CASE STUDIES on CONSTITUTION BUILDING Professor Robert
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Mapping the Path towards Codifying - or Not Codifying - the UK Constitution CASE STUDIES ON CONSTITUTION BUILDING Professor Robert Blackburn July 2014 Mapping the Path towards Codifying - or Not Codifying - the UK Constitution _____________________________________________________________________ This collection of case studies forms part of the programme of research commissioned by the House of Commons Political and Constitutional Reform Committee from Professor Robert Blackburn, Director of the Centre for Political and Constitutional Studies at King's College London, for its inquiry into Mapping the Path towards Codifying – or Not Codifying – the UK Constitution, conducted with the support of the Nuffield Foundation and Joseph Rowntree Charitable Trust. Editor _____________________________________________________________________ ROBERT BLACKBURN is Professor of Constitutional Law, King’s College London. He is a Solicitor of the Senior Courts, and author of public law titles in Halsbury's Laws of England, including Constitutional and Administrative Law (Volume 20), The Crown and Crown Proceedings (Volume 29) and Parliament (Volume 78). His academic works include books on The Electoral System in Britain, King and Country, Parliament: Functions, Practice and Procedure, Fundamental Rights in Europe, Rights of Citizenship, The Meeting of Parliament and Constitutional Reform. He is a former Acting Head of the School of Law, and is currently Director of both the Centre for Political and Constitutional Studies (research unit) and the Institute of Contemporary British History (academic department) at King's. Associated Publications _____________________________________________________________________ Andrew Blick, Mapping the Path towards Codifying - or Not Codifying - the UK Constitution: Literature Review (2011) Andrew Blick, Mapping the Path towards Codifying - or Not Codifying - the UK Constitution: The Existing Constitution (2012) Robert Blackburn, Mapping the Path towards Codifying - or Not Codifying - the UK Constitution: Part I: Arguments for and against a Written Constitution, Part II: Three Illustrative Blueprints, Part III: The Preparation, Design and Implementation of a Codified UK Constitution, in Report of the House of Commons Political and Constitutional Reform Committee, A New Magna Carta? (2014), HC (2014-15) 463 2 Introduction _____________________________________________________________________ This collection of 23 case studies on constitution building considers some important issues of process in the preparation of a codified UK constitution, and a selection of precedents drawn from earlier constitution building exercises in the UK and other countries where there may be instructive lessons to be learnt for the preparation of a codified constitution. The work as a whole is ancillary to the programme of research and analysis I have conducted at the formal request1 of the House of Commons Political and Constitutional Reform Committee to inform its inquiry into Mapping the Path towards Codifying - or Not Codifying - the UK Constitution, published in its Report under the title A New Magna Carta? (2014-15, HC 463) on 10 July 2014. The contents of this Case Studies on Constitution Building include, either directly or indirectly by studying some precedent of constitution building where it was an element in the proceedings, an assessment of the various the types of body which might be entrusted with, or contribute to, the task of preparing a draft codified constitution, such as a Royal Commission, the Law Commission, a Constitutional Convention, a Joint Parliamentary Committee and a Negotiating Council. Special study is made of public engagement procedures in the belief that any attempt to codify the UK constitution must carry popular and media interest and support, which means finding imaginative ways of involving ordinary people and establishing what they actually think and want, beyond the consultation procedures likely to be dominated by lobby or special interest groups. To this end the contents also include studies of precedents abroad of popularly elected Assemblies, Conventions and Councils to harness popular opinion on constitutional reform, together with detailed analysis of new options in deliberative democracy procedures and public opinion polling. For the studies of precedents at home and abroad, my request to each contributing author was to follow a broadly similar format, so far as appropriate, as follows: (1) the substantive issue (new constitution or major constitutional amendment) with which the exercise engaged; (2) an explanation of the political background and origin of the substantive issue with which the constitutional reform exercise engaged; (3) who participated in the preparation and design of the reform package, including use of any commissions/committees, respective roles of ministers/executive and legislature, the contribution of parliamentary bodies, the role and use made of experts, any direct involvement of members of the public in the design process, the 1 16 September 2010. 