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Executive Backbenchers Or Political Nobodies?

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Executive Backbenchers Or Political Nobodies? Executive Backbenchers or Political Nobodies? The Role of Parliamentary Secretaries in Canada by David Gamache Hutchison Winner of the Alf Hales Research Award November 1999 Paper written for the Institute On Governance’s 1999 Alf Hales Research award Institute On Governance, 122 Clarence St., Ottawa, Ontario, Canada K1N 5P6 Tel.: 1 613.562.0090 – Fax: 1 613.562.0097 – e-mail: [email protected] – Website: www.iog.ca Ó 1999 All rights reserved Executive Backbenchers or Political Nobodies? The Role of Parliamentary Secretaries in Canada ISBN 1-894443-03-9 Published and distributed by: The Institute On Governance Ottawa, Ontario, Canada Phone: (1-613) 562-0090 Fax: (1-613) 562-0097 Web Site: www.iog.ca Table of Contents ABSTRACT 1 INTRODUCTION 1 HISTORY 3 STATUS 6 SELECTION 7 CAREER PROSPECTS 9 RESPONSIBILITIES 12 JOB SATISFACTION 17 THE FUTURE OF THE POSITION 20 INTERVIEWS 24 NOTES 25 David Gamache Hutchison David Gamache Hutchison served as a Parliamentary Intern in the Canadian House of Commons in the 1998-99 academic year. His previous experience in government included a tour guide position at the Quebec National Assembly and an internship at the Canadian Embassy in Washington, D.C. David is currently completing a Masters degree in political science at the University of Alberta. Alf Hales Research Award The Institute On Governance (IOG) created the Alf Hales Research Award in 1999 to recognise the valuable educational experience that the Parliamentary Internship Programme provides in Canada. The award seeks to promote research excellence and young people’s understanding of governance issues. It is handed out annually to the best Intern essay on a particular aspect of the Parliamentary system. This year's winning paper on Parliamentary Secretaries by David Gamache Hutchison, reflects the originality and spirit that Alf Hales demonstrated when he created the Programme 30 years ago. Executive Backbenchers or Political Nobodies? Role of Parliamentary Secretaries in Canada 1 Institute On Governance Abstract As elevated backbenchers, are Parliamentary Secretaries able to achieve greater participation in the Canadian political debate and ultimately the decision making process? The office of Parliamentary Secretary provides government backbench MPs with the opportunity to gain some executive and departmental experience, while also allowing the Prime Minister and Ministers to gauge their abilities. Parliamentary Secretaries also find themselves in the ambiguous situation of having their position defined by a personal relationship – the relationship between Minister and Parliamentary Secretary. The author undertakes an examination of the office of Parliamentary Secretary in the Canadian political system. In doing so, he presents the position’s history, its legal status, and the experiences of some Parliamentary Secretaries in the 1st session of the 36th Parliament. He questions whether Parliamentary Secretaries enjoy a special influence in Canadian governance. He offers suggestions for reforming the institution of Parliamentary Secretary. Introduction According to many observers of Canadian politics, the power and spoils of public office begin and end with appointment to Cabinet. In what has evolved into a centralized, executive-centred Parliamentary system, policy making and legislation are, with few exceptions, in the hands of the Members of Parliament (MPs) within Cabinet.* As a result, in the governing of the country, little is left to engage the remaining backbench MPs. Perhaps the most sought after consolation prize available to the government backbench is the position of Parliamentary Secretary. Some MPs find rewards in other roles. Numerous MPs find fulfilment in focussing their energies on constituency matters and observing an ombudsman role in Ottawa. Certainly, opposition MPs often attain a degree of satisfaction from their ongoing and ever challenging task of criticizing the government. Meanwhile, those who reach the position of Committee Chair look to the influential role that they play in the preparation of reports and the revision of legislation. Yet, none of these responsibilities carry with them the implied stature or perceived influence of the Parliamentary Secretary. The office of Parliamentary Secretary, first introduced in Canada during the First World War, has emerged as an institution of the modern Canadian Parliamentary system. The office of Parliamentary Secretary provides government backbenchers with the opportunity to gain some executive and departmental experience, while also allowing the *For the purposes of this study, “Cabinet” will include the position of Secretary of State. Although the Secretaries of State only sit on occasion in full Cabinet and are not Ministers of the Crown, they are indeed Privy Councillors, members of the Ministry, and are responsible to Parliament for the particular responsibilities that have been assigned to them. Secretaries of State do not have the service of Parliamentary Secretaries. 