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The Political Legitimacy of Cabinet Secrecy

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The Political Legitimacy of Cabinet Secrecy 51 The Political Legitimacy of Cabinet Secrecy Yan Campagnolo* La légitimité politique du secret ministériel La legitimidad política del secreto ministerial A legitimidade política do segredo ministerial 内阁机密的政治正当性 Résumé Abstract Dans le système de gouvernement In the Westminster system of re- responsable de type Westminster, les sponsible government, constitutional conventions constitutionnelles protègent conventions have traditionally safe- traditionnellement le secret des délibéra- guarded the secrecy of Cabinet proceed- tions du Cabinet. Dans l’ère moderne, où ings. In the modern era, where openness l’ouverture et la transparence sont deve- and transparency have become funda- nues des valeurs fondamentales, le secret mental values, Cabinet secrecy is now ministériel est désormais perçu avec scep- looked upon with suspicion. The justifi- ticisme. La justification et la portée de la cation and scope of Cabinet secrecy re- règle font l’objet de controverses. Cet ar- main contentious. The aim of this article ticle aborde ce problème en expliquant les is to address this problem by explaining raisons pour lesquelles le secret ministériel why Cabinet secrecy is, within limits, es- est, à l’intérieur de certaines limites, essen- sential to the proper functioning of our tiel au bon fonctionnement de notre sys- system of government. Based on the rele- * Assistant Professor, Common Law Section, University of Ottawa. This article is based on the first chapter of a dissertation which was submitted in connection with fulfilling the requirements for a doctoral degree in law at the University of Toronto. The research was supported by the Social Sciences and Humanities Research Council of Canada. For helpful comments on earlier versions, I am indebted to Kent Roach, David Dyzenhaus, Hamish Stewart, Peter Oliver and the anonymous reviewers of the Revue juridique Thémis. I also wish to acknowledge the excellent editing work performed by Amélie B. Lavigne. 52 (2017) 51 RJTUM 51 tème de gouvernement. Sur la base de la vant literature and precedents, it is ar- doctrine et des précédents pertinents, gued that Cabinet secrecy fosters the l’auteur soutient que le secret ministériel candour of ministerial discussions, pro- favorise la candeur des discussions minis- tects the efficiency of the collective térielles, protège l’efficacité du processus decision- making process, and enables de décision collectif et permet aux mi- Ministers to remain united in public, nistres de demeurer unis en public, quelle whatever disagreements they may have in que soit la nature de leurs désaccords en private. In addition, Cabinet secrecy en- privé. De plus, le secret ministériel protège sures that the Cabinet documents created la confidentialité des documents du Cabi- by one Ministry do not fall into the hands net créés par un gouvernement en empê- of its political opponents when there is a chant ses opposants politiques d’y avoir change in power. To force Ministers to accès lorsqu’il y a un changement de gou- settle their policy in public, or prema- vernement. Le fait de forcer les ministres à turely publish their Cabinet documents, déterminer publiquement leurs orienta- would not bolster government openness tions politiques, ou à divulguer prématu- and transparency ; it would rather under- rément leurs documents du Cabinet, ne mine it, as ministerial discussions would favoriserait pas l’ouverture et la transpa- likely move underground, and Cabinet rence gouvernementales. Au contraire, documents would probably cease to exist. une telle approche porterait atteinte à ces This would impair the national historical valeurs puisque les véritables discussions records. Yet, while Cabinet secrecy is an entre les ministres se déplaceraient vrai- important rule, it is not absolute. Political semblablement dans un autre forum privé actors accept that Cabinet secrets are not et les documents du Cabinet cesseraient all equally sensitive and that their degree probablement d’être produits. Cela aurait of sensitivity decreases with the passage des effets néfastes sur la qualité des ar- of time until they become only of histori- chives historiques nationales. Néanmoins, cal interest. They also recognize that the en dépit de son importance, le secret mi- public interest may justify that an excep- nistériel n’est pas une règle absolue. Les tion be made to the rule in some circum- acteurs politiques reconnaissent que le stances, for example, when serious degré de sensibilité des secrets du Cabinet allegations of unlawful conduct are made varie et qu’il diminue avec le passage du against public officials. It is submitted temps, jusqu’à ce que ceux- ci deviennent that, properly construed and applied, d’intérêt