Some thoughts on consensus government in Nunavut.

• Author: O'Brien, Kevin

Nunavut is one of two jurisdictions in Canada (the other being the Northwest Territories) where there are no political parties in the legislature. This article argues that consensus government is a northern variation of the standard Westminster model of responsible government. It describes the theory and practice of consensus government in Canada's newest territory.

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Many elements of consensus government are the same as in a legislature with political parties. We have a Premier, cabinet and private members; three readings for a bill, Hansard, question period, a politically neutral Speaker, motions of non-confidence and so on. Moreover, in terms of constitutional fundamentals, we follow the principles of the British parliamentary model of "responsible government".

The government--premier and cabinet--hold and retain power by maintaining the "confidence" of the House, which in practice means winning the votes in which confidence is explicitly at issue.

Once Cabinet reaches a decision, all ministers must publicly support that decision, whatever their personal reservations and whatever arguments they may have made behind closed cabinet doors. The principle of "cabinet solidarity" must remain

The spending of public money and the raising of public revenue through taxation may only be initiated by cabinet ministers; regular members certainly have the power to approve or reject such measures when they come before the legislature but bringing them forward remains a cabinet prerogative. Similarly, control and direction of the permanent bureaucracy rests firmly in cabinet's hands.

Ministers, both as political heads of individual departments and as members of a unified cabinet, are answerable to the legislature for the policies and decisions of government; this enables the public service to operate in a non-partisan fashion whereby bureaucrats answer to MLAs through their ministers.

People often wonder how we can truly have a parliament on the British responsible government model without political parties. Others presume that the absence of parties is simply a sign of our lack of political "maturity" and that once we have reached the proper stage of political development we will acquire parties. I note in passing that no one ever describes Nebraska as politically immature, although its legislature has long operated on a nonpartisan basis.

Political parties may indeed emerge in Nunavut somewhere down the road, but for the time being our residents think the system works fine without them. Our vision of political maturity is one of controlling our own affairs and does not necessarily require political parties.

As for the view that a proper Westminster system includes parties, I would point out that the key principles of responsible government I have just outlined were firmly in place in Britain and Canada well before the disciplined political parties we know today emerged in the mid and late 19th century.

However while the underlying constitutional principles are identical to those in Westminster-style parliaments in Canada and elsewhere, the way we put them into practice is quite different.

Consensus Government in Operation

Southerners observing our legislature immediately notice two things. First, much of our proceedings take place in Inuktitut. Second, debate is civil. MLAs listen to each other and do not often interrupt.

Nunavut MLAs, like politicians everywhere, get angry, upset and critical, but for the most part our proceedings are calm and respectful. Like the frequent use of Inuktitut, this reflects Inuit culture, in which direct confrontation is to be avoided and one listens attentively--and does not interrupt--when another is speaking.

Heated political battles occur behind the scenes but the norms of civility and respect are powerful. They certainly make the Speaker's job easier in maintaining order in the House.

All candidates for territorial election, including MLAs and ministers standing for re-election, run as independents. Some have strong and widely known connections to the national political...