2 Executive Backbenchers or Political Nobodies? Role of Parliamentary Secretaries in Canada Institute On Governance Prime Minister and senior ministers to gauge their abilities. Although the position serves this twofold function, it has also been a useful tool of the government to reward loyal backbenchers or to restrain irritating mavericks. By co-opting the latter group, the position restrains those who once sought to challenge the governing party. My work in the office of Eleni Bakopanos, MP (Ahuntsic) and Parliamentary Secretary to the Minister of Justice, my conversations with current and former Parliamentary Secretaries and Ministers and my research have revealed an interesting consensus regarding the position of Parliamentary Secretary. All three indicate that the position’s legal status is ambiguous, that its roles and responsibilities are undefined, and that its impact is unpredictable. While so many offices in the Canadian parliament system are by their nature ill-defined*, this lack of definition has reduced the influence Parliamentary Secretaries have on Canadian Governance. While constitutional ambiguity has assisted Canadian Prime Ministers in the centralization of power, constitutional ambiguity has also prevented Parliamentary Secretaries from realizing their potential. Beyond these systemically imposed limitations, Parliamentary Secretaries also find themselves in the ambiguous situation of having their position defined by a personal relationship – the relationship between Minister and Parliamentary Secretary. In essence, the position is as important as the scope of the work the Minister assigns to the Parliamentary Secretary. In some cases it is difficult for a Minister to share the political limelight. In other cases Ministers prefer to rely on their personal staff, whose loyalties are clear and who often possess an expertise in the portfolio area. Meanwhile, certain Ministers are simply unsure of how to use their Parliamentary Secretary or do not possess a portfolio that implicates their Parliamentary Secretary. However, in many cases a dynamic relationship evolves, which benefits the work of the Minister, the experience of the Parliamentary Secretary, and Canadian governance. In the words of the Justice Minister, Anne McLellan: “Like any human relationship, the success of the Minister- Parliamentary Secretary relationship is based on chemistry – consisting of shared values and common objectives.”1 In this study I undertake an examination of the position of Parliamentary Secretaries in the Canadian Parliamentary system. This examination of the office of Parliamentary Secretary in the Canadian political system presents the position’s history, its legal status, and the experiences of some Parliamentary Secretaries. Further to the aim of uncovering the work of Parliamentary Secretaries, the paper also addresses broader issues of governance and the experience of MPs in the Canadian Parliament. As elevated backbenchers, are Parliamentary Secretaries able to achieve greater participation in the political debate and ultimately the decision making process? *Canada has inherited a largely unwritten constitution from Britain. While the BNA Act sought to clarify the role of the Senate and the power of the provinces, it did not address such things as the office or powers of the Prime Minister or those of his closest advisors. Executive Backbenchers or Political Nobodies? Role of Parliamentary Secretaries in Canada 3 Institute On Governance History As with so many of our parliamentary practices, the Canadian Parliamentary Secretary has its origins in the British Parliamentary tradition. Although it is difficult to determine clearly how and when the generic position of “Parliamentary or Under Secretary” came into existence, most observers date its arrival to the eighteenth and nineteenth centuries when the “monarch’s ministers” were transformed into the modern British ministerial form of government. As increased amounts of power were devolved to Ministers and Secretaries of State, the Acts of Parliament generally included a provision for an Under- Secretary of State and often, but not always, Ministers were provided a Parliamentary Secretary.2 The first mention of a Parliamentary Secretary position in Canada may have come in 1850, when Robert Baldwin, an earlier proponent of responsible government, recommended that the Province of Canada establish a second “political office” to assist Ministers in their departmental duties.3 Meanwhile, Canada had an early association with Parliamentary
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