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Societal Cleavages and Institutional Change in Canada Retention, Reform and Removal of Nominee Councils

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Societal Cleavages and Institutional Change in Canada Retention, Reform and Removal of Nominee Councils Université de Montréal Societal Cleavages and Institutional Change in Canada Retention, Reform and Removal of Nominee Councils par Bruce M. Hicks Département de science politique Faculté des arts et des sciences Thèse présentée à la Faculté des études supérieures et postdoctorales en vue de l’obtention du grade de doctorat en philosophie Décembre, 2011 © Bruce M. Hicks, 2011 Université de Montréal Faculté des études supérieures et postdoctorales Cette thèse intitulée: Societal Cleavages and Institutional Change in Canada Présenté par : Bruce M. Hicks a été évaluée par un jury composé des personnes suivantes : Éric Montpetit, président-rapporteur André Blais, directeur de recherche Richard Nadeau, membre du jury Lori Turnbull, examinateur externe Denyse Baillargeon, représentant du doyen de la FES i Résumé En concevant que toute société a deux clivages dominants, l’un social et l’autre partisan, cette thèse développe une théorie sur le changement institutionnel. L’hypothèse initiale, selon laquelle les groupes sociaux créés par le premier clivage agiront pour restreindre le changement institutionnel et que le changement aura lieu lors de l’émergence d’un groupe partisan capable de croiser le clivage social, fut testée par les processus traçant les changements qui furent proposés et qui ont eu lieu au sein des conseils nominés en Amérique du Nord britannique. Ces conseils furent modifiés un bon nombre de fois, devenant les chambres secondaires de législatures provinciales avant d’être éventuellement abolies. La preuve supporte l’hypothèse, bien qu’il ne soit pas suffisant d’avoir un groupe partisan qui puisse croiser le clivage qui mène le changement : un débat partisan sur le changement est nécessaire. Ceci remet aussi en cause la théorie prédominante selon laquelle les clivages sociaux mènent à la formation de partis politiques, suggérant qu’il est plus bénéfique d’utiliser ces deux clivages pour l’étude des institutions. Mots-clés : clivage sociétal, clivage social, clivage partisan, gouvernement responsable, gouvernement représentatif, gouvernement responsable de parti, conseil du roi, conseil souverain, conseil du gouverneur, conseil des nominés, conseil législatif, chambre haute, deuxième chambre, conseil exécutif, assemblée, législature, parlement, groupe social, parti politique, mouvement politique, constitution. ii Abstract By conceiving of any society as having two dominant cleavages, one ‘social’ and one ‘partisan’, this dissertation develops a theory on institutional change. The initial hypothesis that social groups created by the former will act to restrain institutional change and that change will occur when a partisan group emerges that can cross the social cleavage was tested by process tracing the changes which were proposed and which occurred to the appointed councils established in British North America. These councils were modified a number of times, becoming second chambers in the provincial legislatures, and were eventually each abolished. The evidence found supports the hypothesis, though it is not sufficient to have a partisan group that can cross the cleavage drive change, a partisan debate over the change was necessary. This also challenges the prevailing theory that social cleavages lead to political party formation, suggesting the benefit of using these two cleavages for the study of institutions. Keywords : societal cleavage, social cleavage, partisan cleavage, responsible government, representative government, responsible party government, king’s council, sovereign council, governor’s council, nominee council, legislative council, upper chamber, senate, upper house, second chamber, executive council, assembly, legislature, parliament, social group, political party, political movement, constitution. iii Table of Contents Chapter 1: Introduction ........................................................................................................ 11 I. Institutional Change ................................................................................................. 17 II. Societal Cleavages ................................................................................................... 20 III. Conceptualizing Institutional Change .................................................................. 22 IV. Cases .................................................................................................................... 26 V. Overview of Dissertation ......................................................................................... 27 Chapter 2: Situating this Research ....................................................................................... 31 I. Social Cleavages ...................................................................................................... 31 II. Institutionalism ......................................................................................................... 34 III. Colonial Institutions ............................................................................................. 35 Colonial ‘Studies’ ........................................................................................................ 36 Councils and Responsible Government ....................................................................... 42 IV. Bicameralism ....................................................................................................... 47 Comparative Literature ................................................................................................ 48 Country Specific Studies .............................................................................................. 57 Canadian Upper Chambers .......................................................................................... 60 V. Summary .................................................................................................................. 70 Chapter 3: The Legal and Theoretical Framework for the Constitution of Canada............. 72 I. Sovereignty .............................................................................................................. 74 Nature of the Social Contract ....................................................................................... 79 Summary ...................................................................................................................... 84 II. Constitutions ............................................................................................................ 85 Colonial Constitutions .................................................................................................. 87 Conventions ................................................................................................................. 92 Judicial Review ............................................................................................................ 94 Summary ...................................................................................................................... 95 III. Constitution Act, 1867 ......................................................................................... 96 Finding an Amending Formula .................................................................................... 97 Constitution Act, 1982 ............................................................................................... 102 Post-1982 Attempts at Amendment ........................................................................... 106 Summary .................................................................................................................... 110 IV. Conclusion ......................................................................................................... 110 Chapter 4: Resisting Institutional Change - The Province of Quebec ............................... 114 I. Original ‘Canadian’ Institutions of Governance .................................................... 115 Sovereign Council of New France (1663-1763) ........................................................ 118 II. Fighting for the Status Quo .................................................................................... 128 Governor’s Council of Quebec (1763-1774) ............................................................. 129 Legislative Council of Quebec (1774-1791) .............................................................. 137 III. Resisting Popular Ideas for Institutional Design ................................................ 142 Legislative Councils of Upper and of Lower Canada (1791-1840) ........................... 147 iv IV. Conclusion ......................................................................................................... 157 Chapter 5: Effecting Institutional Change - The Province of Canada ............................... 159 I. Shifting Cleavages ................................................................................................. 160 Social Groups ............................................................................................................. 160 Partisan Groups ......................................................................................................... 170 II. Institutional Change ............................................................................................... 177 Unification of the Province of Canada ....................................................................... 178 Responsible Government ........................................................................................... 182 Elected Legislative
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