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Quebec's Right to Self-Determination As a Source of Inspiration for the Peoples of Europe

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Quebec's Right to Self-Determination As a Source of Inspiration for the Peoples of Europe From political affirmation to legal recognition: Quebec's right to self-determination As a source of inspiration for the peoples of Europe 1 2 From political affirmation to legal recognition: Quebec's right to self-determination As a source of inspiration for the peoples of Europe 3 From political affirmation to legal recognition: Quebec's right to self-determination As a source of inspiration for the peoples of Europe Report prepared by DANIEL TURP Emeritus Professor at the Faculty of Law of the Université de Montréal President of the Institut de recherche sur l’autodétermination des peuples et les indépendances nationales Member of the House of commons of Canada (1997-2000) and of the National Assembly of Quebec (2003-2008) Member of the Advisory Scientific Council of Coppieters Foundation © English translation – May 19, 2021 4 TABLE OF CONTENTS INTRODUCTION 6 I 1960-1976: From the “Quiet Revolution” to the election of the Parti Québécois: The political affirmation of the right to self-determination 10 II May 20, 1980: The consultation on sovereignty and association: A first referendum on self-determination 16 III 1985-1992: The Meech Lake Accord and the consultation on the Charlottetown Consensus Report: A second referendum on self-determination 22 IV October 30, 1995: The consultation on sovereignty and partnership: A third referendum on self-determination 32 V 1998-2000: The Reference re Secession of Quebec and the Clarity Act: The expression of Self-Determination and the Right to Pursue Secession 38 VI December 7, 2000: The Quebec Fundamental Rights Act: A Legislative codification of the right to self-determination 42 VII 2001-2021: Henderson v. Attorney General of Québec: The legal recognition of the right to self-determination 46 CONCLUSION 52 APPENDICES 56 1 Referendum Act (Excerpts) (1977) 58 2 An Act to recognize the right of the people of Quebec to self-determination (Bills 191 and 194) (1978 et 1985) 61 3 An Act respecting the Future of Quebec (Bill 1) (1995) 64 4 Reference Re Secession of Quebec (Excerpts) (1998) 74 5 Clarity Act (2000) 88 6 Act Respecting the Exercise of the Fundamental Rights and Prerogatives of the Quebec People and the Quebec State (2000) 92 7 Henderson c. Attorney General of Quebec (Excerpts) (2021) 95 NOTES ABOUT THE AUTHOR 108 5 INTRODUCTION The right to self-determination of peoples continues In this manifesto, the EFA further clarifies the scope of to be the subject of great debate. Throughout the this right in the following terms: world, the right to self-determination has been and continues to be asserted by numerous independence The EFA believes that all peoples have the right and autonomy movements that seek to freely deter- to choose their own destiny and an institutional mine their political status and freely pursue their eco- framework that empowers them. Whether this nomic, social and cultural development. involves respect of linguistic and cultural rights, devolution, expansion of regional or federal Although it is unthinkable to list them all, such move- powers, demands for autonomy, or the achieve- ments are active on the African continent (Ambazonia ment of independence through referendum — all (Cameroon), Casamance (Senegal), Chagos (United proposals that allow groups of people to express Kingdom), Kabylia (Algeria) and Western Sahara themselves and define their own institutions in (Morocco), in the Americas (Puerto Rico (United a democratic, transparent, gradual and peaceful States of America) and Quebec (Canada), in Asia way must be supported. Self-determination is (Hong Kong, Taiwan and Tibet (China), Karen (Burma) a principle, enshrined in international law, that and Kurdistan (Iraq, Iran, Syria, Turkey) and in Oceania can be adapted to the different situations faced (Bougainville (Papua New Guinea), Chuuk (Federated by peoples under the jurisdiction of European States of Micronesia), New Caledonia and Polynesia states. It allows all peoples to choose what is (France) 1, not to mention the indigenous peoples of best for them, for their development, and in all continents who have been recognized by the United some cases their survival 4. Nations General Assembly as having a right to self-de- termination 2. While no one can predict the fate of these various movements today, their number alone attests to the This is also the case on the European continent, where ever-renewed relevance of the right to self-determi- a significant number of political parties, grouped within nation. From the middle of the 20th and 21st centuries, the European Free Alliance (EFA), affirmed in their most the international community has witnessed the cod- recent election manifesto that the “[w]ork to improve ification and progressive development of the right to the prospects for all Europeans depends on the EFA’s self-determination in the international and national unfailing support for the right to self-determination” 3. legal order. Such development led to a reference to the 1 On the self-determination processes underway in these various continents and countries, see Daniel TURP et Anthony BEAUSÉJOUR (dir.), L’autodétermina- tion des peuples au XXIe siècle : perspectives québécoises, comparées et internationales, Montréal, Institut de recherche sur l’autodétermination des peuples et les indépendances nationales, 2021. See also Ryan GRIFFITHS, « The State of Secession in International Politics », E-International Relations, 23 September 2016 on line: https://www.e-ir.info/2016/09/23/the-state-of-secession-in-international-politics]. 