HOW GOVERNMENT WORKS The Newsletter of the Department of Regional Industrial Expansion January 1987 Legislativeprocess This is the second in a series of Precis special editions describing the organization and decision­ making process of the federal government. In this issue, we will look at the legislative process — how a bill, from development to proclamation, moves through the departmental and government decision-making process, and parliamentary approval stages. At DRIE, for example, the Industrial and Regional Development Program (IRDP) was established in 1983 through the legislative process. Also, in 1985, it was by legislation that amendments were made to the Small Businesses Loans Act. Who decides? To initiate legislation or amend outdated laws, most ministers look to their departmental staff as an important — but cer­ tainly not the sole — source of advice. Initiatives for new legis­ lation are usually in response to the Government’s perceived needs of a certain segment of the population or for the betterment of the country as a whole. Thus, ideas for pro­ posed legislation can come from a variety of sources, other than departments, such as: • concerned citizens or sector (lobby) groups ( • Opposition parties in Parliament • the report of a Royal Commission • the fulfilling of election cam­ paign promises • the Privy Council Office (PCO) which, among its responsibilities, advises the Prime Minister on legislation. THE LEGISLATIVE STEPS IN THE DEPARTMENT The Government identifies the motive requiring new or changed legislation 2. Legislative solutions are developed by departmental subject and financial specialists, ADMs, Associate DMs, DM and Minlster(s) Consultations are held with stake holders, stake-holders special interest groups, other interested federal government departments and appropriate provincial ministers 4. Recommendations are considered by the DRIE Operations and Policy Review Committee (OPRC) Memorandum to Cabinet Includes draft submission, Minister's recommendation and Communcations Plan Cabinet Committee on Economic and Regional Development Cabinet or Cabinet Committee on priorities and Planning Chairman Prime Minister record of decision (Cabinet approval to proceed) DRIE and Department of Justice prepare Draft Bill 10. Cabinet Committee on Legislation and House Planning reviews Draft Bill 11. Cabinet Committee on Legislation and House Planning reports to Cabinet that Bill can proceed M THE LEGISLATIVE STEPS IN PARLIAMENT Decision from Cabinet Committee on Legislation and House Planning to proceed First Reading — Minister tables Bill in House of Commons Briefing sessions: media and caucuses Second Reading and debate on the Bill Legislative Committee, or Committee of the Whole, studies Bill, hears witnesses, may amend Report stage and Third Reading debate Senate study/review (three readings) Royal Assent. The legislation may now become law or at a time as determined by Governor in Council (a committee of ministers) Once proclaimed, DRIE implements new law Cabinet approval The planning of the Govern­ ment’s legislative program starts up to one year in advance of the time the legis­ lation is to be introduced in the House. Immediately after the Speech from the Throne, at the opening of each Session of Parliament, the Assistant Secrotary to the Cabinet (legis lation and House Planning) writes to all Deputy Ministers and some Agency Heads ask Ing them to submit a list of legislation that their minister plans to propose to cabinet for Introduction In the next session alter the one just begun. I ho response to this re quest lor legislative proposals should bo submitted within two months 1 ho established procedure for the approval of Individual bills Involves three separate steps: • Cabinet approval of the policy • drafting of the Bill • Cabinet approval of the Bill. The Cabinet Committee on Legislation and House Plan nlng Is responsible lor prepar­ ing the Government's legisla­ tive program for each session, keeping this program under constant review and examining In detail all draft bill'. therefore, departments and agencies whoso ministers are bringing forward legislative proposals must keep In close contact with the Secretariat to that Committee and, In particu­ lar, inform the Secretariat of any significant changes In the ministers' plans. Review by Cabinet Legislative proposals are brought to Cabinet's attention by the Privy Council Office and a tentative outline of the legis­ lative program for the next ses­ sion is established, together with the assignment of pri­ orities to the various proposals. from time to time the outline and priorities are updated by Cabinet. Cabinet approval of policy Once Cabinet has considered the ramifications of the proposed legislation, and gives approval to proceed, the Department then arranges for the necessary Memorandum to the cabinet seeking policy approval. This is accompanied, If appropriate, by a Discussion Paper. The Memorandum and Discussion Paper are submitted to the appropriate Cabinet Committee (for DRIE, the Cabi­ net Committee on Economic and Regional Development) anc then to Cabinet or the Cabinet Committee on Priorities and Planning, as the case may be. At this stage, the Memorandum is not in the form of, or accom panied by, a draft bill. Drafting the Bill A Record of Decision indicates the Cabinet’s approval to start drafting the Bill. DRIE officials work with the Chief Legislative Counsel and drafting officers in the Department of Justice to prepare the Draft Bill. The draft legislation must be prepared in both official Ian guages. At this point, too, it is essential that departmental officials consult with the appro priate Ministry of State or the Treasury Board Secretariat to ensure that the Draft Bill’s pro­ visions do not have different expenditure