purement historique. Ils ac- Cabinet secrecy is politically legitimate in ceptent également que la règle puisse faire Canada. l’objet d’exceptions lorsque l’intérêt public l’exige, par exemple lorsque de sérieuses allégations de comportement illégal visent des officiers de l’État. Dans la mesure où la règle est adéquatement interprétée et ap- pliquée, l’auteur soutient que le secret mi- nistériel est politiquement légitime au Canada. Cabinet Secrecy 53 Resumen Resumo En un sistema de gobierno responsa- No sistema de Westminster de ble como el de Westminster, las conven- governo responsável, as convenções con- ciones constitucionales protegen por stitucionais têm tradicionalmente salva- tradición el secreto de las deliberaciones guardado o segredo das deliberações de del gabinete. En la era moderna, en donde Gabinete. Na era moderna, quando aber- la apertura y la transparencia se han con- tura e transparência se tornaram valores vertido en valores fundamentales, el fundamentais, o segredo ministerial pas- secreto ministerial se observa ahora con sou a ser visto com suspeita. A justifica- escepticismo. La justificación y el alcance tiva e o escopo do segredo ministerial de la regla son objeto de controversias. continuam controversos. O objetivo Este artículo aborda este problema al deste artigo é abordar o problema expli- explicar las razones por las cuales el cando por que o segredo ministerial é, secreto ministerial es, dentro de ciertos dentro de certos limites, essencial para o límites, esencial para el buen funciona- funcionamento apropriado do nosso miento de nuestro sistema de gobierno. sistema de governo. Baseado na literatura Con base en la doctrina y los precedentes relevante e em precedentes, argumen- pertinentes, el autor afirma que el secreto ta- se que o segredo ministerial favorece a ministerial favorece discusiones ministe- franqueza das discussões ministeriais, riales abiertas y sin prevenciones, protege protege a eficiência do processo coletivo la eficacia del proceso colectivo de toma de tomada de decisões e permite aos de decisiones y permite a los ministros ministros permaneceram unidos em permanecer unidos frente al público, público, independentemente de desacor- independientemente de la naturaleza de dos que tenham tido em privado. Ade- sus desacuerdos en privado. Además, el mais, o segredo ministerial garante que secreto ministerial protege la confiden- documentos do Gabinete criados por um cialidad de los documentos del gabinete governo não caiam nas mãos de oposito- creados por el Gobierno impidiendo el res políticos quando há troca no poder. acceso a sus opositores políticos cuando Forçar ministros a determinarem suas hay un cambio de Gobierno. El hecho de políticas em público ou publicar prema- obligar a los ministros a revelar pública- turamente seus documentos de Gabinete mente sus orientaciones políticas o divul- não reforçariam a abertura e a tran- gar prematuramente los documentos del sparência governamental ; ao contrário, gabinete, no favorecería la apertura ni la minaria esses valores, já que as discussões transparencia del Gobierno. Por el con- ministeriais migrariam para foros priva- trario, tal perspectiva atentaría contra dos e os documentos do Gabinete deixa- estos valores puesto que las verdaderas riam de existir. O resultado seria que os discusiones entre los ministros se trasla- arquivos históricos nacionais sofreriam. darían a un recinto privado y los docu- Embora o segredo ministerial seja uma mentos del gabinete cesarían de regra importante, não é absoluta. Os ato- producirse. Esto tendría efectos adversos res políticos aceitam que os segredos en la calidad de los archivos históricos ministeriais não são todos igualmente nacionales. Sin embargo, a pesar de su sensíveis e que seu nível de sensibilidade 54 (2017) 51 RJTUM 51 importancia, el secreto ministerial no es diminui com a passagem do tempo até una regla absoluta. Los actores políticos que se tornam apenas de interesse reconocen que el grado de sensibilidad de histórico. Também reconhecem que o los secretos del gabinete varía y dismi- interesse público pode justificar que uma nuye con el paso del tiempo, hasta que exceção seja feita à regra em certas cir- estos adquieren un interés histórico. cunstâncias, por exemplo, quando serias Estos aceptan igualmente que la regla alegações de conduta ilegal são feitas pueda ser objeto de excepciones cuando contra agentes públicos. Sustenta-se que, el interés público lo requiera, por ejem- adequadamente interpretado e aplicado, plo, cuando se hagan acusaciones graves o segredo ministerial é politicamente de comportamiento ilegal contra funcio- legitimo no Canada. narios estatales. El autor sostiene que el secreto ministerial es legítimo política- mente hablando en Canadá en la medida en que la regla se interprete y aplique correctamente
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