House of Commons Procedure and Practice
Edited by Robert Marleau and Camille Montpetit
2000 EditionMore information …

20. Committees

Experience has shown that smaller and more flexible committees, when entrusted with interesting matters, can have a very positive impact on the development of our parliamentary system, upgrade the role of Members of Parliament, sharpen their interest and ultimately enable this institution to produce much more enlightened measures that better meet the wishes of the Canadian people.

Yvon Pinard, President of the Privy Council
(Debates, November 29, 1982, p. 21071)

A

s with other large deliberative assemblies, the House of Commons has taken advantage of the greater flexibility available in committees to carry out functions which can be better performed in smaller groups. These include the examination of witnesses and the detailed consideration of legislation, estimates and technical matters. Committee work provides detailed information to parliamentarians on issues of concern to the electorate and often provokes important public debate. In addition, because committees interact directly with the public, they provide an immediate and visible conduit between elected representatives and Canadians. With respect to their formal proceedings, committees are microcosms and extensions of the House, limited in their powers by the authority delegated to them. This chapter will examine the history, the rules of procedure and the business conducted by committees of the House of Commons.

Historical Perspective

British Precedents

Committees of the British Parliament have existed in some form since the fourteenth century. [1]  The precursors to the first parliamentary committees were the individuals selected as Triers and Examiners of petitions, [2] and the earliest duty of committees, as we know them, was to draw up legislation to carry into effect those prayers of petitions to which the Crown had acceded. By the middle of the sixteenth century, committees formed part of the regular machinery of parliament, modifying or “improving” legislation to which the House of Commons had agreed in principle. Committees had their own meeting room in the palace of Westminster and committee practice had acquired many of its modern characteristics, including the more relaxed rules governing debate, the right to appoint sub-committees and the right to summon witnesses. However, the House was always careful to exercise control over, and responsibility for, those matters it referred to committee.

At that time, there were two sorts of committees: large committees of 30 to 40 members, and small committees of up to 15 members. The large committees, often composed of different classes of members (professional, regional, functional), were struck to consider substantive matters. In the beginning, they were always classified as “special” committees, that is, bodies created for a particular purpose and disbanded as soon as that purpose was discharged. Over time, some of these large committees were given sessional orders of reference (or mandates) which remained in effect for the duration of a session. As “standing” committees, they were charged with an area of responsibility, such as the consideration of a class of bills or a particular department of House business. [3]  By the middle of the seventeenth century, a fairly elaborate system of standing committees was in place, and that system remained virtually unchanged over the next two centuries. [4] 

The smaller committees, composed of only those members who had been specifically named by the House, became known as “select” committees. While any Member could attend select committee proceedings, only those specifically named to the committee by the House could participate in the deliberations. [5] 

By contrast, it became common in the large committees to allow whoever attended to participate in the discussion. As the practice of allowing any Member to speak in a large committee evolved, they came to be known as the “general” or “grand” committees. Ultimately, the membership of these committees equalled that of the House itself and they were referred to as Committees of the Whole. [6]  Grand committees became the preferred forum for the consideration of “bills of great concernment, and chiefly in bills to impose a tax, or raise money from the people… to the end there may be opportunity for fuller debates, for that at a committee the members have liberty to speak as often as they shall see cause, to one question…” [7] 

Britain’s revolutionary Long Parliament (1640-60), [8]  which assumed all the powers of administration and government on behalf of the Commonwealth, effectively did away with grand committees and ruled by means of small committees. Committees of the Whole were seen to be “highly inconvenient”, affording as they did equal debating rights to the opposition. [9] 

With the Restoration, [10]  Parliament, in 1661, once again reverted to grand committees to consider its most significant orders of business and, by 1700, it had become common to examine bills in Committees of the Whole House following second reading. [11]  Over the years, various committees on reform continued to suggest that legislation again be referred to the small committees; however, the House continued to prefer the greater openness available in the larger forum.

Pre-Confederation Procedure in Committees

Contrary to the United Kingdom practice in the nineteenth century, where the majority of committee work was carried out in Committees of the Whole, the legislatures of Upper and Lower Canada regularly referred bills to select committees for consideration. [12]  In fact, the standing committee system in the two Canadas, as it evolved, more closely resembled the committee structure of the American colonial legislatures and the United States Congress than that of the British Parliament. [13]  A fairly sophisticated system of committees emerged over the 1830s.

In 1831, Lower Canada began appointing a number of standing committees (i.e., committees having an on-going mandate) at the beginning of every session. Somewhat later, in 1836, the Assembly of Upper Canada appointed 12 select standing committees, touching virtually all matters of government business, a departure from its usual practice of nominating ad hoc or special committees as the need arose. [14] 

Committees afforded Members of the Legislative Assemblies a degree of independence from the Executive and reflected their desire to involve themselves more directly in government affairs. For this reason, the Executive Council of Upper Canada discontinued the practice of appointing standing committees following the 1837 rebellion. [15]  Similarly, the government of the United Province of Canada (1841-66) refused initially to institute a system of standing committees, contending this would compromise the principle of responsible government. [16] 

Development of the Rules Respecting Committees of the Canadian House of Commons

The rules respecting committees of the House of Commons in the new Dominion of Canada were inherited from the Province of Canada, and were essentially the same as those used in the legislature of Lower Canada prior to the Union Act, 1840[17]  Efforts at reform, both before and since Confederation, have continued to reflect either the desire to improve the efficiency of the legislature, or the perpetual struggle to alter the balance of power between the legislature and the Executive.

Of the original Standing Orders adopted in 1867, few were directly concerned with standing or special committees. The rules did not list which committees should be struck, nor specify their powers, procedures or the authority of the Chair. They did, however, deny committee membership to any individual who had declared against the matter under consideration. [18]  A feature of British parliamentary practice since at least the time of Queen Elizabeth I, this rule was not rescinded in Canada until 1955. [19] 

From 1867 to 1906, the list of House standing committees [20]  was established by way of a motion adopted during each session of each Parliament, usually in the first days following the Speech from the Throne. [21]  In 1906, the House included in the Standing Orders, for the first time, a list of “standing” committees which the House had decided should be appointed in every session, although even these committees were active only when the House specifically ordered them to consider a particular matter. [22] Special and joint committees, whose number and mandate varied from one year to the next, were also established during the course of each session. Also in 1906, the House instituted a committee of selection charged with nominating the standing committee membership. [23] 

Due to the considerable size of most committees in the early years of Confederation (some had over one hundred members), and the rule that a majority of the membership was needed for a quorum, the larger standing committees experienced considerable difficulty gathering together enough members, on a regular basis, to meet and transact business. [24]  Consequently, over the years, the size of standing committees declined, falling as low as 15 members during the Twenty-Sixth Parliament (1963-65) and rising again to 16-18 members in the Thirty-Sixth Parliament. [25]  On the other hand, the number of House standing committees grew from 10 in 1867 to 25 in 1986, falling back to 17 in the Thirty-Sixth Parliament (1997- ). [26] 

Despite the fact that a standing committee structure was established at Confederation, for the first hundred years, most of the committees did not actually meet from one session to another and most House business was transacted on the floor of the Chamber, often in a Committee of the Whole. [27]  The House repeatedly considered enhancing the role of standing committees, particularly in relation to the study of Estimates. On several occasions, Members expressed concern over the lack of detailed scrutiny the Estimates received in the House and suggested they could be studied more effectively by first referring them to standing and select committees for consideration. A proposal to this effect was referred to a special committee in February 1925. [28]  Although the proposal was not endorsed by the committee, the issue continued to be raised in the House. In July 1955, the House agreed to a motion providing for the withdrawal of the Estimates from the Committee of Supply and referring them to standing or special committees. [29]  In 1958, the House added a Standing Committee on Estimates. [30]  In 1964, a Special Committee on Procedure and Organization further proposed that the Main Estimates be referred automatically after tabling to the standing committees. [31] 

In 1965, the Standing Orders were modified, on a provisional basis, permitting standing committees to examine the Estimates. [32]  However, it was not until 1968 that the House agreed to a permanent restructuring and reorientation of the committee system. Under the new rules, the Main Estimates would be tabled and referred to the standing committees by March 1 of each year, to be reported back (or deemed reported back) to the House by May 31. As well, provision was made for standing committee consideration of all bills (other than those based on Supply, and Ways and Means motions) after second reading. [33] 

In 1982, the House again appointed a special committee to review the Standing Orders [34]  and proceeded to implement several of its recommendations on a provisional basis. Among the most significant changes were those automatically referring the annual reports of departments, agencies and Crown corporations to standing committees and empowering the committees to initiate their own studies or investigations based on the information in those reports. [35]  Early in the subsequent Parliament (1984-88), the House agreed to retain the provisional changes [36]  and struck yet another special committee to inquire into the efficacy of all aspects of House procedure and administration. [37]  This committee made recommendations to enlarge the scope of committee mandates to give standing committees “broad authority” to look into and report to the House on any matter which was relevant to the departments for which they were responsible; to create a committee structure which reflected, as much as practicable, the organization of government; [38]  and to establish a Liaison Committee, consisting of the Chairs of all standing committees and appropriate Chairs or Vice-Chairs of joint committees, charged with the allocation of committee budgets. [39]  Provisional changes to the Standing Orders in 1986 incorporated the majority of the Committee’s recommendations relating to committees; these changes were made permanent the following year. [40]  The House’s standing committee structure was readjusted in 1991 and 1994, reflecting changes in government organization. [41] 

Apart from these reorganizations of the committee system, there have been two other significant changes to committee practice since the McGrath Committee reforms, both aimed principally at enhancing the profile and effectiveness of committees and backbenchers. In April 1991, the House agreed to allow committees to broadcast their proceedings within guidelines established by the Standing Committee on House Management; [42]  in 1994, [43]  the rules were again amended to permit the House to appoint and/or instruct a committee to bring in a bill, and to refer bills to a committee before second reading. [44]  The intent of these changes was to give ordinary Members an opportunity to participate in policy development before the government had committed itself to a particular legislative initiative. [45] 

Governing Provisions

Committees, as creations of the House of Commons, only possess the authority, structure and mandates that have been delegated to them by the House. These are found in the standing and special orders which the House has adopted concerning committees. The House has specified that, in relationship to standing, special or legislative committees, “the Standing Orders shall apply so far as may be applicable, except the Standing Orders as to the election of a Speaker, seconding of motions, limiting the number of times of speaking and the length of speeches.” [46] 

With these exceptions, committees are bound to follow the procedures set out in the Standing Orders [47]  as well as any specific sessional or special orders that the House has issued to them. Committees are otherwise left free to organize their work. In this sense, committees are said to be “masters of their own proceedings”. [48] 

Effect of Prorogation on Committees

Committee mandates and powers may derive from standing or special orders, but they are in effect only during a session. When Parliament is prorogued, Members are released from their responsibility to attend the House (and its committees), all orders of reference lapse, and committees effectively cease to exist. The only aspect of a committee’s work which survives prorogation is a request for a government response to a committee report. [49] 

The House may choose to reconstitute a special committee or re-adopt a special order of reference to a standing committee at the beginning of the next session so that the work may be completed. To do this, the House adopts an order of reference containing the same elements as those used originally, along with a provision that evidence adduced in the previous session be referred to the reconstituted committee. [50] 

Where bills have been reinstated in a new session, the House has on occasion referred the evidence adduced and the documents received in the previous session to the new legislative or standing committee to which it had referred the reinstated bills. [51] 

Structure and Mandate of Committees

Leaving aside Committees of the Whole, which are discussed in detail in Chapter 19, there are several distinct types of committees: standing, legislative, special, joint and sub-committees. All are “select” committees, that is, the House has chosen a limited number of members for each committee from among all the Members of the House. [52] Standing committees are provided for in the Standing Orders; permanent changes to the list of these committees can only be made by amending the Standing Orders. Legislative and special committees are appointed by motion on an ad hoc basis to carry out specific tasks and cease to exist when they have tabled their final reports. Joint committees are composed of members from both the House and Senate; they may be either standing or special. Sub-committees are committees struck by committees themselves for various purposes. They may exist for the entire duration of the main committee or may cease to exist when their specific purpose has been accomplished.

Standing Committees

Standing committees are permanent committees established by Standing Order. [53]  They are mandated by the House to oversee a government department or departments, to review particular areas of federal policy or to exercise procedural and administrative responsibilities related to Parliament. Some committees may have both departmental and policy-area responsibilities. As well as the permanent mandates provided to standing committees by the Standing Orders, other matters are routinely referred to them by the House for examination: bills, [54]  Estimates, [55]  Order-in-Council appointments, [56]  documents tabled in the House pursuant to statute, [57]  and specific matters which the House wishes to have studied. [58]  The House refers specific studies to committees by adopting a motion to that effect. The motion, once adopted, becomes an order of the House to a committee, known as an order of reference. In addition to the subject matter of the study, the order of reference may also contain conditions that the committee must comply with in carrying out the study or additional powers which it may require for that purpose.

The majority of standing committees are established to oversee a government department or departments. [59]  These committees are charged with the review of the relevant statute law, departmental operations and expenditures, and the effectiveness of the policies and programs of the department. [60]  The House adjusts the number and responsibilities of departmental standing committees to reflect changes in the structure of government administration.

The Standing Orders provide for a number of committees to have either particular policy responsibilities which have application throughout the federal administration [61]  or responsibility for matters pertaining to the procedures and the administration of the House and its committees. [62]  These committees may be responsible for overseeing a specific government department as well. The mandates currently are as follows:

  • The mandate of the Standing Committee on Canadian Heritage includes the monitoring of federal multicultural policy throughout the Government of Canada to aid in preserving and enhancing Canada’s multicultural heritage and to encourage government departments and agencies to reflect that heritage. [63] 
  • The mandate of the Standing Committee on Finance includes the consideration of and report on proposals regarding the budgetary policy of the government. [64] 
  • The mandate of the Standing Committee on Human Resources Development and the Status of Persons with Disabilities includes the proposing, promoting, monitoring and assessing of initiatives directed at the social integration of persons with disabilities. [65] 
  • The mandate of the Standing Committee on Justice and Human Rights includes the review of the reports of the Canadian Human Rights Commission. [66] 
  • The mandate of the Standing Committee on Procedure and House Affairs [67]  includes the review of House administration and the services and facilities provided to Members, as well as those services under the joint administration of the two Houses. It also deals with the review of the Standing Orders, the procedures and practices of the House, all matters relating to the election of Members of the House of Commons, the broadcasting of proceedings and the selection of votable items of Private Members’ Business. [68]  It is to this Committee that the House ordinarily refers matters relating to parliamentary privilege. The Committee is responsible for nominating the members of House committees and the House membership of standing joint committees, as well as preparing lists of associate members. [69]  The Committee is also specifically charged with establishing priority of use of committee meeting rooms. [70] 
  • The mandate of the Standing Committee on Public Accounts includes the review of and report on the Public Accounts of Canada and all reports of the Auditor General of Canada. [71] 

Powers

The Standing Orders formerly contained no provisions with respect to the powers of standing committees. Powers were provided in the motion establishing a given committee [72]  or, following the inclusion of a list of standing committees in the Standing Orders, by separate motion. The powers given usually included the power to examine and enquire into all such things as the House might refer, the power to report from time to time and the power to send for persons, papers and records. [73]  In 1965, the Standing Orders were amended to give powers to standing committees on a permanent basis. In addition to those listed above, the power to print from day to day such papers and evidence as the committee might order was included at that time. [74]  Subsequently, this list was extended to include the power to sit when the House is sitting or when it stands adjourned, to delegate powers to sub-committees (except the power to report directly to the House), [75]  to sit jointly with other committees of the House, and to append supplementary or dissenting opinions to reports. [76]  In addition, standing committees are empowered to broadcast their proceedings in accordance with guidelines prepared by the Procedure and House Affairs Committee. [77]  They may retain the services of expert, professional, technical and clerical staff. [78]  They are accorded an interim spending authority by the Board of Internal Economy. [79]  Finally, standing committees are empowered to meet without a quorum for the purpose of hearing evidence and to publish that evidence. At such meetings, no vote, resolution or other decision may be taken. [80] 

Should a standing committee require additional powers to carry out a particular study, the additional powers may be conferred by the House either by concurring in a report of the committee which contains a request for powers [81]  or by simply adopting a motion to confer the desired power. [82]  It is left to each standing committee to decide the extent to which it will exercise the powers granted to it by the House.

Liaison Committee

The Liaison Committee is a permanent committee, established pursuant to the Standing Orders, but is not a standing committee. It is made up ex officio of the Chairs of all the standing committees and the House Chairs of the standing joint committees. The Liaison Committee is responsible for apportioning funds to standing committees from the money allocated for that purpose by the Board of Internal Economy. [83]  It meets in camera to deliberate on administrative matters relating to the standing committee system and has a quorum of seven members. [84]  It is empowered to report to the House from time to time and has also carried out studies on the effectiveness of the committees of the House. [85] 

The Liaison Committee Chair is empowered to request that a list of associate members for the Liaison Committee be prepared and reported to the House by the Procedure and House Affairs Committee. [86]  These associate members are deemed to be Liaison Committee members for the purpose of forming sub-committees. [87]  Associate members of the Liaison Committee are not committee chairs and may include members from all parties. [88]  The Liaison Committee usually establishes a Budget Sub-committee charged with apportioning the funds provided by the Board of Internal Economy to the various standing committees.

Legislative Committees

Legislative committees are a distinct type of committee intended expressly to undertake the consideration of legislation. They were created by amendment to the Standing Orders in 1985 in response to recommendations of the Lefebvre and McGrath Committees. [89]  It was felt at the time that standing committees, with an expanded mandate to initiate studies without a specific reference from the House, would not also be able to readily deal with legislation. The solution proposed to this difficulty was the creation of legislative committees appointed solely to deal with bills. [90] They are appointed by the House on an ad hoc basis [91]  to deal with particular bills and cease to exist upon the presentation of their report to the House.

A legislative committee is required to be struck once second reading debate has begun on a bill which is to be referred to such a committee, or once debate has begun on a motion to appoint a legislative committee. The Procedure and House Affairs Committee must present a report containing a list of members within five sitting days of the beginning of the debate. [92]  The report is deemed adopted the moment it is presented in the House. The Speaker then appoints a Chair for the committee from the Panel of Chairmen. [93]  The legislative committee meets for the purpose of organization once the bill has been referred to it by the House. The organization meeting must take place within two days of the naming of the Chair and the adoption of the motion referring the bill to committee or appointing the committee. [94] 

Powers

A legislative committee is empowered to examine and enquire into the bill [95]  referred to it and to report the same with or without amendments. It is not empowered to present a report containing substantive recommendations concerning the bill. [96]  A legislative committee may also be created to prepare and to bring in a bill. [97]  In its examination, the committee may send for officials of government departments, agencies and Crown corporations and competent technical witnesses. [98]  It may send for papers and records, sit while the House is sitting, [99]  sit while the House stands adjourned, [100]  and print papers and evidence. [101]  A legislative committee may also delegate to a sub-committee on agenda and procedure the power to schedule meetings, send for witnesses, papers and records subject to approval by the full committee. [102]  The Board of Internal Economy may accord spending authority [103]  to legislative committees and a legislative committee may retain such expert, professional, technical and clerical staff as it deems necessary. [104] 

Should a legislative committee require additional powers, they can only be obtained by having the House adopt a motion to that effect. [105] 

Special Committees

Special committees are appointed by the House to carry out specific inquiries, studies or other tasks which the House judges of special importance. [106]  Each special committee is created by means of a motion agreed to by the House (in the case of special joint committees, by both Houses [107] ). This motion defines the committee’s mandate and usually enumerates other provisions: its powers, its membership and the deadline for submitting its final report. The actual terms of the motion vary from case to case, to suit the specific task for which the committee is being established by the House.

Special committees cease to exist with the presentation of their final report. [108]  Where a special committee has not completed its work by the end of a session, it ceases on prorogation, but it may be revived in a subsequent session. [109] 

Powers

Special committees possess only those powers that are provided to them by the House in the order of reference which establishes them [110]  or by subsequent motion. Depending on whether its mandate concerns a particular subject matter or consideration of a bill, a special committee may be given the powers of a standing [111]  or legislative [112]  committee. The House may provide special committees with additional powers such as the power to travel, [113]  special broadcasting powers [114]  or any other exceptional powers it deems necessary. [115]  The Board of Internal Economy may accord special committees spending authority. [116]  When a special committee requires additional powers to complete a study, it may, where it has been given the power to report from time to time, make a request for those powers in a report to the House. The House confers the requested powers by concurring in the committee’s report. [117]  Alternatively, the House may simply adopt a motion to confer the powers which the committee requires. [118] 

Joint Committees

Joint committees are composed of members of both the House of Commons and the Senate, and may be standing or special. Standing joint committees are permanent committees established pursuant to the Standing Orders of the House of Commons and the Rules of the Senate. [119]  They deal either with administrative matters related to both Houses or with matters having application throughout the federal sphere.

Special joint committees are established by motion of both Houses to deal with matters of great public importance. The House which wishes to initiate a special joint committee first adopts a motion to establish it and includes a provision inviting the other Chamber to participate in the proposed committee’s work. [120]  In addition to the subject of the study, the motion also includes any directions which the originating House may choose to give to the committee and the list of powers which are being delegated to it. The motion may also appoint the members of the committee or indicate how the membership will be established. Decisions of one House concerning the membership, mandate and powers of a proposed joint committee are communicated to the other House by message. While each House retains control of its own members on the committee, both Houses must be in agreement about the mandate and powers of the committee in order for it to be able to undertake its work. Once a request to participate in a joint committee is received, the other House, if it so desires, adopts a motion to establish such a committee and includes a provision to be returned, stating that it agrees to the request. Once the originating House has been informed of the agreement of the other Chamber, the committee can be organized. A special joint committee ceases to exist when it has presented its final report to both Houses, or at prorogation.

Mandate

Standing Joint Committees

The Standing Orders provide for three standing joint committees: Library of Parliament, Official Languages and Scrutiny of Regulations. [121]  The Standing Joint Committee on the Library of Parliament is charged with the review of the effectiveness, management and operation of the Library of Parliament, which serves both the House of Commons and the Senate. [122]  The mandate of this committee arises from a statutory provision giving direction and control of the Library to the Speakers of the House and Senate, with the provision that they are to be assisted by a joint committee. [123] 

The Standing Joint Committee on Official Languages is responsible for reviewing and reporting on official languages policies and programs including the reports of the Commissioner of Official Languages, which are deemed permanently referred to the Committee once they are tabled in the House. [124]  The mandate of this Committee arises from a statutory provision requiring that the administration of the Official Languages Act and reports made under the Act be permanently reviewed by a committee of one or both Houses. [125] 

The Standing Joint Committee for the Scrutiny of Regulations [126] is mandated to review and scrutinize statutory instruments. [127]  The Committee’s mandate is set out in part in the Standing Orders [128]  and in part in the Statute Revision Act and the Statutory Instruments Act[129]  At the beginning of each session, the Committee presents a report relating to its review of the regulatory process, proposing a more detailed mandate. When the report is concurred in, this proposed mandate then becomes an order of reference to the Committee for the remainder of the session. [130] 

Special Joint Committees

The mandate of a special joint committee is contained in the order of reference which establishes the committee. In recent years, special joint committees have been appointed to deal with such subjects as child custody, [131]  defence [132]  and foreign policy, [133]  a code of conduct for Members and Senators [134]  and Senate reform. [135]  Constitutional matters have often been dealt with by special joint committees. [136]  Special joint committees have also been appointed to deal with legislation, either by being empowered to prepare a bill, [137]  or to study a bill following second reading. [138] 

Powers

Because a joint committee exists only by order of both Houses, the powers provided to a joint committee by the House of Commons can be exercised by the committee only if a similar empowerment is provided by the Senate. [139]  Each House provides certain powers to its committees through the rules which it has adopted; additional powers, where required, must be provided for by special order. The motions conferring powers on a joint committee may vary in their terms as a result of differences in the rules of the two Houses, but in order for a power to be exercised by a joint committee, it must receive the power through orders from both Houses. Notably, Senate Rules prohibit committees from meeting during sittings of the Senate. [140]  In order for a joint committee to sit at any time (as it is permitted to do by the House), a special order must be adopted by the Senate. [141] 

Standing Joint Committees

The powers accorded to standing joint committees by the House are the same as those accorded to other standing committees of the House:

  • to examine and enquire into all such matters as the House may refer to them;
  • to report from time to time;
  • to send for persons, papers and records;
  • to sit when the House is sitting and to sit when the House stands adjourned;
  • to sit jointly with other committees of the House;
  • to print papers and evidence;
  • to delegate to sub-committees all of the other powers except the power to report directly to the House. [142] 

In addition, the Standing Orders provide standing joint committees with limited spending authority, [143]  and the power to broadcast, [144]  to hire expert, professional, technical and clerical staff, [145]  to establish a reduced quorum [146]  for the purpose of hearing testimony [147]  and to request a comprehensive response from the government to any report presented to the House. [148] 

Special Joint Committees

Special joint committees have only those powers which are set out in the order of reference which establishes each committee. The powers granted to special joint committees vary, depending on the mandate given to them. They may be granted powers similar to those granted to standing joint committees by the Standing Orders. [149]  They are often granted additional powers with respect to travel [150]  and the broadcasting of their proceedings. [151] 

Sub-committees

Sub-committees are to committees what committees are to the House; the parent body is relieved of a portion of its workload by delegating some part of its mandate or a particular task to a smaller group. Committees may establish sub-committees only if they have been empowered to do so. The House has, on occasion, established a sub-committee directly or ordered that a particular study be carried out by a sub-committee. [152]  Proceedings in sub-committees are of an informal, collegial nature. Their membership is often not proportional to the party representation on the main committee and members other than government members have been selected to chair sub-committees.

Standing committees (including, so far as the House is concerned, standing joint committees) are empowered to establish sub-committees. [153]  In forming sub-committees, standing committees may draw not only on the members of the main committee but also on its associate members. [154]  Special committees may establish sub-committees only if empowered to do so by the orders of reference which established them. The Liaison Committee, despite its limited mandate, is empowered to create sub-committees, drawing their membership both from the main committee and from the list of associate members. [155] 

A legislative committee is only permitted to establish a sub-committee on agenda and procedure, to which it may delegate the power to schedule meetings, to call for government officials and technical witnesses and to send for papers and records, subject to the approval of the main committee. [156]  As legislative committees have a very specific mandate (i.e., consideration of a bill), they do not require sub-committees for other than planning purposes. Depending on their workload, legislative committees have not always found it necessary to establish a sub-committee.

Most standing and special committees also find it convenient to establish a sub-committee on agenda and procedure, also called the steering committee, for planning purposes. [157]  Decisions reached by the sub-committee on agenda and procedure are subject to ratification by the full committee. This is done by means of concurrence in a report from the sub-committee, containing its recommendations on the organization of the committee’s work. [158] 

Mandate

Sub-committees receive their mandate in the order of reference adopted by the main committee. By practice, certain sub-committees are struck in every session and continue in operation until the end of the session: for example, the sub-committee on agenda and procedure [159]  and sub-committees charged with the responsibility for a specific aspect of the committee’s overall mandate. [160]  Sub-committees may also be formed to carry out a specific study; [161]  such sub-committees cease to exist once they have made their final report to the main committee. If their work is interrupted by prorogation, the main committee may decide to revive the sub-committee in the subsequent session. [162] 

Powers

Sub-committees possess only those powers which are conferred on them by the main committee. Sub-committees to which part of a committee’s permanent mandate is delegated, or those undertaking special studies, are usually given the full powers of the main committee. [163]  Where the House accords additional powers to a standing committee by special order, these powers may be accorded to sub-committees by the main committee. Special committees may delegate to a sub-committee any of the powers granted to them in the order of reference, including the power to travel or special broadcasting powers. [164]  However, sub-committees are restricted from reporting directly to the House. [165] 

Depending on the purpose for which it is established, a sub-committee may be given a more restricted list of powers than that possessed by the main committee. [166]  Sub-committees on agenda and procedure, as their function is only to plan the work of the main committee, are not ordinarily given powers with respect to the summoning of witnesses or sending for documents.

