Time for change in the legislature

Hey there, time traveller!
This article was published 27/05/2023 (1049 days ago), so information in it may no longer be current.

In advance of the provincial election scheduled for October, I have used this space to propose a number of legal and institutional reforms intended to improve the governing process and to strengthen democracy.

Today, I am offering some ideas on how to modify the culture within the Manitoba legislature. In recent decades that culture has become excessively partisan, mostly negative in tone and content. Too often it involves a lack of decorum and civility. There is rude heckling, personal attacks and even threats.

Sexist language and a chilly climate for female MLAs persist despite past actions to address the problem. Both the PCs and the NDP have been forced to investigate and discipline members of their caucuses for sexual misconduct.

The culture of the Manitoba legislature consists of the traditions, values, beliefs and norms of behaviour that shape, often in hidden ways, the everyday practices of the institution. The tasks which the legislature performs within the political system and the changing external environment in which it operates are the starting points for understanding that culture.

Since the 1970s, Manitoba has been mainly a two-party political system with the winning party, whether it is the PCs or the NDP, assuming that victory brings with it the prize of controlling the business of the legislature.

Political parties representing different ideologies and competing for power dominate the daily proceedings of the legislature. Partisanship is the most powerful factor shaping the culture. The 57 MLAs see themselves and behave as team players; the only thing missing are team uniforms.

For most of its history, the legislature has been a male-dominated institution with a “locker room” culture. The number of women in the legislature has increased over time but the percentage is still low at 26 per cent. Recently, there have been cross-party campaigns by female MLAs to put an end to sexist language and sexual harassment.

Leaders play a powerful role in shaping cultures. The character and leadership style of party leaders contribute to the interpersonal climate and culture within the legislature. As PC leader and premier, Brian Pallister followed a highly combative attack style that at times provoked nasty responses from the other side.

There are both formal and informal rules of the legislature that shape party competition and the culture. When reform is being debated, the focus is on the formal rules and procedures, with governing and opposition parties pushing for changes which will work to their advantage.

Reform must go beyond new procedures. To create a more positive interpersonal climate, to increase the influence of backbench MLAs, and to enhance the role of the Legislature in the governing process, there must also be cultural changes.

To create a safer and more respectful culture, the legislature, under the leadership of Speaker Myrna Driedger, recently revised the Respectful Workplace Policy (RWP) which covers interactions among MLAs, political staff, officials of the legislature and others. The policy is overseen by the all-party Legislative Assembly Management Commission, chaired by the speaker.

The policy represents an impressive adaptation of leading principles in the HR field to fit with the political context of the legislature. Not all of its provisions can be described here. Optional routes for raising and resolving complaints based on their seriousness have been created. There is provision for orientation sessions and an annual report on the number and types of complaints resolved.

Some complaints regarding misconduct may still be handled through the leadership structure of the party caucuses. Parties can foster more positive cultures through the recruitment of reputable candidates, taking ethics seriously, and by dealing appropriately with misdeeds within their ranks.

Since 2000, a shared code of ethical conduct for all parties has existed, with the promotion and enforcement of its calls to respect and strengthen democratic principles left to the parties. It is unclear how much effort the parties make to embed those principles into their cultures and practices. The NDP website contains five codes intended to promote high ethical standards. Similar aspirational documents could not be found on the PC website, but they could exist elsewhere.

Modifying cultures of institutions is always a slow, uncertain process and the challenges are even greater in a political body divided along party lines. Partisanship is needed to highlight value disagreements over the role of government.

However, there needs to be a less intense partisan culture which allows more opportunities for parties to work together on issues where ideological divides are irrelevant. The speaker needs more authority to deal with sexist language and heckling as forms of unparliamentary behaviour.

Paul G.Thomas is professor emeritus of political studies at the University of Manitoba.