Readjustment of Federal Electoral Boundaries to Electoral Insight Readers Are Welcome, Although Publica- 2 Tion Cannot Be Guaranteed
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VOL.VOL. 4 • NO. 4 • 2NO. • OCTOBER 1 • MAY 2002 www.elections.ca ReadjustmentReadjustment ofof FederalFederal ElectoralElectoral BoundariesBoundaries Community of Interest and Electoral Districts The Honourable Lincoln M. Alexander: First Black Canadian Elected to the House of Commons Electoral Insight is prepared by Elections Canada and is pub- lished biannually. Electoral Insight is intended for those interested in electoral and related matters, including Contents parliamentarians, officials of international and domestic VOL. 4 • NO. 2 • OCTOBER 2002 electoral management bodies, election officers and acade- mics. The opinions expressed are those of the authors; they do not necessarily reflect those of the Chief Electoral Officer 1 The Chief Electoral Officer’s Message of Canada. Submissions of articles and photos that might be of interest Readjustment of Federal Electoral Boundaries to Electoral Insight readers are welcome, although publica- 2 tion cannot be guaranteed. If used, submissions will be 2 Federal Representation 2004: Redistribution Following the 2001 Census edited for length and clarity as necessary. Carmen Moreau-Vena Please address all contributions and letters to the Editor, An update on the current process of readjusting the electoral boundaries Electoral Insight, Elections Canada, 257 Slater St., Ottawa, Canada K1A 0M6. 8 Introduction to the Concept of “Community of Interest” EDITORS 9 Community of Interest in Electoral Boundary Readjustments WAYNE BROWN John C. Courtney ALAIN PELLETIER Examination of an important factor that must be considered by the PUBLICATIONS MANAGER 10 independent boundaries commissions, but is only loosely defined in law FRANCINE DALPHOND 14 Community of Interest and Minority Representation: The Dilemma Facing EDITORIAL COMMITTEE Electoral Boundaries Commissions ANNIE AUGER WAYNE BROWN Jennifer Smith MARC CHÉNIER Can the representation of minorities compete with other criteria in FRANCE DEMIANENKO deciding how to adjust the electoral map? ERIK LAIROT KAREN LEVESQUE 20 Community of Interest and Electoral Quota CARMEN MOREAU-VENA Réjean Pelletier ALAIN PELLETIER LOUISE PINEAU The revision of the federal electoral map in Quebec HERSCHELL SAX The Honourable Lincoln M. Alexander: GRAPHIC DESIGN 25 ACCURATE The First Black Canadian Elected to the House of Commons Wayne Brown PRODUCTION STAFF His 1968 election and many other “firsts” opened large doors for Canada’s INDRA ANCANS JEAN-GUY BERGERON visible minorities PIERRE CREMER TERESINHA DA SILVA Electoral News in Brief ALAIN GARNEAU 29 GINETTE GRONDIN MARTINE HOMIER 37 Electoral Facts SARAH HUBBARD Wayne Brown DEBORAH KERR The key events, dates and figures in the evolution of Canada’s system of CÉCILE LAMIRANDE CAROLINE LE BOUTHILLIER representation by geography and population PAUL MORISSET SUZANNE PAQUET-BERGERON GENEVIÈVE RIVARD THE COVER Eleanor Milne, Chris Fairbrother and Marcel Joanisse The Vote (1979-1980) Indiana limestone, 121.9 x 182.8 cm, House of Commons, Ottawa FOR MORE INFORMATION, The base stone of The Vote, a sculpture on the east wall of the House of Commons chamber, shows four heads CONTACT ELECTIONS CANADA: with flowing hair whose mouths shape, in song, the first syllables of Canada’s national anthem, “O-Ca-na-da”. TELEPHONE: 1 800 463-6868 www.elections.ca © ELECTIONS CANADA 2002 ISSN 1488-3538 EC 91825 ALL RIGHTS RESERVED PRINTED IN CANADA THE CHIEF ELECTORAL OFFICER’S MESSAGE Readjustment of Electoral Boundaries he delimitation of electoral districts is an important component of our parliamentary system. It determines T the territory and the people that each member of the House of Commons will represent. Our democracy is based on the principle of representation, and the delimitation of electoral districts is certainly one of its most obvious manifestations. For these reasons, we have chosen the current process of readjusting federal electoral boundaries as the theme for this edition Jean-Pierre Kingsley Chief Electoral Officer of Canada of Electoral Insight. Since this readjustment work occurs only once a decade, after every decennial census, to take account of the changes and movements in Canada’s population, it is important that we inform everyone affected about how the process works and the possible timetable for implementation. Barring delays, the new representation order should be proclaimed by July of 2003 and the new federal electoral boundaries would then come into effect at the next dissolution of Parliament taking place at least one year later. This minimum period of one year allows political parties, electoral administrators, candidates, and sitting members of the House of Commons time to adjust and