Where a sub-committee requires additional powers, it may put its request in the form of a report to the main committee. If the powers sought are beyond those that the main committee can delegate, the main committee may request them in a report to the House, or the House may adopt a motion granting them directly. [167] 

Membership

General Provisions

Committees cannot take up the responsibilities assigned to them until their membership has been named. At the commencement of the first session of a Parliament, [168]  a motion is typically moved by the Government House Leader [169]  to appoint the Standing Committee on Procedure and House Affairs to act as a striking committee, [170]  that is, to prepare a list of the members to serve on the standing committees of the House (or, in the case of standing joint committees, the House members on those committees). The Committee is also responsible for naming members to legislative committees and for dealing with changes to the membership of standing committees. It may also be called upon to report a proposed membership for a special committee. The membership of the Standing Committee on Procedural and House Affairs continues from session to session throughout the life of a Parliament. The Committee has chosen to delegate to the whips of the recognized parties the authority to strike the membership of committees. [171] 

Committee membership generally reflects the proportions of the various recognized parties in the House. Where the governing party has a majority in the House, it will also have a majority on every House committee. Independent members have not ordinarily been appointed to committees. [172] 

The membership of committees must be composed of Members of the House of Commons. They may serve on more than one committee. While no rule prevents any Member from being named to a committee, current practice normally excludes certain Members who have other parliamentary functions: the Speaker [173]  and other Chair occupants, [174]  Ministers [175]  (including the Prime Minister [176] ) and the leaders of recognized parties. Parliamentary Secretaries are usually named to the standing committees having a mandate in their area of responsibility. [177]  Lists of the members of standing, legislative and special committees, of sub-committees and of the Liaison Committee are appended weekly to the Debates and are available on the Parliamentary Website. [178] 

Only members of a committee (or officially designated substitutes) may move motions, vote and be counted as part of the quorum. Other members of the House may attend committee meetings, question witnesses and participate in the committee’s public proceedings, unless the House or the committee orders otherwise. They may not, however, move motions, vote or be part of a quorum. [179]  The attendance of other Members at in camera meetings is a matter for the committee to decide; however, they usually withdraw when the committee deliberates on a report to the House.

Standing Committees

The Standing Orders provide for standing committees to be composed of 16 to 18 members. [180]  Within 10 sitting days of its appointment at the beginning of a Parliament, the Standing Committee on Procedure and House Affairs is required to report to the House the list of standing committee members. [181]  The list of committee members must be revised annually within the first 10 sitting days following the summer adjournment as provided for in the parliamentary calendar, and again at the beginning of each new session, provided that only one such report is presented by the Committee between the third Monday in September and December 31. [182] 

The membership of standing committees comes into effect when the Procedure and House Affairs Committee’s report is concurred in by the House. [183]  Until such a report is concurred in, the committee membership previously approved by the House, if any, remains in force. [184] 

Legislative Committees

The Procedure and House Affairs Committee is also responsible for naming members to legislative committees, which are struck on an ad hoc basis. Within five sitting days of the commencement of debate on a motion to establish a legislative committee or to refer a bill to one, the Procedure and House Affairs Committee must meet to establish a membership list of not more than 15 members to serve as the legislative committee. [185]  The membership list does not include the Chair of the committee, who is named separately by the Speaker from the Panel of Chairmen. [186]  The report, which must be presented in the House no later than the following Thursday, [187]  is deemed adopted upon presentation.

Special Committees

The Standing Orders provide that special committees shall have no more than 15 members. [188]  The membership of special committees may be established in several ways: the order of reference establishing such a committee may include its members; [189]  the membership may be named separately by order of the House; [190]  or the order of reference establishing the special committee may contain an instruction to a striking committee to prepare and bring in a list of names of members. [191]  The report by a striking committee must be concurred in by the House.

Joint Committees

Joint committees, both standing and special, have memberships proportional to the relative size of both Houses. [192]  House membership on joint committees is established following the procedure for the corresponding type of House committee (i.e., standing or special). House membership on standing joint committees is determined by the concurrence in a report from the Procedure and House Affairs Committee. [193]  House membership on special joint committees may be included in the order of reference which establishes the committee; [194]  or it may be named later either by motion of the House [195]  or by concurrence in a report from the Procedure and House Affairs Committee. [196]  In every case, the House must inform the Senate of the members who will represent it by way of a message. This may be accomplished either by communicating the original order of reference (if it contains the membership list) [197]  or by a separate message. [198] 

Sub-committees

The membership of a sub-committee is usually determined by the main committee. Members of sub-committees may be named directly as part of the order of reference passed by the main committee [199]  or by the Chair of the main committee following consultations with the party whips. [200]  They can be selected either from the regular members of the committee or from the list of associate members established by the Procedure and House Affairs Committee. [201]  The House has, on occasion, named the members of a sub-committee directly. [202]  The main committee may alter the composition of a sub-committee it has named, but not that of one whose membership was named by the House. [203] 

Where committees have agreed to establish sub-committees on agenda and procedure (steering committees), their memberships have varied considerably to suit the needs of individual committees. This sub-committee typically consists of the Chair of the committee, the Vice-Chairs, representatives of each of the other recognized parties and, on committees having a departmental responsibility, the Parliamentary Secretary. [204] 

The membership of a sub-committee need not necessarily reflect the proportions of party membership either on the main committee or in the House itself. For ex-ample, the membership of the Sub-committee on Private Member’s Business has consisted of a Chair from the government party and a single representative from each recognized party. [205] 

Substitutions

In 1985, the McGrath Committee recommended that members be responsible for finding their own replacements when they were unable to attend committee meetings. [206]  When members of a standing or standing joint committee are unable to attend committee meetings, the Standing Orders provide for their replacement by designated substitutes. [207]  A substitute enjoys the same rights and privileges as the regular member of a committee being replaced. Substitutes are counted for purposes of establishing a quorum; they may participate in debate, move motions and vote. [208]  A substitution cannot be in effect while the committee member is present at the meeting. Thus, a member, such as the Parliamentary Secretary, who is called upon to appear as a witness before a committee of which he or she is a member, cannot be substituted at that meeting, but retains his or her right to participate and vote in any decisions the committee may take during the meeting. [209] 

Standing committee members may file with the clerk of the committee a list of the names of not more than 14 members of their party who may act as substitutes when required. The list is to be filed within five sitting days of the committee’s organization meeting, and amendments to it may be filed at later times as required. [210]  Notification of a proposed substitution from a list must be sent by the member to the party whip the day before it is to take effect. After signing the notification, the whip forwards it to the clerk of the committee. [211]  If no substitute list is filed with the clerk or no notice has been received by the clerk, the whip may initiate a substitution by filing a notice with the clerk of the committee. [212]  For the purpose of substitution, the whip may select any member of his or her party or the independent members listeas associate members of the committee. [213] 

The Standing Orders do not provide for substitutions in legislative committees. However, Members who are unable to carry out their duties on a legislative committee may be replaced by filing a change in membership, signed by the party whip, with the clerk of the committee. [214]  As there is no limit on the number and frequency of such changes, they serve both to make permanent changes to a committee’s membership and as a de facto substitution system.

Substitutions are permitted on special committees only where such a power is granted in their order of reference and only in the manner stipulated. The House has permitted substitutions on special committees in a manner similar to that used for standing committees [215]  and has also permitted special committee membership to be changed on signed notification of the Chief Whip of a party, as is done for legislative committees. [216]  As the order of reference of a special committee usually sets no limit on the number or frequency of such changes, they serve both to make permanent changes to the committee’s membership and as a de facto substitution system.

Committees do not normally make explicit provision for substitutions when establishing sub-committees. The membership of a sub-committee is often designated by indicating the number of members from each party who will form the sub-committee, rather than designating members by name. This permits any of the regular or associate members of a party on the main committee to attend a given meeting of the sub-committee, up to the maximum stipulated in its order of reference. [217] 

Associate Members

In addition to regular committee members, the Standing Orders also provide for associate members. Associate members are eligible to be named to sub-committees and to act as substitutes for regular members who are unable to attend committee meetings. While associate members are serving on sub-committees or as substitutes for regular members, they enjoy all of the rights of regular committee members: they are counted for purposes of establishing a quorum, they may participate in debate, they may move motions and vote. [218]  The use of associate members on sub-committees helps to reduce the workload of regular committee members. [219]  It also permits members with particular interest or expertise in the specific area being examined by the sub-committee to participate in its work, without being obliged to become a regular member of the main committee.

The Procedure and House Affairs Committee, in its capacity as striking committee, is responsible for preparing and bringing in a list of associate members for standing and standing joint committees. [220] 

Ex Officio Members

Some committees have appointed “ex officio members” who were not Members of the House to participate in various committee studies. These individuals, who represented groups specifically targeted by the studies, were permitted to pose questions to witnesses, participate in the committees’ deliberations and in the drafting of reports. They were not permitted to move motions or to vote, nor could they be counted for the purposes of quorum. [221] 

Changes in Membership

It is generally accepted that a Member is bound to serve on a committee to which he or she has been duly appointed. [222]  Members were formerly excused from service on a committee only if they could show some reason why they were unable to attend. [223]  As Members are named to committees by the House, they cannot simply resign. They may only be removed following a membership change or by a decision of the House. Committees themselves have no power to alter their own membership. In order to maintain the relative number of members of each party on a committee, the removal of a member is coupled with the naming of a replacement.

Where a Member wishes to resign from a standing committee, he or she may give notice of that intention in writing to the Procedure and House Affairs Committee. The Committee reports to the House indicating the names of the Member wishing to be removed from the standing committee and the new Member being named to it. The change takes effect when the House has concurred in the Committee’s report. [224] 

Changes in the membership of legislative committees are effected by having a notice thereof, signed by the Chief Whip of that member’s party, filed with the clerk of the committee. The notice indicates both the member being removed from the committee and the replacement. [225] 

Where the House makes provisions for changes to the membership of a special committee in the order of reference creating the committee, such provisions usually parallel those used for legislative committees. [226] 

Changes in the House membership of joint committees are made following the procedures used in the corresponding type of House committees (i.e., standing or special). [227] 

As the membership of sub-committees is normally established by designating a certain number of members from each party, rather than by naming specific individuals, no special provision is required for membership changes.

Chairs and Vice-Chairs

Role of Chairs

The Chair of a committee is responsible for recognizing members and witnesses who seek the floor and ensuring that any rules established by the committee concerning the apportioning of speaking time are respected. Furthermore, the Chair is also responsible for maintaining order in committee proceedings. However, the Chair does not have the power to censure disorder or decide questions of privilege; this can only be done by the House upon receiving a report from the committee. [228] 

As the presiding officer of the committee, the Chair does not move motions. Furthermore, the Chair does not vote, except in two situations: when a committee is considering a private bill, the Chair may vote like all other members of the committee; and, in all cases where there is an equality of votes, the Chair has a casting vote.

Reports to the House from the committee are signed by the Chair, who must ensure that the text presented in the House is the one agreed to by the committee. Committee reports to the House are usually presented by the Chair. [229]  During the Oral Question Period in the House, a committee Chair may respond to questions, provided they deal with the proceedings or schedule of the committee and not the substance of its work. [230] 

Any Member of the House may be asked to chair a committee, provided that, for all committees except legislative committees, he or she is a member of that committee. The Speaker and the Deputy Speaker have chaired a variety of committees on matters related to the House. [231]  The Deputy Speaker has also been called upon, as an ex officio member of the Panel of Chairmen, to chair legislative committees. [232]  Ministers, [233]  party leaders and independent Members [234]  do not normally serve on committees and, hence, do not act as Chairs.

Chairs of standing and special committees also often assume a leadership role in planning and co-ordinating the committee’s work and in conducting its investigations.

The Chairs of standing committees (and House Joint Chairs of standing joint committees) are ex officio members of the Liaison Committee, responsible for the allocation of funds to standing committees. [235] 

Chairs of legislative committees have a role analogous to the Chair of Committees of the Whole House. Selected from the all-party Panel of Chairmen by the Speaker, they preside without participating in the debate on substantive issues. This need for impartiality was cited by both the Lefebvre and the McGrath Committees as the justification for establishing the Panel of Chairmen for legislative committees. [236]  Some legislative committee Chairs have cited this principle of impartiality as grounds for abstaining from votes in the House on the bill they were to preside over in committee. [237]  Unlike the Chairs of other committees, the Chair of a legislative committee is not considered a member of the committee and is not counted as part of a quorum. [238] 

The Chair of a sub-committee has the same role as the Chair of the main committee. By practice, the Chair of the main committee serves as Chair of the sub-committee on agenda and procedure (the steering committee).

Role of Vice-Chairs

The Vice-Chairs of committees serve as replacements, presiding over meetings when the Chair is unable to attend. All of the Chair’s powers can be delegated to the Vice-Chair, but the Vice-Chair cannot preside over a committee meeting while the office of Chair is vacant. [239]  Normally, Vice-Chairs also serve as members of the sub-committee on agenda and procedure.

Acting Chairs

In the absence of the Chair and the Vice-Chairs of a committee, an Acting Chair must be chosen to preside over a committee meeting. With the committee’s consent, the Chair of a standing or special committee will often designate a member to act as Chair. Where no Acting Chair has been designated, the clerk of the committee presides over the election of an Acting Chair at the beginning of the meeting. The Chair of a legislative committee is empowered by Standing Order to designate a member of the committee as an Acting Chair. [240]  An Acting Chair has all of the powers and duties of the Chair while presiding but has no power to convene meetings of the committee or to preside when the office of Chair is vacant.

Election of the Chair and the Vice-Chair

The election of a committee Chair is the first order of a committee’s business. Chairs and Vice-Chairs are elected at the beginning of a session and, as necessary, during the course of a session. The election of the Chair, presided over by the clerk of the committee, proceeds by way of a motion, rather than the balloting procedure employed to elect the Speaker of the House. [241]  Where several different motions are proposed, the clerk may take those proposed after the initial motion as notices of motion. [242]  The motions are put to the committee seriatim until one of the motions is adopted. Only a regular member of the committee may be proposed for the position of Chair, but the member nominated need not be present at the meeting. When a committee Chair is elected in absentia, the clerk immediately proceeds to the election of an Acting Chair, who presides over the remainder of the meeting. [243] 

When a motion for the election of a Chair is made, the clerk will first ask if the committee agrees to the nominating motion and will, if necessary, call for the “yeas” and “nays”. Members are free to request that the vote be a recorded vote, that is, that the names of those voting for or against the nominating motion be recorded in the minutes. [244]  On occasion, committees have had recourse to a secret ballot. [245]  This is done only when the committee members express a unanimous desire to proceed in this manner. [246]  As the meeting is called pursuant to Standing Order for the sole purpose of electing a Chair, and since the committee is not properly constituted until the Chair has been selected, the clerk who presides over the election has no authority to hear points of order or to entertain any motion except that for the election of a Chair, not even a motion to establish the manner in which the committee wishes to proceed with that election. As well, in the event of a tie vote, the clerk does not have a casting vote.

If no motion proposing a member for the position of Chair is adopted, no other business can be transacted. When an impasse is evident, the members disperse and must be reconvened by the clerk at a later time, with the election of a Chair remaining their first order of business. [247] 

In the event of resignation or removal of the Chair from the committee, a new Chair must be elected before the committee can take up other business. [248]  This parallels proceedings in the House, where a vacancy in the office of Speaker necessitates the immediate election of a new Speaker before any other matter can be considered. [249]  Where the Chair announces his or her resignation as Chair at a committee meeting, the committee proceeds immediately to the election of a new Chair. [250] 

A standing committee must meet to elect a Chair within 10 days of concurrence in the Procedure and House Affairs Committee’s report establishing the committee membership. [251]  This normally occurs at the beginning of each session and following the presentation of the new membership report in September. Elections are held after the September report, whether or not there has been any change in committee membership. [252] 

Each standing committee elects a Chair and two Vice-Chairs of whom two must be government members and the third a member of the opposition. [253]  While the Standing Orders do not require it, the practice has been that the opposition member is from the Official Opposition. [254]  As well, the Chairs of standing committees have traditionally been government members, with the exception of the Chair of the Standing Committee on Public Accounts [255]  and the House Joint Chair of the Standing Joint Committee for the Scrutiny of Regulations, [256]  both of which elect Chairs from the Official Opposition. [257] 

The Chair of the committee (or, in the Chair’s absence, the Acting Chair) presides over the election of the Vice-Chairs. Where a committee is electing two Vice-Chairs, one from the government party and one from the opposition, there is no set order in which the elections must be held, and each committee is free to arrange its own proceedings. When a secret ballot is requested for the election of a Vice-Chair, the decision is made by adopting or rejecting a motion to that effect. As the committee is, with the election of the Chair, properly constituted, any decisions made with respect to the manner of proceeding are decided by a majority vote of the committee. [258]  If a Vice-Chair is elected in absentia, it is not necessary to proceed to the election of an Acting Vice-Chair. [259] 

The Panel of Chairmen for legislative committees is established at the beginning of each session and is composed of 12 members named by the Speaker in proportion to the party standings in the House, along with the Deputy Speaker and Chair of Committees of the Whole House, the Deputy Chair of Committees of the Whole House and the Assistant Deputy Chair of Committees of the Whole House. [260]  Unlike the practice with respect to standing and special committees, the Chair of a legislative committee may be a member of any of the parties in the House. [261]  The designation of the Chair by the Speaker, rather than his or her election by the committee, assists the Chair of a legislative committee in acting as a neutral arbitrator of the proceedings. [262]  The Speaker selects the Chair of a legislative committee once the membership of the committee has been established. [263]  Legislative committees do not elect Vice-Chairs. When a replacement for the Chair is necessary at a given meeting, the Chair will designate a committee member to act in that capacity for the meeting. [264] 

Chairs of special committees are elected following the procedure used in standing committees.&bnsp;[265]  This election takes place as the first order of business at the initial meeting of the committee, convened by the clerk for that purpose. [266] 

In standing joint committees, two Joint Chairs are elected, one from each House. The Senate Joint Chair is elected first, followed by the Joint Chair of the House of Commons. The election of each Chair is presided over by the Joint Clerk from the respective House. All committee members are entitled to vote on the motions for the Joint Chairs from each House. [267]  The Joint Chairs of special joint committees are elected following the procedure used in standing joint committees. [268] 

The practice with respect to the election of Vice-Chairs is variable in joint committees: they may choose not to have any Vice-Chairs, to elect one only, or to elect two, who may either be from one or both Houses. [269]  In standing joint committees, when the House Joint Chair is a member of the government party, the committee usually chooses a member from the Official Opposition in the House as Vice-Chair. The opposite also holds true. For example, in the Standing Joint Committee for the Scrutiny of Regulations, where the House Joint Chair is traditionally from the Official Opposition, a government member from the House is usually elected as Vice-Chair. [270]  Special joint committees rarely elect Vice-Chairs. [271] 

In establishing sub-committees, the main committee may either designate a Chair in the initial order of reference [272]  or allow the members of the sub-committee to elect the Chair themselves. [273]  While most sub-committees are chaired by government members, Chairs have been selected among members of the opposition, [274]  including parties other than the Official Opposition. [275]  Given the small size of their membership and their limited mandates, sub-committees do not usually find it necessary to elect Vice-Chairs. [276] 

Resignations

In the event that the elected Chair of a committee resigns or is for any reason unable to carry out his or her duties, the committee must proceed to elect a new Chair as its first order of business. As the committee ceases to be properly constituted until a new Chair has been selected, the election is presided over by the clerk of the committee. The Vice-Chair has no role to play in the election of a new Chair. When a Vice-Chair is elected Chair of a committee, he or she resigns from the office of Vice-Chair. [277] 

In the case of the resignation of a Chair who has been designated either by the Speaker (in the case of a legislative committee) or by the House (in the case of some special committees), a new Chair must be designated before the committee can continue with its work. [278] 

The Chair of a committee presides over any election necessitated by the resignation of a Vice-Chair. [279] 

Committee Staff

In the execution of its functions, each committee is assisted normally by a clerk and a researcher; the clerk, in turn, receives assistance from the support services of the House.

Committee Clerk

The clerk of a committee is the procedural advisor to the Chair and all members of the committee and also acts as its administrative officer. The role of the committee clerk is analogous to that which the Clerk of the House has with respect to the Speaker and Members of the House. As a non-partisan and independent officer, the clerk serves equally all members of the committee as well as representatives of all parties; clerks discharge their duties and responsibilities with respect to the committee in consultation with the Chair. The clerk also acts as the committee’s liaison with other branches and services of the House of Commons.

Research Staff

The Library of Parliament provides research staff to all committees on request. The researchers provide briefing material and other background material to committee members. They may identify potential witnesses for the committee as well as possible lines of questioning during committee hearings and provide assistance to the committee in the drafting of reports to the House. Committees are free to seek additional or more specialized research help from outside the Library of Parliament if they require it. This is done on an ad hoc basis and the committee is required to pay for the assistance of outside researchers from its own budget.

Other Staff

On occasion, committees may engage outside consultants on contract to assist them in a study requiring a particular expertise. They may also hire additional support staff as the need arises. [280]  Engaging staff on a contract basis requires the adoption of a motion by the committee, which must specify the mandate and duration of the contract and a maximum rate or amount of remuneration. [281]  Outside staff engaged by a committee are paid from the committee’s budget, in conformity with the guidelines set out by the Board of Internal Economy. [282] 

Meetings

Committees conduct their deliberations and make decisions within the framework of meetings. In order to accommodate the wide variety of subjects that a committee may be called upon to consider, considerable latitude is permitted in the format that committee meetings may take. At the same time, there are a number of rules and practices by which committees are bound in transacting their business.

Meetings of committees usually take place in specially equipped rooms in the Parliament Buildings, but committees may hold meetings elsewhere in Canada. The meeting rooms are usually arranged in an open-rectangle configuration. The Chair sits at one end, flanked by the clerk and the research staff. Government members are at the Chair’s right, while opposition members sit on the left. Witnesses, if any, sit at the end of the rectangle opposite the Chair. Members’ staff sit behind the members on either side of the room and there is seating for the public and the press at the rear of the room, behind the witnesses. (See Figure 20.1, Committee Room Configuration.)

Committee meetings are ordinarily open to the public and the media. Simultaneous interpretation services are offered to committee members, witnesses and members of the public at all committee meetings. Public meetings are broadcast on the House of Commons’ internal audio system to all Members of the House and the Parliamentary Press Gallery and may also be publicly televised over the CPAC network. [283] 

Figure 20.1 – Committee Room Configuration
Graphic representation a committee room. In the centre of the room are a series of tables, set in a rectangle, with chairs around the periphery representing the seats for committee members. At the top of rectangle of tables are seats for the committee chair, clerk and research staff. To the right and left of these tables are tables and chairs for Members’ staff. To the top left of the image is a box representing the console operator and to the top left, the receptionist. To the bottom of the image are seats for the public and journalists and a booth for interpreters.

Figure 20.2 – A Committee Room
Photograph of a typical committee room, showing several tables placed in a rectangular format, surrounded by chairs. At the front of the room is a large podium for the console operator.

Types of Meetings

Most committee meetings can be described as evidence-gathering meetings. They have traditionally commenced with presentations made by witnesses, followed by a question and answer period during which committee members have the opportunity to explore selected aspects of an issue in greater detail. In recent years, there has been a growing trend towards gathering evidence in other manners to meet the changing needs of members and to take the best possible advantage of technological developments. Committees may hold meetings to exchange ideas with panels of witnesses representing different points of views in “round-table” discussions. [284]  As well, “town hall” meetings may be organized where members of the public have an opportunity to express their views without making a formal presentation to the committee. [285]  Committees have also taken advantage of developing videoconference technology to hear testimony from across the country and internationally. [286] Where a subject is of interest to two or more standing committees, they may decide to hold a joint meeting. [287]  While the use of these formats has, for the most part, taken place within the existing procedural framework, some modification of the Standing Orders has been necessary. [288] 

On occasion, a committee may decide to hold an in camera meeting to deal with administrative matters, to consider a draft report or to receive a routine background briefing. Committees also meet in camera to deal with subject matters requiring confidentiality, such as national security. [289]  Often a committee which has several items on its agenda will hold part of a meeting in public and part in camera. At in camera meetings, neither the public nor the media is permitted, and there is no broadcasting of any kind. The committee decides, either on a case by case basis or as a matter of general policy, whether a transcript of in camera proceedings is to be kept. [290]  Minutes of in camera meetings are publicly available, but certain information usually found in the minutes of committee meetings is not included. [291]  Members of the House who are not members of the committee are expected to withdraw when a committee is meeting in camera[292]  However, at the discretion of the committee, non-members may remain during in camera sessions. [293]  Divulging any part of the proceedings of an in camera committee meeting has been ruled by the Speaker to constitute a prima facie matter of privilege. [294] 

Committees also meet informally with parliamentarians and government officials from other countries. [295]  As an informal meeting is not, strictly speaking, a committee meeting, it may take place in a much more relaxed atmosphere. Members are not bound by the ordinary rules and practices that govern committee meetings. The proceedings are not recorded or transcribed, nor is the committee entitled to any of the privileges associated with parliamentary proceedings or to exercise any of the powers which the House has conferred on it.

Meetings Outside the Precinct of Parliament

Committees ordinarily meet on Parliament Hill in the facilities provided for them by the House of Commons. From time to time, committees also travel for the purpose of gathering evidence, consulting or visiting sites related to their study. In order to hold such meetings beyond the parliamentary precinct, a committee must first obtain approval from the Liaison Committee for the necessary travel funds and then the permission of the House to travel. [296]  The House may grant permission to travel by adopting a motion to that effect or by concurring in a report recommending that such permission be given. [297] 

Committees empowered to hold hearings elsewhere in Canada do so in the same manner as on Parliament Hill. The testimony and deliberations of the committee are recorded and made public, the committee retains all of the powers accorded to it by standing or special orders, and committee members and witnesses are protected by parliamentary privilege.

When travelling outside of Canada, committees have the opportunity to consult with groups and individuals and to visit facilities. When conducting hearings outside the country, committees do not hold formal hearings. [298]  The powers which the House delegates to committees are of no force when a committee is outside of Canada, nor are committee proceedings protected by parliamentary privilege.

Videoconferences

As an alternative to committee or witness travel, committees from time to time also make use of videoconferencing technology to hear witnesses from outside Ottawa, either elsewhere in Canada or internationally. [299]  Videoconferencing provides for direct audio and video transmission between a committee room on Parliament Hill and a witness in another location. On occasion, several witnesses in different locations are linked with a committee simultaneously. Special permission of the House is not required for committees to hold videoconference meetings. [300]

Times of Sitting and Room Allocation

Standing and legislative committees are empowered to sit either when the House is sitting or when it stands adjourned, and similar powers are usually accorded to special committees in their orders of reference. [301]  However, committees may not sit when Parliament is prorogued. [302]  During periods when the House is sitting, most committee meetings take place on Tuesdays, Wednesdays and Thursdays. While the average length of a committee meeting is two hours, a committee may choose to meet for a shorter or longer period as it sees fit. [303]  While committees usually adjourn or suspend their proceedings when the division bells summon Members to the Chamber for a vote, committees may continue to sit while a vote is being held. [304] 

Standing committees are prohibited from sitting at the same time as a legislative committee studying a bill which emanates from, or principally affects, the department for which they are responsible. [305]  No such prohibition exists with respect to a standing committee sitting while the House itself is considering such a bill. [306]  When the House is actually sitting, committees studying legislation or Estimates have priority over all other committees. [307]  When the House is not sitting, priority is given to meetings of standing, special and joint committees in accordance with a schedule established by the Chief Government Whip in consultation with the other parties. [308] 

Committee meeting rooms provided by the House of Commons are allocated according to a priority system established by a report of the Standing Committee on Procedure and House Affairs. [309]  The Committee’s report typically gives each committee priority of access to multi-purpose meeting rooms at set times. [310] The Committee may adjust the room allocation system from time to time, either to reflect changes in committee structure or to take into account requests made by individual committees. [311]  Special committees are given priority during periods other than those allotted to standing committees. Committees may meet during any period, even if they do not have priority access to meeting rooms, provided that there is space available. For committees which do not have priority in a given time period, access to meeting rooms is on a first-come-first-served basis, after those entitled to meet at that time.

