STRENGTHENING DEMOCRACY IN CANADA: PRINCIPLES, PROCESS AND PUBLIC ENGAGEMENT FOR ELECTORAL REFORM Report of the Special Committee on Electoral Reform Francis Scarpaleggia Chair DECEMBER 2016 42nd PARLIAMENT, 1st SESSION Published under the authority of the Speaker of the House of Commons SPEAKER’S PERMISSION Reproduction of the proceedings of the House of Commons and its Committees, in whole or in part and in any medium, is hereby permitted provided that the reproduction is accurate and is not presented as official. This permission does not extend to reproduction, distribution or use for commercial purpose of financial gain. Reproduction or use outside this permission or without authorization may be treated as copyright infringement in accordance with the Copyright Act. Authorization may be obtained on written application to the Office of the Speaker of the House of Commons. 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Also available on the Parliament of Canada Web Site at the following address: http://www.parl.gc.ca STRENGTHENING DEMOCRACY IN CANADA: PRINCIPLES, PROCESS AND PUBLIC ENGAGEMENT FOR ELECTORAL REFORM Report of the Special Committee on Electoral Reform Francis Scarpaleggia Chair DECEMBER 2016 42nd PARLIAMENT, 1st SESSION SPECIAL COMMITTEE ON ELECTORAL REFORM CHAIR Francis Scarpaleggia VICE-CHAIRS Scott Reid Nathan Cullen MEMBERS John Aldag Blake Richards Alexandre Boulerice Sherry Romanado Matt DeCourcey Ruby Sahota Gérard Deltell Luc Thériault Elizabeth May OTHER MEMBERS OF PARLIAMENT WHO PARTICIPATED William Amos Georgina Jolibois Sheri Benson Pat Kelly Daniel Blaikie Hon. Jason Kenney Mike Bossio Tom Kmiec Sylvie Boucher Larry Maguire David Christopherson Alistair MacGregor Matthew Dubé David J. McGuinty Jim Eglinski John Nater Greg Fergus Monique Pauzé Colin Fraser Alain Rayes Bernard Généreux Hon. Michelle Rempel Garnett Genuis Brigitte Sansoucy David de Burgh Graham Gabriel Ste-Marie Jamie Schmale iii CLERKS OF THE COMMITTEE Christine Lafrance Danielle Widmer LIBRARY OF PARLIAMENT Parliamentary Information and Research Service Dara Lithwick, Analyst Erin Virgint, Analyst Gabrielle de Billy Brown, Research Assistant Jessica Ozorak, Research Assistant COMMITTEES AND LEGISLATIVE SERVICES DIRECTORATE Ariann Bouchard, Committee Assistant Lynda Gaudreault, Committee Assistant iv THE SPECIAL COMMITTEE ON ELECTORAL REFORM has the honour to present its THIRD REPORT Pursuant to the order of reference of Tuesday, June 7, 2016, the Committee has studied the question of voting systems to replace the first-past-the-post system and the questions of mandatory voting and online voting and has agreed to report the following: v TABLE OF CONTENTS STRENGTHENING DEMOCRACY IN CANADA: PRINCIPLES, PROCESS AND PUBLIC ENGAGEMENT FOR ELECTORAL REFORM .................................................. 1 CHAPTER 1: INTRODUCTION ....................................................................................... 1 A. Electoral Reform and Canada’s Unique Democratic Ecosystem .......................... 1 B. The Committee’s Mandate ................................................................................... 3 C. The Committee’s Study in Numbers ..................................................................... 4 1. Formal Hearings .............................................................................................. 5 2. E-Consultation on Electoral Reform ................................................................ 6 3. Open Mic Sessions ......................................................................................... 8 4. Written Submissions and Correspondence ..................................................... 9 5. MP Town Hall Reports .................................................................................... 9 CHAPTER 2: ELECTORAL REFORM AND THE CONSTITUTION .............................. 11 A. Constitutional Basis of the Federal Electoral System and Implications for System Reform ................................................................................................... 11 1. Constitutional Provisions related to the Federal Electoral System and Reform .......................................................................................................... 11 2. Selected Canadian Jurisprudence: Electoral Reform and the Constitution ...... 14 B. Witness and Submission Observations on the Constitutionality of Electoral System Reform ................................................................................................... 15 CHAPTER 3: LESSONS LEARNED: A HISTORY OF ELECTORAL SYSTEM REFORM AT THE FEDERAL AND PROVINCIAL LEVELS .......................................................... 21 A. 1921: A Turning Point ......................................................................................... 22 1. The House of Commons 1921 Special Committee on Proportional Representation and the Subject of the Single Transferable or Preferential Vote ........................................................................................... 23 B. Subsequent Studies of Electoral System Reform at the Federal Level .............. 24 1. 1935-1937: The Special Committee on Elections and Franchise Acts .......... 24 2. A Trio of Task Forces/Royal Commissions: 1979, 1985, 1991...................... 24 3. Law Commission of Canada, Voting Counts: Electoral Reform for Canada, 2004 ................................................................................................ 25 4. House of Commons Standing Committee on Procedure and House Affairs, Forty-Third Report (Electoral Reform) (tabled 16 June 2005) ........... 27 vii 5. Government of Canada, Public Consultations on Canada’s Democratic Institutions and Practices, 2007 .................................................................... 28 C. Electoral Reform at the Provincial Level ............................................................. 28 1. Early Reform Initiatives ................................................................................... 28 2. Recent Reform Initiatives ............................................................................... 29 a. British Columbia ....................................................................................... 30 b. Ontario ..................................................................................................... 33 c. Quebec .................................................................................................... 33 d. New Brunswick ........................................................................................ 34 e. Prince Edward Island ............................................................................... 36 CHAPTER 4: VALUES AND ELECTORAL SYSTEMS: TOWARDS A “MADE IN CANADA” PROPOSAL ................................................................................................. 41 A. Of Values and Principles .................................................................................... 41 1. Principles and Electoral Systems: A Matter of Trade-Offs ............................ 44 B. Electoral System Families: Majoritarian, Proportional, and Mixed ...................... 45 1. Electoral System Components ...................................................................... 45 C. Our Current Electoral System: Single-Member Plurality, aka First-Past- the-Post .............................................................................................................. 46 1. FPTP’s Perceived Strengths ......................................................................... 47 a. FPTP is efficient and simple for both voters and election administrators: ......................................................................................... 47 b. FPTP focuses on local representation: ..................................................... 48 c. FPTP tends to produce majority governments: ......................................... 49 2. FPTP’s Perceived Shortcomings ................................................................... 49 a. FPTP in a Multi-Candidate, Multi-Party Context ...................................... 50 b. FPTP, Voter Apathy, Strategic Voting, Policy Reversal, and Lack of Diverse Representation ........................................................................... 52 D. Electoral System Change: What Alternatives Would Work in Canada? ............. 56 1. The Alternative Vote and Other Ranked Ballot Variants in Single- Member Constituencies ................................................................................ 58 a. Tallying Methods: The Alternative Vote, the Borda Count, and the Condorcet Method ..................................................................................