set their machinery to work in accordance with the new electoral map. The number of electoral districts is to increase to 308, seven more than the current number. An important fact, not always realized by Canadians, is that neither the federal Parliament of the day nor Elections Canada decides the new district boundaries. Rather, the work of developing proposals for new boundaries that take into account the most recent census data and various other considerations is done by independent commissions (one for each province). They were given the census results I received from the Chief Statistician of Canada on March 12, 2002. Under the provisions of the Electoral Boundaries Readjustment Act, Elections Canada provides a variety of professional, technical, administrative and financial services to the commissions. After public hearings and input from any interested Canadians including members of Parliament, the commissions make the final decisions. The 2001 Census determined that Canada’s population had increased almost 10 percent since 1991, to 30 007 094. The electoral district boundaries used for federal elections in Ontario are also adopted for use in provincial elections in that province. The federal electoral boundaries commissions are required by law to take into account considerations other than census data. Another major consideration must be “the community of interest or community of identity in or the historical pattern of an electoral district.” This edition includes summaries of papers presented on “community of interest” by three prominent academics at a conference, held in March of this year, for the newly-appointed chairmen, members and secretaries of the commissions. As always, I trust the articles in this edition will encourage discussion. I welcome your comments and suggestions for new topics to explore. Jean-Pierre Kingsley ELECTORAL INSIGHT OCTOBER 2002 1 READJUSTMENT OF FEDERAL ELECTORAL BOUNDARIES FederalFederal RepresentationRepresentation 20042004 REDISTRIBUTION FOLLOWING THE 2001 CENSUS CARMEN MOREAU-VENA n March 13, 2002, the Chief Electoral Officer of Canada, PARLIAMENTARY REPRESENTATION, Jean-Pierre Kingsley, announced that Elections Canada had ELECTIONS CANADA Oreceived the 2001 Census data from the Chief Statistician of This article is the second in a series Canada, Dr. Ivan P. Felligi, and that the number of seats in the House regarding the current process of of Commons had been calculated according to the formula and rules readjusting federal electoral prescribed in the Constitution Act, 1867, sections 51 and 51A. The receipt boundaries. It provides an update of information since the first article by the Chief Electoral Officer of the Census return marked the beginning published in the previous edition of redistribution of the federal electoral boundaries. The whole exercise is (May 2002) of Electoral Insight. most properly known as “readjustment of electoral district boundaries,” but is often referred to as “redistribution” and sometimes, particularly in other countries, as “redistricting.” While the Constitution Act, 1867, and the formula for the allocation of seats to each province specify that a readjustment must take place after each 10-year census, the rules for actually carrying out this enormous task are laid down in the Electoral Boundaries Readjustment Act (E.B.R.A.) of 1964. 2 ELECTORAL INSIGHT OCTOBER 2002 The table below shows how the number 1964, Parliament decided that independent that person is a member of the Senate of seats in the House of Commons increases commissions, one for each province, would or House of Commons or is a member of a from 301 to 308, based on an increase of be responsible, following a proclamation, legislative assembly or legislative council of population in Canada since 1991 from for readjusting electoral boundaries. As a province. In practice, many commission 27 296 859 to 30 007 094 million inhabi- Nunavut, the Northwest Territories, and members, aside from the chairpersons, who tants. Ontario gains three additional seats, Yukon constitute one electoral district each, are judges (sitting or retired), have been Alberta receives two additional seats, while federal electoral boundaries commissions are academics or non-elected officials of legisla- British Columbia gains two additional seats. not required for them. The independence of tive assemblies. All other provinces maintain the same these commissions is a fundamental element The release of the census return set the number of seats in the House of Commons of the readjustment process. It is an element, wheels in motion for the activities of as they have currently. among others, that sets Canada apart as the 10 independent federal electoral Representation of the provinces in the a world leader in electoral democracy. boundaries commissions (s. 13 E.B.R.A.). House of Commons is reviewed