Committees meeting in locations other than the meeting rooms on Parliament Hill are not bound by the room priorities established by the Standing Committee on Procedure and House Affairs. However, they must still respect the stipulation in the Standing Orders concerning conflicts between standing and legislative committees. [312]  Furthermore, any meeting not held in the facilities provided by Parliament entails the expenditure of funds from the committee’s budget and requires the permission of the House. [313] 

Convening a Meeting

Committee members are convened, that is, called together for the purpose of meeting, by the Chair, acting either on a decision made by the committee [314]  or on his or her own authority. [315]  On rare occasions, the House itself may instruct a committee to meet at a specific time. [316]  The clerk of the committee, on instructions from the Chair, sends a notice of each upcoming meeting to all committee members. Where a committee has not made a formal decision concerning the convening of its members, either by adopting a work plan or by concurring in a steering committee report, the Chair usually consults with members informally concerning possible future meetings.

Where a committee decides to sit jointly with another committee or committees, each committee is convened separately by its Chair. [317]  Meetings of joint committees are usually convened by one or other of the Joint Chairs. [318]  A sub-committee is convened by agreement of its members or by its Chair in the same manner as the main committee. Meetings may be convened on the Chair’s instructions when he or she is unavailable to preside, but a Vice-Chair has no power to convene the committee when the office of Chair is vacant.

Notice of Meeting

A committee meeting is convened by a notice sent to the members by the clerk, in accordance with the Chair’s instructions. The notice is sent electronically to the Parliament Hill offices of committee members over the House of Commons local area network. [319] The notice indicates the subject matter of the meeting and the authority under which the committee will meet, [320]  as well as the time and place of the meeting. The notice also provides other relevant information: the meeting number, [321] whether the meeting is public or in camera, whether it will be broadcast on the CPAC television network, and the names of any scheduled witnesses. The notice also indicates whether the witnesses will appear in person or by videoconference and provides the radio frequencies on which public meetings will be broadcast over the House of Commons’ internal network. [322] As well as informing the committee members of an upcoming meeting, the notice also serves to alert the various administrative components of the House which provide logistical support for meetings — maintenance, transcription, interpretation, security and the messenger service. It is sent as well to the Parliamentary Press Gallery.

Meeting Convened at the Request of Four Members

An individual member of a committee, other than the Chair, cannot convene a committee meeting. [323]  The Standing Orders provide, however, that four members of a standing committee may make a request in writing that the committee meet. The request must specify the reasons for which the meeting is to be convened, and the Chair must then convene the meeting within 10 sitting days of the receipt of the request. Forty-eight hours’ notice of such a meeting must be given to the members. [324] 

The matter under consideration at such a meeting is whether or not the committee wishes to take up the requested subject, rather than deliberations on the subject itself. There is no obligation on the committee either to conclude debate on the proposal to study a particular topic or to reach a decision on it. The Chair may agree to consider the matter at a meeting that has already been scheduled, rather than calling a meeting for that purpose alone. [325] 

Cancelling a Meeting

Circumstances sometimes arise which make it necessary to cancel a committee meeting, after a notice convening the committee has been sent. Where a committee has agreed to adjourn to the call of the Chair, the Chair instructs the clerk to send an amendment to the notice convening the members, informing them of the cancellation. Where the meeting has been convened by order of the committee, the Chair consults with representatives of the various parties before sending the cancellation notice. In joint committees, the committee may decide whether a single Joint Chair may convene or cancel meetings or whether both Joint Chairs must act together. [326] 

Adjournment

Committees most often adjourn to the call of the Chair, that is, the decision as to the exact time of the next meeting is left to the discretion of the Chair. [327]  This is done even when the committee has adopted a workplan that lays out in detail its schedule of meetings. In this way, the Chair is given the flexibility to respond effectively to changing events and to the unforeseen availability or unavailability of potential witnesses. Committees may also adjourn to a specific time. [328]  This is usually done when the next meeting is scheduled for the immediate future, for example, the next day or later the same day. Committees may, on occasion, adjourn without making any provision for a future meeting, that is, to adjourn sine die[329] 

Quorum

In order to exercise the powers granted to it by the House, a committee is required by the Standing Orders to have a quorum at its meetings. A quorum is the minimum number of committee members who must be present in order for a committee to make decisions. In the case of standing, legislative or special committees, a quorum is a majority of the members. [330]  The Chair of a legislative committee, who is named by the Speaker from the Panel of Chairmen, is not counted for the purpose of establishing a quorum. Members of the House who are present at committees are not counted as part of the quorum unless they are either members of the committee or properly designated substitutes. As a courtesy, most committees do not begin their meetings until at least one member of the opposition is in attendance, even if a quorum is present. However, committees may meet and adopt motions in the absence of one or all opposition parties. [331] 

The quorum for joint committees is not provided for in the Standing Orders but is established separately. Standing joint committees usually present reports to both Houses recommending the number of their members which should constitute a quorum. The quorum is set when the two Houses concur in the report. [332]  The quorum for a special joint committee is usually set out in the order of reference which establishes it. [333]  For all joint committees, it is common to stipulate that the quorum requires the presence of members from both Houses. [334] 

Meeting Without a Quorum

The Standing Orders permit standing and legislative committees to authorize the Chair of the committee to hold meetings when a quorum is not present, for the purpose of taking evidence. [335]  A similar provision is often included in the order by which a special committee is established. [336]  In granting permission for such meetings, committees usually stipulate the number of members it wishes to be present for the meeting to take place. The motion granting permission to meet with what is called a “reduced quorum” will usually also indicate any other conditions the committee wishes to have met. [337]  No motions may be moved at such meetings nor may any votes be held. Committees do, however, retain the power to publish the evidence received at meetings held with a reduced quorum. [338] 

Organization Meeting

Before a committee can begin to consider its work, it must be properly constituted, that is, its members must have been appointed and a Chair selected. [339] Where the Chair has not been appointed by the House or named by the Speaker, the election of the Chair takes place at a committee’s first meeting, [340] called the “organization” meeting.

A notice of an organization meeting of a standing committee is sent by the clerk in conformity with provisions of the Standing Orders, which require that the committee meet within 10 sitting days of the adoption of the report establishing the membership of the standing committees. [341]  Members must be given at least 48 hours’ notice of this meeting. [342]  The authority of the clerk in convening a meeting for the purposes of organization of a standing committee is restricted to the election of the Chair. [343]  While a committee may limit its organization meeting to the election of a Chair, in practice it is common to proceed immediately to the election of the Vice-Chairs. [344] The committee may then consider a series of administrative motions, called “routine” motions, to facilitate its work over the course of the session.

As the Chairs of legislative committees are named by the Speaker from the Panel of Chairs, these committees are not required to meet for the purpose of organization. However, they must meet to begin their work within two sitting days of the naming of the Chair and the appointment by the House of their membership or the referral of a bill to the committee. [345]  The notice for the first meeting of a legislative committee is thus sent on the Chair’s authority.

The Standing Orders contain no provision with respect to when the first meeting of a special committee must take place, nor is it usual to include such a provision in the order of reference which establishes such a committee. When the Chair of a special committee is not named in the order of reference, the organization meeting is convened by the Clerk of the House, following informal consultations among the parties, and the notice is sent by the clerk of the Committee. When the Chair is named in the order of reference, then the meeting is convened by the Chair in the usual fashion.

Routine Motions

As they begin their work, committees find it convenient to adopt a series of motions to deal with items of routine business. Since each committee is free to organize its work as it sees fit, there is no standard list of “routine” motions which every committee must adopt. The following is a list of the principal routine motions which committees have found useful. In many instances, a committee will adapt these motions in order to suit its own particular circumstances.

Examples of each type of routine motion are given in the boxes which follow the description. Note that the examples given below are for purposes of illustration only.

Sub-committee on Agenda and Procedure

Most committees establish from among their members a sub-committee on agenda and procedure, usually referred to as the “steering committee”. The steering committee recommends how the committee should proceed to consider its orders of reference and advises on such topics as the selection of witnesses and the schedule of meetings. The composition of the steering committee may vary from one committee to another and from one Parliament to another. It usually consists of the Chair, the Vice-Chairs, representatives from each of the other parties and, on committees having a departmental responsibility, the Parliamentary Secretary. As a steering committee usually meets in camera for the purpose of discussing the future business of the committee, no specific delegation of powers is made in establishing it. Since the recommendations of the steering committee are reported to the main committee and so appear in the Minutes, steering committees do not require the power to print and do not publish their own minutes.

That the Sub-Committee on Agenda and Procedure be composed of the Chair, the Government Vice-Chair, the Parliamentary Secretary, two Liberal members, one member from the Reform Party, one member from the Bloc Québécois Party, one member from the New Democratic Party, and one member from the Progressive Conservative Party. [346] 

Research Assistance

In order to carry out their work, committees seek the assistance of expert researchers from the staff of the Library of Parliament. The usual motion leaves the control and coordination of the research staff to the Chair of the committee.

That the Committee retain the services of one or more research officers from the Library of Parliament, as needed, to assist the Committee in its work, at the discre tion of the Chair. [347] 

Meeting Without a Quorum

Committees may authorize the Chair to hold meetings for the sole purpose of hearing evidence when a quorum is not present. [348]  Although the Standing Orders would permit the Chair to hear evidence when no other member is present, it is more usual for the committee to stipulate some minimum number of members who must be present in order for the committee to hear witnesses. [349]  This number is referred to as a “reduced quorum”. Another element which committees take into consideration in establishing a reduced quorum is whether any or all of the opposition parties need to be in attendance. [350] 

That the Chair be authorized to hold meetings and to receive evidence when a quo rum is not present, provided that at least five members are present, including two members of the opposition. [351] 

Time for Opening Remarks and Questioning of Witnesses

When hearing witnesses, committees normally set limits on the time each group or individual is given to make their opening presentation. They also set out the length of time that will be devoted to questioning by committee members and how that time will be divided among the members of the various parties represented on the committee. The division of time for questioning may change from Parliament to Parliament to reflect changes in the number of parties represented on committees. Each committee seeks to balance, as best it can, the desire to ensure that representatives of all parties have the opportunity to put questions. As well, some committees adopt special rules for the questioning of Ministers. [352] 

That witnesses be given five minutes to make their opening statement.

That five minutes be allocated to each questioner in the following order: On the first round of questioning — five minutes each to the Reform and Bloc Québécois parties, five minutes to the Liberal Party and five minutes each to the NDP and Conservative parties. On the following rounds of questioning — five minutes per party alternating between the government and opposition parties.

That the five-minute allocation for questioning be applied for all witnesses, including Ministers. [353] 

Witness Expenses

Whether attending meetings held on Parliament Hill or those held while a committee is travelling across Canada, many witnesses incur significant expenses in travelling to appear before committees. As no expenditure can be made from committee funds without committee approval, it is necessary that a motion be adopted setting out the conditions under which witness expenses are to be paid. The Board of Internal Economy has set out guidelines for acceptable levels of reimbursement, but it is up to each committee to decide under what circumstances they will agree to reimburse witnesses. [354] 

That, as established by the Board of Internal Economy and if requested, reasona ble travelling, accommodation and living expenses be reimbursed to witnesses who are invited to appear before the Committee up to a maximum of two representatives for any one organization, and that payment for more than two representatives in exceptional circumstances be at the discretion of the Chair. [355] 

Document Distribution

Members of the House of Commons are entitled to receive documents in the official language of their choice. At the same time, members of the public have the right to communicate with a parliamentary committee in either official language. [356]  This frequently leads to the situation where a document is presented in a single official language to a committee, while the committee members are entitled to receive it in whichever official language they prefer. Committees must balance the right of members to be treated equally with the benefits they derive from receiving documents in a timely manner. Each committee must decide whether documents submitted to it in only one official language will be distributed to members immediately or once a translation is available.

That the Clerk of the Committee be authorized to circulate the documents received only when they exist in both official languages. [357] 

or

That the Clerk of the Committee be authorized to distribute documents to the Members of the Committee in the language received, and to ensure that such docu ments are translated and distributed as promptly as possible. [358] 

Transcripts of In Camera Meetings

While no public record is produced of what is said during in camera proceedings, committees often find it useful to have a transcript produced for the private consultation of the members and staff of the committee. In addition to deciding whether or not to keep a transcript of an in camera meeting, the committee must also decide how such transcripts will be disposed of at the end of the session (i.e., whether they will be made part of the committee’s permanent record for historical purposes, or destroyed). Committees sometimes prefer to deal with the question of the disposal of in camera transcripts on a case-by-case basis. [359] 

That in camera meetings be transcribed; that the transcription be kept with the Clerk of the Committee for consultation by members of the Committee; and that these transcripts be destroyed at the end of the session. [360] 

Staff at In Camera Meetings

Committees normally exclude everyone from in camera meetings except members, committee staff and invited witnesses. [361]  Members often find it useful, however, to modify this policy by permitting members of their personal office staff to attend. At the same time, it is recognized that the committee may from time to time wish to adopt a more strict interpretation of the in camera rule. [362] 

That each Committee member be allowed to have one staff person present at in camera meetings, unless there is a decision for a particular meeting to exclude all staff. [363] 

Order-in-Council Appointments

The referral of Order-in-Council appointments to committees and their review of such appointments are governed by the Standing Orders. As some committees receive notice of a large number of appointees during the course of a year, it is necessary for each committee to decide how it will deal with its responsibility for the consideration of the nominations and the documentation associated with each one. [364] 

That, pursuant to Standing Order 111(4), whenever an Order in Council for appoint ment or a certificate of nomination for appointment is referred to the Committee, the Clerk shall obtain and circulate to each member of the Committee a copy of the résumé of each appointee. [365] 

Notice of Motion

Neither the Standing Orders nor usual practice in committees require the giving of notice prior to presenting a motion in committee. However, in order to better balance their workload and make efficient use of their time, committees sometimes find it appropriate to adopt notice requirements. Thus, when a member wishes to raise a new topic for consideration, committee members have an opportunity to reflect on it beforehand, rather than having the motion placed before the committee without warning. This also prevents undue interruption of a meeting or a series of meetings already planned. [366]  Committees may also decide to have such notices considered by the steering committee in proposing a work plan for the committee. Such consideration does not prevent the member who gave notice from moving the motion when the notice period has expired.

In imposing a notice requirement, committees must consider what types of motions will require notice, how notice is to be given (whether orally or in writing) and to whom (the Chair or the clerk). They must also determine how the other members of the committee are to be informed of the proposed motion, as committees do not have a Notice Paper.

That forty-eight (48) hours’ notice be given to the members of the Committee before any substantive motion is considered, but this rule does not apply to a motion in amendment to a Bill considered by the Committee… .

That the motion be filed with the Clerk of the Committee and circulated to all members in both official languages. Upon receipt of the notice, the Clerk will put the motion on the agenda of the Steering Committee’s next meeting. [367] 

In addition to the routine motions listed above, there are a wide range of motions related to procedure and administration that committees may adopt from time to time. Some are related to particular kinds of committees only, while others deal with specific aspects of a committee’s work, such as the preparation of a report to the House. Certain committees routinely adopt motions which relate specifically to their mandate or work methodology, which are not pertinent to other committees. [368] 

Budgets

Many of the routine operational expenses of committees are borne directly by the House of Commons’ administration. [369] Standing committee budgets are drawn up on a project-by-project basis [370]  and each budget must be adopted by a committee before it is submitted to the Liaison Committee for approval. [371]  Although committees are provided with limited interim spending authority, [372]  they require approval of the Liaison Committee for any expenditures which exceed the amount initially allocated. [373]  In addition to project funds, all requests for travel funds must be part of a separate budget request, just as the power to travel must be specially sought from the House. [374] 

Special and legislative committees make their budget requests directly to the Board of Internal Economy. [375]  The budgets of joint committees are provided by the two Houses in proportion to the size of each House. In order to obtain budgetary approval, it is necessary for standing joint committees to present their budgets to both the Liaison Committee and the Senate Committee on Internal Economy. [376]  Special joint committees require budgetary approval from the Board of Internal Economy and the Senate Committee on Internal Economy. [377] 

Orders of Reference and Instructions

An order of reference is an order of the House to a committee instructing it to consider a matter or defining the scope of its deliberations. Committees are provided with orders of reference when they are established and may receive additional orders from time to time.

The Standing Orders provide standing committees with permanent orders of reference by giving them departmental and policy-area responsibilities. [378]  In addition, the Standing Orders provide that a number of other matters shall be routinely referred to standing committees for consideration: reports and other documents tabled in the House pursuant to statute, [379]  the Estimates, [380]  Order-in-Council appointments [381]  and legislation. [382]  While the Standing Orders provide that these matters shall be referred to committee, the House must specify the committee to which each referral is made by separate motion. [383]  With respect to documents, including Order-in-Council appointments, the committee to which they are referred is specified when the documents are tabled. In addition to the orders of reference contained in the Standing Orders, the House reserves the right to refer additional matters to its committees as it sees fit. Committees may also receive orders of reference which derive from statutes previously passed by Parliament. [384] 

When a bill is referred to a committee, the bill itself constitutes the order of reference. When a special committee is established, the order of reference is contained in the motion establishing it. [385]  Joint committees receive their orders of reference from both Houses. While the Standing Orders set out mandates for the three standing joint committees, [386]  no similar provisions exist in the Rules of the Senate. [387] 

Committees are bound by their orders of reference and may not undertake studies or make recommendations to the House which go beyond the limits established by them. [388]  In particular, a committee studying a bill may report it with or without amendments, but may not include any comments or recommendations in its report. [389]  With the broad powers which standing committees have had since 1986, [390]  they may make recommendations to the House related to a bill which has been referred to them. Such recommendations must, however, be presented to the House in a report separate from the report on the bill. [391] 

In addition to a committee’s initial order of reference, the House may issue further directions to the committee once it has begun a particular study. Directions of this sort are called “instructions” and are sometimes mandatory, but usually permissive. A mandatory instruction is one which directs a committee to deal with a particular issue or to conduct its study in a certain way. [392]  A permissive instruction gives a committee the power to do something it would not otherwise be able to do, but does not compel the committee to use that power. For example, the House may adopt a motion which provides the committee with the power to travel or to report at a later time than envisaged in the initial order of reference. [393]  The Standing Orders contain provisions to permit either a Minister or a private Member to move a motion instructing a standing, special or legislative committee to prepare and bring in a bill. [394] 

Conduct of Meetings

In general, the rules governing the process of debate in committees are the same as those in the House of Commons. [395] However, the Standing Orders exempt committees from certain rules which apply in the House: those governing the election of the Speaker, the seconding of motions and limiting the number of times a member may speak on an issue and the length of speeches. [396]  This exemption is permissive in nature; each committee may formulate its own rules with respect to these subjects, provided it does not exceed the powers which the House has delegated to it. [397] 

Deliberations in committee are often conducted in an informal atmosphere. The much smaller size of committees, in comparison with the House, and the specific mandates they are given have led to certain adaptations of House procedures in order to enhance the effectiveness of deliberations in committee.

Generally, the length of time to be devoted to a particular topic is a matter for the committee to decide. This may be done formally, by adopting a work plan, or by simply allowing committee members to discuss an issue until they are ready to make a decision. [398]  Committees routinely limit the amount of time available for presentations by witnesses and allocate time for rounds of questioning by committee members. [399] As there is no limit in committee to the number of times of speaking or the length of speeches, committees may, if they choose, place limits on their own deliberations. [400]  However, certain matters which are routinely referred to standing committees pursuant to Standing Order contain limits to the length of the committee’s consideration. The Standing Orders place limits on committee consideration of a number of matters: the Estimates, the pre-budget consultations of the Finance Committee, private Members’ public bills and Order-in-Council appointments. In the case of the Estimates and private Members’ bills, the committee must either report by a certain time or it is deemed to have done so, in which case the matter no longer stands referred to the committee. Consideration of Order-in-Council appointments is limited to 10 consecutive sitting days of the House, although the committee is not obliged to report to the House. With respect to pre-budget consultations, reports must be presented by a specific deadline, but there is no obligation on the part of the Committee to report. [401]  The House may also, from time to time, impose limits on a committee’s consideration of matters referred to it. [402] 

Authority of the Chair

The Chair presides over the deliberations in committee, recognizing speakers [403] and ensuring that the deliberations adhere to established practices and rules, as well as to any particular requirements which the committee may have imposed upon itself and its members. The order of speakers may be left to the Chair’s discretion; however, committees normally adopt a motion to govern the rotation of questioners, by party, when witnesses appear before them. [404] The Chair also puts the question on all motions before the committee and announces the results of any vote.

The Chair may, at his or her discretion, interrupt a member whose remarks or questions are repetitious, or not relevant to the matter before the committee. If a member’s comments continue to be repetitious or irrelevant, the Chair may recognize another member. If the offending member refuses to yield the floor and continues speaking, the Chair may suspend or adjourn the meeting. A point of order calling attention to a departure from the Standing Orders or from the customary manner in which a committee has conducted its proceedings may be raised at any time, by any member of the committee. In doubtful or unprovided cases, the Chair may reserve his or her decision. [405] 

While the Chair’s rulings are not subject to debate, they may be appealed to the committee. [406]  A member appeals a ruling by requesting that the committee vote on the motion, “That the Chair’s ruling be sustained.” [407]  In the event of a tie vote on an appeal, the decision of the Chair is sustained. [408]  The overturning of a ruling is not necessarily considered a matter of confidence in the Chair. While the decisions made by a Chair are binding on the committee, they do not, however, constitute precedents which bind other committees, nor do they bind subsequent Chairs of the committee in which they are made.

Right to Speak

Members must be recognized by the Chair before speaking. On occasion, committees place strict limits on the amount of time during which a given item will be considered. [409]  In other cases, committee members are free to discuss a matter for as long as they see fit. Members of the House attending committee meetings who are not committee members or substitutes may, at the discretion of the committee, participate in the deliberations. However, they do not have the right to present motions, to vote or to be counted in the quorum. [410]  Although they ordinarily withdraw when the committee deliberates in camera, they are sometimes permitted to remain at in camera meetings. [411] 

Disorder and Misconduct

Disorder and misconduct in a committee may arise as a result of the failure to abide by the rules and practices of a committee or to respect the authority of the Chair. Disorder and misconduct also include the use of unparliamentary language, failure to yield the floor or persistent interruption of the proceedings in any manner. In the event of disorder, the Chair may suspend the meeting until order can be restored or, if the situation is considered to be so serious as to prevent the committee from continuing with its work, the meeting may be adjourned. Neither committees nor their Chairs have the authority to censure an act of disorder or misconduct. [412]  If a committee desires that some action be taken against those disrupting the proceedings, it must report the situation to the House. [413]  The House may make a decision on disorder upon receiving such a report.

Decision-making Process

Decisions in committee are made following the adoption of motions by the majority of the members present. Unless the committee decides otherwise, there is no notice requirement to move a motion. [414] No decision can be made by a committee unless a quorum is present. [415]  At the conclusion of debate on debatable motions or when a non-debatable motion has been moved, the Chair first reads the motion and then asks if the committee agrees to it. [416] If there is evident disagreement among the members, the Chair will then call for the yeas and nays. Members vote by raising their hand. When a vote is taken in this way, the number of those voting on each side of the question is recorded in the Minutes. If any member requests a recorded division, the clerk will read out the names of the members in alphabetical order, each member replying in turn “yea” or “nay”. The results of the vote are announced by the clerk and the Chair declares the motion carried or defeated, as the case may be. The names of the members for and against the motion are listed in the Minutes. Unlike the procedure in the House where Members are summoned by division bells, there is no provision for summoning absent committee members to a recorded vote. [417]

When a vote is held at an in camera meeting, only the fact that a motion was adopted is recorded in the Minutes since adopted motions become orders or resolutions of the committee; the names or number of members voting for or against the motion are not recorded. Motions which have been negatived at an in camera meeting are not recorded in theMinutes nor are the names or number of members voting for or against the motion; this is to ensure that the deliberations of the committee remain confidential. [418]  However, at in camera meetings, matters may be recorded in the Minutes if the committee expressly decides so.

Casting Vote

Like the Speaker, the Chair of a committee votes only to break a tie, except when a committee is considering a private bill, in which case the Chair votes as a regular member of the committee and, in the event of a tie, has a second, casting vote. [419]  The Chair is not bound to give reasons for voting. By convention, the Chair will normally vote in such a way as to maintain the status quo or, when no further discussion on the matter is possible, to keep the matter open for further discussion in the committee or at a subsequent proceeding in the House. [420] Where there is a tie vote on an appeal of a Chair’s ruling, the Chair traditionally does not vote, but declares the ruling sustained. [421] 

Evidence

As part of the consideration of the matters referred to them by the House or taken up as part of the general mandate conferred on them, committees seek information and comment from a wide variety of sources. Briefings and background documents are routinely provided by committee research staff and government departments. Committees also devote considerable effort to gathering the views of those knowledgeable about or directly concerned by the issue before them. This may range from a relatively small group of technical experts to the Canadian public at large.

Information and comment are generally gathered in two ways: by the direct testimony of witnesses and by the submission of written briefs. The power to send for persons and papers, which is accorded to committees, [422]  includes not only the power to invite the appearance of witnesses and the filing of briefs, but also to order, by summons, that individuals appear or that certain documents be filed with the committee.

At the beginning of a study, a committee may take steps to inform the public of its activities and solicit their views. For this purpose, the committee may make use of press releases, newspaper advertisements, announcements placed on the CPAC television network or on the Parliamentary Website. [423] 

Witnesses

A committee may wish to hear testimony from private individuals, representatives of groups, or public officials concerning the matter which it is studying. Witness selection may be carried out in a number of different ways. Normally, witnesses are proposed by individual committee members. The committee may also invite potential witnesses to indicate their interest in appearing. The selection is often delegated to the Sub-committee on Procedure and Agenda, subject to ratification by the full committee. [424]  In addition, groups or individuals who are aware of an upcoming committee study may indicate their interest in appearing without any solicitation on the part of the committee. Finally, when holding meetings in the form of “town halls”, committees often reserve a period of time when those in the audience have the opportunity to ask questions or make brief comments without having formally arranged for their appearance in advance.

It is the responsibility of the committee as a whole to determine which witnesses it will hear. Practical considerations, such as the length of time allocated for a study, limit the number of witnesses the committee will be able to accommodate. While any member of a committee may propose witnesses, the committee makes the final decision as to who will be heard. Witnesses are ordinarily reimbursed for the reasonable expenses which they have incurred in order to appear before the committee. [425] 

Summoning Witnesses

In the vast majority of cases, committees are able to obtain the evidence they seek by inviting witnesses to appear before them. However, some witnesses may not agree to appear willingly. When a witness has declined an invitation to appear, a committee may issue a summons to that witness by adopting a motion to that effect. [426]  If a proposed witness fails to appear when summoned, the committee may report the fact to the House. The House then takes any action it deems appropriate. [427] 

Committees are not empowered to summon Members of the House of Commons or Senators. Should a Member refuse to testify when requested to do so by a committee, the committee can report this to the House which will then decide what action, if any, is necessary. While Senators may appear before House committees voluntarily, their attendance cannot be compelled. If a committee wishes a formal request to be made for a Senator to appear, it must seek the agreement of the House. The House, if it agrees with the committee, sends a message to the Senate requesting that the Senator appear before the committee. [428] 

Swearing-in of Witnesses

Any witness appearing before a committee may be required to take an oath or make a solemn affirmation; [429]  however, under normal circumstances, witnesses are not sworn in. The decision as to the swearing-in of witnesses is entirely at the discretion of the committee. [430]  A witness who refuses to be sworn in might face a charge of contempt. [431]  Likewise, the refusal to answer questions or failure to reply truthfully may give rise to a charge of contempt of the House, whether the witness has been sworn in or not. [432] In addition, witnesses who lie under oath may be charged with perjury. [433] 

Testimony

Witnesses appearing before committees are usually asked to make a brief opening statement, summarizing their views or the views of the organization they represent, on the subject of the committee’s inquiry. Following this opening statement, there is a period for questioning. [434] Questions may be asked by any member of the committee; the Chair may, on occasion, also participate in the questioning of witnesses. [435]  Other Members of the House in attendance at committee meetings may also be permitted to pose questions. [436]  This depends, in part, on the amount of time the committee has accorded to dealing with each witness and the number of committee members who wish to ask questions. Committee members are usually given priority in the questioning of witnesses.