implications than those of the policy approved by Cabinet. Cabinet approval of Bill When the Bill has been drafted and approved by the responsi­ ble Minister, the Legislation Section of the Department of Justice arranges for its printing and for copies to be sent to the Legislative and House Planning Secretariat for distri­ bution to ministers, prior to the meeting of the Legislation and House Planning Committee of Cabinet. With the sponsoring Minis ter, the Legislation and House Planning Committee scrutin­ izes the Draft Bill, the accom­ panying summary and updated communications plan. The Committee also considers the Minister’s recommendation as to whether the Bill should be introduced in the House of Commons or in the Senate. The Cabinet Committee on Legislation and House Plan ning reports to Cabinet that the Bill can proceed. Following Cabinet’s ap­ proval, the Committee’s Sec­ retariat submits the Bill in final form to the Prime Minister for his signature. For Parliament You as back-up support Many departmental officials continue to be involved with a bill as it winds its way through the maze of parliamentary read­ ings, speeches, votes, commit­ tee hearings, and scrutiny by the media. The Minister and the Par­ liamentary Secretary are the key players in guiding a bill towards passage. Within the Office of the Corporate Secre­ tary, the Parliamentary Advisor and staff continue to monitor progress and collect the back­ up information required to assist the Minister and colleagues. Communications and subject specialists provide speeches and background information packages for the Minister and the Parliamentary Secretary to carry a bill during House debates and also for speaking to interested groups across the country. Questions in the House, at caucus briefing sessions and at committee hearings must be anticipated and informative answers prepared. Certain departmental officials are also usually required to attend House and Senate committee hearings. For a major piece of legis­ lation, we have a responsibility to inform the public, thus, a press conference or media briefing is held and communi­ cations specialists must pre­ pare press kits including news releases and detailed back­ ground information. In the House of Commons Government in the House calls the appropriate order. After First Reading A Soon after First Reading, briefing sessions are held for political caucuses and a Press Conference or briefing session normally takes place with the media. Once the timing for the Bill’s introduction is decided by the Cabinet Committee on Legisla­ tion and House Planning, the various stages towards its becoming an Act of Parliament begin: M The Minister, having given notice, moves for leave to introduce a bill. This motion is not debatable, but the question must be put. If leave is granted, the Minister immediately moves that the Bill be read a first time and tables it. There is no debate at this stage. The Bill is subsequently numbered, printed and distributed so that members and the public at large may study it. Until this time, the Draft Bill is classified “CONFIDENTIAL”. A The Bill is automatically ordered for Second Reading “at the next sitting.” The order will appear on the Order Paper under Government Orders and “the next sitting” means any subsequent Government Day on which the Leader of the 8 On a subsequent day, the Minister moves that the Bill be read a second time and refer­ red to a legislative committee for review. With this motion, the principle of the Bill, but not its specific provisions, is debatable. Amendments may be moved in opposition to the principle of the Bill. It is also in order to move an amendment “that the Bill be not read a second time, but that its subject-matter, not the Bill, be referred to a committee ► ◄ of the House” for review, or that it be “not now read a sec­ ond time but on a day six months hence” (the so-called “six-month hoist”). The adop­ tion of any such motion would defeat the Bill, and often when the parties in opposition con­ test the principle of a bill, a series of amendments are moved, and the debate can be lengthy. A a However, once the motion for Second Reading is carried, the principle of the Bill has been approved by the House and afterward discussions are limited to its specific provisions. study. Money bills, usually introduced by the Minister of Finance, non-controversial or urgent bills can be referred to the Committee of the Whole (consisting of all members of the House). The Committee can hear from the Minister, departmental officials and other interested groups. Amendments to the Bill may be moved by members of any political affiliation and, after debate, are voted on. The Bill is then reported back to the House, with or without amendment. Following Second Reading A The Bill is referred to a legislative committee, previ­ ously struck, for detailed In the Senate As in the House of Commons, each bill receives three read­ ings in the Senate and follow­ ing Second Reading, bills are usually referred to one of the Senate’s standing committees for study. In order to save time, a bill, while being studied in the Commons, may be referred to a Senate Committee for “pre-study.” Legislation emanating from our Depart­ ment would usually be referred to the Senate Committee on National Finance. Once reported, the House proceeds to the report stage where amendments on the pro­ visions can again be moved. receives Royal Assent, unless some other day, or mode of coming into force, is specified in the Bill. A new law must also be “proclaimed” in the Canada Gazette. Royal Assent The Governor General, in the Queen’s name, gives Royal Assent to the Bill. The Bill comes into force on the day it With Royal Assent, the Bill becomes an Act of Parliament and upon proclamation the Department can begin to