Throughout the world parliamentary
institutions are under strain ... "We renew our invitation to our
colleagues to join us ... in an endeavour to strengthen the institution
in this country" Thus concluded a report by a Special Committee on
Standing Order and Procedure which conducted an extensive study into a number
of problems plaguing the House of Commons. Among other things the report,
adopted by the House in November 1982, established a fixed parliamentary
calendar, changed the hours of sittings, shortened the time limit for most
speeches and provided for a ten minute question and comment period after
speeches, reduced the size of standing committees, provided that annual reports
of departments or agencies stand automatically referred to committees and made
a few minor changes relating to voting and private members' business. More
details about these reforms are found in the article by Charles Robert.
In subsequent reports the committee
suggested more fundamental reforms including a new method of electing the
Speaker. A major reorganization of the committee system was proposed. No
further recommendations were adopted by the House before dissolution of the
last Parliament. It is not surprising, therefore, that one of the first
measures announced by the new Conservative Government was establishment of
another special committee to examine the powers, practices, organization and
resources of the House of Commons with particular emphasis on ways to enhance
the role of private members.
The appointment of James McGrath, a member
of the previous special committee, as chairman of the new committee ensures
that the task will be carried out thoroughly and with due regard to
deliberations of the earlier committee. Among proposals that deserve a second
look are changes to the present system of considering estimates, a better
mechanism to allow member to advance their own bills or initiate inquiries, and
the referral of bills to committee before second reading so as to allow more
input by members before they are asked to vote on the principle of a bill.
The House of Commons operates on custom and
convention as well as rules. At some point virtually every student of
parliamentary reform comes to the conclusion that significant changes really
require new attitudes and not just new rules. Some of the practices that have
tended to bring Parliament into disrepute in recent years are: repeated use of
points of order and questions of privilege to delay and obstruct; the
introduction of important bills late in the session and the extension of
sessions by months and even years beyond their usual length; disproportionate
cries of alarm every time closure or some kind of time allocation is proposed.
These and many other problems could be resolved without a single change to the
Standing Orders.
It is far beyond the power of the new
special committee to create new attitudes or regulate the conduct of individual
members of parliament. However, with a new prime minister, a new speaker, a new
cabinet and over one hundred members completely new to parliament the
potential, at least, exists for a much more constructive approach to
parliamentary government, by both government and opposition, than we have seen
for many years. The first positive sign was tabling, after only five meetings
of the committee, of a report recommending immediate implementation of several
proposals of the previous special committee. Considering these proposals now
come from two very different committees in two very different Parliaments the
case for adoption, as the committee argues, is truly compelling.