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Is Aswteucal Federalism a Viable Option for the Future?

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Is Aswteucal Federalism a Viable Option for the Future? THE ASYMMETNCAL ALTERNATIVE: IS ASWTEUCAL FEDERALISM A VIABLE OPTION FOR THE FUTURE? by EATHER L. MURRAY, B.A. A thesis submined to the Facdty of Graduate Studies and Research in partial fulfilment of the requirements for the degree of Master of Arts Department of Political Science Carleton University Ottawa, Ontario August 13, 1998 copyright 0,1998 Heather L, Murray National Library Bibliothèque nationale I*I of Canada du Canada Acquisitions and Acquisitions et Bibliographie Services services bibliographiques 395 Weilington Street 395. nie Wellington OttawaON KlAON4 Ottawa ON KIA ON4 Canada Canada The author has granted a non- L'auteur a accordé une licence non exclusive licence dow-ing the exclusive permettant a la National Library of Canada to Bibliothèque nationale du Canada de reproduce, loan, distribute or sell reproduire, prêter, distribuer ou copies of this thesis in microform, vendre des copies de cette thèse sous paper or electronic formats. la forme de microfiche/Wn, de reproduction sur papier ou sur format électronique. The author retains ownership of the L'auteur conserve la propriété du copyright in this thesis. Neither the droit d'auteur qui protège cette thése. thesis nor substantial extracts &on it Ni la thèse ni des extraits substantiels may be printed or otherwise de celle-ci ne doivent être impbimés reproduced without the author's ou autrement reproduits sans son permission. autorisation. This analysis is based on an examination of the viability of asymmetrical federalism as a political option within the Canadian federd system. The main argument ofthis thesis is that asymmetrical federalism provides an option for accommodating the diversity of Quebec and Aboriginal nations in the federal political system. However, given the current political climate, it is not a viable option at the present time. Drawing on the works of several students of federaiïsm, this thesis explores why aqmetry is necessary to accommodate the diverse characteristics of the federal political system, specificdly that of Québécois and Aboriginal peoples. More specincally, thesis attempts to address how, and, if asymmetry cmbe accommodated within the current federal system. I attempt to illustrate this argument by discussing various constitutional and non-constitutional options for asymmetry within the Canadian federation. However, I argue that in terms of its usefulness as a political option, asymmetry is limited by the aclherence of many Canadians, particularly English-speaking Canadians, to the p~cipleof the equality of the provinces. Although many acadernics currently recognize the merits of an explicitly asymmetncal federal system, a number of Canadians, including many of our federal and provincial poiiticians, have fden into a ngid marner of thinking and tallcing about the nature of federalism. While asymmetry requires political ingenuity to survive and flowish, it appears that the ingenuity necessary to move Canada beyond the present political impasse is not in abundance. Although the potential for Merasymmetry within the Canadian political system exists, and although there is also room available for some form of asymmetry which is constitutionally entrenched, it appears for the tune being that asymrnetncai federalism is destined to remain intellectually Uitriguing, but politically inoperable. TABLE OF CONTENTS WHAT IS THE MEAMNG OF FEDERALISM?....................................................................................... 10 Dennùig Federalism............................................................................................................. -14 The Canadian Experiment: Why Adopt a Federal Union? ...................................................... 18 Federalism as a Conflict-Management Device...................................................................... -22 Diversity, "Mutual Recognitiony', and Federatism ............. ..., .............*.............................25 The Asymmetrical Alternative ........ ........ .................................................................... -27 condusion........................................................................................................................... 29 ASYMMETFUCAF, JXDERALISM AND THE EQUALITY OF PROWCES PRINCIPLE? A CLASH OF VISIONS?.................................................................................................................................................... 31 What is "Asymrnetrical Federalism? '.. .................................................................................. 32 The Prhciple of Equality of the Provinces.............. .. ......................................................38 Equality and A-etry: Transcending the Debate?............................................................. 46 Conclusion........... .. ............................. ...................................... ....................................... 49 THE EVOLUTION OF ASYMMETRIC* FEDERALISM IN CANADA............................................. 50 Histoncal Background Asyrnmetrical nZustrations.- An Mine.................................................................. 51 Asymmetrical Federalisrn & Quebec..................................................................................... 54 The Post- Wnr Years: Quebec and the Concept of Distincr Sociew ............................ 60 Asymmetrical Federalism & Aboriginal Peoples ................................................................. 65 Asymmetry and Recent Constitutional Initiatives- A Brief Sketch......................................... 77 The Halifax Constihrtionul Confience .................................................................... -79 The Charlotretotvn Accord ........................................................................................ -81 The Calgary Declmation ......................................................................................... -85 Conchsion........................................................................................................................... 86 EVALUATING ASYlWMETRICAL FEDERALISM: CuRRF,NT DEBATES IN THE CANADIAN POLITICAL REALM..................... ...,........................................................................................................ -88 Options for Asymmetry ..................................................................................................... 93 Non-ConsîitutionaZ InitiatNes: me Siutus Quo Option.....~...................................... 93 Concumency wirh Provincicd Paramountcy. ............................................................. 97 Representutiun in Central htitutims...........................,............................... 99 Avoiding the Issue .................................................................................................. -105 Facing the Challenges: What Needs to Be Done? .................... ..................................... 107 . Conshtuf~ona~Asymrne ty.........................................~............................................. 115 Beyond the Comtitutional Question........................................................................ 119 Conclusion...................... ,., ................................................................................................ 123 C-ER 5.................................................................................................................................................... 125 CONCLUSION................................................................................................................................................. 125 AsymmetRcal federalism offers a viable alternative for accommodating Quebec and Abonginal nations in the Canadian federal system. In facf a number of Canadian academics and opinion leaders have recognized the merits of an explicitiy asymmetrica.1federal systern in which constituent uni& wodd have varying degrees of autonomy. As this thesis maintah, for some this is entirely consistent with the evolution of Canadian federalism. For others, however, this senously conflicts with their deeply held belief in the principle of equaiity of provinces. These diverging conceptions of political community lie at the core of many political debates over the nature of the Canadian federal system. The structure and underlying principles of the Canadian federal system have often been the subject of intense political debate and discussion. From the beginning of Confederation, owing to the profound differences in historical experience, sense of nationality, and central preoccupations that they brought to the new arrangement, Canadians have viewed federalism in very different ways. As the debates over the Meech Lake and Charlottetown Accords demonstrated, Canadians have very daerent visions of their country. If Canadians were to agree that they were members of a single political society coming together to reach agreement on constitutionai reforms, there would be no impasse on the trail to agreement. They would deliberate in accordance with, or in articulation of, a shared 1 2 undentanding. However, there has been no such shared understanding of Canadian society. Instead, Canadians came to the negotiations with their own diverse visions of the federation (Tully, 1993: 161). The precise understanding of these competing visions are, of course, described somewhat dinerently by different observers, as wiIi be demonstrated in this thesis. Suice each understanding articulates the way politicai power shouid be organized fiom its perspective,
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