Witnesses appearing before committees enjoy the same freedom of speech and protection from arrest and molestation as do Members of Parliament. [437]  At the committee’s discretion, witnesses may be allowed to testify in camera when dealing with confidential matters of state or sensitive commercial information. [438]  Under special circumstances, witnesses have been permitted to appear anonymously. [439]  Tampering with a witness or in any way attempting to deter a witness from giving evidence at a committee meeting may constitute a breach of privilege. Similarly, any interference with or threats against witnesses who have already testified may be treated as a breach of privilege by the House. [440] 

Witnesses giving testimony may be assisted by counsel, although permission is seldom sought. [441]  Counsel, when permitted, is restricted to an advisory role and may not ask questions or reply on the witness’ behalf.

In light of the protection afforded witnesses by Parliament, they are expected to exercise judgement and restraint in presenting their views to committees. Where witnesses persist in making comments which are deemed to be inappropriate by the committee, their testimony may be expunged from the record. [442] 

There are no specific rules governing the nature of questions which may be put to witnesses appearing before committees, beyond the general requirement of relevance to the issue before the committee. [443]  Witnesses must answer all questions which the committee puts to them. [444]  A witness may object to a question asked by an individual committee member. However, if the committee agrees that the question be put to the witness, he or she is obliged to reply. [445]  Members have been urged to display the “appropriate courtesy and fairness” when questioning witnesses. Nevertheless, a witness who refuses to answer questions may be reported to the House. [446] 

Particular attention has been paid to the questioning of public servants. [447]  The obligation of a witness to answer all questions put by the committee must be balanced against the role that public servants play in providing confidential advice to their Ministers. The role of the public servant has traditionally been viewed in relation to the implementation and administration of government policy, rather than the determination of what that policy should be. Consequently, public servants have been excused from commenting on the policy decisions made by the government. In addition, committees will ordinarily accept the reasons that a public servant gives for declining to answer a specific question or series of questions which involve the giving of a legal opinion, or which may be perceived as a conflict with the witness’ responsibility to the Minister, or which is outside of their own area of responsibility or which might affect business transactions. [448] 

As with the House, committees respect the sub judice convention. [449] The convention is applied not only in the discussions held amongst members of the committee but also in the questioning of witnesses. [450] 

Briefs and Other Papers

Most documents which committees seek are provided voluntarily. They include government reports, statistics, correspondance, memoranda and agreements of various sorts, as well as briefs. For committee purposes, a brief is any document presenting the position of an individual, group, organization or government department with respect to a particular issue. Ordinarily, committees are able to obtain the documents they require for their work by simply requesting them. [451]  Where a committee meets with a refusal to provide a document it deems essential to its work, the committee may pass a motion ordering its production. [452]  If such an order is ignored, the committee has no power to compel its production, but may report the matter to the House and request that appropriate action be taken. [453] 

Although the House has not placed any restrictions on the power to send for papers and records, it may not be appropriate to insist on the production of papers in all cases. In 1991, the Standing Committee on Privileges and Elections pointed out that:

The House of Commons recognizes that it should not require the production of documents in all cases; considerations of public policy, including national security, foreign relations, and so forth, enter into the decision as to when it is appropriate to order the production of such documents. [454] 

Where concerns about confidentiality exist, a committee may agree to have documents tabled at an in camera meeting. [455]  Transcripts of in camera meetings and other confidential documents of committees are to be classed as Secret Records by the National Archives for a period of 30 years from the end of the session in which they were created. These documents remain available to Members of the House during that time. [456] 

A document submitted to a committee becomes the property of the committee and forms part of the committee’s records. Government departments are required to submit documents in both official languages when presenting them to committees. Everyone else, including Members of the House of Commons, may submit written material in either or both official languages. Each committee must decide whether documents submitted to it in only one official language will be distributed to members immediately or once a translation is available. [457] The right to submit a document does not, however, imply the right to have the document considered forthwith.

On occasion, a committee will consider a document to be of sufficient importance that it will agree to treat it either as an “Appendix” or an “Exhibit”. An Appendix is a document which the committee has ordered to be published appended to the Evidence taken at a particular meeting. [458]  An Exhibit is any document or item classified as such by the committee and is therefore part of the committee’s permanent records. [459]  Exhibits are not published or distributed to members but are retained by the clerk and are available for consultation. When a decision is made to designate a document as an Appendix or an Exhibit, the appropriate entry is made in the committee’s Minutes of Proceedings. Appendices and Exhibits are used, among other purposes, for preserving parts of a presentation to a committee that would otherwise not be included in the Evidence. For example, copies of slides or charts used during a presentation may be preserved as Appendices or Exhibits.

Committee Publications

Like the House, committees publish a number of documents for the use of their members, their staff and the general public. [460]  These committee publications parallel, in many respects, those used by the House. [461] They provide a permanent record of evidence received, decisions made and the results of studies carried out. Every committee publishes Minutes of Proceedings, Evidence and, from time to time, reports to the House. The Minutes of Proceedings are the official record of what the committee has done and are prepared by the clerk of the committee and signed by him or her. The Minutes are the equivalent of the Journals of the House. The Evidence is the transcribed, edited and corrected record of what is said in committee, both by committee members and by witnesses appearing before committees. Reports to the House may be brief documents of less than a page or they may be much larger works, printed and bound separately. All committee publications are prepared in both official languages.

All of the documents published by committees were formerly available in printed format. In 1994, the House began to distribute its publications electronically. Until that time, committees produced a document called Minutes of Proceedings and Evidence, containing the material which is now supplied separately in two documents: Minutes and Evidence. Reports to the House which were deemed too short to merit separate publication were also included in the Minutes of Proceedings and Evidence. Since September 1998, the Minutes and Evidence, as separate documents, have been available only in electronic format. As the House has moved to the electronic distribution of its publications, the printing of committee documents has, for the most part, been discontinued. They are now available in electronic format at the Parliamentary Website, Parliamentary Internet Parlementaire[462] Committees may still publish major substantive reports in printed format. [463] 

Minutes of Proceedings

Minutes of Proceedings are prepared for each meeting of a committee by the clerk, who signs the original copy to attest to its accuracy and authenticity. The original copy of all Minutes is kept by the clerk of the committee and is archived along with other committee documents at the end of each session. The Minutes record the deliberations and decisions of the committee in a manner similar to the Journals of the House. In addition, the Minutes of Proceedings indicate the meeting number; [464]  the time and place of the meeting; whether the meeting was held in public or was in camera; who presided; which members and substitutes were present, whether for all or only part of the meeting. Thus, for a member who attended part of a meeting and was replaced by a substitute for the remainder of it, the Minutes will show the member as present and show another member as being a substitute for him or her. [465]  The Minutes also include the names of other Members and Senators who were in attendance; the names of staff in attendance; the names of witnesses, if any, including their titles and affiliated organizations; the orders of reference that were taken up; and the time of adjournment. The Minutes may also contain the text of rulings given by the Chair with respect to the procedural acceptability of motions proposed during the meeting.

Evidence

The Evidence is the record of what was said at a committee meeting, corresponding to the Debates of the House. It records not only the remarks made by members of the committee but also what was said by witnesses. Evidence is published only for public meetings, or for those parts of a meeting which are held in public. [466]  It is prepared in a bilingual format, in a process which parallels the production of the House Debates from the “blues”. Since it has been ruled that the power of a committee to print also includes the power to decide against printing if a committee finds testimony offensive, it may have it expunged from the Evidence[467] 

Documents presented at a meeting which a committee considers to be of sufficient importance may be appended to the Evidence of that meeting as an Appendix or recorded in the Minutes as an Exhibit. [468] 

Reports

The observations and recommendations of committees are made known to the House through reports. [469] Reports to the House are available in electronic format and, from time to time, large substantive reports may also be available in printed format. Reports are numbered sequentially by each committee within a session. In addition to observations and recommendations, reports contain a citation to the authority under which the study was conducted, a reference to the relevant Minutes of meetings held on the topic, and the signature of the Chair. Attached to the report after the signature of the Chair are any opinions or recommendations dissenting from or supplementary to the report. [470] 

Broadcasting

Committees are permitted to televise their hearings in accordance with the provisions of the Standing Orders, [471]  using the facilities provided by the House. [472] Formerly, a committee required special permission of the House to broadcast its proceedings. In 1991, the procedure for obtaining consent to use House facilities for broadcasting was formalized in the Standing Orders. A further change to the Standing Orders in 1994 allowed committees to televise their proceedings using House facilities, without the need to seek permission on each occasion. [473]  Where a committee wishes to televise using other facilities, special permission is required. [474] 

The broadcasting of committee meetings follows guidelines established by the Standing Committee on Procedure and House Affairs which are very similar to those used in broadcasting the proceedings in the House. [475]  Only the person recognized by the Chair is shown, and reaction shots are prohibited.

The House also provides facilities for the in-house audio broadcasting of all public committee meetings. The audio broadcast is available to all Members in their Parliament Hill offices as well as to the Press Gallery.

Committee Studies

The role of committees is to examine selected matters in greater depth than is possible in the House and to report any conclusions of those examinations, including recommendations, to the House. Committees undertake studies in four general areas: the Estimates, legislation, Order-in-Council appointments and subject-matter studies (including the review of departmental annual reports). While it may be common for standing committees to conduct studies in all four areas, special committees are normally established to conduct subject-matter inquiries, and legislative committees are charged solely with the examination of legislation.

Certain items of study, such as the Main Estimates and departmental annual reports, are required to be tabled in the House each year at a specific time and referred to committees. Other items, including Supplementary Estimates, Order-in-Council appointments and legislation, are referred to committees only if and when tabled or introduced in the House. The number of such items varies from year to year, depending on a wide variety of factors including the government’s legislative schedule and events outside Parliament.

When a committee receives an order of reference or decides to take up a particular study, the steering committee is usually charged with the responsibility both for establishing a work plan for each study and for co-ordinating the committee’s consideration of the variety of topics before it. Standing committees routinely deal with several matters concurrently. [476]  While in some cases committees are able to deal with important matters consecutively, time limits imposed by the Standing Orders for consideration of the Main Estimates and Order-in-Council appointments require careful planning to ensure committee effectiveness. [477]  One avenue which is often selected by committees having a heavy workload is the delegation of one or several items of study to sub-committees. [478]  This allows the committee to share its work by drawing upon the asciate members of the committee for the membership of sub-committees.

Estimates

The Main Estimates are the projected government spending for the coming fiscal year broken down by department and program. [479] The Estimates are displayed as a series of budgetary items or “Votes”, each of which indicates the amount of money required by the government for a program or function. Normally, a single Vote in the Main Estimates covers a total spending category, such as departmental operations or capital costs, and summarizes all the planned activity or program expenditures for the department or agency in that category. Where additional funds or the reallocation of already appropriated funds is necessary during a fiscal year, the government may table Supplementary Estimates.

The Standing Orders provide for detailed consideration of the Estimates, both Main and Supplementary, by standing committees. [480]  Each committee has referred to it those departmental and agency Votes which relate to its mandate. Programs whose funding and funding levels are already prescribed by statute are included with the Estimates, marked “S” or “Statutory”. As these expenditures have already been approved by the passage of the appropriate legislation, they are not referred to committee for examination, but are provided for information purposes only.

The Estimates for each coming fiscal year are required to be tabled in the House and referred to standing committees no later than March 1 of each year. [481]  The Standing Orders do not impose an obligation on committees to consider the Estimates. Where a committee has chosen to study and report on the Estimates, however, it must report them back not later than May 31 of the fiscal year to which they apply. If a committee has not reported the Estimates back by that date, it is deemed to have done so, whether it has actually considered them or not. [482]  The Leader of the Opposition may, not later than the third sitting day prior to May 31, ask to extend the reporting deadline respecting committee consideration of the Main Estimates of a named department or agency. [483]  A committee studying the Main Estimates of that department or agency must report back, or will be deemed to have reported, no later than the earlier of either 10 sitting days after May 31 or the sitting day prior to the final allotted day in that Supply period. [484]  While considering the Main Estimates, committees are also empowered to consider expenditure plans and priorities in future years for the departments and agencies. [485]  The deadline for reporting on those plans and priorities is the final sitting day in June. [486] 

Supplementary Estimates are referred, upon tabling in the House, to the appropriate standing committees. [487]  The deadline for a report on Supplementary Estimates is not later than the third sitting day before the earlier of the final sitting day or the final allotted day in the current Supply period. As with the Main Estimates, if a committee has not reported within the prescribed time, it is deemed to have done so. [488] 

Committees consider each Vote separately as a distinct motion, beginning with Vote 1 which covers general departmental administration or operations. Committees usually begin their examination of the Estimates by hearing from the appropriate Minister or the Parliamentary Secretary, accompanied by senior departmental officials. [489]  The questioning and discussion at this meeting is generally wide-ranging, although the rule of relevance does apply. Subsequent meetings, if any, are normally held with the senior departmental officials responsible for the areas and programs specifically dealt with in each Vote. [490] 

When the committee has completed its consideration of the Estimates, each item is put to a vote separately. Restrictions exist on the power of a committee to amend the Estimates. Amendments may be presented to reduce the amount of an item, [491]  but it is not in order to propose an amendment to reduce the amount of a Vote to zero, as the proper course is to vote against the motion “Shall the Vote carry?” It is also out of order to propose an increase in an item, as such a proposal infringes the spending authority of the Crown. [492]  Similarly, it is not permitted to attempt to change the way in which funds are allocated, by transferring money from one item to another. [493]  Statutory items included in the Estimates for information purposes may not be amended by the committee. [494]  Finally, a committee cannot include substantive recommendations in its report on Estimates. [495] 

Legislation

Committees play a major role in the legislative process. The Standing Orders provide for all legislation to be considered in committee. Referral to committee may take place either after second reading or before second reading [496]  and bills may be referred to legislative, standing or special committees [497]  or to a Committee of the Whole. [498]  On rare occasions, the House has referred bills to joint committees. [499]  When a bill is referred to a committee, it is the bill itself which constitutes the committee’s order of reference. A motion instructing a committee to prepare and bring in a bill may also be proposed by a Minister or by a private Member. [500] 

Adoption of a motion for second reading of a bill expresses the House’s approval of the principle of the bill. The committee is charged with examining the wording and effect of each clause of the bill in light of the principle; it may propose any modifications deemed necessary or useful in order for the bill to better realize its purpose. [501] When a bill has been referred to a committee following second reading, it is not in order to propose amendments which seek to extend the scope of the bill or alter its principle. It is also not in order to propose amendments to Acts or sections of Acts not affected by the bill itself. [502]  When a bill has been referred to a committee prior to second reading, the committee is not bound by the same limitations since the House has not yet approved the bill’s principle. While amendments may be proposed which would alter the principle, they must still be relevant to the bill. [503] 

Order of Consideration

When a committee studies a bill, consideration of the preamble, if any, is postponed as is consideration of the first clause if it contains only a short title. [504]  After Clause 1 has been called by the Chair (or Clause 2, if Clause 1 contains only the short title of the bill), a committee may proceed to hear witnesses, usually beginning with the sponsor of the bill. A legislative committee is restricted to hearing only witnesses on technical matters related to the bill. [505]  In addition to hearing witnesses, a committee may receive written briefs related to the bill. At the conclusion of testimony, a committee may invite the sponsor to appear again in order to answer any concerns which have been raised by other witnesses.

A committee then proceeds to clause-by-clause consideration of the bill. Clause-by-clause study involves the consideration of each clause individually and, if necessary, of each line of the bill. At this stage, each clause is proposed to the committee as a separate question on which it must decide. It is also at this stage that members of the committee have the opportunity to propose amendments to the bill. They may propose that words be added, that certain words be struck out and replaced by others, or that words simply be struck out. [506] During clause-by-clause consideration, it is normal for departmental officials to remain before a committee as witnesses in order to provide technical explanations of the effect of individual clauses of the bill and the technical implications of proposed amendments. [507] 

Motions to amend a clause of a bill do not require notice. As a practical matter, proposed amendments are usually forwarded to the clerk of the committee before clause-by-clause consideration begins. The clerk then has the opportunity to place the amendments in the proper sequence for consideration as the committee proceeds through the bill. The proposed amendments received by the clerk are usually circulated to members prior to the beginning of clause-by-clause consideration, for information purposes. At this stage, the amendments are not formally before the committee and the member may move them or not when the committee reaches the appropriate place in the bill.

Time Limits for the Consideration of Bills

The Standing Orders do not set any time limit for the consideration of government bills in committee. Nonetheless, the House may set a reporting deadline by special order [508]  or it may invoke the time allocation provisions of the Standing Orders. [509] 

Committees are required to report on private Members’ public bills within 60 sitting days. [510]  The committee must either report the bill to the House with or without amendment, or seek a single 30-day extension to the time provided for consideration of the bill, or present a report containing a recommendation to not proceed further with the bill. If the committee has not reported by the conclusion of the 60-day period (or the 30-day extension, where applicable), the bill is deemed reported back without amendment.

Private bills are to be referred to legislative committees following second reading. [511]  However, private bills are often dealt with, by unanimous consent, in a Committee of the Whole. The particular procedures related to consideration of private bills are found in Chapter 23, “Private Bills Practice”.

Adoption and Report

Once a committee has concluded its consideration of the clauses of a bill, a motion is proposed to carry the bill (or the bill, as amended). [512]  The committee then adopts a motion, instructing the Chair to report the bill to the House. [513]  If the committee has amended the bill, it usually will also order that the bill be reprinted for the use of the House at report stage. [514] 

Committee to Prepare and Bring in a Bill

A committee may be given an order of reference to prepare and bring in a bill. [515]  The motion proposing such an order is considered under Government Orders, if proposed by a Minister, or under Private Members’ Business, if proposed by a private Member. [516]  The committee’s report recommends the principles, scope and general provisions of the bill and may include proposals for legislative wording. [517] 

Order-in-Council Appointments

The government is required to table in the House certified copies of all Order-in-Council appointments to non-judicial posts, not later than five sitting days after they have been published in the Canada Gazette[518]  Appointments are effective on the day they are announced by the government, not on the date the certificates are published or tabled in the House. The Standing Orders provide that the certified copies be automatically referred to the standing committee specified at the time of tabling, normally the committee charged with overseeing the organization to which the individual has been appointed.

A Minister may also table a certificate of nomintion to a non-judicial post. [519]  Such notices are also referred to the standing committees specified at the time of tabling. Committees have 30 sitting days, following the day of tabling, in which to consider the appointments or nominations. [520]  During that period, the committee may call the appointee or nominee to appear before it, for a period not to exceed 10 sitting days, [521]  to answer questions respecting his or her qualifications and competence to perform the duties of the post to which he or she has been appointed or nominated. [522]  Committees are under no obligation to consider any of the Order-in-Council appointments or nominations which have been referred to them. [523] 

Upon written application from the clerk of a committee, the Minister’s office must provide the curriculum vitae of any Order-in-Council appointee or nominee to any post which falls within the mandate of that standing committee. [524] 

The scope of a committee’s examination of Order-in-Council appointees or nominees is strictly limited to the qualifications and competence to perform the duties of the post. [525]  Questioning by members of the committee may be interrupted by the Chair, if it attempts to deal with matters considered irrelevant to the committee’s inquiry. Among the areas usually considered to be outside the scope of the committee’s study are the political affiliation of the appointee or nominee, contributions to political parties and the nature of the nomination process itself. [526]  Any question may be permitted if it can be shown that it relates directly to the appointee’s or nominee’s ability to do the job.

A committee has no power to revoke an appointment or nomination and may only report that they have examined the appointee or nominee and give their judgement as to whether the candidate has the qualifications and competence to perform the duties of the post to which he or she has been appointed or nominated. [527] 

Subject-matter Studies

Most standing committees are empowered to study and report on any matter relating to the operations and policies of government departments assigned to them. These committee-initiated studies may be directed towards: the relevant statute law; departmental or agency objectives; immediate, medium-and long-term expenditure plans; evaluations of activity against stated objectives; and any other matter relating to departmental or agency mandates or operations. [528]  Certain standing committees, including standing joint committees, are accorded specific mandates to initiate studies in well-defined areas of responsibility outlined in the Standing Orders. [529] 

A number of committees have permanent orders of reference which give rise to subject-matter studies having particular effect. The Standing Joint Committee for the Scrutiny of Regulations may present reports which initiate a procedure leading to the revocation of government regulations. [530]  The Standing Committee on Procedure and House Affairs reports to the House on the selected items of Private Members’ Business that have been designated as votable. [531] 

As well, the House may strike a special committee [532]  or, with the Senate, a special joint committee [533]  to inquire into a particular subject matter. In such cases, the order of reference to the committee is usually included in the order which establishes the committee, although the House may refer additional matters to it at a later date.

The House may also refer specific matters to standing committees for consideration. [534]  In particular, the House may refer questions arising out of a complaint of breach of privilege to the Standing Committee on Procedure and House Affairs. [535]  The Committee will then conduct an inquiry, calling for whatever witnesses and papers it deems appropriate. As with matters related to privilege which occur in any other committee, the Standing Committee on Procedure and House Affairs has no power itself to deal with the matter directly by imposing sanctions of any kind. At the conclusion of its study, the Committee reports to the House, indicating whether, in its opinion, the complaint of breach of privilege was well founded. The Committee also stipulates what, if any, action it feels to be appropriate. [536]

A statute may also require subsequent review by a parliamentary committee of its provisions or operation, requiring the House to designate or establish a committee to carry out the review. [537] 

Committees sometimes hold hearings not for the purpose of preparing recommendations for the House but simply in order to stay informed with respect to an important topic within their mandate. [538]  In most cases, however, the committee will present a report to the House, outlining the evidence which it received, summarizing its deliberations and presenting its recommendations.

The actual conduct of a subject-matter study varies widely, depending on the topic and the approach selected by the committee. Typically, a committee will begin with a background briefing provided by the committee research staff or departmental officials. [539]  The committee will then invite testimony and briefs from interested parties. During the evidence-gathering phase, the committee may travel to broaden the range of witnesses heard and to visit sites and facilities relevant to the study. Following the gathering of evidence, the committee will provide drafting instructions to the staff assigned to prepare the report. Once the draft report has been circulated to members, the committee will meet to consider it and propose any alterations necessary to accurately reflect the committee’s views. Committees often consider draft reports at in camera meetings, [540]  but reports are also considered in public session. [541]  Once the committee has agreed to the final version of the report, it is presented to the House. [542]

Reports to the House

Committees make their views and recommendations known to the House by way of reports. There are several types of reports that committees may present, including: reports dealing with routine matters affecting a committee’s operation (such as requesting the extension of a deadline or permission to travel, or drawing the House’s attention to irregularities in their proceedings); reports on bills, Estimates or Order-in-Council nominees or appointees; and reports following the completion of an inquiry into some matter referred by the House, or related to the mandate, management or operation of a committee’s designated ministry or area of responsibility. This includes not only subject-matter studies but also such topics as the Public Accounts of Canada, delegated legislation and specific procedural issues, such as questions of privilege, referred by the House.

Power to Report

The power to report their findings to the House is essential to the role of committees. The Standing Orders provide standing committees with the power to report from time to time, enabling them to report to the House as often as they see fit. [543]  A similar provision is usually included in the order of reference which establishes a special committee. [544]  Legislative committees are only empowered to report the bill or bills referred to them with or without amendment. [545] 

Committees are entitled to report to the House only with respect to matters within their mandate. When reporting to the House, committees must indicate the authority under which the study was done (i.e., the Standing Order or the order of reference). If the committee’s report has exceeded or has been outside its order of reference, the Speaker has judged such a report, or the offending section, to be out of order. [546] 

Although committees have conducted hearings for the sole purpose of receiving a briefing on a certain topic, [547]  most committee studies result in reports to the House. A committee may present one or several reports related to a particular study. In addition to any administrative reports dealing with matters such as requests for additional powers or an extension of the final reporting deadline, [548]  the committee may present interim reports or a series of reports dealing with various aspects of the subject matter before it. [549] 

Sub-committees present their reports to the main committee. [550]  The main committee may simply adopt the sub-committee report as its own or amend it before doing so. [551]  The report is then presented to the House as a report from the main committee. [552] 

A committee may receive an order of reference which includes a reporting deadline. Both Main and Supplementary Estimates, as well as private Member’s bills are deemed reported back to the House if the committee does not present its report within the time period set out in the Standing Orders. [553]  While no time period is set out with respect to private bills, the Standing Orders require that they be reported to the House in every case. [554]  In some cases, statutory reviews also carry reporting deadlines. [555]  While a committee ordinarily reports on any matter referred to it by the House, unless the House sets out a specific deadline, the committee may report when it sees fit. [556] 

Once committee members have agreed on the contents of the report, it is formally adopted by motion. The committee then specifies clearly and explicitly, by way of a motion, the format of the report. [557]  In addition, the committee adopts another motion instructing the Chair to report it to the House. [558]  As final changes to the report may have been made at the meeting prior to its adoption, it is also usual to adopt a motion giving editorial power to the Chair, to ensure that the final text of the report in both official languages is in conformity with the decisions taken by the committee, provided that no change be made to the substance of the report. [559]  The committee may also adopt a motion, requesting that the government provide a response to the committee’s report. [560]  Finally, the committee may decide to hold a press conference, following the presentation of the report, to publicize the results of their study. [561] 

Contents and Format

Reports to the House can take a variety of formats depending on the subject matter under consideration and the conclusions which the committee has reached. Besides preparing printed versions of their reports, committees have presented reports in Braille, on audiocassette and computer diskette, and in large-print formats. [562]  All substantive reports are posted in electronic format at each committee’s website. All reports cite the authority under which the study was conducted (either the order of reference from the House or the appropriate Standing Order), and are signed by the Chair of the committee. The Minutes of Proceedings relevant to the report are tabled when the report is presented to the House.

Reports on certain subjects, such as the Estimates and Order-in-Council appointments, are restricted in the types of recommendations which can be proposed. In the case of the Estimates, the committee reports the Estimates as adopted, reduced or negatived. Reports on Order-in-Council appointments indicate that the committee has reviewed the appointment and states the committee’s view of the qualifications and competence of the appointee. In consequence of this limited scope, reports on these subjects follow brief, established formats. In the case of legislation, the bill itself is reported back to the House, with or without amendments. When a bill is referred to committee, the actual House copy of the bill is delivered to the clerk of the committee. If the committee carries the bill without amendment, it is this copy which is returned to the House, suitably endorsed, as the committee’s report. Where the committee has ordered a reprint of the bill, incorporating amendments made by the committee, a copy of the reprint is tabled together with the original House copy of the bill. The reprinted copy of the bill clearly indicates the changes which the committee has made to the bill.

