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Interest Groups and Parliament Canadian Study of Parliament Group THE CANADIAN STUDY of Parliament Group was created with the object of bringing together all those with an interest in parliamentary institutions and their operation. The Canadian Group differs from its British counterpart in that it seeks to attract a wider membership. Anyone with an active interest in parliamentary affairs is eligible to join the Canadian Group, which counts among its members federal and provincial legislators, academics, parliamentary staff, journalists, public servants and others. In Great Britain, Members of Parliament are not eligible for membership, and the British Group consists essentially of academics and the professional staff of Parliament. The constitution of the Canadian Study of Parliament Group makes provision for various activities, including the organization of seminars, the preparation of articles andvrious publications, the submission of briefs to parliamentary committees and other bodies concerned with parliamentary procedure, the establishment of workshops, the promotion and organization of public discussions on parliamentary affairs, participation in public affairs programs on radio and television, and the sponsorship of other educational activities. Membership is open to academics, Members of the Senate, the House of Commons, and provincial and territorial legislative assemblies, officers of Parliament and legislative assemblies, and other interested persons. Applications for membership should be addressed to the Secretary, Canadian Study of Parliament Group, Box 533, Centre Block, Ottawa, Ontario, KIA 0A4. Interest Groups and Parliament Otm 12-13 April 1989 Quebec City 1 June 1989 Table of Contents Panel I The Operation of Interest Groups Obstacles and Opportunities to Set the Political Agenda Panel I. Changes in Interest Group Activities Panel L?I Ensuring Public Participation Leamd Societies Panel Single-Issue Groups: Their Impact on Nominations, Candidates and Members of Parliament 2 Canadian Study of Parliament Group Panel / The mandate and message of a theme-oriented group are usually easy to grasp, so they are weU The Operation understood by the public, the news media, and politicians. The media use $heme-oriented groups of Interest Groups frequently, knowing it will be easy to get a comment for a news story. Politicians also take these groups Moderator: seriously. John L. Evans In terms of size and organization, however, theme- President and Chief Executive Officer oriented groups may have difficulties. They must Trust Companies Association of Canada campaign to attract membership and financial contributions because they have no ready-made Panelists: group from which to draw support. Sara Clodman The basis for segment-oriented groups is a Director, Industry and Government Relations portion of the population with demographic or Sun Life Assurance Company professional characteristics in common. Religious and ethnic groups, the Consumers' Association of Havi Echenberg Canada, the Ontario Medical Association, Executive Director business and labour groups are examples. National Anti-Poverty Organization By contrast with theme-oriented groups, the issues Garfield Mahood confronting segment-oriented groups are diverse and Executive Director large in number, making it difficult to set priorities. Non-Smokers' Rights Association Their membership is also diverse, with a range of perspectives on the same issues. (In an industry association, for example, member companies may be ESTABLISHING A CONTEXT for the discussion, large and small, domestic and foreign-owned.)There moderator John Evans noted the evolution of may even be competing philosophies within a single parliamentary institutions since 1975 and its organization (especially in the case of broadly based implications for interest groups. Although the groups like a board of trade or a chamber of McGrath reforms of 1984-85 have not had the impact commerce). originally anticipated, committees like Don Blenkarn's Developing positions therefore takes more time, the [see Panel 11] have shown the potential of points of view of various constituencies within the parliamentary committees to assume a stronger role organization have to be reconciled, and positions may in formulating and commenting on policy. With have to be watered down so that all members can ministers responding to this new form of pressure, agree. As a result, public understanding of the interest groups will have to begin to pay more purpose and positions of these groups is often fuzzy; attention to committees if they wish to influence groups may be judged on their characteristics rather decision making. than on the positions they adopt. In light of the proliferation of interest groups, Sara The news media and politicians may pay less Clodman offered an analytical framework for attention to these groups for the same reasons. categorizing them. She identified two major types of Because they need to be sensitive to the interests of interest groups - theme-oriented and segment- all members, segment-oriented groups are often less oriented. dynamic, less cohesive and more cautious than Theme-oriented groups form around an issue or theme-oriented groups. I set of issues and range in scope from national or With many issues to cover, segment-oriented international to local. Examples include Pollution groups may have to spread their resources too thin. Probe, the National Anti-Poverty Association, the But they do have ready-made constituencies from Non-Smokers' Rights Association, and local which to draw members and financial support. groups fighting, for example, an expressway. The issues of concern to these groups are clear and Efsectivmss Varies limited in number, making it easier for them to set priorities, and their positions on issues are obvious, Clodman thinks the theme-oriented groups have allowing them to focus on communicating their greater potential for effectiveness; their strength lies messages instead of debating the issues. in the diversity of their membership, their clarity of Interest Groubs and Parliament 3 vision, and their unity on positions. As a result they Unique Contribution can communicate more forcefully, and the public is more likely to find them credible. The public may Under Sara Clodman's definition, the National Anti- not agree with the position, but they usually Poverty Organization (NAPO) is a theme-oriented understand the group's position and what it stands group. The idea that NAPO is operating from a for. position of advantage came as something of a Instead of spending time refining their messages, surprise to its executive director, Havi Echenberg. theme-oriented groups can concentrate on NAPO has, however, spent time considering its communicating, advocating and influencing strengths and how it can contribute to the public decision making. Segment-oriented groups may be policy process. more powerful in terms of membership, resources The board of directors, which sets priorities and and financial support, but their ability to informs the group's policy analysis, is what enables communicate a message is limited by their inability NAPO to make its unique contribution. All board to reach clear, unambiguous positions on a concise members are activists with years of experience in set of issues. low-income and social policy groups in every Coalitions of organizations, or groups with some province and temtory of Canada. Three-quarters of of the characteristics of both segment-oriented and the board are or have been poor. theme-oriented groups, may have even greater This has not necessanly made refining NAPO's potential for effectiveness. Clodman cited Mothers message any easier; they have spent many hours Against Drunk Driving and federations of tenants' trying to define what 'eliminating poverty' means. In associations as groups that can benefit from the addition, the range of issues on which NAPO advantages of both types of interest groups. comments is not narrow. Free trade, literacy, job training programs, and the Canada Assistance Plan Implications for Parties are among the issues that have occupied NAPO's attention in the past year, along with continuing As interest groups grow in number and prestige, issues such as education, health, and housing. Clodman sees people becoming less committed to However, the experience of board members does allow NAPO to analyse and comment knowledgeably political parties and more committed to causes of on proposed legislation or policy. In addition, immediate importance to them. She cited the Echenberg talks regularly to unemployed people and election defeats of Ray Hnatyshyn and Tom welfare recipients across Canada; as a result, NAPO McMillan and the nomination defeat of Maureen has been successful in describing the real-life effects McTeer as instances of single-issue groups of government proposals, based on the experience of influencing the political process [see Canadian its members. But NAPO has had rather less success in Study of Parliament Group seminar of 1 June 1989, prescribing solutions to the issues on its agenda. page 191. What will happen when candidates backed by BuiMing Links single-issue groups are elected - people who may or may not have a long-term commitment to a NAPO's approach has been to build links with political party? What will be their role in several parts of government, including ministers, Parliament? How will they change the face of party critics, the policy committees of caucuses and federal and provincial legislative bodies? Will they cabinet,
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