sys- tures and evaluate performance could While adding layers and layers of mid- tem. Developing an international gov- even save money. Democratic accounta- dle management to engage in consulta- ernment and agenda to run in tandem bility could do for Paul Martin what the tions, the public service has also lost all with galloping economic forces is a tall Just Society did for Pierre Trudeau: give notions of frugality or value for money. order but it too must be addressed. his government an easily understood Worthy of an article on its own, some conceptual framework. For Prime elegated the power to assign ideas for an international democratic Minister Paul Martin his guiding purpose D merit bonuses for “superior per- governance agenda that Canada could should be Democracy First. formance,” deputy ministers reward champion include the following: them willy-nilly making a mockery of ● Insist that a representative of the Thomas S. Axworthy, former principal the process. Meanwhile the Justice developing world become secretary to Prime Minister Pierre Department has a billion-dollar over- President of the World Bank. Why Trudeau, is Chairman of the Centre for run on gun registration, the Depart- are all important world economic the Study of Democracy at Queen’s ment of Human Resources has an institutions reserved for first-world University, and Executive Director of the ongoing series of scandals, and the management? Historica Foundation.

POLICY OPTIONS 19 DECEMBER 2003 – JANUARY 2004