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http://www.parl.gc.ca/Content/HOC/Committee/421/ERRE/Reports/RP8655791/421_ERRE_Rpt03_PDF/421_ERRE_Rpt03-e.pdf
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
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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-Pastthe-
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 ................................................................................... 59
i. The Alternative Vote (also referred to as Instant Runoff Voting) ........ 60
ii. The Borda Count ................................................................................ 60
iii. The Condorcet Method ....................................................................... 62
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b. Perceived Strengths of Ranked Ballots in Single-Member
Constituencies ......................................................................................... 64
c. Perceived Shortcomings of Ranked Ballots in Single-Member
Constituencies ......................................................................................... 65
2. Proportional Electoral Systems ..................................................................... 69
a. Proportionality: Perceived Strengths ........................................................ 71
b. Proportionality: Perceived Shortcomings ................................................. 74
3. The Single Transferable Vote and Other Ranked Ballot Variants in
Multiple Member Constituencies ................................................................... 77
a. The Single Transferable Vote .................................................................. 77
b. Jean-Pierre Derriennic’s “Moderate Proportional Representation
with a Preferential Vote” Proposal ........................................................... 81
c. Jean-Pierre Kingsley’s suggestion and Fair Vote Canada’s Rural-
Urban Proportional Proposal .................................................................... 82
4. Mixed Electoral Systems: Mixed Member Proportional Representation
and its Variants ............................................................................................. 84
a. Introduction .............................................................................................. 84
b. Perceived benefits of MMP ...................................................................... 84
c. History of MMP in Canada ....................................................................... 85
d. Components of MMP ............................................................................... 86
i. Open and Closed Party Lists .............................................................. 86
ii. Diversity and party lists ....................................................................... 88
iii. Regions and party lists ....................................................................... 89
iv. Dual Candidacy? ................................................................................ 89
e. Consequences of MMP............................................................................ 90
i. Two Types of MPs? ............................................................................ 90
ii. Coalition Governments ....................................................................... 92
f. Considerations ......................................................................................... 93
i. Ratio of Constituency MPs to List MPs ............................................... 93
ii. MMP in the Territories ........................................................................ 94
E. Recommendations .............................................................................................. 95
CHAPTER 5: CIVICS, DUTIES, AND RIGHTS: MANDATORY VOTING ...................... 97
A. Australia’s Experience with Mandatory Voting .................................................. 100
B. Foundations: Accessibility and Enforcement .................................................... 102
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C. Turnout, Engagement, Incentives and Penalties .............................................. 105
1. Turnout and Engagement............................................................................ 105
2. Incentives and Penalties ............................................................................. 106
D. Observations and Recommendations ............................................................... 106
CHAPTER 6: ONLINE AND ELECTRONIC VOTING.................................................. 109
A. Accessibility ...................................................................................................... 110
1. Voters with Disabilities ................................................................................ 111
2. Internet access ............................................................................................ 111
B. Security ............................................................................................................ 112
1. Secrecy and Transparency ......................................................................... 113
2. Security and Accessibility ............................................................................ 114
C. Participation and the Voting Experience ........................................................... 114
D. Observations and Recommendations ............................................................... 115
CHAPTER 7: DIVERSITY AND ENGAGEMENT: A PARLIAMENT THAT
MIRRORS CANADA ................................................................................................... 117
A. A Parliament that Mirrors Canada .................................................................... 117
B. Effects of Electoral Systems on the Diversity of the House of Commons ......... 118
C. Nomination Process and the Role of Political Parties ....................................... 120
D. Overcoming Barriers to Entry ........................................................................... 121
E. Indigenous Representation ............................................................................... 122
F. Representation of Canadians with Disabilities .................................................. 124
G. The Per-Vote Subsidy and Party Financing ...................................................... 124
H. Recommendations ............................................................................................ 125
CHAPTER 8: VOTER ENGAGEMENT AND PARTICIPATION .................................. 127
A. Civic Education ................................................................................................. 127
1. Civics Courses for Young Canadians .......................................................... 127
2. Education, Engagement, and Indigenous Canadians ................................. 129
3. Civic Education for the General Electorate ................................................. 130
B. Lowering the Voting Age to Encourage Inclusion and Participation .................. 130
1. Scotland’s Experience with Lowering the Voting Age ................................. 131
2. Why Lower the Voting Age? ........................................................................ 131
C. Accessibility: Removing Barriers to Voting For People in
Underrepresented Communities ....................................................................... 132
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1. Students ...................................................................................................... 133
2. Senior Citizens ............................................................................................ 134
3. Indigenous Canadians ................................................................................ 135
4. Canadians with Disabilities.......................................................................... 135
5. Individuals Living in Low-income Circumstances ........................................ 136
D. Alternative Voting Days .................................................................................... 137
1. Voting on the Weekend ............................................................................... 137
2. Election Day Holiday ................................................................................... 138
E. Recommendations ............................................................................................ 138
CHAPTER 9: MOVING FORWARD ON ELECTORAL SYSTEM REFORM:
A QUESTION OF PROCESS ...................................................................................... 141
A. Education, Education, Education ...................................................................... 143
B. On Process and Democratic Legitimacy ........................................................... 145
C. Consensus, the Committee, Parliament and Electoral Reform ......................... 146
D. Citizen-focused Deliberative Processes: Citizens’ Assemblies and More ........ 148
E. To Referendum or Not to Referendum? ........................................................... 152
1. Arguments in Favour of a Referendum on Electoral Reform ....................... 154
2. Arguments Against Holding a Referendum on Electoral Reform ................. 155
3. Logistical Considerations .............................................................................. 157
4. Lessons Learned from Referendums and Plebiscites Past ......................... 159
F. Observation and Recommendations ................................................................ 163
LIST OF RECOMMENDATIONS ................................................................................ 165
APPENDIX A: ORDER OF REFERENCE ................................................................... 169
APPENDIX B: LIST OF WITNESSES ......................................................................... 173
APPENDIX C: LIST OF BRIEFS ................................................................................. 199
APPENDIX D: LIST OF MEMBERS’ REPORTS ......................................................... 227
APPENDIX E: E-CONSULTATION ON ELECTORAL REFORM ................................ 235
APPENDIX F: E-CONSULTATION ON ELECTORAL REFORM,
SUMMARY OF RESPONSES ..................................................................................... 261
APPENDIX G: CLASSIFICATION OF BRIEFS SUBMITTED
TO THE COMMITTEE ................................................................................................. 291
REQUEST FOR GOVERNMENT RESPONSE ........................................................... 319
SUPPLEMENTARY OPINION OF THE LIBERAL PARTY OF CANADA .................... 321
SUPPLEMENTARY OPINION OF THE NEW DEMOCRATIC PARTY OF CANADA
AND THE GREEN PARTY OF CANADA .................................................................... 329