Committees also present a variety of procedural or administrative reports from time to time, seeking additional powers not provided in their permanent or special orders of reference. Where a possible breach of privilege related to a committee’s work has occurred, the committee is not empowered to deal with the matter itself, but may report the incident to the House. [563] 

Substantive Reports

Substantive reports, especially lengthy ones, are often prepared as printed documents with special covers. While committees have considerable latitude in the format of such reports, there are a number of elements which are normally included. The text of the report follows the citation of the authority under which the study was carried out. It outlines the issue or issues dealt with and often includes reference to appropriate portions of the submissions the committee received, both oral and written. For large studies, the text is usually divided into separate chapters, dealing with the various aspects of the subject. Following the text, the committee’s recommendations on the subject are listed. Appendices are usually included, listing the witnesses heard and the briefs submitted in the course of the study. If the committee has chosen to request a government response to the report, the request is inserted before the Chair’s signature at the end of the report. Any dissenting or supplementary opinions which the committee has agreed to attach appear after the Chair’s signature. The relevant minutes of proceedings, relating to the committee’s adoption of the report, conclude the document. [564] 

Supplementary and Dissenting Opinions

A committee report reflects the opinion of the committee and not that of the individual members. Members of the committee who disagree with the decision of the majority may not present a separate report. There is no provision in the Standing Orders or the practices of the House for presenting minority reports. [565]  Where one or several members of a standing committee are in disagreement with the committee’s report or wish to make supplementary comments, the committee may decide to append such opinions to the report, [566]  after the signature of the Chair. [567]  Dissenting or supplementary opinions may be presented by any member of a committee. [568]  Although committees have the power to append these opinions to their reports, they are not obliged to do so. [569]  In agreeing to append a dissenting or supplementary opinion, the committee will often specify the maximum length of the text, the deadline for submission to the clerk and whether it is to be submitted in one or both official languages. [570] 

Presentation in the House

Committee reports are presented during the Daily Routine of Business, when the Speaker calls, “Presenting Reports from Committees”. [571]  Reports are ordinarily presented by the Chair, on instruction from the committee. [572]  In the Chair’s absence, a report may be presented by another member of the committee. The Member presenting a report may offer a brief explanation of its subject matter. [573]  Where a report has supplementary or dissenting opinions appended to it, a committee member from the Official Opposition may offer a succinct explanation. [574]  The Standing Orders do not permit any other Member to comment on the report at this time. Where no dissenting or supplementary opinion has been appended, no other Member is permitted to comment on the report when it is presented. On occasion, the House has granted consent to Members from other parties to make a brief statement either concerning a dissenting opinion or on the report itself. [575] 

The House sometimes makes provision for the presentation of committee reports during adjournment periods, by having them filed with the Clerk of the House. This has been done both for individual reports and as a general provision for any committee reports completed during the adjournment period. [576] 

Committee reports must be presented to the House before they can be released to the public. The majority of committee reports are discussed and adopted at in camera meetings. Even when a report is adopted in public session, the report itself is considered confidential until it has actually been presented in the House. In addition, where a committee report has been considered and approved during in camera committee meetings, any disclosure of the contents of a report prior to presentation, either by Members or non-Members, may be judged a breach of privilege. Speakers have ruled that questions of privilege concerning leaked reports will not be considered unless a specific charge is made against an individual, organization or group, and that the charge must be levelled not only against those outside the House who have made in camera material public, but must also identify the source of the leak within the House itself. [577] 

It is not in order for Members to allude to committee proceedings or evidence in the House until the committee has presented its report to the House. This restriction applies both to references made by Members in debate and during Oral Question Period. [578]  If there is an irregularity in the committee’s proceedings, the House can only be seized of it once it is reported to the House. [579] 

Concurrence

Concurrence in a committee report may be moved by any Member of the House, after 48 hours’ notice, during Routine Proceedings. The concurrence motion is moved under the heading “Motions” [580]  and is debatable. [581] 

A motion to concur in a report on the Estimates can only be debated on an allotted day under the Business of Supply. [582]  The Standing Orders also provide a special procedure for concurrence in reports concerning the revocation of a regulation, contained in a report from the Standing Joint Committee for the Scrutiny of Regulations. [583] Where a bill has been reported back from committee, it is subject to the rules and practices governing the legislative process, rather than those relating to committee reports in general. [584]

The House frequently gives its consent to waive the 48 hours’ notice required by the Standing Orders [585]  in order to concur in a report concerning certain administrative matters, such as changes to the membership of committees. Reports concerning the selection of votable items of Private Members’ Business and the membership of legislative committees are deemed adopted when presented in the House. [586] 

Recommendations in committee reports are drafted in the form of motions so that, if the reports are concurred in, the recommendations become clear orders or resolutions of the House. [587]  In framing their recommendations, committees cannot exceed the authority of the House. Most importantly, with respect to the expenditure of funds or the introduction of legislation, committees may recommend only that the government “consider the advisability” of such measures. [588] 

When a motion to concur in a report is before the House, it is the concurrence in the report as a whole which the House is considering. No amendment may be presented to the text of the report. [589]  A motion may be presented to recommit the report to the committee so that the report may be re-examined. [590] 

Government Response

When a report is presented in the House, a standing or special committee may request that the government table a comprehensive response to it within 150 days. [591]  The committee may request a response either to the whole report or to one or more parts. [592]  The request for a partial response does not prevent the government from responding to the entire report. Speakers have consistently refused to define “comprehensive” in this context, maintaining that the nature of the response must be left to the discretion of the government. [593]  When the House is sitting, the response may be tabled by a Minister or a Parliamentary Secretary during Routine Proceedings under “Tabling of Documents” or filed with the Clerk. [594]  When the House is adjourned, the response may be filed with the Clerk, or the Minister may wait until the House resumes sitting to table it. [595]  The Speaker has ruled that a request for a government response survives a prorogation in the same manner as orders for the production of papers. [596]  The Standing Orders do not provide for any sanction should the government fail to comply with the requirement to present a response. [597] 

