REP BY POP: MAKING VOTES REALLY COUNT? Introduction

In his play Jumpers, Tom Stoppard puts However, while this sounds reasonable, Focus society’s assumptions about democracy critics of the system point out that FPTP The winds of to the test when one of his characters unfairly rewards parties with phony change may be sweeping across says, “It’s not the voting that’s democ- majorities, distorts the real election the Canadian racy. It’s the counting” (Jumpers, Act results when compared with the popular political landscape. 1). While Stoppard’s quote is presented vote, and encourages regionalism. Take What was once comically, it is eerily appropriate for a look at the results of the 2004 election thought of as who are currently asking in the table below for a better under- improbable may themselves if their votes are really standing of these concerns. soon become possible. This News being counted. The 2004 election resulted in the in Review feature formation of a Liberal minority govern- looks at the grow- Does Every Vote Count? ment. Because they won less than half ing frustration with Many people believe that Canadian of the seats in the House, the Liberals ’s first-past- democracy, founded on the British the-post electoral would have to count on the support of system and the parliamentary model, has become other parties if they wanted to form a possible introduc- antiquated and archaic. While certain of government and pass legislation. They tion of propor- the Westminster institutions continue to came up 20 seats short of the magic tional representa- hold their merit, the electoral system number of 155 needed to form a major- tion to address itself is raising calls for dramatic trans- ity government. In Canada, majorities Canada’s demo- cratic deficit. formation. Why? Because, when put rule, and, if past statistics tell the story,

Party Seats Won % of Seats in % of the H. of Commons Popular Vote Liberal 135 44 36.71 Conservative 99 32 29.61 Bloc Québécois 54 18 12.40 NDP 19 6 15.69 Other 1 .32 5.60 Total 308 100 100

Source: Canada Votes – www.cbc.ca

under the political microscope, it ap- the Liberals only needed a modest boost pears that many Canadians are not in the popular vote to take advantage of getting what they are voting for. Canada the FPTP system and win a majority. uses the “first-past-the-post” (FPTP) Notice how the percentage of the popu- electoral system. Put simply, Canada is lar vote is exaggerated when it is trans- sectioned off into 308 different electoral lated into seats in the House of Com- districts. The candidate who wins the mons for the Liberals. Scan down most votes in each district earns a seat further and look at the success of the in the House of Commons. Advocates Bloc Québécois. Since they are a re- for FPTP like the ease involved in gional party, all of their votes were electing and forming governments. concentrated in the of ,

CBC News in Review • September 2004 • Page 18 and the Bloc was able to win 54 seats in What’s Next? Quote the House. Meanwhile the NDP, with a It is likely that a modified form of “Elections are to broad base of support across Canada, proportional representation (PR) will be democracy what weddings are to managed to beat the Bloc in terms of introduced at the provincial level before marriage. In de- the popular vote but only won a fraction anything happens at the national level. mocracy, as in of the seats in the House. These kinds Britain, which has found itself in the marriage, you have of discrepancies have led some people same predicament as Canada, has to work at it or lose to express their frustration with FPTP introduced proportional voting in it.” — Joe and have raised the call for electoral Schlesinger, Time Scottish and Welsh elections. In Zones: A Journalist reform. Canada, it is likely that the five prov- in the World, 1990 inces mentioned earlier will find a way A Made in Canada Solution to incorporate proportional voting, Drawing on voter frustration, a citizens’ perhaps by their next elections. It is group called Fair Vote Canada has unlikely that a purely proportional emerged as a powerful voice for the model would be introduced federally. electoral reform movement. It wants the What is more likely is a blend of FPTP government to enter into a meaningful and PR. dialogue with voters on election reform followed by a referendum on the imple- Conclusion mentation of a fair voting system. As Advocates for PR believe that voters well, the Law Commission of Canada will feel that their voices are being has published a report that is sharply counted in a proportional system. In critical of FPTP and has called on the turn, PR could foster a sense of respon- government to make the current elec- sibility and more active involvement by toral system more proportional. Their more people in the political process. “made in Canada” solution calls for a Time will tell if PR is a remedy for the Parliament composed of two thirds of democratic deficit or just another MPs selected in riding elections and political trend. However, according to one third selected from party lists based Larry Gordon of Fair Vote Canada, we on the proportion of the popular vote are at the “tipping point” on election that each party earns. reform (The Globe and Mail, April 14, 2004). In Canada, elections and gover- nance may soon change dramatically. Questions 1. What problems are associated with FPTP?

