Research services for Parliamentary committees.

• Author: Hugh Finsten

Responsibilities of parliamentary committees have developed considerably since the mid-1970s and the role of staff assisting them has mirrored these changes. In 1974, the Research Branch of the Library of Parliament provided staff to nine standing and special committees. In 1995, it assisted 32 standing committees (plus 12 subcommittees) of the two Houses, as well as several special committees. Only a few committees of the two Houses are not assisted by the Research Branch. Almost all of the Branch's 60 professionals are assigned to at least one committee on an ongoing basis. Officers serve committees either individually or in multidisciplinary teams of two or three and may also collaborate with consultants engaged by a committee. This paper review the role of Research Branch staff in the overall context of the parliamentary committee system.

Originally House of Commons standing committees could only deal with matters specifically referred to them by the House. In 1968, they were given automatic authority to review departmental spending estimates and most bills were referred to them for clause-by-clause analysis after second reading in the House. During the 1980's, following several parliamentary committee reports on the reform of Parliament which focused on improving the role of backbench members, the powers of committees increased considerably. Committee membership was limited to 10 to 15 persons to permit more focus, more consistency in membership and the development of expertise. Committees were authorized to initiate enquiries related to the issues within their mandates and to require a formal government response to their reports. Budgets were provided and the hiring of staff was authorized.

Committees now have authority to study issues on their own initiative and to meet when they wish, rather than at the will of the government. Subcommittees have become more common, allowing several topics to be reviewed at the same time. Recent reforms allow bills to be referred to committee prior to second reading, implying that committees could make substantive changes to government legislation. A related provision empowered committees to draft bills, although this has not been utilized much to date.

Other recent rule changes relate to committee review of departmental spending plans and the budget. Committees are now authorized to report on the expenditure plans and priorities of departments for future years. Departments will now routinely submit their plans in May of each year in documents entitled Outlook on Program Priorities and Expenditures which will "set out departmental strategies to adapt to the fiscal and policy environment and to deliver on specific service line targets." This is designed to enable committees to call for changes in the autumn before the spending estimates for the next year are finalized. The new documentation will provide information on the performance of existing programs. In addition, the Finance Committee is authorized to hold pre-budget consultation hearings forh the purpose of making proposals to the Minister of Finance for the annual budget.

In the Senate, committees review legislation, study policy issues and examine the government's estimates. A Senate committee may study a bill which has been introduced in the House of Commons but has not yet reached the Senate (known as a pre-study). Most committees require a reference from the Senate as a whole in order to commence work. Senate committees normally include 12 members plus the Leader of the Government (or a representative) and the Leader of the Opposition (or a representative).

Research Branch Assistance To Committees

Committee work has been a function of the Research Branch's role since its early days. The first Director was hired to assist the Procedure and Organization Committee of the House of Commons. Until 1985, House committees required authority to hire professional staff. In fact until several special Commons task forces were established in 1980 and, thereafter, when committee powers substantially increased, there was only occasional demand demand for ongoing expert assistance.

The Research Branch, with its immediately available subject matter specialists, was the main source of assistance when required. This situation established the role of the Branch, and its professionals gained experience in the requirements of committee work. Despite the new hiring authority, the Branch maintained its role as the major source of professional assistance, although several...