[1] 
For a full description of the evolution of committees in the British Parliament, see Redlich, Vol. II, Chapter VII, pp. 203-14.
[2]
See Chapter 22, “Public Petitions”.
[3] 
For the first time, in 1571, committees of this nature were appointed for “the subsidy”, grievances and petitions, religion and disputed elections. From 1592 onwards, elections and privileges were considered by a single sessional committee. In 1621, the House instituted a grand standing committee on trade and another on the administration of justice. These along with the committees on religion, grievances and the smaller, that is select, Privileges and Elections Committee, constituted the system of standing committees as it was to remain for two centuries (Redlich, Vol. II, pp. 206-8).
[4] 
Redlich, Vol. II, p. 208.
[5] 
Redlich, Vol. II, p. 207.
[6] 
See also Chapter 19, “Committees of the Whole House”. By 1628, all the standing committees, except that on Privileges, were made Committees of the Whole House. The Committee on Privileges remained a select committee (Redlich, Vol. II, p. 209).
[7] 
Scobell quoted in Redlich, Vol. II, p. 208.
[8] 
The Long Parliament sat during the period of the Civil War and the Commonwealth in Great Britain. See The Oxford History of England: The Early Stuarts, 1603-1660, Oxford University Press, 1937, pp. 97, 172.
[9] 
Redlich, Vol. II, p. 210.
[10] 
Charles II was restored to the Throne in Great Britain in 1660. See The Oxford History of England: The Early Stuarts, 1603-1660, pp. 256-8.
[11] 
Redlich, Vol. II, pp. 210-1.
[12] 
For an expanded description of committees during this period, see O’Brien, p. 103.
[13] 
O’Brien, p. 106.
[14] 
O’Brien, p. 105.
[15] 
O’Brien, pp. 107-8.
[16] 
O’Brien, pp. 301-2. For information on the principle of responsible government, see Chapter 1, “Parliamentary Institutions”.
[17] 
The Union Act, 1840 joined Upper and Lower Canada into the single Province of Canada. See R.S.C. 1985, Appendix II, No. 4.
[18] 
The Member had to have stated opposition to the principle of the matter, rather than dissatisfaction with particular aspects of it. See Redlich, Vol. II, p. 205.
[19] 
Journals, July 12, 1955, pp. 930-1.
[20] 
Throughout this period, the inventory of standing committees remained virtually unchanged and consisted of the committees on Privileges and Elections, Expiring Laws, Railways, Canals and Telegraph Lines, Miscellaneous Private Bills, Standing Orders, Printing, Public Accounts, Banking and Commerce, and Immigration and Colonization (subsequently renamed Agriculture and Colonization). From 1867 to 1906 as well, the House consistently agreed, by separate motions, to Standing Joint Committees on the Library of Parliament and on the Printing of Parliament. See Journals, November 19, 1867, pp. 21-2; December 4, 1867, p. 48; April 14, 1887, pp. 5-6; March 14, 1906, p. 46.
[21] 
In 1867, 1883 and 1891, the Speech from the Throne occurred on the second sitting day (see Journals, November 7, 1867, p. 5; February 9, 1883, p. 15; April 30, 1891, p. 5). In all other instances, committees were established on the first day of the new session.
[22]
Legislation was dealt with in a Committee of the Whole at that time. See Chapter 19, ‘‘Committees of the Whole House”.
[23] 
Prior to this, the standing committee membership was drawn up and reported by a special committee “composed of leading men of the ministry and opposition …” Members were generally given one or two days to examine the lists before concurring in the report; however, it was often necessary to ask for immediate concurrence so that the Standing Committee on Standing Orders could consider petitions for private bills. These were receivable only within a limited period after the commencement of the session. The membership list included those committees regularly established since Confederation, excepting the Committee on Expiring Laws, which was dropped, and committees on the Library of Parliament and on the Debates of the House, which were added (Bourinot, 2nded., pp. 493-4). See, for example, Journals, January 21, 1884, p. 22; March 12, 1903, p. 22.
[24] 
In 1887, the Standing Committee on Railways, Canals and Telegraph Lines had a membership of 147 and thus a quorum, by rule, of 74; the Standing Committee on Banking and Commerce had a membership of 104 and thus a quorum, by rule, of 53. The membership of the House in 1887 was 215. See Journals, April 18, 1887, pp. 17-9.
[25] 
In 1927, the rules regarding committees were revised. The number of members on each standing committee was cut to roughly half, and the size of the membership was set down in the Standing Orders. Quorum for each committee was set individually (see Journals, March 22, 1927, pp. 320-3). Further changes in December 1968 (see Journals, December 20, 1968, pp. 554-79) restricted committee membership to between 20 and 30 Members of Parliament, excepting the 12-member Committee on Procedure. The slight increase in membership at the beginning of the Thirty-Sixth Parliament enabled committees to reflect the proportions of party representation in a five-party House. See Journals, September 23, 1997, pp. 12-3; October 1, 1997, p. 56.
[26] 
Journals, November 7, 1867, p. 5; February 6, 1986, pp. 1656-7; November 4, 1987, p. 1831; September 23, 1997, pp. 12-3.
[27] 
See Franks, pp. 162-3. See also Chapter 19, “Committees of the Whole House”.
[28] 
Journals, February 25, 1925, p. 66.
[29] 
Journals, July 12, 1955, pp. 881, 926-7.
[30] 
Journals, May 30, 1958, p. 71.
[31] 
Journals, December 14, 1964, pp. 985-96.
[32] 
Journals, June 11, 1965, pp. 229-30.
[33] 
Journals, December 20, 1968, pp. 554-79.
[34] 
The Special Committee on Standing Orders and Procedure. See Journals, May 31, 1982, pp. 4892-3. The Committee, chaired by Tom Lefebvre, is commonly referred to as the Lefebvre Committee.
[35] 
Third Report of the Special Committee on Standing Orders and Procedure (Parliamentary reform and changes to the Standing Orders). See Minutes of Proceedings and Evidence, November 4, 1982, Issue No. 7, pp. 3-41; Journals, November 5, 1982, p. 5328; November 29, 1982, p. 5400.
[36] 
Journals, December 7, 1984, p. 164.
[37] 
The Special Committee on Reform of the House of Commons. The Committee, chaired by James McGrath, is commonly referred to as the McGrath Committee (see Journals, December 5, 1984, pp. 153-4).
[38] 
The Special Committee on Reform of the House of Commons, Third Report, June 1985, pp. 16-27.
[39] 
The Special Committee on Reform of the House of Commons, Third Report, June 1985, pp. 22-5.
[40] 
Journals, February 6, 1986, pp. 1644-66; February 11, 1986, p. 1696; February 13, 1986, p. 1710; June 1, 1987, pp. 968-80; June 2, 1987, pp. 984-97; June 3, 1987, pp. 1002-28.
[41] 
Journals, April 11, 1991, pp. 2905-32, in particular pp. 2922-3; January 25, 1994, pp. 58-9.
[42] 
Journals, April 11, 1991, pp. 2905-32, in particular p. 2929.
[43] 
See Journals, February 7, 1994, pp. 112-8.
[44] 
Standing Orders 68 and 73.
[45] 
See Debates, February 7, 1994, pp. 957-62. Prior to this time, there had been occasions where committees were empowered by their orders of reference to draft legislative proposals or to bring in a bill. See, for example, Special Joint Committee on Bill C-43, Senate and House of Commons Conflict of Interest Act, Journals, November 22, 1991, pp. 717-8.
[46] 
Standing Order 116.
[47] 
Chapter XIII of the Standing Orders deals specifically with procedure related to committees.
[48] 
See, for example, Speaker Parent’s ruling, Debates, June 20, 1994, pp. 5582-3.
[49] 
Standing Order 109. See Speaker Bosley’s ruling, Debates, June 27, 1986, p. 14969. While a request for a government response to a committee report survives prorogation, it ceases to have effect on dissolution.
[50] 
See, for example, Journals, May 17, 1991, p. 42. The motion to reconstitute a committee may also include a budgetary provision, allocating to the reconstituted committee the unspent remainder of the previous committee’s budget. See, for example, Journals, May 17, 1991, p. 43.
[51] 
See, for example, Journals, October 3, 1986, p. 48; March 1, 1996, pp. 23-4; March 4, 1996, pp. 39-41.
[52]
In contrast, the membership of a Committee of the Whole is not selected, but consists of all Members of the House.
[53] 
Standing Order 104(2)(a)-(q) and (3)(a)-(c).
[54] 
Standing Orders 68 and 73. Pursuant to Standing Order 73(4), Supply bills are considered in a Committee of the Whole. In addition to having legislation referred to them for study, committees may also be asked to prepare bills for presentation to the House. In the First Session of the Thirty-Fifth Parliament (1994-96), the Procedure and House Affairs Committee was instructed to prepare and bring in a bill “ … respecting the system of readjusting the boundaries of electoral districts for the House of Commons by the Electoral Boundaries Commissions …” (Journals, April 19, 1994, pp. 369-70). In the First Session of the Thirty-Sixth Parliament (1997-99), the Justice and Human Rights Committee was instructed to prepare and bring in a bill “ … to amend those sections of the Criminal Code which deal with impaired driving” (Journals, October 30, 1997, p. 175).
[55] 
Standing Order 81(4)-(5).
[56] 
Standing Orders 32(6) and 110.
[57] 
Standing Order 32(5). Before 1982, committees could not study a report, return or other paper tabled in the House without a specific order of reference. In 1982, the referral of such papers became automatic and the referral was made permanent so as not to limit committee study to a specific time frame. Currently, few studies are initiated under this provision; the broader mandate provided in Standing Order 108(2) or 108(3) is used. See, for example, Standing Committee on Procedure and House Affairs, Minutes, November 20, 1997, Meeting No. 6.
[58] 
Standing Order 108(1)(a).
[59] 
Standing Order 108(2).
[60] 
Standing Order 108(2)(a)-(e).
[61] 
Standing Order 108(3)(b)-(e) and 108(4)(b) and (c). The specific mandates of the Standing Joint Committees on the Library of Parliament, Official Languages and the Scrutiny of Regulations are dealt with below under “Standing Joint Committees”.
[62] 
Standing Order 108(3)(a).
[63] 
Standing Order 108(3)(b).
[64] 
Standing Order 83.1. This provision, added to the Standing Orders in 1994 (see Journals, February 7, 1994, pp. 112-8, in particular p. 117 and pp. 119-20), extends the Finance Committee’s permanent mandate beyond overseeing the Finance Department and Revenue Canada to include, in the words used by the Government House Leader in proposing the new standing order, “ … an annual public consultation on what should be in the next budget” (Debates, February 7, 1994, p. 962).
[65] 
Standing Order 108(3)(c).
[66] 
Standing Order 108(3)(d).
[67] 
Standing Order 108(3)(a).
[68] 
Responsibility for Private Members’ Business is delegated to a Sub-committee established for that purpose. See, for example, Standing Committee on Procedure and House Affairs, Minutes of Proceedings, September 29, 1997, Meeting No. 1. For the Private Members’ Business process, including the workings of the Sub-committee, see Chapter 21, “Private Members’ Business”.
[69] 
Standing Orders 104 and 107(5). The task of selecting committee members is usually delegated to the whips of the recognized parties. See section below, “Membership”.
[70] 
Standing Order 115(4).
[71] 
Standing Order 108(3)(e).
[72] 
See, for example, Journals, November 7, 1867, p. 5; April 6, 1868, p. 184; January 12, 1905, p. 9.
[73] 
See, for example, Journals, November 28, 1910, p. 27.
[74] 
Journals, June 11, 1965, p. 228.
[75] 
Journals, December 20, 1968, pp. 562-79, in particular p. 575.
[76] 
Journals, March 26, 1991, pp. 2801-27, in particular pp. 2819-20; April 11, 1991, p. 2904; May 23, 1991, pp. 61-62.
[77] 
Standing Order 119.1(2). The guidelines were approved by the House on March 27, 1992. See Journals, February 14, 1992, p. 1024; March 27, 1992, p. 1230.
[78] 
Standing Order 120.
[79] 
Standing Order 121(1).
[80] 
Standing Order 118(2).
[81] 
See, for example, Journals, April 24, 1985, p. 506; May 10, 1985, p. 602.
[82] 
See, for example, Journals, December 11, 1997, p. 394. Pursuant to Standing Order 108(1)(a), any additional powers granted to a standing committee may be delegated by it to a sub-committee.
[83] 
Standing Order 107(1).
[84] 
Standing Order 107(4). For standing, special and legislative committees, Standing Order 118(1) sets quorum at a simple majority of the committee members. Under this rule, the quorum of the Liaison Committee would be 11, rather than seven as set out in Standing Order 107(4).
[85] 
Standing Order 107(3). See Journals, April 2, 1993, p. 2784. A report on committee effectiveness prepared by the Liaison Committee in the concluding weeks of the Thirty-Fifth Parliament (1994-97) was not tabled in the House, but was circulated directly to interested parties. See Parliamentary Government, No. 4, September 1997.
[86] 
Standing Order 107(5).
[87] 
Standing Order 107(6).
[88] 
See Journals, December 8, 1997, p. 358; December 10, 1997, p. 382.
[89] 
See Journals, June 27, 1985, pp. 910-9, in particular pp. 915-6. See also Sixth Report of the Special Committee on Standing Orders and Procedure, Minutes of Proceedings and Evidence, April 28, 1983, Issue No. 19, pp. 3-11, and First Report of the Special Committee on the Reform of the House of Commons, Minutes of Proceedings and Evidence, December 19, 1984, Issue No. 2, pp. 3-23, in particular pp. 7-10.
[90]
Legislative committees were active from 1985 to 1993; however, from 1994 to 1999, no bills were sent to legislative committees.
[91] 
A change to the Standing Orders on April 11, 1991 (see Journals, pp. 2904-32, in particular pp. 2922-7) provided for a system of eight permanent legislative committees, divided equally among four of the five envelopes into which standing committees were grouped. Bills were referred to one of the two committees in the appropriate envelope and a separate Chair was named to take charge of each Bill. The House modified the Standing Orders to remove the envelope system and reinstate ad hoc legislative committees on January 25, 1994 (see Journals, pp. 58-61, in particular pp. 60-1).
[92] 
Standing Order 113(1).
[93] 
Standing Order 113(2). The Panel of Chairmen is a group composed of the Chairman, the Deputy Chairman, and the Assistant Deputy Chairman of Committees of the Whole and other Members appointed by the Speaker.
[94] 
Standing Order 113(3).
[95] 
Usually, only one bill is referred to a given legislative committee. On four occasions, either two related bills were referred to a single legislative committee at once, or a second related bill was referred to a legislative committee already in existence. See Journals, September 23, 1985, p. 1015; May 26, 1986, p. 2208; November 25, 1987, p. 1882; May 17, 1990, pp. 1715-6.
[96] 
See Speaker Lamoureux’s ruling regarding the reporting of bills, Journals, December 20, 1973, pp. 774-5. A legislative committee has reported to the House seeking permission to travel; however, the House did not take up this report (see Journals, February 3, 1988, p. 2130).
[97] 
Standing Order 68(4)-(5).
[98] 
Legislative committees are restricted to calling only technical witnesses since an amendment to the Standing Orders was adopted in 1991 (see Journals, April 11, 1991, pp. 2904-32, in particular p. 2927). At that time, the Government House Leader stated, “ … when legislation passes at second reading in this House, it has received approval in principle— the principle is approved. The role of the [Legislative] Committee is not to debate again whether the legislation is appropriate in principle, by touring the country and hearing from groups about the principle, but rather to look at all the details” (Debates, April 8, 1991, pp. 19137-8). In contrast, standing committees are not restricted by the Standing Orders in the type of witness they may call (see Standing Order 108(1)(a)).
[99] 
Standing Order 115(2) gives priority during sittings of the House to committees meeting to study legislation or the Estimates.
[100] 
During periods when the House is not sitting, Standing Order 115(3) gives priority to meetings of standing and special committees over those of legislative committees.
[101] 
Standing Order 113(5).
[102] 
Standing Order 113(6). Legislative committees were not empowered to create sub-committees when the Standing Orders concerning them were first adopted. The power to create a sub-committee on agenda and procedure was added to the Standing Orders in 1986. See Journals, February 6, 1986, pp. 1644-66, in particular p. 1659; February 13, 1986, p. 1710.
[103] 
Standing Order 121(1).
[104] 
Standing Order 120.
[105] 
See, for example, Journals, February 10, 1988, p. 2166.
[106] 
See, for example, Journals, January 25, 1977, pp. 286-7; March 30, 1993, pp. 2742-3; November 18, 1997, pp. 224-5. Between 1979 and 1985, the House made use of a variant of the special committee known as a “task force”; the number of members named to a task force was small, no substitutions were permitted, and a limited length of time was given to carry out their work. A detailed analysis of the House’s experience with task forces can be found in Audrey O’Brien, “Parliamentary Task Forces in the Canadian House of Commons: A New Approach to Committee Activity”, The Parliamentarian, January 1985, Vol. LXVI, No. 1, pp. 28-32.
[107] 
See, for example, Journals, November 5, 1997, pp. 196-7; November 18, 1997, pp. 224-5.
[108] 
An amendment to the motion to concur in the final report, which seeks to recommit the report to the committee, may be made without the need for a motion to reconstitute the committee. See Speaker Macnaughton’s ruling, Journals, December 1, 1964, pp. 941-7.
[109] 
See, for example, the Special Joint Committee on a Code of Conduct in the First Session (1994-96) and Second Session (1996-97) of the Thirty-Fifth Parliament, Journals, June 19, 1995, pp. 1801-2; March 12, 1996, pp. 83-4.
[110] 
See, for example, Journals, January 29, 1988, pp. 2092-3.
[111] 
See, for example, Journals, October 29, 1990, p. 2183.
[112] 
See, for example, Journals, October 10, 1990, p. 2094.
[113] 
See, for example, Journals, February 23, 1994, p. 186.
[114] 
See, for example, Journals, March 16, 1994, p. 263. Standing Order 119.1(1) restricts committees to the broadcasting facilities provided by the House.
[115] 
See, for example, the power to request drafting assistance from the government (Journals, November 22, 1991, p. 717); the power to advertise using the Parliamentary television channel (Journals, April 6, 1990, p. 1511).
[116] 
Standing Order 121(1).
[117] 
See, for example, Journals, February 25, 1994, p. 206; March 7, 1994, p. 214.
[118] 
See, for example, Journals, April 6, 1990, p. 1511.
[119] 
See Standing Order 104(3) and Senate Rule 86(1)(a)-(e).
[120] 
Typically, the motion concludes with a request in the following form: “that a message be sent to the Senate, requesting that House to unite with this House for the above purpose…” See, for example, Journals, March 16, 1994, p. 263.
[121] 
Standing Order 104(3). Since 1867, there have been two other standing joint committees: on Printing and on the Parliamentary Restaurant. Reference to these committees is still found in Senate Rule 86(1). Reference to the Standing Joint Committee on Printing was dropped from the Standing Orders in 1986 (see Journals, February 6, 1986, pp. 1644-66, in particular p. 1657, and February 13, 1986, p. 1710). While the Standing Orders have never contained a reference to the Standing Joint Committee on the Restaurant of Parliament, the House began to name members to it in 1909 (see Journals, February 10, 1909, p. 69). The last occasion on which members were named to this Committee was during the First Session of the Thirtieth Parliament (see Journals, March 14, 1980, pp. 168-70).
[122] 
Standing Order 108(4)(a).
[123] 
Parliament of Canada Act, R.S.C. 1985, c. P-1, s. 74(1).
[124] 
Standing Order 108(4)(b).
[125] 
R.S.C. 1985, c. 31 (4th Supp.), s. 88 as amended by S.C. 1995, c. 11, s. 30.
[126]
The nature and role of the Standing Joint Committee for the Scrutiny of Regulations are set out in detail in Chapter 17, “Delegated Legislation”.
[127] 
A statutory instrument is a rule, order, regulation or other regulatory text as defined in s. 2(1) of the Statutory Instruments Act, R.S.C. 1985, c. S-22.
[128] 
Standing Order 108(4)(c).
[129] 
R.S.C. 1985, c. S-20, s. 19(3) and c. S-22, s. 19.
[130] 
See, for example, Journals, April 24, 1996, p. 254; May 29, 1996, p. 457.
[131] 
Journals, November 18, 1997, pp. 224-5.
[132] 
Journals, February 23, 1994, pp. 186-7.
[133] 
Journals, March 16, 1994, pp. 262-5.
[134] 
Journals, March 12, 1996, pp. 83-4.
[135] 
Journals, December 22, 1982, pp. 5493-4.
[136] 
Journals, October 23, 1980, pp. 601-3; June 16, 1987, pp. 1100-2; December 17, 1990, pp. 2488-90; May 17, 1991, p. 43; June 19, 1991, pp. 226-7; October 1, 1997, pp. 59-61; October 28, 1997, pp. 158-61.
[137] 
Journals, November 22, 1991, pp. 717-8.
[138] 
Journals, March 20, 1993, pp. 2742-3.
[139] 
Senate Rule 90 provides a standing committee with the powers “to inquire into and report upon such matters as are referred to it from time to time by the Senate … to send for persons, papers and records … and to print from day to day such papers and evidence as may be ordered by it”.
[140] 
Senate Rule 95(4).
[141] 
See, for example, Journals of the Senate, May 30, 1991, p. 59; May 10, 1994, p. 253.
[142] 
Standing Order 108(1). This Standing Order does not distinguish between standing committees of the House and standing joint committees of the House and Senate.
[143] 
Standing Order 121. TheFinancial Policy Manual for Committees of the House of Commons provides that the budgets of each standing joint committee be shared between the two Houses of Parliament in proportion to the number of members from each House on the committee. See Financial Policy Manual for Committees, September 1997, Paragraph A-2.3.
[144] 
Standing Order 119.1.
[145] 
Standing Order 120.
[146] 
Standing Order 118(1) reserves for the House the power to determine, in consultation with the Senate, the quorum in standing joint committees. The quorum is the number of members who must be present in order for the standing joint committee to transact business. A reduced quorum is the number of members, less than a full quorum, authorized by the committee to meet for purposes other than the taking of decisions.
[147] 
Standing Order 118(2).
[148] 
Standing Order 109.
[149] 
See, for example, Journals, November 22, 1991, p. 717.
[150] 
See, for example, Journals, February 23, 1994, p. 186; March 16, 1994, p. 263; November 18, 1997, p. 225.
[151] 
See, for example, Journals, March 26, 1996, p. 84; November 5, 1997, p. 196; November 18, 1997, p. 225.
[152] 
See, for example, Journals, August 4, 1982, pp. 5266-7; May 28, 1984, pp. 665-6; October 9, 1986, p. 66.
[153] 
Standing Order 108(1)(a).
[154] 
Standing Order 108(1)(b). For further information on associate members, see section below, “Substitutions — Associate Members”.
[155] 
Standing Order 107(6).
[156] 
Standing Order 113(6).
[157] 
Committees may decide to forgo a sub-committee on agenda and procedure. See, for example, Standing Committee on National Health and Welfare, Minutes of Proceedings and Evidence, October 21, 1986, Issue No. 1, p. 3.
[158] 
See, for example, Standing Committee on Foreign Affairs and International Trade, Minutes, October 23, 1997, Meeting No. 4.
[159] 
See, for example, Standing Committee on Agriculture and Agri-food, Minutes, October 7, 1997, Meeting No. 1.
[160] 
For example, the Sub-committee on Human Rights and International Development (Standing Committee on Foreign Affairs and International Trade, Minutes, October 23, 1997, Meeting No. 4); the Sub-committee on Private Members’ Business (Standing Committee on House Management, Minutes of Proceedings and Evidence, May 21, 1991, Issue No. 1, p. 5; February 3, 1994, Issue No. 1, p. 9; Standing Committee on Procedure and House Affairs, Minutes, February 29, 1996, Meeting No. 1; September 29, 1997, Meeting No. 1).
[161] 
See, for example, the Sub-committee for the Study of Sports in Canada (Standing Committee on Canadian Heritage, Minutes, November 5, 1997, Meeting No. 5).
[162] 
See, for example, Standing Committee on Aboriginal Affairs and Northern Development, Minutes, March 7, 1996, Meeting No. 1.
[163] 
See, for example, Standing Committee on Canadian Heritage, Minutes, November 5, 1997, Meeting No. 5.
[164] 
See, for example, Journals, March 27, 1990, p. 1417.
[165] 
Standing Order 108(1)(a) does not allow standing committees to delegate to a sub-committee the power to report directly to the House. A similar restriction is usually placed in the order of reference establishing a special committee. The House has, on occasion, given a sub-committee the power to report directly. See Journals, February 17, 1993, p. 2523; February 23, 1993, p. 2546 (Sub-committee on the recodification of the general part of the Criminal Code of the Standing Committee on Justice and Solicitor General); and Journals, April 19, 1993, p. 2796; April 20, 1993, pp. 2812-4; May 28, 1993, pp. 3057-71 (Sub-committee on Bill C-62 (An Act respecting telecommunications) of the Standing Committee on Communications and Culture).
[166] 
See, for example, Standing Committee on Foreign Affairs and International Trade, Minutes, October 23, 1997, Meeting No. 4.
[167] 
See, for example, Journals, April 24, 1985, p. 506; May 10, 1985, p. 602; December 5, 1995, p. 2208.
[168] 
Standing Order 104(1). On at least one occasion, the House did not have committees struck during the first session of a Parliament; the striking committee was established at the beginning of the second session. See Journals, April 6, 1989, p. 50.
[169] 
See, for example, Journals, September 23, 1997, pp. 12-3.
[170] 
Formerly, the House established a committee solely to act as a striking committee. This was last done in 1989 (see Journals, April 6, 1989, p. 50). In 1991, the role of striking committee was included in the mandate of the House Management Committee (Journals, April 11, 1991, pp. 2905-32, in particular p. 2922) and is now part of the mandate of the Procedure and House Affairs Committee (Journals, January 25, 1994, pp. 58-61).
[171] 
By practice, the House names the whips of all parties to the Procedure and House Affairs Committee. The Committee adopts at its organization meeting a motion similar to the following: “That the five Whips be delegated the authority to act as the Striking Committee pursuant to Standing Orders 104, 113 and 114 and, provided that the recommendations are unanimous and a copy of the report is signed by all five Whips, or their representatives, they present their recommendations directly to the Chair of the Committee for presentation to the House on behalf of the Committee” (Standing Committee on Procedure and House Affairs, Minutes, September 29, 1997, Meeting No. 1). The number of whips set out in the motion varies from Parliament to Parliament with the number of recognized parties in the House.
[172] 
One independent Member, Anthony Roman (York North), was a member of two committees (see Standing Committee on Public Accounts, Minutes of Proceedings and Evidence, March 18, 1986, Issue No. 32, p. 10; Standing Joint Committee on Regulations and other Statutory Instruments, Minutes of Proceedings and Evidence, February 5, 1987, Issue No. 4, p. 4).
[173] 
The Speaker was formerly named ex officio joint chair of the Standing Joint Committees on the Library and on the Parliamentary Restaurant. The Speaker may, on occasion, chair a special committee. Speaker Jerome served as Chair of the Special Committee on the Rights and Immunities of Members and of the Special Committee on TV and Radio Broadcasting of Proceedings of the House of Commons. See Journals, December 13, 1976, p. 230, and January 25, 1977, p. 287-8.
[174] 
Chair occupants, other than the Speaker, may be called upon to act as chairs of legislative committees pursuant to Standing Order 112. Deputy Speaker Danis served as Chair of the Special Committee on the Review of the Parliament of Canada Act (see Journals, December 14, 1989, p. 1011).
[175] 
The last Minister to be named to a committee was Alan MacEachern, who was named to replace Mitchell Sharp on the Striking Committee during the Second Session of the Thirtieth Parliament (1976-77) (see Journals, November 1, 1976, p. 92). In 1990, Marcel Danis, who, as Deputy Speaker, had been appointed Chairman of the Special Committee on the Review of the Parliament of Canada Act, continued as Chair of the Committee, even after his appointment to Cabinet (Journals, March 6, 1990, p. 1290).
[176] 
In the early years of Confederation, the Prime Minister served on a variety of standing committees (see, for example, Journals, November 15, 1867, pp. 16, 21-2). The last Prime Minister to be named to a standing committee was William Lyon Mackenzie King, who served on the Standing Joint Committee on the Library of Parliament until 1926 (see Journals, March 16, 1926, p. 152).
[177] 
Following a recommendation of the Special Committee on Reform of the House of Commons (the McGrath Committee), Parliamentary Secretaries were prohibited from being members of standing committees in the area of their responsibility (see Third Report, June 1985, p. 18, recommendation 4.5 (Journals, February 6, 1986, pp. 1644-66, in particular p. 1657)). The absence of Parliamentary Secretaries deprived the government of an official representative on committees and was considered by some to impede the committee’s work (see Debates, April 9, 1991, pp. 19194-7). The prohibition on the membership of Parliamentary Secretaries was lifted in 1991 (see Journals, April 11, 1991, pp. 2905-32, in particular p. 2923).
[178] 
See, for example, Debates, November 20, 1998, Appendix, pp. 17-25. The Website address is «http:// www.parl.gc.ca/».
[179] 
Standing Order 119.
[180] 
Standing Order 104(2).
[181] 
Standing Order 104(1).
[182] 
Since the provision prohibiting the presentation of a second report was added to the Standing Orders in 1987 (see Journals, June 3, 1987, pp. 1016-28, in particular pp. 1023-4), the situation has not occurred.
[183] 
See, for example, Journals, September 30, 1997, pp. 45-52.
[184] 
The Forty-Ninth Report of the Committee, presented on October 5, 1990 (see Journals, pp. 2074-8), proposed new memberships for all standing and standing joint committees. No motion to concur in the Forty-Ninth Report was presented prior to prorogation on May 12, 1991, and committees continued to function up to prorogation with the membership as it existed prior to the presentation of the report.
[185] 
Standing Order 113(1).
[186] 
Standing Order 113(2). For further information on the Panel of Chairmen, see section below, “Chairs and Vice-Chairs”.
[187] 
For example, the second reading debate on Bill C-79 (An Act to amend the Canada Elections Act) was begun on Wednesday, March 16, 1988. The report on the committee membership was presented on Thursday, March 24, 1988. See Journals, March 16, 1988, p. 2303; March 24, 1988, pp. 2412-3.
[188] 
Standing Order 105.
[189] 
See, for example, the Special Committee on Acid Rain (Journals, October 9, 1986, pp. 64-5).
[190] 
See, for example, the Special Committee on Pension Reform (Journals, March 1, 1983, p. 5654; March 9, 1983, p. 5684).
[191] 
See, for example, Journals, March 30, 1993, p. 2742; April 2, 1993, pp. 2784-5. An attempt to depart from an order to bring in a list of names, by presenting a report which provided for a mechanism by which a party whip would designate members from time to time, has been ruled out of order (see Journals, June 19, 1991, pp. 226-7; September 25, 1991, p. 393; Debates, September 25, 1991, pp. 2712-8; September 27, 1991, pp. 2823-5). In at least one instance in the past, the instruction has provided that the striking committee’s report be deemed adopted when presented to the House (Journals, March 30, 1993, p. 2742).
[192] 
Standing Order 104(3) stipulates that membership on standing joint committees is proportional; there is no provision in the Standing Orders concerning proportional membership on special joint committees. Given the party representation in the two Houses at any given time, the proportional representation on a particular joint committee may be only approximate. See, for example, Journals, June 19, 1991, pp. 226-7.
[193] 
Standing Order 104(3). See, for example, Journals, September 30, 1997, pp. 45-52.
[194] 
The order of reference may directly name the membership (Journals, December 13, 1983, p. 37) or it may be done by reference. For example, the membership of the Standing Committee on Procedure and House Affairs was designated to represent the House on the Special Joint Committee on a Code of Conduct (Journals, March 12, 1996, p. 83).
[195] 
See, for example, Journals, December 5, 1997, pp. 353-4.
[196] 
See, for example, Journals, March 30, 1993, p. 2742; April 2, 1993, pp. 2784-5.
[197] 
See, for example, Journals, December 13, 1983, pp. 37-8.
[198] 
See, for example, Journals, April 2, 1993, pp. 2784-5.
[199] 
See, for example, the Sub-committee on Private Members’ Business (Standing Committee on Procedure and House Affairs, Minutes, September 29, 1997, Meeting No. 1).
[200] 
The motion to appoint the membership usually reads: “to be named by the Chair following the usual consultations with the whips”. Committee members of each party consult as necessary with their party’s whip and then inform the Chair of the name of their member or members on the sub-committee (see, for example, Standing Committee on Foreign Affairs and International Trade, Minutes, October 23, 1997, Meeting No. 4, and Standing Committee on Canadian Heritage, Minutes, November 5, 1997, Meeting No. 5). This procedure permits subsequent changes to the membership of a sub-committee at the discretion of the Whip without the need for an order by the committee.
[201] 
Standing Order 108(1)(b). Permission was given to a committee to name to a sub-committee Members of the House who were neither members of the committee nor associate members (Journals, March 9, 1983, p. 5684).
[202] 
See, for example, Journals, June 27, 1985, p. 907.
[203] 
See, for example, Journals, October 1, 1985, p. 1052.
[204] 
See, for example, Standing Committee on Environment and Sustainable Development, Minutes, October 7, 1997, Meeting No. 1.
[205] 
See also, for example, the Sub-committee on Sittings of the House and the Sub-committee on Members’ Services of the Standing Committee on Procedure and House Affairs (Procedure and House Affairs Committee, Minutes, October 28, 1997, Meeting No. 3). See also Chapter 21, “Private Members’ Business”.
[206] 
See Special Committee on Reform of the House of Commons, Third Report, June 1985, pp. 18-9. Following the presentation of the Report, a provision was added to the Standing Orders that required members of standing committees to file a list of substitutes. Members failing to file such a list were removed from the committee. (See Journals, February 6, 1986, pp.1644-66, in particular pp. 1659-60, and February 3, 1986, p. 1710. For an example of this provision in use, see Journals, May 29, 1986, pp. 2234-5.) In 1994, the filing of the list of substitutes was made voluntary, and the provision removing members who failed to do so was deleted (see Journals, January 25, 1994, pp. 58-61, in particular p. 61).
[207] 
Where necessary, a series of substitutes may replace a given member during a meeting, but only one substitution may be in effect at any given time. See, for example, Standing Committee on Finance, Minutes, May 7, 1998, Meeting No. 82.
[208] 
See Speaker Parent’s ruling, Debates, November 7, 1996, pp. 6225-6.
[209] 
See, for example, Standing Committee on Consumer and Corporate Affairs, Minutes of Proceedings and Evidence, November 27, 1991, Issue No. 28, pp. 3, 39-40.
[210] 
Standing Order 114(2)(a).
[211] 
In practice, a substitution is considered effective for any or all meetings of the committee which take place on the date indicated on the notice of substitution, rather than for a single meeting. Independent members are required to send their notices to the Chief Whip of the Official Opposition pursuant to Standing Order 114(2)(b).
[212] 
The notice must be in the proper form. A notice that was defective has been held to invalidate the substitution, and the vote of the proposed substitute has been disallowed. See Standing Committee on Communications and Culture, Minutes of Proceedings and Evidence, June 17, 1992, Issue No. 50, pp. 6, 44-5.
[213] 
Standing Order 114(2)(c). In 1994, Audrey McLaughlin (Yukon), who was not an associate member, was substituted for a regular member of the Aboriginal Affairs and Northern Development Committee and voted. When called upon to rule on the matter, Speaker Parent declared that the vote should be disallowed (Debates, June 20, 1994, pp. 5582-4).
[214] 
Standing Order 114(3). See Journals, December 10, 1990, pp. 2434-5.
[215] 
See, for example, Journals, September 21, 1994, pp. 712-3.
[216] 
See, for example, Journals, November 18, 1997, pp. 224-5.
[217] 
See, for example, Standing Committee on Foreign Affairs and International Trade, Minutes, October 23, 1997, Meeting No. 4.
[218] 
See Speaker Parent’s ruling, Debates, November 7, 1996, pp. 6225-6.
[219] 
In order to fulfil their mandates, some committees have adopted an alternative to the establishment of sub-committees with the participation of associate members. These committees divide themselves into “groups”, each having responsibility for a share of the committee’s mandate. The Standing Committee on Foreign Affairs and International Trade has divided itself into two groups “ … to be assigned to meet alternately with visiting delegations …” (Standing Committee on Foreign Affairs and International Trade, Minutes, October 8, 1997, Meeting No. 1). The Finance Committee has divided itself into two groups in order to hold simultaneous hearings in different locations as part of the pre-budget consultation (Standing Committee on Finance, Minutes, October 7, 1997, Meeting No. 2).