2. What steps are being taken in Canada to bring about remedies for the democratic deficit?

3. Consider the Tom Stoppard quote at the beginning of the article. How does the quote reflect the political reality in Canada?

4. As a young and/or future voter, how important an issue is PR to you? Explain.

CBC News in Review • September 2004 • Page 19 REP BY POP: MAKING VOTES REALLY COUNT? Video Review

1. Why are electoral reform movements gathering momentum in Canada? Respond to the questions on this page as you view the video. Be 2. Why was the Citizens’ Assembly formed? prepared to discuss your findings. 3. What will B.C. do with the recommendations of the Citizens’ Assembly?

Did you know . . . 4. What is the electoral model that we inherited from Britain called? “Rep by Pop” was a major political battle cry in 5. What does Heather MacIvor mean when she refers to disproportional Canada West results? () before Confederation?

6. Name the five leading the movement toward electoral reform.

7. Briefly describe the “made in Canada” model of proportional representa- tion.

8. What are Brian Crowley’s concerns about a movement toward propor- tional representation?

9. What is a coalition government? Do you think coalitions can work in Canada?

10. Political scientist Brian Crowley says “any reform requires people who have won under the old system to volunteer to give it up.” Do you think that the Liberals, the party that consistently wins the most seats in Parlia- ment, will agree to proportional representation? Explain.

CBC News in Review • September 2004 • Page 20 REP BY POP: MAKING VOTES REALLY COUNT? Majority and Minority Governments in Canada

In order to fully come to grips with the bickering will lead to legislative CBC Archives way Canadians are governed it is im- gridlock or the defeat of the govern- To learn more portant to draw a distinction between ment in a confidence vote that would about elections in Canada and see majority and minority governments. result in an early election. Also, since actual footage of Canada currently uses the first-past-the- power is more or less shared, questions past election post (FPTP) or single-member plurality of accountability often arise. Thus, campaigns, go to (SMP) system. In this system, candi- minority governments are seen as www.cbc.ca/ dates compete in ridings, with the potentially unstable and lacking in archives and click candidate who wins the most votes in a accountability. Some feel they are too on “elections.” You might also visit the riding winning a seat in the House of weak in times of crisis or war. official Elections Commons. It is a very efficient way of Despite the fact that minority govern- Canada site at selecting a government. However, some ments are often a cause for concern for www.elections.ca question its fairness. The goal of the many, the track record of Canadian for information larger political parties is to have as minority governments is quite impres- about past elec- tions, your own many of their candidates as possible sive. Minority governments have man- electoral district, win in their ridings. If a party can aged to pass legislation dealing with and materials for manage to win more than half the seats pensions, universal health care, loans to young voters. in the House of Commons, they can university students, and economic form a majority government and pass nationalism. In fact, 30 academic legislation unimpeded by the opposi- experts consulted by the Institute for tion. However, if a party wins the most Research on Public Policy to determine seats, but not a majority of the seats in the effectiveness of minority govern- the House, they form a minority gov- ments concluded that minority govern- ernment. In this case, the governing ments have passed some of the most party needs to strike deals with other important legislation in our nation’s parties if they hope to maintain the history. According to the experts, the confidence of the House and pass top achiever was Prime Minister Lester legislation. Pearson, who led two minority govern- Since Confederation, Canada has had ments in the 1960s. He managed to deal 28 majority governments and only 10 with complex policy issues that in- minority governments. Majority gov- cluded medicare, the Canada Pension ernments are the trend in the FPTP Plan, the new Canadian flag, the Royal system since they are a reflection of Commission on Bilingualism and riding victories more than a reflection Biculturalism, and the Canada-U.S. of popular vote. In the same period, Auto Pact (Canada and the World only four governments have won the Backgrounder, January 1, 2004). majority of the popular vote and the It appears that minority governments majority of seats in the House of Com- can work for Canadians. If political mons. parties are willing to put aside their Canadians are often timid when it differences and work together, alliances comes to minority governments. Since can be built and the country can be the minority party is relying on the governed with efficiency, transparency, support of other parties, many political and accountability. observers fear that squabbling and