imple­ ment this new legislation/law. Having been disposed of, or there being no further amend­ ment to the substance of the Bill, the Minister moves Third Reading. At Third Reading The motion for Third Read­ ing and passage is debatable and again amendments relating to the principle of the Bill may be moved. Thus, “the six­ month hoist” may be moved as at the Second Reading stage, or that “the Bill be not now read a third time, but that the subject be referred back to Com­ mittee for reconsideration.” All of the motions or amendments having been disposed of, the Bill, as passed by the House of Commons, is transmitted to the Senate. In How Government Works, Part III, we will focus on the Cabinet and its committee system. LES ROUAGES DU GOUVERNEMENT Le bulletin du ministère de l’Expansion industrielle régionale Deuxième partie Janvier 1987 Le processus législatif Ce numéro spécial de Précis est le deuxième d’une série consacrée à l’organisation et au processus décisionnel du gouvernement fédéral. Le présent article traite du processus législatif, c’est-à-dire de la manière dont se crée un projet de loi de son élaboration à sa promulgation, de la prise de décisions au MEIR et au Gouvernement à son approbation du Parlement. Au MEIR, par exemple, c’est en vertu d’une loi que le Programme de développement industriel et régional (PDIR) était mis sur pied en 1983; de même qu’en 1985, la Loi sur les prêts aux petites entreprises était modifiée à la suite d’une intervention législative. Qui décide? S’agit-il de proposer une nouvelle loi ou de modifier des lois caduques? La plupart des minis­ tres s’appuient alors sur les con­ seils de leurs fonctionnaires, sans pour autant voir en ces derniers leur unique source de conseils. Les mesures prises par le Gouvernement en vue d’adopter de nouvelles lois répondent générale­ ment aux besoins perçus chez une partie de la population, ou visent à contribuer au mieux-être du pays dans son ensemble. Aussi, les propositions de lois peuvent-elles provenir de diverses sources, autres que les ministères, à savoir: • de citoyens, groupes intéressés, ou groupes de pression • des partis d’opposition au Parlement • du rapport d’une commission royale • d’un engagement pris lors d’une campagne électorale • du Bureau du Conseil privé dont une des fonctions est de con­ seiller le premier ministre en matière de législation. La durée des travaux Pour qu’une idée devienne projet de loi, obtienne l’approbation du Parlement et soit promulguée, il faut quelques jours ou plusieurs années. S’agit-il d’une question d’inté­ rêt national urgente, le Parlement peut arrêter la loi nécessaire en quelques jours, voire en quelques heures. L’adoption d’une loi votée en un délai aussi bref s’est pro­ duite, par exemple, en temps de guerre ou pour mettre fin à des grèves jugées préjudiciables aux intérêts du pays. Il est d’autres projets de loi dont l’élaboration, vu leur nature, s’étend sur plusieurs années. Cer­ tains passent par le cabinet de plusieurs ministres — voire de plu­ sieurs gouvernements — et exi­ gent de nombreuses heures de consultation auprès des divers groupes intéressés. Lorsque la première session de l’actuelle Assemblée législative a été prorogée l'été dernier, Il res­ tait 19 projets de loi gouverne­ mentaux inscrits au Feuilleton. Si une mesure législative «expire au Feuilleton», le Gouver­ nement peut décider d’en remettre la discussion sous sa forme ini­ tiale à la session parlementaire suivante, ou d’améliorer le projet de loi en fonction des questions soulevées au moment de sa pre­ mière présentation, espérant ainsi en accélérer l’adoption. La nature des projets de loi On appelle projet de loi l’ébauche d'une proposition législative sou­ mise à l’examen et à l’approbation du Parlement. On distingue deux types de projets de loi: ceux d'Intérêt public et ceux d’ordre privé. • Les projets de loi d’intérêt public portent entre autres sur dos questions de politiques toiles que structures d’organirmtlon du Gouvernement, pro­ grammes, droit criminel, impôt sur le revenu, assurancechômage, etc. Ils touchent le public de façon générale, les sociétés, ou seulement une par­ tie do la population, comme par exemple les fabricants ou les agriculteurs. • Les projets de loi d’ordre privé conferent des pouvoirs ou des drolts spéciaux à une personne ou a un groupe do personnes. De façon générale, Ils visent à constitution on sociétés des enterprises privées, dos organizational religeux et de charité, ou ft modifier des lois de côns titution en viguour Les projects de loi d'interet public se divisent en deux categories ceux émanant du Gouvernement qu en appelle projects de lois gou vernemntaux et ceux déposés par les députés, qu 'on appelle project de loi partementaires les premiers absorbent la quasi totalité du temps parle mentaire. À la Chambre des com­ munes, les projets de loi parle­ mentaires sont débattus seulement pendant l’heure qui leur est réser­ vée, généralement de 17 h à 18 h les lundi, mardi et jeudi et de 16 h à 17 h le vendredi. Le temps de parole est alors limité à dix minutes par député, pour un total de cinq heures de discussion. Cela explique pourquoi tant d’initiatives parlementaires restent au stade de projet. La peine capitale, l’avorte­ ment, le contrôle des armes, les zones dénucléarisées — sujets favoris des députés — sont tous réinscrits au Feuilleton sous forme de projets de loi parlementaires pour la deuxième session de la 33e Assemblée législative. En vertu des nouvelles règles présentées à la première session de la 33e Assemblée législative, les projets de loi parlementaires et les motions présentées par des députés sont regroupés, et 20 sujets sont tirés au sort en vue d’un débat à la Chambre. Le Comité permanent des affaires parlementaires détermine alors les six projets do loi et motions sus