[220] 
Standing Order 104(4). See, for example, Journals, October 2, 1998, pp. 1114-5. The membership of the Standing Committee on Procedure and House Affairs is named directly by motion of the House; its associate members are named in the same way. See, for example, Journals, September 28, 1998, p. 1086.
[221] 
See Sub-committee on Indian Self-Government, Minutes of Proceedings and Evidence, October 6, 1982, Issue No. 1, pp. 8-9, 11; November 18, 1982, Issue No. 6, p. 3; and Sub-committee on Indian Women and the Indian Act, Minutes of Proceedings and Evidence, September 8, 1982, Issue No. 1, p. 8. In addition to ex officio members,the Sub-committee on Indian Self-Government named “liaison members”, also not Members of the House, who were permitted to question witnesses at the discretion of the Chair and to participate in the drafting of the Sub-committee’s report.
[222] 
Bourinot, 4thed., p. 462.
[223] 
Members were excused by order of the House for such reasons as ill health or advanced age. See, for example, Journals, March 24, 1873, p. 60.
[224] 
Standing Order 114(2)(d). See, for example, Journals, June 15, 1989, p. 377. Changes to the membership of the Standing Committee on Procedure and House Affairs, which is appointed directly by motion of the House, can only be made by a subsequent motion. See, for example, Journals, September 28, 1998, p. 1086.
[225] 
Standing Order 114(3). See, for example, Journals, April 8, 1991, p. 2848.
[226] 
See, for example, Journals, November 18, 1997, p. 225.
[227] 
See, for example, Journals, March 12, 1996, pp. 83-4; February 9, 1998, p. 430.
[228] 
Standing Order 117. The Speaker’s role in this respect is set out in Standing Order 10.
[229] 
Standing Order 35(1) permits a committee report to be presented by any Member of the House, although practice holds that it is normally limited to members of the committee. Committees usually adopt a motion instructing the Chair to present the report on their behalf (see, for example, Standing Committee on Procedure and House Affairs, Minutes, December 3, 1998, Meeting No. 45). The Chair of a sub-committee conducting a special study has presented the resulting report of the main committee to the House (see, for example, Debates, December 3, 1998, p. 10825).
[230] 
See, for example, Debates, October 24, 1985, p. 7965; March 9, 1987, p. 3955.
[231] 
The Speaker has served as the Chair of the Special Committee on the Rights and Immunities of Members (see Journals, March 9, 1978, p. 467) and of the Special Committee on TV and Radio Broadcasting of the Proceedings of the House and its Committees (see Journals, October 18, 1977, p. 11). The Deputy Speaker has chaired the Special Committee on the Review of the Parliament of Canada Act (see Journals, December 14, 1989, p. 1011). Following his appointment as Minister of State (Youth and Fitness and Amateur Sport) and his resignation as Deputy Speaker, Marcel Danis continued as Chair of this Committee (see Journals, March 6, 1990, p. 1290).
[232] 
See, for example, Journals, November 23, 1989, p. 878.
[233] 
The last Minister to be elected Chair of a committee was Mitchell Sharp. See Standing Committee on Procedure and Organization, Minutes of Proceedings and Evidence, October 17, 1974, Issue No. 1, p. 5.
[234] 
Anthony Roman (York North), an independent Member, served as Chair of a legislative committee in 1987. See Journals, November 4, 1987, pp. 1835-6.
[235] 
Standing Order 107.
[236] 
See Special Committee on Standing Orders and Procedure, Minutes of Proceedings and Evidence, April 28, 1983, Issue No. 19, pp. 5-6, and Special Committee on Reform of the House of Commons, Third Report, June 1985, p. 102.
[237] 
See, for example, Debates, June 26, 1989, p. 3645.
[238] 
Standing Order 118(1).
[239] 
See, for example, Standing Committee on Labour, Employment and Immigration, Minutes of Proceedings and Evidence,June 11, 1987, Issue No. 40, p. 4.
[240] 
Standing Order 113(4).
[241] 
Committees are exempted from following the rules used for the election of the Speaker by Standing Order 116. For an example of a Chair’s election, see Standing Committee on Foreign Affairs and International Trade, Minutes and Evidence, October 8, 1997, Meeting No. 1.
[242] 
See, for example, Standing Committee on Transport, Evidence, March 12, 1996, Meeting No. 1.
[243] 
See, for example, Standing Committee on Canadian Heritage, Minutes, October 7, 1997, Meeting No. 1.
[244] 
See, for example, Standing Committee on Fisheries and Oceans, Minutes and Evidence,October 7, 1997, Meeting No. 1.
[245] 
See, for example, Standing Committee on Communications and Culture, Minutes of Proceedings and Evidence, June 4, 1991, Issue No. 1, p. 5.
[246] 
See, for example, Standing Committee on Fisheries and Oceans, Evidence, October 7, 1997, Meeting No. 1.
[247] 
Standing Order 106(1). See, for example, Standing Committee on Public Accounts, Minutes of Proceedings and Evidence, December 12, 1995, Issue No. 36, pp. 20-1.
[248] 
See, for example, Standing Committee on Industry, Minutes of Proceedings and Evidence, February 9, 1995, Issue No. 32, p. 3.
[249] 
See Standing Order 2(2) and Chapter 7, “The Speaker and Other Presiding Officers of the House”.
[250] 
See, for example, Standing Committee on Miscellaneous Estimates, Minutes of Proceedings and Evidence, December 9, 1982, Issue No. 100, p. 3.
[251] 
Standing Order 106(1).
[252] 
The election, following the September report, has been suspended by special order of the House and incumbent Chairs permitted to continue in office. See Journals, September 27, 1991, p. 408.
[253] 
Standing Order 106(2).
[254] 
See, for example, Standing Committee on Aboriginal Affairs and Northern Development, Minutes of Proceedings and Evidence, March 7, 1996, Issue No. 1, p. 1.
[255] 
In the case of the Public Accounts Committee, the practice of choosing a Chair from the opposition was part of the government’s initial intention in establishing the committee. A commitment to having a member of the opposition chair the committee was made in the 1958 Throne Speech. See Debates, May 12, 1958, p. 6.
[256] 
The Scrutiny of Regulations Committee was proposed as one which should operate in a primarily non-partisan manner, aided by a proposal that the committee not be chaired only by government members. See Debates, October 14, 1971, pp. 8679-81.
[257] 
A departure from this practice arose in the First Session of the Thirty-Sixth Parliament (1997-99) when the Official Opposition members on the Scrutiny of Regulations Committee declined nominations for the position of Joint Chair. A government member was elected to the position. See Standing Committee for the Scrutiny of Regulations, Minutes and Evidence, October 23, 1997, Meeting No. 1.
[258] 
See, for example, Standing Committee on Canadian Heritage, Minutes of Proceedings and Evidence, February 8, 1994, Issue No. 1, p. 5.
[259] 
See, for example, Standing Committee on Foreign Affairs and International Trade, Minutes, October 8, 1997, Meeting No. 1.
[260] 
Standing Order 112. See, for example, Journals, May 19, 1989, p. 248.
[261] 
See, for example, Journals, October 18, 1990, p. 2143.
[262] 
The view of the legislative committee chair as a non-partisan presiding officer stems from a recommendation in the Sixth Report of the Lefebvre Committee, repeated in the First Report of the McGrath Committee, concerning the establishment of a system of legislative committees: “Your Committee believes that Legislative Committees ought to be regarded as smaller versions of the Committee of the Whole House… (T)he Deputy Speaker, as the Chairman of Committees, is an impartial presiding officer. We believe that the establishment of a Panel of Chairmen would impart these qualities to the committee stage of all legislation. As neutral chairmen, panel members would be able to develop expertise in House procedures and to meet from time to time to ensure consistent chairing practices.” See Special Committee on Standing Orders and Procedure, Minutes of Proceedings and Evidence, April 28, 1983, Issue No. 19, p. 5, and Special Committee on the Reform of Parliament, Minutes of Proceedings and Evidence, December 20, 1984, Issue No. 2, p. 8.
[263] 
Standing Order 113(1) and (2). See, for example, Journals, December 7, 1990, p. 2399; December 11, 1990, p. 2438; December 12, 1990, p. 2447.
[264] 
Standing Order 113(4).
[265] 
Chairs may be designated in the order of reference establishing a special committee. See, for example, Journals, June 27, 1989, p. 472.
[266] 
See, for example, Special Committee on Electoral Reform, Minutes of Proceedings and Evidence, February 26, 1992, Issue No. 1, p. 4.
[267] 
See, for example, Standing Joint Committee on the Library of Parliament, Minutes, October 28, 1997, Meeting No. 1.
[268] 
See, for example, Special Joint Committee on Child Custody and Access, Minutes, December 11, 1997, Meeting No. 1.
[269] 
See, for example, Special Joint Committee on Child Custody and Access, Minutes, December 11, 1997, Meeting No. 1; Standing Joint Committee on the Library of Parliament, Minutes, October 28, 1997, Meeting No. 1; Standing Joint Committee on Official Languages, Minutes, October 21,1997, Meeting No. 1; Special Joint Committee on a Code of Conduct, Minutes of Proceedings and Evidence, March 20, 1997, Issue No. 1, p. 71.
[270] 
See, for example, Standing Joint Committee for the Scrutiny of Regulations, Evidence, October 22, 1998, Meeting No. 13.
[271] 
For a recent exception, see Special Joint Committee on a Code of Conduct, Minutes of Proceedings and Evidence, March 20, 1997, Issue No. 1, p. 71.
[272] 
See, for example, Standing Committee on Procedure and House Affairs, Minutes, October 28, 1997, Meeting No. 3.
[273] 
See, for example, Sub-committee on Human Rights and International Development of the Standing Committee on Foreign Affairs and International Trade, Minutes, November 3, 1997, Meeting No. 1.
[274] 
For example, the Sub-committee on Members’ Services of the Standing Committee on Procedure and House Affairs was chaired by a member of the Official Opposition. See Standing Committee on Procedure and House Affairs, Minutes, October 28, 1997, Meeting No. 3.
[275] 
See, for example, Standing Committee on Finance, Minutes of Proceedings and Evidence, March 24, 1992, Issue No. 40, p. 3.
[276] 
For a recent exception, see Sub-committee on Members’ Services of the Standing Committee on Procedure and House Affairs, Minutes, April 9, 1997, Meeting No. 1.
[277] 
See, for example, Standing Committee on Finance, Trade and Economic Affairs, Minutes of Proceedings and Evidence, November 17, 1983, Issue No. 156, p. 3.
[278] 
See, for example, Journals, June 12, 1989, p. 358; June 15, 1989, p. 379.
[279] 
See, for example, Standing Committee on Procedure and House Affairs, Minutes of Proceedings and Evidence, October 4, 1994, Issue No. 24, pp. 6, 8.
[280] 
Standing Order 120.
[281] 
See, for example, Special Joint Committee on Child Custody and Access, Minutes, February 23, 1998, Meeting No. 5.
[282] 
See Financial Policy Manual for Committees, Chapter C-3, Contracts.
[283] 
Standing Order 119.1.
[284] 
See, for example, Standing Committee on Natural Resources, Minutes of Proceedings and Evidence, April 14, 1994, Issue No. 10, p. 3.
[285] 
Town hall meetings are used especially when committees meet outside of the parliamentary precinct. See, for example, Standing Committee on National Defence and Veterans Affairs, Minutes and Evidence, May 28, 1998, Meeting No. 68.
[286]
For further information on videoconferencing, see section below.
[287] 
Standing Order 108(1)(a). See, for example, Standing Committee on Foreign Affairs and International Trade, Minutes, February 9, 1999, Meeting No. 89, and Standing Committee on National Defence and Veterans’ Affairs, Minutes, February 9, 1999, Meeting No. 88.
[288] 
Formerly, committees required special permission of the House to sit jointly. Following the Parliamentary Forum on Global Climate Change in 1990, which permitted several committees to hold joint meetings as well as a plenary session and print a single record of their proceedings, the Standing Orders were modified to permit such joint sittings (see Journals, March 28, 1990, p. 1424; Standing Committee on Privileges and Elections, Minutes of Proceedings and Evidence, March 19, 1991, Issue No. 42, pp. 3-4; Journals, March 20, 1991, p. 2728; April 12, 1991, p. 2943).
[289] 
See, for example, Journals, August 1, 1940, pp. 310-6.
[290] 
See, for example, Standing Committee on Aboriginal Affairs and Northern Development, Minutes of Proceedings and Evidence, June 22, 1988, Issue No. 45, p. 3.
[291] 
While the text of all motions adopted is included in the minutes of in camera meetings, the names of the movers are not included and no information is provided about the numbers of yeas and nays or the names of those voting for or against a motion. See, for example, Standing Committee on Official Languages, Minutes, February 11, 1999, Meeting No. 19. The clerk of the committee may be requested to keep more detailed, confidential minutes for the exclusive use of the committee. These detailed minutes, usually referred to as in extenso minutes, do not form part of the public record of the committee’s proceedings.
[292] 
In the absence of any other direction from the House or the committee, Standing Order 119 permits Members who are not members of a committee to participate only in the public proceedings of the committee.
[293] 
See, for example, Standing Committee on Regional Industrial Expansion, Minutes of Proceedings and Evidence, April 28, 1987, Issue No. 13, p. 3.
[294] 
See Speaker Fraser’s ruling, Debates, May 14, 1987, pp. 6108-11, and the Seventh Report of the Standing Committee on Elections, Privileges and Procedure, Journals, December 18, 1987, pp. 2014-6. The case in question involved the divulgation by John Parry (Kenora–Rainy River) of the results of a recorded vote held at an in camera meeting of the Standing Committee on Aboriginal Affairs and Northern Development. See Debates, March 25, 1987, p. 4540; April 28, 1987, pp. 5329-30; May 5, 1987, pp. 5737-42. A committee may itself decide that a meeting held in camera should be declared a public meeting. See, for example, Standing Joint Committee for the Scrutiny of Regulations, Minutes, November 5, 1998, Meeting No. 15.
[295] 
Committees may also meet in a regular committee setting with such delegations. Even in these cases, however, the usual format is relaxed. The proceedings take more the form of an exchange of views than of the gathering of evidence from witnesses. See, for example, Standing Committee on Foreign Affairs and International Trade, Minutes, March 19, 1998, Meeting No. 40.
[296] 
Standing and legislative committees are not accorded the power to travel by the Standing Orders. They are accorded the power to travel by motion of the House or, more rarely, by having the House concur in a committee report recommending that such permission be given. See, for example, Journals, February 6, 1986, p. 1644; December 11, 1997, p. 394. Where it seems likely that a special committee will need this power, it is often included in the order of reference which establishes the committee. If a special committee wishes to seek authorization to travel, it may do so by placing a recommendation to that effect in a report to the House. As well, the House may adopt a motion authorizing a committee to travel. Power to travel has also been given directly to a sub-committee. See, for example, Journals, June 29, 1983, p. 6116.
[297] 
The motion ordinarily indicates the dates on which the committee is authorized to travel, the locations which it may visit and whether staff will accompany the committee. See, for example, Journals, June 21, 1994, pp. 629-30; April 2, 1998, p. 667.
[298] 
In 1996, the Standing Committee on Agriculture and Agri-Food held a formal meeting in the Canadian embassy in Washington. See Minutes, May 28, 1996, Meeting No. 23. Where a committee decides to hold formal meetings outside of Canada, they are usually held in camera, although the committee may have a transcript of the proceedings made for its own use. See, for example, Special Committee on the Reform of the House of Commons, Minutes of Proceedings and Evidence, May 14, 1985, Issue No. 13, p. 5.
[299] 
See, for example, Standing Committee on Foreign Affairs and International Trade, Minutes, June 4, 1998, Meeting No. 61.
[300]
Although videoconferences offer a number of advantages over travel in terms of cost and convenience to Members and witnesses, in some cases, committees may decide that evidence is better gathered through direct contact.
[301] 
The Senate members of joint committees require special permission of the Senate to sit while the Senate is sitting. See, for example, Standing Joint Committee on Official Languages, Minutes, October 21, 1997, Meeting No. 1.
[302] 
See Bourinot, 4thed., pp. 467-8.
[303] 
See, for example, Standing Joint Committee on Regulations and Statutory Instruments, Minutes of Proceedings and Evidence, February 3, 1983, Issue No. 77, p. 3; Standing Committee on Human Resources Development, Minutes of Proceedings and Evidence, April 25, 1996, Issue No. 4, pp. 22-4.
[304] 
See Speaker Fraser’s ruling, Debates, March 20, 1990, pp. 9512-3.
[305] 
Standing Order 115(1).
[306] 
See Speaker Fraser’s ruling, Debates, March 20, 1990, pp. 9512-3.
[307] 
Standing Order 115(2).
[308] 
Standing Order 115(3).
[309] 
See Standing Order 115(4), and Journals, June 10, 1994, p. 563; September 19, 1994, p. 682.
[310]
Joint committees may meet in the committee meeting rooms provided either by the House or by the Senate.
[311] 
See, for example, Standing Committee on Procedure and House Affairs, Minutes, November 20, 1997, Meeting No. 6.
[312] 
Standing Order 115(1).
[313] 
See, for example, Journals, December 5, 1995, p. 2208.
[314] 
The decision may be made by the adoption of a motion in committee or by the concurrence of recommendations of a steering committee. See, for example, Standing Committee on Agriculture and Agri-Food, Minutes, October 21, 1997, Meeting No. 2.
[315] 
See, for example, Standing Committee on Agriculture and Agri-Food, Minutes, November 6, 1997, Meeting No. 9. The Chair always acts with the implicit consent of the committee. See Speaker Lamoureux’s ruling, Debates, March 3, 1967, p. 13704. The exception to the convening of the committee by the Chair is the organization meeting of a standing or special committee, which is convened by the Clerk of the House.
[316] 
See, for example, Journals, April 2, 1957, p. 362; April 8, 1957, p. 421.
[317] 
See, for example, Standing Committee on Foreign Affairs and International Trade, Minutes, February 4, 1999, Meeting No. 87.
[318] 
Where a joint committee so wishes, it may adopt a motion to govern the manner in which its meetings are to be convened or cancelled, as the case may be. See, for example, Special Joint Committee on Official Languages, Minutes of Proceedings and Evidence, March 9-11, 1982, Issue No. 37, pp. 3-4 and 6-13.
[319]
Prior to February 1996, printed notices were sent via the House of Commons internal mail system or hand delivered by messenger.
[320] 
The subject announced on the notice of meeting is not binding on the committee, which may decide to take up any subject within its mandate at any meeting. See Speaker Fraser’s ruling, Debates, December 18, 1989, pp. 7059-60; see also Debates, October 20, 1989, pp. 4927-33.
[321]
Meetings of each committee are assigned numbers consecutively, beginning with the first meeting of each session. A committee may hold more than one meeting in a single day, sometimes on unrelated topics.
[322]
Notices for all upcoming committee meetings are posted on the Parliamentary Website at « http://www.parl.gc.ca ».
[323] 
See Speaker Macnaughton’s ruling, Debates, October 28, 1963, pp. 4071-2.
[324] 
Standing Order 106(3). See, for example, Standing Committee on Justice and Human Rights, Minutes, December 3, 1997, Meeting No. 19. In this case, the notice was sent within the required 10 sitting-day period, and the meeting took place on the eleventh day following receipt of the letter from the four members.
[325] 
See, for example, Standing Committee on Citizenship and Immigration, Minutes, March 11, 1998, Meeting No. 14.
[326] 
See, for example, Special Joint Committee on Official Languages, Minutes of Proceedings and Evidence, March 11, 1982, Issue No. 37, p. 4.
[327] 
See, for example, Standing Committee on Citizenship and Immigration, Minutes, November 17, 1998, Meeting No. 41.
[328] 
See, for example, Standing Committee on Citizenship and Immigration, Minutes, October 29, 1998, Meeting No. 39.
[329] 
See, for example, Special Joint Committee on a Renewed Canada, Minutes of Proceedings and Evidence, November 13, 1991, Issue No. 19, p. 3. While such adjournments sine die may result in a committee not proceeding further with a study ordered by the House, the Speaker has declined to intervene. See Debates, February 26, 1992, pp. 7620-4.
[330] 
Standing Order 118(1).
[331] 
See, for example, Standing Committee on Environment and Sustainable Development, Minutes, December 4, 1997, Meeting No. 26.
[332] 
See, for example, Journals, October 29, 1997, p. 165; November 25, 1997, p. 257.
[333] 
See, for example, Journals, October 28, 1997, pp. 158-62; November 5, 1997, pp. 196-7.
[334] 
The quorum in joint committees is usually less than a majority of the members. For example, in the case of the Standing Joint Committee on Official Languages, quorum is set at 7, while a simple majority of the members would require a quorum of 13. See Standing Joint Committee on Official Languages, Minutes, October 21, 1997, Meeting No. 1.
[335] 
Standing Order 118(2).
[336] 
See, for example, Journals, November 5, 1997, p. 196.
[337] 
For House committees, it is often stipulated that a member of the opposition must be present. For joint committees, it is usually required that both Houses be represented in the reduced quorum. See, for example, Standing Committee on Citizenship and Immigration, Minutes, October 21, 1997, Meeting No. 2; Journals, November 5, 1997, p. 196.
[338] 
Standing Order 118(2).
[339]
For the manner in which the members of the various types of committees are selected, see section above, “Membership”.
[340]
For the method of electing a committee Chair, see section above, “Election of the Chair and the Vice-Chair”.
[341] 
Standing Order 106(1).
[342] 
In practice, 48 hours’ notice is taken to mean that the notice is sent on the second day preceding the meeting. The House has, on occasion, suspended this Standing Order with respect to all or some committees to permit them to meet with less than 48 hours’ notice. See, for example, Journals, September 18, 1995, p. 1891; October 1, 1998, p. 1109.
[343] 
Although standing committees are required to elect Vice-Chairs, the Standing Orders do not give the clerk the authority to include these elections in the notice which convenes the committee. See Standing Order 106(1). Any decision about dealing with matters other than the election of the Chair at an organization meeting is made by the committee with the Chair (or Acting Chair) presiding.
[344]
Only standing committees are obliged to elect Vice-Chairs. See section above, “Election of the Chair and the Vice-Chair”.
[345] 
Standing Order 113(3). When the Legislative Committee on Bill C-72, the Official Languages Act, failed to meet within the prescribed period, Speaker Fraser stated that it would not be appropriate for the Speaker to set a date for the first meeting of the Committee. See Debates, March 14, 1988, pp. 13706-7.
[346] 
Standing Committee on Transport, Minutes, October 7, 1997, Meeting No. 1.
[347] 
Standing Committee on Foreign Affairs and International Trade, Minutes, October 8, 1997, Meeting No. 1.
[348] 
Standing Order 118(2).
[349] 
See, for example, Standing Committee on Finance, Minutes, October 2, 1997, Meeting No. 1.
[350] 
In the case of joint committees, it is usual for the motion to require that both Houses be represented. See, for example, Standing Joint Committee on Official Languages, Minutes, October 21, 1997, Meeting No. 1.
[351] 
Standing Committee on Citizenship and Immigration, Minutes, October 21, 1997, Meeting No. 2.
[352] 
See, for example, Standing Committee on Citizenship and Immigration, Minutes, October 28, 1998, Meeting No. 38, and November 17, 1998, Meeting No. 41.
[353] 
Standing Committee on Health, Minutes, October 30, 1997, Meeting No. 2.
[354] 
Committees routinely pay travel, accommodation and living expenses of witnesses (see Financial Policy Manual for Committees, Section C-6, Witness Expenses).
[355] 
Standing Committee on Health, Minutes, October 30, 1997, Meeting No. 2.
[356] 
Standing Order 32(4) requires all government documents to be tabled in both official languages. Section 4 of the Official Languages Act (R.S.C. 1985, c. 31(4th Supp.)) and section 17 of the Constitution Act, 1982 (R.S.C. 1985, Appendix II, No. 44, Schedule B) give everyone the right to use either English or French in their dealings with Parliament.
[357] 
Standing Committee on Justice and Human Rights, Minutes, November 6, 1997, Meeting No. 5.
[358] 
Standing Committee on Human Resources and the Status of Persons with Disabilities, Minutes, October 8, 1997, Meeting No. 1.
[359] 
See, for example, Standing Committee on Communications and Culture, Minutes of Proceedings and Evidence, December 17, 1987, Issue No. 73, p. 4.
[360] 
Standing Committee on Industry, Minutes, October 2, 1997, Meeting No. 1.
[361] 
Members of the House of Commons who are not members of the committee ordinarily withdraw, although they may remain with the committee’s consent. See, for example, Standing Committee on Regional Industrial Expansion, Minutes of Proceedings and Evidence, May 6, 1987, Issue No. 13, p. 3.
[362] 
See, for example, Standing Committee on Labour, Employment and Immigration, Minutes of Proceedings and Evidence, January 26, 1988, Issue No. 49, p. 3.
[363] 
Standing Committee on Justice and Human Rights, Minutes, November 6, 1997, Meeting No. 5.
[364] 
Standing Order 111(4) provides that the Minister nominating a person to an Order-in-Council position will supply the committee, to which the nomination is referred, with a copy of the nominee’s curriculum vitae on request.
[365] 
Standing Committee on Citizenship and Immigration, Minutes, October 21, 1997, Meeting No. 2.
[366] 
Committees have varied in their use of notice requirements. In some cases notice has been required for any substantive motion, in others only for new business, unrelated to the subject before the committee at any given time. See, for example, Standing Committee on Canadian Heritage, Minutes, October 21, 1997, Meeting No. 2, and Standing Joint Committee on the Library of Parliament, Minutes, October 28, 1997, Meeting No. 1.
[367] 
Standing Committee on Justice and Human Rights, Minutes, November 6, 1997, Meeting No. 5.
[368] 
Other motions used occasionally include: the purchase of documents (see, for example, Standing Committee on Justice and Human Rights, Minutes, November 6, 1997, Meeting No. 5); the holding of meetings by videoconference (see, for example, Standing Committee on Aboriginal Affairs and Northern Development, Minutes, October 30, 1997, Meeting No. 2); the adoption of a general meeting schedule for the committee (see, for example, Standing Committee on Public Accounts, Minutes, October 21, 1997, Meeting No. 3); and working arrangements for lengthy meetings, such as the provision of lunches (see, for example, Standing Committee on Justice and Human Rights, Minutes, November 6, 1997, Meeting No. 5). Joint committees must deal with a number of routine matters which are not applicable to standing, legislative and special committees of the House: quorum, times of meeting (see Standing Joint Committee on Official Languages, Minutes, October 21, 1997, Meeting No. 1) and mandate (see Standing Joint Committee for the Scrutiny of Regulations, Minutes of Proceedings and Evidence, March 24, 1994, Issue No. 1, pp. 4-6 and 9-10).
[369]
These include, for example, the salaries of committee staff, costs associated with committee meeting rooms, and the production of Minutes and Evidence. Translation and interpretation services for committees are provided through the Department of Public Works and Government Services. Library of Parliament research staff assigned to committees are paid by the Library (except those permanently assigned to the Standing Joint Committee for the Scrutiny of Regulations, who are paid by the Committee).
[370] 
Project budgets cover such items as witness expenses, report production, consulting contracts, advertising and media relations, temporary administrative support staff, videoconferences and other miscellaneous items, including hospitality expenses. Full details of budgeting are found in the Financial Policy Manual for Committees, Chapter B-2, “Preparation of Workplan and Budget”.
[371] 
See, for example, Standing Committee on Aboriginal Affairs and Northern Development, Minutes, November 17, 1997, Meeting No. 5.
[372] 
Standing Order 121(1).
[373] 
Standing Orders 107(1) and 121(2).
[374] 
See, for example, Standing Committee on Finance, Minutes, October 7, 1997, Meeting No. 2.
[375] 
Board of Internal Economy By-law 401, Committee Finance and Administration By-law.
[376] 
See, for example, Standing Joint Committee on Official Languages, Minutes, February 11, 1999, Meeting No. 19.
[377] 
See, for example, Special Joint Committee on Child Custody and Access, Minutes, February 23, 1998, Meeting No. 5.
[378] 
Standing Order 108. Prior to 1986, standing committees received no general mandate from the Standing Orders. They met and began their work once the House had referred a specific matter to them. See Journals, February 6, 1986, pp. 1644-66, in particular pp. 1660-2; February 13, 1986, p. 1710.
[379] 
Standing Order 32(5).
[380] 
Standing Order 81(4) and (5).
[381] 
Standing Orders 110 and 32(6).
[382] 
Standing Orders 73(1) to (3) and 141(1).
[383] 
See, for example, Journals, October 1, 1997, pp. 57-9; October 2, 1997, pp. 67-8; March 1, 1999, pp. 1545-6; March 5, 1999, pp. 1563-4; March 10, 1999, p. 1592.
[384] 
A number of statutes contain provisions requiring that they be reviewed by committees. See Legislative Counsel Office, List of Reports and Returns to be made to the House of Commons, 1997, pp. 58-9. As with the Standing Orders, statutes do not identify the particular committee to be charged with the review; this decision is left to the House at the time that the review is begun. See, for example, Canada Business Corporations Act, S.C. 1994, c. 24, s. 33, and Journals, October 1, 1997, p. 55.
[385] 
The motion establishing a special committee usually deals with a number of other matters in addition to the subject of the committee’s study: the powers of the committee, its membership and quorum. See, for example, Journals, October 1, 1997, pp. 59-61.
[386] 
Standing Order 108(4).
[387] 
Senate Rule 86(1) provides only for the striking of the standing joint committees and indicates the number of Senators who should be named to each one. It gives no indication of each committee’s mandate.
[388] 
Committee reports which go beyond the committee’s order of reference have been ruled out of order by Speakers. See, for example, Debates, June 29, 1983, pp. 26943-4; February 28, 1985, pp. 2602-3.
[389] 
See Speaker Lamoureux’s ruling, Debates, December 20, 1973, pp. 774-5.
[390] 
Standing Order 108(2).
[391] 
See, for example, Journals, June 21, 1995, p. 1827 (substantive report on employment equity), and September 25, 1995, p. 1940 (Bill C-64, An Act respecting employment equity).
[392] 
See, for example, Journals, June 29, 1983, p. 6116.
[393] 
See, for example, Journals, June 22, 1994, p. 655.
[394] 
Standing Order 68(4)(a) and (b). See, for example, Journals, October 30, 1997, p. 175. For further information on instructions, see Chapter 16, “The Legislative Process”.
[395]
See Chapter 12, “The Process of Debate”, and Chapter 13, “Rules of Order and Decorum”.
[396] 
Standing Order 116.
[397] 
Although the Speaker will not normally intervene in committee matters in the absence of a report from the committee, this does not extend to circumstances where committees exceed the powers delegated to them. During the First Session of the Thirty-Fifth Parliament (1994-96), the Chair of the Standing Committee on Aboriginal Affairs and Northern Development permitted a Member who was neither a member nor an associate member of the Committee to substitute for one of its associate members. Speaker Parent ruled that a standing committee does not have the authority to establish or modify its own membership, including its associate membership; this power is retained by the House under Standing Order 104(4). See ruling in Debates, June 20, 1994, pp. 5582-4.
[398] 
See, for example, Standing Committee on Justice and Human Rights, Minutes, October 19, 1998, Meeting No. 87.
[399]
See section above, “Routine Motions”.
[400] 
See, for example, Standing Committee on Industry, Minutes, March 23, 1999, Meeting No. 104. In 1990, following a lengthy examination of Bill C-62, An Act to amend the Excise Tax Act, the Criminal Code, the Customs Act, the Customs Tariff, the Excise Act, the Income Tax Act, the Statistics Act, and the Tax Court of Canada Act, the Chair of the Finance Committee unilaterally terminated debate on a motion to limit further debate and set out a schedule allotting time for the remainder of the Committee’s consideration of the Bill. The Chair’s decision was appealed and sustained by the Committee. (See Standing Committee on Finance, Minutes of Proceedings and Evidence, March 19, 1990, Issue No. 103, pp. 6-9.) In a ruling on a question of privilege related to the Committee Chair’s action, Speaker Fraser refused to intervene in the affairs of the Committee and cautioned that, when placing limits on their proceedings, committees are responsible for adhering to the normal procedural means and are expected not to behave in an arbitrary manner. (See Speaker Fraser’s ruling, Debates, March 26, 1990, pp. 9756-8.) The Committee subsequently made a report to the House outlining its concerns about the manner in which debate had been limited and asking that the matter be referred to the Standing Committee on Privileges and Elections. The House concurred in the report (see Journals, April 30, 1990, pp. 1612-3). After study, the Privileges and Elections Committee suggested that Standing Order 78 (time allocation) was the appropriate vehicle to use when proposing a limit on committee consideration of a bill. See Standing Committee on Privileges and Elections, Minutes of Proceedings and Evidence, March 14, 1991, Issue No. 41, pp. 3-18, and Journals, March 20, 1991, p. 2727.
[401] 
See Standing Orders 81(4) and (5), 83.1, 97.1 and 111(3).
[402] 
Reporting deadlines are frequently included in the orders which establish special committees. See, for example, Journals, November 18, 1997, pp. 224-5. The House can impose a limit on the consideration of a bill by a committee through the use of time allocation provisions in Standing Order 78. See, for example, Journals, March 22, 1995, pp. 1259-60. The House may, however, simply adopt a motion instructing a committee to report by a certain date. See, for example, Journals, May 3, 1994, pp. 419-20.
[403]
In committee, members do not have fixed or assigned seats. Although government members usually sit to the Chair’s right and opposition members to the left, members may be recognized by the Chair from any seat.
[404]
The motion may include the amount of time allotted to each questioner. See section above, “Routine Motions”.
[405] 
See, for example, Standing Committee on Natural Resources and Public Works, Minutes of Proceedings and Evidence, November 27, 1979, Issue No. 6, p. 3.
[406] 
Standing Order 117. This differs from the procedure in a Committee of the Whole, where the Chair’s rulings may be appealed not to the Committee but to the Speaker. See Chapter 19, “Committees of the Whole House”.
[407] 
See, for example, Standing Committee on Justice and Legal Affairs, Minutes of Proceedings and Evidence, October 17, 1985, Issue No. 47, pp. 3-4; Standing Committee on Finance, Minutes of Proceedings and Evidence, March 19, 1990, Issue No. 103, pp. 5, 9.
[408] 
See, for example, Standing Committee on Citizenship and Immigration, Minutes of Proceedings and Evidence, May 18, 1995, Issue No. 47, p. 7.
[409] 
Such motions, while directed at the item being considered rather than at members speaking, have the effect of imposing time limits on speeches. See, for example, Standing Committee on Industry, Minutes, March 23, 1999, Meeting No. 104.
[410] 
Standing Order 119.
[411] 
See, for example, Standing Committee on Regional Industrial Expansion, Minutes of Proceedings and Evidence, May 5, 1987, Issue No. 13, p. 3.
[412] 
Standing Order 117.
[413] 
In the absence of a report from the committee, Speakers have consistently refrained from interfering in a committee’s work. See, for example, Journals, July 1, 1919, p. 498; March 31, 1969, pp. 873-4.
[414]
See section above, “Routine Motions — Notice of Motion”.
[415] 
Standing Order 118(2).
[416]
Given the less formal atmosphere which is common in committee meetings, proposals, especially those relating to the internal affairs of the committee, are sometimes adopted without the formal reading of the motion by the Chair or the taking of a vote.
[417]
There is no set procedure in committee, as there is in the House, for deferring votes, although a committee may decide to hold a matter over for further consideration, rather than put it to a vote at a particular time.
[418] 