CBC News in Review • September 2004 • Page 21 To Consider 1. What is a majority government? What is a ?

2. Which style of government do most Canadians seem to prefer? Why?

3. How effective have minority governments been in the past?

4. The introduction of an electoral system involving a degree of proportional representation would likely mean more minority governments. What do you think of this prospect?

CBC News in Review • September 2004 • Page 22 REP BY POP: MAKING VOTES REALLY COUNT? First-Past-the-Post Controversy

Disproportional Represen- the 54 provincial elections between Take a look at the 1980 and 2000 produced “phony controversial first- tation past-the-post (FPTP) majorities,” where one party formed a electoral results Federal Results majority government without winning and issues and • The Liberals managed to win three the majority of the votes. answer the ques- straight majority governments in the • In the 1998 Quebec election, the Parti tions that follow. 1990s despite never winning more Québécois won 26 more seats than the than 41 per cent of the popular vote. Liberals despite the fact that more • In the 1993 federal election, the Bloc people voted for the Liberals. Québécois, which ran exclusively in • In the 1987 election, Quebec, won enough seats to become the Liberals won 60 per cent of the the official opposition despite only vote and all of the seats in the provin- garnering 14 per cent of the national cial legislature. vote. Meanwhile, the Progressive • In 1999, the Progressive Conservatives, with 16 per cent of the Conservatives won 39 per cent of the vote, won only two seats. popular vote but took almost 60 per • In the 1997 federal election, the cent of the seats in the legislature. Liberals won 49 per cent of the popu- • In 1996, the NDP in British Columbia lar vote in Ontario but took 98 per finished second to the Liberals in the cent of the seats in the province. popular vote, with 39.5 per cent, but • Despite the fact that majority govern- were awarded a majority government ments have been common in Canada with 52 per cent of the seats. The over the last 80 years, there have been Liberals got their turn to benefit by only four occasions—1940, 1949, FPTP in 2001 when they won 58 per 1958, and 1984—when a majority cent of the vote and 97 per cent of the government was elected by the major- seats. ity of Canadian voters. In the 2004 federal election, it took Wasted Votes and Strategic 110 000 votes to elect an NDP candi- Voting date to the House of Commons. The FPTP carries with it two very unfortu- Green Party failed to win a seat despite nate side effects: wasted votes and earning 580 000 votes across Canada. strategic voting. Votes are wasted when Compare those numbers with the Con- a candidate wins in a riding despite servatives, who earned a seat for every failing to win a majority of the votes in 40 000 votes, the Liberals with a seat the district. This is a common phenom- for every 37 000 votes, and the Bloc enon in Canada where each district Québécois with a seat for every 31 000 often has many candidates vying for a votes and it becomes clear that not all seat in the House. In FPTP, the “winner votes are equal in Canadian elections. takes all” —even if they only win by one vote—and the people who voted for Provincial Results the losing candidates see their votes fall • According to Fair Vote Canada, 33 of with their candidates. The other prob-

