JOURNEY INTO THE HEART OF THE CODE OF ETHICS AND CONDUCT: FROM THEORY TO PRACTICE Report on the Implementation of the Code of Ethics and Conduct of the Members of the National Assembly JOURNEY INTO THE HEART OF THE CODE OF ETHICS AND CONDUCT: FROM THEORY TO PRACTICE Report on the Implementation of the Code of Ethics and Conduct of the Members of the National Assembly WRITING Ethics Commissioner REVISION Éliane de Nicolini INFOGRAPHICS Geneviève Bolduc TRANSLATION Versacom This document is available for consultation in the Publications/Report on the implementation section of the Ethics Commissioner’s website: ced-qc.ca. A copy can be obtained from: Ethics Commissioner 1150 Rue de Claire-Fontaine 7th floor, suite 710 Québec City (Québec) G1R 5G4 Telephone: 418-643-1277 Email: [email protected] In this document, where applicable, the masculine gender designates both women and men. ISBN 978-2-550-85510-1 ISBN (PDF) 978-2-550-85511-8 Legal deposit – Bibliothèque et Archives nationales du Québec, 2020 © Commissaire à l’éthique et à la déontologie – 2020 Québec, December 2, 2019 François Paradis President of the National Assembly Hôtel du Parlement 1045 Rue des Parlementaires 1st floor, suite 1.30 Québec City (Québec) G1A 1A4 Mr. President: In accordance with section 114 of the Code of Ethics and Conduct of the Members of the National Assembly (chapter C-23.1), I have the honour of presenting you with the second report on the implementation of the Code for the period from January 1, 2015, to November 15, 2019. This report shows the way the Code is applied and the issues encountered over time. It also presents my comments and recommendations on opportunities to amend the Code. Sincerely, The Commissioner, Ariane Mignolet JOURNEY INTO THE HEART OF THE CODE OF ETHICS AND CONDUCT: FROM THEORY TO PRACTICE 7 Table of Contents MESSAGE FROM THE COMMISSIONER ...............................................................................................................................11 LIST OF RECOMMENDATIONS.................................................................................................................................................13 INTRODUCTION ...............................................................................................................................................................................15 CHAPTER 1: THE ETHICS COMMISSIONER: BASIS OF ITS MANDATE AND ROLE ....................................................................................................................................17 1.1 The Institution of the Ethics Commissioner ........................................................................................................... 20 1.1.1 The Development of a Young Institution and Its Establishment in Québec’s Political Landscape ...........................................................................20 1.1.1.1 The Creation of the Ethics Commissioner and Its Area of Jurisdiction .....................................................................................20 1.1.1.2 The Last Review of the Code and the Legislative Amendments Regarding the Ethics Commissioner ........................... 21 1.1.1.3 The Appointment of the Second Commissioner and the Development of the Institution .......................................................................................... 22 1.1.2 The Development and Expansion of an Institution Working to Reinforce the Integrity of the Public Sector ......................................................................... 22 1.2 The Ethics Commissioner’s Preventive Role .............................................................................................................25 1.2.1 Prevention: The Ethics Commissioner’s Primary Role ...............................................................................25 1.2.2 The Importance of Prevention Training ............................................................................................................26 1.2.2.1 Training the Public .......................................................................................................................................29 1.2.3 Advisory Opinions from the Commissioner: An Essential and Indispensable Tool for Members .....................................................................................29 1.2.3.1 Recommendations and Measures to Take ........................................................................................ 31 1.2.3.2 Advisory Opinions Requested by a Third Party ...........................................................................32 1.2.4 The Tension Between Confidentiality and the Duty to Inform ..............................................................33 1.2.5 The Jurisconsult’s Role .............................................................................................................................................33 1.3 The Ethics Commissioner’s Coercive Role ...............................................................................................................35 1.3.1 Conducting Inquiries .................................................................................................................................................35 1.3.1.1 Requests Made by Another Member and Preliminary Verifications ...................................35 1.3.1.2 The Nature of Inquiries .............................................................................................................................. 37 1.3.1.3 Sending Inquiry Notices ...........................................................................................................................38 1.3.2 The Recommendation of Sanctions by the Commissioner ....................................................................39 1.3.3 Establishing a Simplified Process..........................................................................................................41 1.3.4 Protecting Whistleblowers and Witnesses ......................................................................................42 ETHICS COMMISSIONER 8 CHAPTER 2: CURRENT ISSUES AND THEIR IMPACTS ON PARLIAMENTARY ETHICS AND CONDUCT .............................................................................................................45 2.1 The Code of Ethics and Conduct Put to the Test by the Electoral Timeline ..........................................48 2.1.1 The Consequences of Fixed-Date Elections and the Dissolution of the National Assembly..............................................................................................48 2.1.1.1 The Consequences of Fixed-Date Elections ...................................................................................48 2.1.1.2 The Effects of the Dissolution of the National Assembly ........................................................48 2.1.1.3 Election Period and the Use of Allowances ..................................................................................... 51 2.1.1.4 Elections and Inquiry Requests ............................................................................................................ 52 2.1.2 Mandatory Training for Newly Elected Officials ...........................................................................................53 2.1.3 The Need to Advise Election Candidates ........................................................................................................54 2.2 Parliamentarians and the Issue of Harassment in the National Assembly ..............................................56 2.2.1 Current Status ...............................................................................................................................................................56 2.2.1.1 The Issue of Harassment with Respect to the Rules of Ethics and Conduct ...................................................................................................................................................56 2.2.1.2 The National Assembly’s Policy on Preventing and Managing Situations Involving Harassment in the Workplace ...........................................................................................58 2.2.1.3 The Coexistence of the National Assembly’s Policy and the Code in the Context of Harassment: Pursuing Different Objectives ................................................................................................................59 2.2.2 Continuing the Reflection on Harassment in the National Assembly .............................................. 60 2.2.2.1 A Specific Legislative Provision Concerning Harassment ...................................................... 60 2.2.2.2 The General Conduct Adopted by Members .................................................................................. 61 2.2.2.3 Informing the Commissioner about a Substantiated Complaint Involving Harassment.................................................................................................................................62 CHAPTER 3: EXPERIENCE AND INFLUENCE IN POLITICAL LIFE IN QUÉBEC .............................................................................................................................................63 3.1 Experience in the Context of Political Life ..............................................................................................................66 3.1.1 Conflicts of Interest ....................................................................................................................................................66