2 See Roméo SAGANASH, « Le droit à l’autodétermination des peuples autochtones », (1993) 24 Revue générale de droit 85 [on line : https://www.erudit.org/fr/ revues/rgd/1993-v24-n1-rgd04377/1057018ar.pdf]. 3 See EUROPEAN FREE ALLIANCE, Building a Europe for all Peoples- Electoral Manifesto 2019, p 6 [on line : https://www.e-f-a.org/wp-content/uploads/2019/04/ EFA_manifesto_2019_EN-1.pdf]. 4 Ibid. For an analysis of the right to self-determination in the European context conducted under the auspices of the Maurits Coppieters Centre (now the Cop- pieters Foundation), see Daniel TURP and Marc SANJAUME-CALVET, The Emergence of a Democratic Right of Self-Determination in Europe. Brussels, Centre Maurits Coppieters, 2016 [on line: https://ideasforeurope.eu/wp-content/uploads/2018/03/Coppieters_5282_selfdetermination-_final.pdf]. 6 respect for the principle of equal rights of peoples and their right to self-determination as one of the purposes set out in 1945 in the United Nations Charter 5, but also to the adoption in 1966 of Article 1 common to the two International Covenants on Human Rights that affirm that “all peoples have the right of self-determination” and that “by virtue of that right they freely determine their political status and freely pursue their economic, social and cultural development” 6. determine, when and as they wish, their internal and In its Declaration on Principles of International Law external political status, without external interference, concerning Friendly Relations and Cooperation among and to pursue their political, economic, social and cul- States in accordance with the Charter of the United tural development as they please”. Such equality of Nations 7, the General Assembly of the United Nations rights of peoples and their right to self-determina- further stated on October 24, 1970 that “the estab- tion was reaffirmed in 1990 in theCharter of Paris for lishment of a sovereign and independent State, free a New Europe 9. association or integration with an independent State, or accession to any other political status freely deter- An important development occurred in 2007 with the mined by a people constitute modalities for the imple- adoption of the United Nations Declaration on the mentation of the right to self-determination by that Rights of Indigenous Peoples 10. Article 3 of this dec- people”. laration states that “indigenous peoples have the right to self-determination” and that “by virtue of that right At the European level, it is worth mentioning the they freely determine their political status and freely signing in 1975 of the Helsinki Final Act 8 whose Dec- pursue their economic, social and cultural develop- laration on the Principles Governing the Mutual Rela- ment”. It adds that “[i]ndigenous peoples, in exer- tions of Participating States recalls in particular in its cising their right to self-determination, have the right Article VIII that “[b]y virtue of the principle of equal to autonomy and self-government in matters relating rights and self-determination of peoples, all peo- to their internal and local affairs, as well as the means ples shall always have the right, in full freedom, to to finance their autonomous activities”11 . 5 United Nations Conference on International Organization, vol. 15, p. 365 (26 June 1945). 6 See International Covenant on Economic, Social and Cultural Rights, [1976] 993 U.N.T.S. 13 (16 December 1966) and International Covenant on Civil and Political Rights, [1976] 999 U.N.T.S. 107 (16 December 1966). 7 G.A. Res. 2625, Off. Doc. G.A. 25th session, supp. No 28, p. 131, U.N. Doc. A/5217 (24 October 1970) (hereinafter «Declaration on Friendly Relations»). 8 Signed on August 1st 1975, the text of the d’Helsinki Final Act, the official title of which isFinal Act of the Conférence on Security and Cooperation in Europe is available on line at https://www.osce.org/files/f/documents/5/c/39502.pdf]. 9 The Charter of Paris for a New Europe was signed by the Participant States a the Conference for Security and Cooperation in Europe on November 21st 1990 and is on line at https://www.osce.org/files/f/documents/3/2/39517.pdf. 10 G.A. Res., Off. Doc. G.A. 61st session, U.N. Doc, A/RES/61/295 (2007) (13 September 2017) [on line : https://documents-dds-ny.un.org/doc/UNDOC/GEN/ N06/512/08/PDF/N0651208.pdf].
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