CBC News in Review • September 2004 • Page 23 lem associated with FPTP is strategic in favour of PR, Liberal voting. Some Canadians have voted Prime Minister Martin is taking steps to against their own political beliefs address what he has termed “the demo- because they do not want to see the cratic deficit.” This includes encourag- front-running candidate in their district ing free votes for MPs in the House of win power. Thus, they strategically vote Commons, the introduction of an inde- for the candidate who is most likely to pendent ethics commissioner, greater beat the candidate they dislike instead independence for parliamentary com- of voting according to party platform or mittees, and a review of major govern- political affiliation. It is a risky and ment appointments. He is also willing often unsatisfactory approach to dealing to enter into a public debate on electoral with the problems of FPTP. reform, saying, “I think that’s essential in terms of engaging Canadians, Making Every Vote Count whether it’s proportional representation, Some political insiders believe that the whether it’s fixed-term limits, whether solution to the problem would be to it’s the role of MPs” (www.fairvote introduce an electoral system that canada.org). In the meantime, the awards seats in Parliament as a reflec- Conservatives, the New Democratic tion of the percentage of the popular Party, and the Green Party have either vote earned by each party. This type of endorsed or expressed an openness to a system is referred to as proportional proportional system. In the provinces, representation (PR). Most modern five governments are actively pursuing democracies use some sort of propor- electoral reform: British Columbia, tional system. In fact, only Canada, New Brunswick, , Britain, the United States, and India still Quebec, and Ontario. British Columbia use FPTP at the national level; every- is taking a major leadership role by one else has turned to some variation of forming a Citizens’ Assembly whose PR for national elections. However, the recommendations will be put to a climate is ripe for change. While not referendum in 2005. Analysis 1. What are your personal reactions to the distorted results that are pro- duced by the FPTP system? Which result do you find most surprising? Why?

2. Briefly explain wasted votes and strategic votes.

3. In your notebook outline your response to the proportional representa- tion idea? Be specific and detailed.

CBC News in Review • September 2004 • Page 24 REP BY POP: MAKING VOTES REALLY COUNT? Can PR Help to Improve Democracy in Canada?

Voter Turnout Definition One criticism of the first-past-the-post (FPTP) system is that it disenfranchises so Franchise is the many voters that they lose interest in the political process. This is reflected in the right to vote in elections. Disen- statistics on voter turnout listed below. franchised suggests not having the Voter Turnout in the Last Five Federal Elections by Province (%) right to vote or having the right Province/Territory 2004 2000 1997 1993 1988 taken away or nullified. 59 60 59 65 75 British Columbia 64 63 66 68 79 57 62 63 69 75 New Brunswick 62 68 73 70 76 Nfld. and Labrador 49 57 55 55 67 Nova Scotia 62 63 69 65 75 Ontario 62 58 66 68 75 Prince Edward Island 71 73 73 73 85 Quebec 59 64 73 77 75 59 62 65 69 78 Northwest Territories 48 52 59 63 71 Nunavut 43 54 - - - Territory 60 64 70 70 78 Total* 60.5 61.2 67 69.6 75.3

*All numbers have been rounded to whole numbers except in the case of the national totals on the last line. Source: – www.elections.ca 2004 numbers – Elections Canada / Election Night Results

A brief look at the bottom line of the Some critics of FPTP feel that people chart shows the decline in voter turnout are not voting because the candidate since the 1988 election. In fact, the they prefer does not have a chance of voter turnout for the 2004 election was winning in their riding. Based on this the lowest since Confederation. Re- assumption, some reformers are sug- member, this was a hard-fought election gesting the introduction of some varia- with three new leaders! Among the 29 tion of proportional representation (PR) members of the Organization for Eco- to boost the level of interest at election nomic Co-operation and Development time and to make every vote count in (OECD), Canada has consistently each election. A new system, like the ranked around 20th in terms of voter one recommended by the Law Commis- turnout (Canada and the World sion of Canada, would involve a blend Backgrounder, September 1, 2000). of FPTP and PR. Voters would cast two