3 role played by the states in a federal system and by local government, the contribution of civil society, the use of public consultation and/or public hearing exercises; (4) the working methods of the design process chosen by the government, on such matters as how the preparatory body reached its decisions, whether it operated in public, how it selected people or bodies to give evidence to it, for how long its preparatory work took, what measures were taken to reach compromise or agreement across parties or opposing opinions, and what practical problems and successes did its working methods produce; (5) the formal procedures through which the legislative proposal for the new Constitution, or the constitutional amendment or reform, passed, including the use of a referendum (including its type, and the result), the respective roles of each Chamber in a bicameral legislature, any special legislative procedures; (6) media coverage of the substantive issue and process, including the use and influence of opinion polls in news reporting on the subject; (7) the outcome and effect of the reform process, and the extent to which it achieved what had been hoped of it by those who initiated it, and whether there were any unforeseen consequences; and finally, (8) an assessment of the overall method used in preparing and implementing the constitutional change, and what it has to offer the United Kingdom in terms of guidance in any possible exercise in the preparation and adoption of a constitution. Two case studies at the end of the collection offer thoughts on the ideology of the political parties towards constitutional reform generally, and how the idea of a written constitution fits into their political thinking. I am grateful to all the contributing authors, listed on the following page and at the end of each case study, most of whom are colleagues at King's College London, and otherwise professional friends with whom I collaborate in the fields of comparative constitutional law, politics or history; and special thanks to Dr Andrew Blick for his invaluable assistance throughout. Professor Robert Blackburn King's College London June 2014 4 Contents _____________________________________________________________________ Introduction 3 ROBERT BLACKBURN A The Existing Process of Constitutional Reform 8 ROBERT BLACKBURN B The Use of Royal Commissions on Constitutional Affairs 18 ROBERT BLACKBURN & ELIN WESTON C The Role and Working of the Law Commission 29 ROBERT BLACKBURN D The Making of the Devolved Scottish Constitution 37 (Unofficial Constitutional Convention) ANDREW BLICK E The Welsh Assembly Powers and Electoral Arrangements 43 (Independent Commission) ANDREW BLICK F A Northern Ireland Bill of Rights 49 (Human Rights Commission) ANDREW BLICK G The Australian Republican Proposal 55 (Constitutional Commission and Referendum) ELIN WESTON H The Australian Proposal for a Human Rights Code 66 (National Human Rights Consultation Committee) ELIN WESTON I New Zealand's Electoral Reform Process 77 (Royal Commission & Referendum) CAROLINE MORRIS J Belgium's Constitutional Revision 84 ROBERT BLACKBURN & ELIN WESTON K The Making of the Spanish Constitution 94 ('Fathers of the Constitution') LESLIE TAYLOR-TURANO L Germany's Post-Unification Constitutional Revisions 100 (Joint Parliamentary Committee) ALEXANDER TÜRK 5 M Constitution-building in the Canton of Geneva 105 (Elected Assembly and Popular Engagement) THIERRY TANQUEREL N The Adoption of the Swiss Federal Constitution 109 (Building Blocks Process) MAYA HERTIG O Iceland: Crowd-Sourcing a Constitution 113 (Elected Council and Popular Engagement) ROBERT BLACKBURN & ELIN WESTON P Post-apartheid Constitutional Reform in South Africa 127 (Negotiating Council and Technical Committee) MICHÈLE OLIVIER Q Ireland's Constitutional Convention 133 ROBERT BLACKBURN & ELIN WESTON R Referendums and the Constitution 142 ROBERT BLACKBURN & VERNON BOGDANOR S Comparative Constitutional Bills of Rights 146 IAN CRAM T Public Opinion and Codifying the Constitution 156 ROGER MORTIMORE U Constitutional Codification and Deliberative Voting 180 RON LEVY V Conservatism and the Constitution 186 JOHN RAMSDEN & ROBERT BLACKBURN W The Left and the Constitution 197 KENNETH O. MORGAN 6 Contributors _____________________________________________________________________ Authors of Case Studies - ROBERT BLACKBURN is Professor of Constitutional Law, King's College London ANDREW BLICK is Lecturer in Politics and Contemporary