See Speaker Fraser’s ruling on a question of privilege concerning the disclosure of a vote held at an in camera meeting, Debates, May 14, 1987, pp. 6108-11.
[419] 
Standing Order 141(3). See also Chapter 23, “Private Bills Practice”.
[420]
For further information on the casting vote, see Chapter 7, “The Speaker and Other Presiding Officers of the House”.
[421] 
See, for example, Standing Committee on Citizenship and Immigration, Minutes of Proceedings and Evidence, May 18, 1995, Issue No. 47, p. 7.
[422] 
In the case of standing and legislative committees, this power is accorded by Standing Orders 108(1) and 113(5). Standing committees may delegate the power to send for persons to sub-committees. Legislative committees are restricted to calling government officials and technical witnesses. A provision empowering special committees to send for persons is ordinarily included in the order which establishes the committee. See, for example, Journals, October 1, 1997, pp. 59-61. Committees dealing exclusively with internal, administrative matters may not receive the power to send for persons. No such power is given to the Liaison Committee, nor is it given to steering committees. See Standing Order 107. The power to send for persons goes back at least to the first half of the seventeenth century. See Redlich, Vol. II, p. 207.
[423] 
See, for example, Special Committee on the Review of the Canadian Security Intelligence Service Act and the Security Offences Act, Minutes of Proceedings and Evidence, September 28, 1989, Issue No. 1, p. 7, and Special Committee on the Proposed Companion Resolution to the Meech Lake Accord, Minutes of Proceedings and Evidence, April 9, 1990, Issue No. 1, pp. 8-9.
[424] 
See, for example, Standing Committee on Human Resources and the Status of Persons with Disabilities, Minutes, October 21, 1997, Meeting No. 2.
[425] 
Committees are authorized to reimburse witnesses, with the exception of those residing in the National Capital Region. The actual level of reimbursement, established from time to time by the Board of Internal Economy, is set out in the Financial Policy Manual for Committees. Committees usually limit the number of individuals from a given organization whom they are willing to reimburse. See, for example, Standing Committee on Health, Minutes, October 30, 1997, Meeting No. 2. Committees may reimburse witnesses who appear before them in Ottawa or while the committee is travelling. See, for example, Standing Committee on Fisheries and Oceans, Minutes, November 27, 1997, Meeting No. 11.
[426] 
While the committee is not obliged to extend an invitation to appear prior to issuing a summons, this is the normal manner of proceeding. See, for example, Standing Committee on Consumer and Corporate Affairs and Government Operations, Minutes of Proceedings and Evidence, May 29, 1990, Issue No. 67, p. 4. Prior to an amendment to the Standing Orders in 1994, it was necessary to file a certificate with the Chair of the committee indicating that the evidence of a witness was material and important before a summons could be issued. Since the rule change, a certificate is no longer required prior to the issuing of a summons. See Journals, June 8, 1994, p. 545; June 10, 1994, p. 563; and Standing Committee on Procedure and House Affairs, Minutes of Proceedings and Evidence, June 9, 1994, Issue No. 16, pp. 3-8, in particular p. 8.
[427] 
See, for example, Journals, August 27, 1891, p. 454.
[428] 
See, for example, Journals, May 9, 1996, pp. 341-2. When formally requested to appear by the House, Senators may do so only with the permission of the Senate. See Senate Rule 124.
[429] 
See Parliament of Canada Act, R.S.C. 1985, c. P-1, ss. 10(3), 11. The form of the oath or solemn affirmation is defined by s. 13(2) of the Act, and is set out in the Schedule attached to it.
[430] 
At various times, committees have sworn in the Prime Minister, the Auditor General (an officer of Parliament) and senior public servants. See, for example, Special Committee on Certain Charges and Allegations made by George N. Gordon, Minutes of Proceedings, March 3, 1932; Standing Committee on Public Accounts, Minutes of Proceedings and Evidence, May 16, 1996, Issue No. 15, p. 1; Standing Committee on Labour, Employment and Immigration, Minutes of Proceedings and Evidence, January 28, 1987, Issue No. 20, pp. 3-4, 9-14; and Speaker Fraser’s ruling, Debates, March 17, 1987, pp. 4265-6.
[431] 
See Speaker Fraser’s ruling, Debates, March 17, 1987, pp. 4265-6.
[432]
As in other matters involving privilege, a committee is not empowered to deal with a perceived contempt itself, but must report the matter to the House.
[433] 
Parliament of Canada Act, R.S.C. 1985, c. P-1, s. 12.
[434]
The length of the question period and the order in which questions are asked are matters which must be decided by the committee. See section above, “Routine Motions”. Given the less formal atmosphere which prevails in committee, considerable latitude is often shown with respect to these matters.
[435] 
Committees have, on occasion, authorized committee staff to question witnesses. Such cases tend to arise when a technical subject matter is under consideration. See, for example, Standing Committee on Communications and Culture, Minutes of Proceedings and Evidence, December 3, 1986, Issue No. 8, p. 3.
[436] 
Standing Order 119 authorizes Members of the House who are not members of the committee to participate in its public proceedings.
[437] 
As with Members, freedom of speech is extended to the testimony given by witnesses before committees and has been held to include protection from any possible prosecution. The House may waive this protection if it sees fit. See, for example, Journals, April 12, 1892, pp. 234-5. It is the responsibility of each committee to see that witnesses do not take advantage of this protection to utter defamatory remarks which might give rise to legal proceedings were they made elsewhere. See Speaker Fraser’s ruling, Debates, March 16, 1993, pp. 17071-2. See also Chapter 3, “Privileges and Immunities”.
[438] 
See, for example, Special Committee on Child Care, Minutes of Proceedings and Evidence, June 13, 1986, Issue No. 46, p. 6.
[439] 
See, for example, Standing Committee on Justice and Legal Affairs, Minutes of Proceedings and Evidence, June 3, 1996, Issue No. 24, p. 1; June 6, 1996, Issue No. 27, p. 1.
[440] 
See, for example, Journals, December 4, 1992, p. 2284; February 18, 1993, p. 2528; February 25, 1993, p. 2568; and Standing Committee on House Management, Minutes of Proceedings and Evidence, February 18, 1993, Issue No. 46, pp. 7-11.
[441] 
See, for example, Standing Committee on Elections, Privileges and Procedure, Minutes of Proceedings and Evidence, February 23, 1988, Issue No. 24, p. 4.
[442] 
See Speaker Fraser’s ruling, Debates, March 16, 1993, pp. 17071-2.
[443] 
See, for example, Standing Committee on Elections, Privileges and Procedure, Minutes of Proceedings and Evidence, February 3, 1988, Issue No. 20, pp. 3, 25-8.
[444] 
See, for example, Standing Committee on Elections, Privileges and Procedure, Minutes of Proceedings and Evidence, February 3, 1988, Issue No. 20, pp. 25-8.
[445] 
Debates, December 11, 1986, p. 1999.
[446] 
See Journals, February 17, 1913, p. 254.
[447] 
For a discussion, see Report on Witnesses Before Legislative Committees, Ontario Law Reform Commission, 1981, pp. 25-45.
[448] 
See, for example, Standing Committee on National Resources and Public Works, Minutes of Proceedings and Evidence, November 27, 1979, Issue No. 6, p. 4; Standing Committee on Communications and Culture, Minutes of Proceedings and Evidence, February 4, 1988, Issue No. 73, pp. 7, 45; Standing Committee on Canadian Heritage, Minutes of Proceedings and Evidence, June 18, 1996, Issue No. 2, p. 7. There has been agreement that Order-in-Council nominees should not be asked questions about their personal lives. See, for example, Standing Committee on Citizenship and Immigration, Minutes of Proceedings and Evidence, November 3, 1994, Issue No. 26, p. 4.
[449]
For a description of the sub judice convention, see Chapter 13, “Rules of Order and Decorum”.
[450] 
See, for example, Standing Committee on Miscellaneous Estimates, Minutes of Proceedings and Evidence, May 10, 1982, Issue No. 84, pp. 30, 34. The House is not prevented from referring a matter to committee because it is sub judice. See Speaker Sauvé’s ruling, Debates, March 22, 1983, pp. 24027-9.
[451] 
See, for example, Standing Committee on Justice and the Solicitor General, Minutes of Proceedings and Evidence, May 29, 1990, Issue No. 39, p. 3.
[452] 
See, for example, Standing Committee on Justice and the Solicitor General, Minutes of Proceedings and Evidence, December 4, 1990, Issue No. 56, p. 3.
[453] 
Following the refusal of the Solicitor General to provide two reports to the Standing Committee on Justice and the Solicitor General, citing privacy grounds, the Committee reported the matter to the House. Subsequently, a question of privilege was raised by Derek Lee (Scarborough–Rouge River) concerning the Minister’s failure to provide the reports sought by the Committee. No ruling was delivered as to whether the matter constituted a prima facie breach of privilege, but the issue was referred to the Standing Committee on Privileges and Elections. Parliament was prorogued before the Committee had completed its deliberations, but the reference was revived in the next session allowing the Committee to conclude its work. The Committee presented a report which concluded that the Standing Committee on Justice and the Solicitor General had been within its rights to insist on the production of the two reports and recommended that the House order the Solicitor General to comply with the order for production. The House subsequently adopted a motion to that effect, with the proviso that the reports be presented at an in camera meeting of the Standing Committee on Justice and the Solicitor General. See Standing Committee on Justice and the Solicitor General, Minutes of Proceedings and Evidence, May 29, 1990, Issue No. 39, p. 3; December 4, 1990, Issue No. 56, p. 3; December 18, 1990, Issue No. 57, pp. 4-6; Journals, December 19, 1990, p. 2508; February 28, 1991, p. 2638; Debates, February 28, 1991, pp. 17745-6; Journals, May 17, 1991, p. 42; May 29, 1991, pp. 92-9; June 18, 1991, pp. 216-7; and Standing Committee on Justice and the Solicitor General, Minutes of Proceedings and Evidence, June 19, 1991, Issue No. 4, pp. 5-6.
[454] 
Journals, May 29, 1991, p. 95. The House took note of the Committee’s report and referred it to the Standing Committee on House Management for further study. See Journals, June 18, 1991, pp. 216-7.
[455] 
See, for example, Standing Committee on Justice and the Solicitor General, Minutes of Proceedings and Evidence, November 26, 1992, Issue No. 71, p. 4.
[456] 
For agreement with National Archives, see Journals, April 13, 1994, pp. 339-40.
[457]
Committees usually deal with this question by adopting a motion concerning the general distribution of documents. See section above, “Routine Motions”.
[458] 
See, for example, Standing Committee on Aboriginal Affairs and Northern Development, Minutes, November 19, 1998, Meeting No. 43.
[459] 
See, for example, Standing Committee on Justice and Human Rights, Minutes, November 5, 1997, Meeting No. 4.
[460] 
Standing and legislative committees are empowered by the Standing Orders to print from day to day such papers and evidence as may be ordered by them. See Standing Orders 108(1) and 113(5). A similar provision is usually included in the order establishing a special committee. See, for example, Journals, November 18, 1997, pp. 224-5.
[461]
For a description of the documents produced by the House, see Chapter 24, “The Parliamentary Record”.
[462]
The Website address is « http://www.parl.gc.ca ».
[463] 
See, for example, Standing Committee on Agriculture and Agri-Food, Minutes, December 7, 1998, Meeting No. 69.
[464] 
Meetings are numbered consecutively from the beginning of each session. A committee may meet several times in a single day or have a meeting which extends over more than one day. See, for example, Standing Committee on Finance, Minutes, June 11, 1998, Meeting Nos. 97-100, and Standing Committee on Human Resources Development, Minutes of Proceedings and Evidence, April 25, 1996, Issue No. 4, pp. 22-4.
[465] 
See, for example, Standing Committee on Finance, Minutes, November 23, 1998, Meeting No. 162.
[466] 
It is up to each committee to decide whether to meet in public or not. Committees have sometimes decided to make public those deliberations which were originally conducted in camera.See, for example, Standing Joint Committee for the Scrutiny of Regulations, Minutes, November 5, 1998, Meeting No. 15.
[467] 
As witnesses appearing before committee are protected by parliamentary privilege, it is the responsibility of the committee to see that witnesses do not take advantage of that protection to utter defamatory remarks which might give rise to legal proceedings were they made elsewhere. See Speaker Fraser’s ruling, Debates, March 16, 1993, pp. 17071-2.
[468] 
See, for example, Standing Committee on Aboriginal Affairs and Northern Development, Minutes, November 19, 1998, Meeting No. 43. See section above, “Briefs and Other Papers”.
[469]
For more information on reports, see section below, “Reports to the House”.
[470] 
Standing Order 108(1)(a).
[471] 
Standing Order 119.1.
[472]
At the present time, one committee meeting room is permanently equipped for broadcasting purposes. Portable equipment can be set up by House broadcasting services to permit broadcasting from another room, if required.
[473] 
See Journals, April 11, 1991, pp. 2905-32, in particular p. 2929; Standing Committee on Procedure and House Affairs, Minutes of Proceedings and Evidence, June 6, 1994, Issue No. 16, p. 7; Journals, June 8, 1994, p. 545; June 10, 1994, p. 563.
[474] 
This includes both broadcasting on Parliament Hill and while sitting outside the parliamentary precinct. See, for example, Journals, November 28, 1995, p. 2167; November 21, 1996, p. 880. In addition to being given supplementary broadcasting powers by the House, a committee may need to obtain additional budgetary authorization from the Liaison Committee. Funds for broadcasting purposes are not included in the ordinary budgets of committees.
[475] 
Provisional broadcasting guidelines for committees were tabled as part of the Twenty-Third Report of the Standing Committee on House Management and were approved by the House. The guidelines were made permanent as a result of concurrence by the House in the Eighty-Third Report of the House Management Committee. See Standing Committee on House Management, Minutes of Proceedings and Evidence, February 11, 1992, Issue No. 24, pp. 6-13; Journals, February 14, 1992, p. 1024; March 27, 1992, p. 1230; Standing Committee on House Management, Minutes of Proceedings and Evidence, April 2, 1993, Issue No. 53, pp. 145-7; Journals, April 2, 1993, p. 2784; April 28, 1993, p. 2873. In 1998, the Standing Committee on Procedure and House Affairs presented a report which recommended allowing members of the Press Gallery, rather than House Broadcasting Services, to film committee meetings. See Standing Committee on Procedure and House Affairs, Minutes, December 3, 1998, Meeting No. 45, and Journals, December 8, 1998, p. 1424; April 26, 1999, pp. 1766-7.
[476] 
See, for example, Standing Committee on Foreign Affairs and International Trade, Minutes, October 23, 1997, Meeting No. 4.
[477] 
See Standing Orders 81(4) and 110.
[478] 
The House has occasionally ordered that a particular study be carried out by a sub-committee. See, for example, Journals, June 29, 1983, p. 6116.
[479]
For information on the overall Estimates process, see Chapter 18, “Financial Procedures”.
[480] 
Standing Order 81.
[481] 
Standing Order 81(4). Since 1968, all Estimates have been referred to standing committees for detailed scrutiny before being considered by the House.
[482] 
Standing Order 81(4). See, for example, Standing Committee on Agriculture and Agri-food, Minutes, April 23, 1998, Meeting No. 34, and April 28, 1998, Meeting No. 36. The Committee held no further meetings on the Main Estimates for that year and did not present a report.
[483] 
Standing Order 81(4)(a).
[484] 
Standing Order 81(4)(b).
[485] 
Standing Order 81(7).
[486] 
Standing Order 81(8).
[487] 
Standing Order 81(5). As Supplementary Estimates deal only with costs in excess of the amounts provided for in the Main Estimates, they relate only to the particular departments or programs having new or additional expenditures. Supplementary Estimates are, therefore, referred only to the standing committees concerned with the Votes they contain. See, for example, Journals, May 15, 1998, pp. 835-6.
[488] 
Standing Order 81(5).
[489] 
See, for example, Standing Committee on Human Resources Development and the Status of Persons with Disabilities, Minutes, May 5, 1998, Meeting No. 34.
[490] 
See, for example, Standing Committee on Human Resources Development and the Status of Persons with Disabilities, Minutes, May 14, 1998, Meeting No. 37.
[491] 
When proposing the reduction of a Vote, it is necessary to take into account the fact that a part of the total amount may already have been approved by the House in granting interim Supply. See, for example, Standing Committee on Citizenship and Immigration, Minutes of Proceedings and Evidence, May 18, 1995, Issue No. 47, p. 9. Where a proposal is made to reduce an amount, it must not be for an insignificant amount.
[492] 
See, for example, Standing Committee on National Resources and Public Works, Minutes of Proceedings and Evidence, November 27, 1979, Issue No. 6, p. 3. See also Bourinot, 4thed., p. 427.
[493] 
See Speaker Lamoureux’s ruling, Journals, March 24, 1970, pp. 636-7.
[494] 
See, for example, Standing Committee on Regional Industrial Expansion, Minutes of Proceedings and Evidence, May 7, 1986, Issue No. 1, p. 8.
[495] 
See Speaker Lamoureux’s rulings, Journals, March 24, 1970, pp. 636-7, and June 18, 1973, pp. 419-20; Speaker Jerome’s ruling, Debates, December 10, 1979, p. 2189. Where a committee does wish to make substantive recommendations concerning the Estimates, it may do so using the mandate provided by Standing Order 108(2).
[496] 
Standing Order 73(1) and (2).
[497] 
Standing Order 73(3).
[498] 
All bills based on Supply motions are dealt with in a Committee of the Whole (Standing Order 73 (4)). See Chapter 19, “Committees of the Whole House”.
[499] 
See Journals, November 16, 1964, p. 876; June 22, 1965, pp. 290-1; May 31, 1966, p. 594; July 15, 1975, p. 711; March 30, 1993, pp. 2742-3.
[500] 
Standing Order 68(4)(a) and (b).
[501]
For detailed information on amendments to bills in committee, see Chapter 16, “The Legislative Process”.
[502] 
See Speaker Fraser’s ruling, Debates, April 28, 1992, p. 9801.
[503] 
See, for example, Standing Committee on Human Rights and the Status of Persons with Disabilities, Minutes of Proceedings and Evidence, April 30, 1995, Issue No. 47, p. 35.
[504] 
Standing Order 75(1).
[505] 
Standing Order 113(5).
[506]
For details of the amending process at committee stage, see Chapter 16, “The Legislative Process”.
[507] 
See, for example, Standing Committee on Canadian Heritage, Minutes and Evidence, April 13, 1999, Meeting No. 90.
[508] 
See, for example, Journals, May 3, 1994, p. 419.
[509] 
See, for example, Journals, April 25, 1996, p. 260. For further information, see Chapter 14, “The Curtailment of Debate”.
[510] 
Standing Order 97.1. Formerly, no time limit was placed on the consideration of private Members’ bills. This provision was added to the Standing Orders in 1998. See Journals, November 30, 1998, pp. 1327-9.
[511] 
Standing Order 141(1).
[512] 
See, for example, Standing Committee on Justice and Human Rights, Minutes,May 6, 1999, Meeting No. 140. If the bill does not pass, the committee must decide whether to report to the House that the bill not be proceeded with, or to adopt some other course of action. See Chapter 16, “The Legislative Process”.
[513] 
See, for example, Standing Committee on Justice and Human Rights, Minutes, May 6, 1999, Meeting No. 140.
[514] 
See, for example, Standing Committee on Justice and Human Rights, Minutes, May 6, 1999, Meeting No. 140.
[515] 
Standing Order 68(4). See, for example, Journals, October 30, 1997, p. 175. This provision was added to the Standing Orders in 1994. See Journals, February 7, 1994, pp. 112-20, in particular pp. 115-6.
[516] 
Standing Order 68(4)(a) and (b).
[517] 
Standing Order 68(5).
[518] 
Standing Order 110(1). See, for example, Journals, April 25, 1997, pp. 1551-2. The review of Order-in-Council appointments was recommended in the Third Report of the McGrath Committee. Standing Orders giving effect to the recommendations were adopted provisionally in 1986 and were made permanent in 1987. The review procedure deals only with non-judicial appointments. See Third Report of the Special Committee on Reform of the House of Commons, June 1985, pp. 29-34; Journals, February 6, 1986, pp. 1644-66, in particular p. 1664; February 13, 1986, p. 1710; June 3, 1987, pp. 1016-28; Debates, October 30, 1986, p. 889.
[519] 
Standing Order 110(2). Nominations are made by Ministers to non-judicial posts in regulatory agencies such as the CRTC. As the wording of the Standing Order indicates, the tabling of certificates of nomination is at the Minister’s discretion.
[520] 
Standing Order 110. Where Order-in-Council appointments have been withdrawn from certain committees and referred to other committees, the 30-day period for the committee’s study was deemed to have begun with the adoption of the order making the new referral. See, for example, Debates, October 30, 1986, p. 889. Committees have used the provisions of Standing Order 108(2) to examine Order-in-Council appointments. See, for example, Standing Committee on Environment, Minutes of Proceedings and Evidence, February 18, 1993, Issue No. 56, pp. 3-4; Standing Committee on Natural Resources and Government Operations, Minutes, June 4, 1998, Meeting No. 36.
[521] 
Standing Order 111(1).
[522] 
Standing Order 111(2).
[523] 
See Speaker Fraser’s ruling, Debates, December 11, 1986, p. 1998.
[524] 
Standing Order 111(4).
[525] 
Committees have examined ways in which the process can be used most effectively. See, for example, the Second Report of the Standing Committee on Health, Minutes of Proceedings and Evidence, September 29, 1994, Issue No. 13, pp. 3-9.
[526] 
See, for example, Standing Committee on Government Operations, Minutes of Proceedings and Evidence, November 27, 1986, Issue No. 4, pp. 4-7; Standing Committee on Citizenship and Immigration, Minutes of Proceedings and Evidence, February 13, 1997, Issue No. 6, p. 2. See also Speaker Fraser’s ruling, Debates, December 11, 1986, p. 1998.
[527] 
Standing Order 111(2).
[528] 
Standing Order 108(2). The power to initiate subject-matter studies was accorded to standing committees following the recommendations of the McGrath Committee. See the Third Report of the Special Committee on the Reform of the House of Commons, June 1985, pp. 16-17; Journals, February 6, 1986, pp. 1644-66, in particular pp. 1660-1; February 13, 1986, p. 1710.
[529] 
Standing Order 108(3) and (4).
[530] 
Standing Order 123. See Chapter 17, “Delegated Legislation”.
[531] 
Standing Orders 92 and 108(3)(a)(iv). See Chapter 21, “Private Members’ Business”.
[532] 
See, for example, Journals, October 29, 1990, pp. 2182-3.
[533] 
See, for example, Journals, February 23, 1994, pp. 186-7.
[534] 
See, for example, Journals, February 8, 1994, pp. 132-4.
[535] 
See, for example, Journals, March 10, 1998, pp. 551-2.
[536]
See Chapter 3, “Privileges and Immunities”.
[537] 
See, for example, An Act to amend the Canada Business Corporations Act and to make consequential amendments to other Acts, S.C. 1994, c. 24, s. 33; Journals, October 1, 1997, p. 55.
[538] 
See, for example, Standing Committee on Agriculture and Agri-Food, Minutes, October 22, 1998, Meeting No. 50.
[539] 
See, for example, Standing Committee on Health, Minutes and Evidence, November 27, 1997, Meeting No. 7.
[540] 
See, for example, Standing Committee on Health, Minutes, October 28, 1998, Meeting No. 51.
[541] 
See, for example, Standing Committee on Procedure and House Affairs, Minutes, April 15, 1999, Meeting No. 61.
[542]
See section below, “Presentation in the House”.
[543] 
Standing Order 108(1)(a).
[544] 
See, for example, Journals, November 18, 1997, pp. 224-5.
[545] 
Standing Order 113(5). A legislative committee has presented a revised report, subsequent to its initial reporting of a bill to the House, in order to correct technical errors or omissions in the original report. See Journals, November 19, 1990, pp. 2260-1; November 21, 1990, pp. 2274-5; Debates, November 21, 1990, p. 15529.
[546] 
See, for example, Debates, June 13, 1984, p. 4624; Journals, December 13, 1984, p. 188; December 14, 1984, p. 192; Debates, December 14, 1984, pp. 1242-3; February 28, 1985, pp. 2602-3.
[547] 
See, for example, Standing Committee on Agriculture and Agri-food, Minutes, March 26, 1998, Meeting No. 29.
[548] 
See, for example, Journals, February 3, 1988, p. 2130 (legislative committee seeking travel authority); November 17, 1998, p. 1263 (special committee seeking extension of reporting deadline); March 11, 1999, p. 1593 (standing committee seeking travel authority).
[549] 
For example, the Special Committee on the Reform of the House of Commons presented three substantive reports in the course of fulfilling its mandate. See Journals, December 20, 1984, p. 211; March 26, 1985, p. 420; June 18, 1985, p. 839.
[550] 
Standing Order 108(1)(a) specifically denies standing committees the power to delegate direct reporting power to a sub-committee. A similar provision is usually included in the order of reference of a special committee. The House has, on occasion, given a sub-committee the power to report directly. See, for example, Journals, April 19, 1993, p. 2796.
[551] 
See, for example, Standing Committee on Foreign Affairs and International Trade, Minutes, December 9, 1997, Meeting No. 20.
[552] 
See, for example, Journals, December 11, 1997, p. 393.
[553] 
See Standing Orders 81(4), (5) and 97.1.
[554] 
Standing Order 141(5).
[555] 
See, for example, An Act to amend the Criminal Code (mental disorder) and to amend the National Defence Act and the Young Offenders Act in consequence thereof, S.C. 1991, c. 43, s. 36. The order of reference designating the committee to carry out the statutory review does not usually make explicit reference to the deadline. See, for example, Journals, February 4, 1997, p. 1044.
[556] 
See, for example, Debates, February 26, 1992, pp. 7620-4.
[557] 
See Speaker Parent’s ruling, Debates, November 24, 1994, pp. 8252-3.
[558] 
See, for example, Standing Committee on Foreign Affairs and International Trade, Minutes, November 24, 1998, Meeting No. 81. The motion instructing the Chair to report to the House may be combined with the motion adopting the report. See, for example, Standing Committee on Aboriginal Affairs and Northern Development, Minutes, May 4, 1999, Meeting No. 62.
[559] 
See, for example, Standing Committee on Aboriginal Affairs and Northern Development, Minutes, May 4, 1999, Meeting No. 62. In 1968, the failure to report exactly what a committee had adopted was found to be a prima facie case of privilege by Speaker Lamoureux. See Journals, December 10, 1968, p. 513; February 13, 1969, pp. 695-6.
[560] 
Standing Order 109. For further information, see section below, “Government Response”.
[561] 
See, for example, Standing Committee on Environment and Sustainable Development, Minutes, May 13, 1998, Meeting No. 52.
[562] 
See, for example, Journals, June 16, 1993, p. 3318. Committees have also translated reports into languages other than English and French for distribution to particular audiences. See, for example, Standing Committee on Aboriginal Affairs and Northern Development, Minutes, May 4, 1999, Meeting No. 62.
[563] 
Committees have reported concerning the revelation of in camera proceedings, and the failure of witnesses to appear or to produce papers required by the committee. See, for example, Journals, April 28-9, 1987, p. 791; May 13, 1987, p. 909.
[564] 
Copies of the Minutes of all meetings relating to the report are tabled in the House along with the report itself. See, for example, Journals, May 31, 1999, p. 1968.
[565] 
Speaker Parent pointed out in a 1994 ruling: “Regardless of how the media or members themselves may label such dissent, the House has never recognized or permitted the tabling of minority reports. Speaker Lamoureux twice condemned the idea of minority reports, explaining to the House that what is presented to the House from a committee is a report from the committee, not a report from the majority.” See Debates, November 24, 1994, p. 8252.
[566] 
Standing Order 108(1)(a). Prior to the addition of this provision to the Standing Orders in 1991, only the committee report could be presented in the House, and there was no provision for appending the opinions of those members who differed from the majority. See Journals, April 11, 1991, pp. 2905-32, in particular p. 2924. On occasion, the House did give consent for dissenting opinions to be presented. See, for example, Journals, June 16, 1993, p. 3318; Debates, June 16, 1993, p. 20921. Although the current wording of the Standing Order restricts its application to standing committees, Speaker Parent has ruled that, unless the House explicitly directs otherwise, the practice of allowing it to apply to special committees as well will be permitted to continue. See Debates, November 24, 1994, p. 8252.
[567] 
On November 16, 1994, Michel Gauthier (Roberval) raised a point of order respecting the receivability of the report of the Special Joint Committee Reviewing Canada’s Foreign Policy. The dissenting opinions to the report had been printed in a separate volume from the report itself, and therefore did not immediately follow the Chair’s signature. The Member argued that, in the absence of a decision by the Committee, there was no authority to print the report in that format. Speaker Parent ruled that the report’s format did not contravene the spirit of the Standing Order, but expressed the view that committees should, in future, “ensure by means of explicit and carefully worded motions in keeping with the terms of Standing Order 108(1)(a) that their members are perfectly clear as to the format in which these reports will be presented to the House”. See Debates, November 16, 1994, pp. 7859-62; November 24, 1994, pp. 28252-3.
[568] 
Dissenting opinions have been presented by committee Chairs and Parliamentary Secretaries. See, for example, the Seventh Report of the Standing Committee on Public Accounts, March 31, 1998, and the First Report of the Standing Committee on Fisheries and Oceans, March 23, 1998.
[569] 
Committees have negatived motions to append dissenting opinions. See, for example, Standing Committee on Procedure and House Affairs, Minutes, November 25, 1997, Meeting No. 7.
[570] 
See, for example, Standing Committee on Environment and Sustainable Development, Minutes, May 13, 1998, Meeting No. 52.
[571] 
Standing Orders 30(3) and 35. See Chapter 10, “The Daily Program”. If the report relates to the Main Estimates of a department or agency for which consideration has been extended at the request of the Leader of the Opposition, the House may, on the last day provided for the presentation of the report, interrupt its proceedings and revert to “Presenting Reports from Committees” for that purpose (Standing Order 81(4)(c)). The Centennial Flame Research Award Act, adopted in 1991, requires the annual tabling of the research paper prepared by the winner of the award for the previous year. While the report is tabled by the Chair of the committee responsible for administering the Act (currently, the Standing Committee on Human Resources Development and the Status of Persons with Disabilities), it is not considered as a report of the Committee. As the Standing Orders do not make provision for the tabling of documents by Members other than Ministers and the Speaker, the presentation of the annual report has varied. It has been presented both under “Tabling of Documents” and “Presenting Reports from Committees”, and it has also been filed with the Clerk pursuant to Standing Order 32(1). See S.C. 1991, c. 17, s. 7(1); Journals, June 14, 1993, p. 3204; December 13, 1994, p. 1043; April 23, 1997, pp. 1515-6; May 12, 1998, p. 775; June 10, 1999, p. 2090.
[572] 
See, for example, Standing Committee on Environment and Sustainable Development, Minutes, December 2, 1997, Meeting No. 23, and Journals, December 4, 1997, p. 332. Joint committees present their reports to both Houses. See, for example, Journals, June 7, 1999, p. 2060, and Journals of the Senate, June 3, 1999, p. 1669.
[573] 
Standing Order 35(1). See, for example, Debates, May 7, 1999, p. 14885. This rule resulted from a recommendation of the McGrath Committee that “there should be a better method of bringing (reports) to the attention of the House”. See Special Committee on the Reform of the House of Commons, Third Report, June 1985, p. 22.
[574] 
Standing Order 35(2). See, for example, Debates, May 14, 1992, pp. 10691-2.
[575] 
See, for example, Debates, December 1, 1997, pp. 2503-4; October 31, 1994, p. 7430.
[576] 
See, for example, Journals, June 30, 1987, p. 1298; June 18, 1991, p. 219; June 11, 1999, p. 2102. By permitting presentation in this manner, the House enables committees to make their reports public at completion without breaching the privileges of the House or its Members. The House has, on occasion, made specific provision for making public a report prior to its presentation in the House. See, for example, Journals, December 22, 1982, pp. 5495-6.
[577] 
See, for example, Speaker Parent’s rulings, Debates, November 26, 1998, pp. 10467-8, and December 3, 1998, p. 10866. In response to concerns arising from the leaking of committee reports, the Standing Committee on Procedure and House Affairs studied the issue of confidentiality with respect to in camera proceedings and confidential committee documents.In its Seventy-Third Report, the Committee recommended that committees exercise discretion in deciding to meet in camera. It also recommended that the reasons for such meetings should be made public, either on the notice of meeting or by the Chair in public session and that the Standing Orders be amended to reiterate that committee reports adopted at in camera meetings are confidential until presented in the House. See Journals, April 29, 1999, p. 1785.
[578] 
See, for example, Debates, September 29, 1994, p. 6314; April 19, 1996, p. 1711.
[579] 
See Speakers’ rulings, Journals, July 1, 1919, p. 498; March 31, 1969, pp. 873-4.
[580] 
See, for example, Journals, April 26, 1999, p. 1766.
[581] 
Standing Order 67(1)(b).
[582] 
Standing Order 81(9).
[583]
See Chapter 17, “Delegated Legislation”.
[584]
See Chapter 16, “The Legislative Process”, and Chapter 21, “Private Members’ Business”.
[585] 
See, for example, Journals, June 1, 1999, p. 2032.
[586] 
Standing Orders 92(2) and 113(1).
[587] 
Recommendations not clearly in the form of motions may require further action in order to be implemented. See Speaker Parent’s ruling, Debates, November 5, 1998, p. 9923.
[588] 
See Speaker Lamoureux’s rulings, Journals, March 31, 1969, pp. 873-4; April 10, 1973, pp. 257-8.
[589] 
See Speaker Bosley’s ruling, Debates, December 13, 1985, p. 9476.
[590] 
See, for example, Journals, March 18, 1987, p. 610. Following Confederation, amendments to the text of committee reports were occasionally permitted in the House. See, for example, Journals, June 21, 1869, p. 304; March 26, 1884, p. 285. In 1919, Speaker Rhodes ruled that it was not in order for the House to amend the report itself. See Journals, May 22, 1919, pp. 293-4. Further details on the recommital of bills are given in Chapter 16, “The Legislative Process”.
[591] 
Standing Order 109. This provision was added to the Standing Orders following a recommendation in the Third Report of the Lefebvre Committee. See Special Committee on Standing Orders and Procedure, Minutes of Proceedings and Evidence, November 4, 1982, Issue No. 7, pp. 21, 29; Journals, November 29, 1982, p. 5400.
[592] 
See Debates, May 13, 1986, p. 13232.
[593] 
See, for example, Debates, April 21, 1986, p. 12480; June 29, 1987, pp. 7749-50; September 24, 1987, pp. 9266-8.
[594] 
Standing Order 32(1). See, for example, Journals, March 26, 1998, p. 636; October 5, 1998, p. 118.
[595] 
See, for example, Journals, September 24, 1990, p. 1976; September 21, 1998, p. 1054. For further information on the tabling of documents, see Chapter 10, “The Daily Program”.
[596] 
See Debates, June 27, 1986, p. 14969. See also Standing Order 49. However, the request lapses on dissolution of a Parliament. Committees have renewed a request for a government response by presenting a report to that effect in the subsequent Parliament. See, for example, Journals, November 27, 1997, p. 275.
[597] 
See, for example, Debates, September 10, 1992, p. 12977.

Please note —

As the rules and practices of the House of Commons are subject to change, users should remember that this edition of Procedure and Practice was published in January 2000. Standing Order changes adopted since then, as well as other changes in practice, are not reflected in the text. The Appendices to the book, however, have been updated and now include information up to the end of the 38th Parliament in November 2005.

To confirm current rules and practice, please consult the latest version of the Standing Orders on the Parliament of Canada Web site.

For further information about the procedures of the House of Commons, please contact the Table Research Branch at (613) 996-3611 or by e-mail at trbdrb@parl.gc.ca.