CBC News in Review • September 2004 • Page 25 votes: one for a candidate and one for a 1974 – promised not to political party. Thus, if their candidate introduce wage and price controls in the loses in the riding race, at least their election and then introduced them once proportional vote would be counted. in power. A blended FPTP and PR system 1994 – Jean Chrétien promised to scrap might help to improve the representa- the dreaded Goods and Services Tax tion of women and minority groups in (GST) but once in power failed to do so. Canada’s Parliament. Women in par- Broken promises are just a part of the ticular are dramatically under-repre- growing public cynicism for the politi- sented in the House of Commons. cal process. Scandals are also a factor. Despite composing 52 per cent of the Canadians have grown skeptical about population, women occupy a mere 21 where their tax money is going when per cent of the seats in the House. In a they hear about Human Resources recent survey of 182 nations, Canada Development Canada being unable to ranked 36th in terms of female repre- account for grant money, the gun sentation in government, well behind registry going wildly over budget, and number-one-ranked Sweden with 45.3 government sponsorship money being per cent (Globe and Mail, March 7, paid to companies that did no work. 2003). Some critics of FPTP claim that While one would think that scandals the system encourages parties to be would get more people out to vote, the overly conservative in their candidate opposite seems to be the case in Canada selections. If the system were propor- at the present time. In the end, more and tional, with parties compiling lists of more people feel they are out of the candidates, parties could ensure that loop when it comes to politics. women are represented more equitably. The Greek philosopher Aristotle once The same holds true for visible minorities. observed, “If liberty and equality, as is Others believe that the real reason thought by some, are chiefly to be Canadians are steering clear of the found in democracy, they will be best ballot box is because of broken prom- attained when all persons alike share in ises and government corruption. People the government to the utmost” (Poli- have become cynical about the political tics). One has to wonder how healthy process and do not trust that political Canadian democracy is when only 60 parties will keep their promises. Unfor- per cent of the voting public are willing tunately, there is no shortage of broken to mark their ballot. promises to choose from. Here are two classic examples:

Analysis 1. Take a look at the voter turnout number in your province. Does the num- ber seem high or low? What explanations can you come up with for the voter turnout level in your province? How does your province compare with other provinces? 2. Do you think PR would encourage the election of women and minority candidates? Explain. 3. Are you likely to be a voter or non-voter in the future? Explain. 4. Do you think Canadians are becoming more cynical of the political pro- cess? Explain.

CBC News in Review • September 2004 • Page 26 REP BY POP: MAKING VOTES REALLY COUNT? The Election Reform Movement

The British Columbia Liberal Party had In 2000, a group of citizens frustrated Update to swallow a bitter pill after the 1996 with the FPTP system formed Fair Vote In September 2004, election. Despite winning more votes Canada (FVC). The organization’s goal NDP leader Jack Layton promised to than the NDP, the Liberals found is to “gain broad support for a national promote a plan in themselves with fewer seats in the process to enable Canadian voters to the House of legislature than their rivals. This came choose which voting system to use in Commons to form a as a result of the first-past-the-post electing their representatives” national citizens’ (FPTP) electoral system that saw the (www.fairvotecanada.org). Fair Vote assembly to make NDP win more seats while the Liberals Canada believes that FPTP is inherently recommendations for electoral reform won more votes. Things changed in unfair, while alternatives like propor- in a future national 2001 when the Liberals, by including tional representation (PR) could better referendum. democratic reform in their party platform, meet the wishes of the Canadian elec- turned the tables on the NDP and won the torate. Since 2000, FVC has become the election. This time FPTP saw them citizen’s voice for electoral reform, and convert 58 per cent of the vote into 77 its position has the support of the seats in the legislature, reducing the NDP prestigious Law Commission of to just two seats (www.elections.bc.ca). Canada. In spring 2004, the Law Com- Since that time, Premier Gordon mission recommended scrapping FPTP Campbell’s government has taken the for a mixed proportional system com- lead on democratic reform. The goal: to posed of riding representatives and make government more accountable to popular vote representatives in the the people it represents. The corner- House of Commons. According to stone of the Liberal plan has been the FVC, over 75 nations currently employ formation of a Citizens’ Assembly on some form of proportional representa- Electoral Reform. One hundred and tion. Canada could structure an elec- sixty citizens were selected randomly toral system similar to Germany or New from British Columbia’s 79 electoral Zealand. Those nations employ a mixed districts. The group began meeting in proportional system like the one recom- January 2004 and is expected to deliver mended by the Law Commission. In the a report on election reform by the end meantime, FVC hopes that popular of the year. If the assembly decides that pressure and political will can combine B.C. needs a new electoral system, a to bring proportional representation into referendum question will be drafted and the arena of national debate and, in turn, put to the people in 2005. to a national referendum.

To Consider 1. What prompted the B.C. Liberals to include electoral reform in their 2001 election platform? 2. What role is the Citizens’ Assembly playing in the electoral reform move- ment in B.C.? 3. Why is Fair Vote Canada considered the citizen’s voice? 4. What evidence is there that Fair Vote Canada may be on the right track when it comes to electoral reform?

CBC News in Review • September 2004 • Page 27 REP BY POP: MAKING VOTES REALLY COUNT? Coming to Terms with Proportional Representation

Results of the 2004 Federal Election

Province Lib. Cons. Bloc Qué. NDP Indep. Total Seats

Seats % Seats % Seats % Seats % Seats %

Alberta 2 22 26 62 - - 0 10 - - 28

B.C. 8 29 22 36 - - 5 27 1 < 1 36

Manitoba 3 33 7 39 - - 4 23 - - 14

New Brunswick 7 45 2 31 - - 1 21 - - 10

Nfld. and Lab. 5 48 2 32 -- 0 17 -- 7

Nova Scotia 6 40 3 30 - - 2 28 - - 11

Ontario 75 45 24 31 - - 7 18 - - 106

PEI 4 53 0 31 -- 0 13 -- 4

Quebec 21 34 0 9 54 39 0 5 - - 75

Saskatchewan 1 27 13 42 - - 0 23 - - 14

NWT 1 40 0 17 -- 0 39 - 4 1

Nunavut 1 51 0 14 -- 0 15 -19 1

Yukon Territory 1 46 0 21 -- 0 26 - 8 1

Total 135 36.7 99 29.6 54 12.4 19 15.7 1 < 1 308

Note: Over 5 per cent of voters cast ballots for parties or candidates other than the ones listed here. Source: Elections Canada / Library of Parliament / cbc.ca Legend % = percentage of votes < = less than Activity To get an idea of the discrepancy between seats won and popular vote, try the following activity. Use the bottom line of the results chart to gather your infor- mation.

1. Transfer the percentage of the popular vote and the number of seats for each party into the chart on the next page.

CBC News in Review • September 2004 • Page 28 2. Take the number of seats won by each party in the election and divide that number by 308 (308 is the total number of seats in the House of Commons). Next, multiply that number by 100. This is the percentage of seats that each party has in the House of Commons. Put your answer in the chart below.

For example: NDP – 19 seats

19 / 308 X 100 = 6.17% of the seats in the House of Commons

3. If the electoral system in Canada were based on the popular vote the results of the 2004 election would have been very different. Next we want to calcu- late the number of seats that each party would have received if earning a seat were based on the popular vote. Here is what you do: take the percentage of the popular vote and multiply that number by 308. The easiest way to do this is to convert your percentage into a decimal by moving the decimal point to the left two spaces.

For example: NDP – 16% of popular vote

.16 X 308 = 49.28 or 49 seats

In other words, if the election were based on the popular vote, the NDP would have 49 seats in the House of Commons and not 19.

Note: If you add the number of seats earned by the parties in this exercise the total may not equal 308. This is because some seats would go to parties and candidates not affiliated with the mainstream political parties in Canada. Election Activity – 2004 Results

Party % of vote # of seats % of seats in # of seats if results the House of were based on the Commons popular vote

Liberal

Conservative

NDP 16 19 6.17 49

Bloc Québécois

CBC News in Review • September 2004 • Page 29