Additional Information For Teachers
1 - History of the Senate of Canada
For more than 130 years, senators have represented, examined,
deliberated, and legislated in both official languages in the
interests of all Canadians.
At the Quebec Conference in 1864, the Fathers of
Confederation chose a constitutional monarchy modeled after
that of Great Britain for the new country that would become
Canada. As a result, Canada's Parliament was to be composed
of the Sovereign, an appointed upper house called the Senate,
and an elected lower house called the House of Commons. This
bicameral system, consisting of two separate but equal
chambers, would help ensure that all legislation received
careful consideration.
The role and the responsibilities of Parliament were set out
in the British North America Act, now called the Constitution
Act, 1867. It established that all Acts of Parliament were to
be passed in the name of the Sovereign, currently Her Majesty
Queen Elizabeth the Second, by the power of the people. To
reflect this, all federal laws begin with these words, "Her
Majesty, by and with the advice and consent of the Senate and
the House of Commons of Canada, enacts as follows."
According to Canada's first Prime Minister, Sir John A.
Macdonald, the Senate was to be a place of "sober second
thought."
2 - The Parliamentary System
Each of the three components of Parliament has a specific
role:
The Queen's responsibilities as Head of State are fulfilled
in Canada by the Governor General, who ensures there is
always a Government to serve Canada, summons and dissolves
Parliament, opens each parliamentary session with a Speech
from the Throne, and gives Royal Assent to bills, thereby
making them law.
The Senate, the Upper House of Parliament, has 105 members,
who are appointed by the Governor General upon the
recommendation of the Prime Minister. Senators introduce,
examine, amend, reject, or approve bills. Senators help to
focus greater attention on those people in our society whose
rights and interests are often overlooked.
The Governor General is appointed by the Queen upon the
recommendation of the Prime Minister.
The House of Commons, or Lower House, is made up of 301
Members, each one an elected representative of a riding. All
Members, whether part of the government or the Opposition,
express the views of their constituents, debate questions of
national interest, introduce and study bills, and vote on
them.
3 - Who Serves
The Fathers of Confederation gave the Senate the vital role
of protecting regional, provincial, territorial, and minority
interests. They assigned each region the same number of seats
to guarantee them an equal voice in the Senate. Seats were
added as new provinces and territories entered Confederation.
Today, 105 seats are distributed as follows:
| 6 | Newfoundland and Labrador |
| 24 | Maritime Provinces |
| 10 Nova Scotia | |
| 10 New Brunswick | |
| 4 Prince Edward Island | |
| 24 | Quebec |
| 24 | Ontario |
| 24 | Western Provinces |
| 6 Manitoba | |
| 6 Saskatchewan | |
| 6 Alberta | |
| 6 British Columbia | |
| 1 | Yukon |
| 1 | Northwest Territories |
| 1 | Nunavut |
To become a senator, an individual must:
be a Canadian citizen;
be at least 30 years of age;
own property in the province/territory which he or she represents;
reside in the province/territory which he or she represents;
have a personal net worth of $4000.
Today's Senate includes both women and men from varied
professional, cultural, religious, and linguistic
backgrounds. Canada's First Nations and Black communities are
represented, along with Canadians of Arab, Asian, Italian,
Jewish, Ukrainian, and other origins. Business people,
teachers, lawyers, surgeons, politicians, journalists,
athletes, farmers, police officers - Canadians from many
walks of life bring a broad range of experience to the
chamber. Their expertise is invaluable in dealing with the
complex issues before Parliament.
Senators are appointed by the Governor General on the advice
of the Prime Minister.
Because senators are appointed to serve until the age of 75,
a certain continuity and institutional memory are maintained
in the Senate. Senators have the opportunity to follow issues
over a long period and to develop a thorough knowledge of
particular areas of public policy and the workings of
Parliament.
Women could not sit in the Senate until 1929. Before that
time they were not considered "persons" under Canadian law.
Now, about one third of senators are women.
4 - On the Job
In the course of duty, a senator may find him or herself
operating in a variety of arenas. On the international stage,
senators help promote the image of Canada and form links with
other countries through parliamentary associations. They meet
with representatives from around the world to discuss issues
such as health, trade, economics, security, culture, and
human rights.
At home, senators frequently act as ombudsmen. They help
those seeking information on legislation or dealing with the
federal government and its bureaucracy. They highlight the
needs of the regions and of minorities whose rights are often
overlooked - such as children, veterans, the poor, the
elderly - by offering a public forum through Senate committee
investigations.
Committee work takes up the greater part of a senator's time.
Many senators sit on two or more committees and serve on
sub-committees as well, logging long hours preparing for and
attending meetings.
Regular travel to and from a senator's own region is a given.
Whether at home or in the nation's capital, senators spend
much of each week meeting with individual citizens and
interest groups, researching, writing, giving speeches, and
attending Senate sessions or caucus meetings. In the chamber,
time is spent each day on presenting petitions, tabling
documents, discussing committee reports, debating issues,
introducing bills, and passing laws.
5 - The Senate Chamber
A set of imposing doors leads to the "Red Chamber" as the
Senate is sometimes called. Regular sessions of the Upper
House take place in this regal setting fitted with red
carpeting, walnut desks, oak panelling, massive bronze
chandeliers, and a ceiling covered in gold leaf. The walls
display large oil paintings of scenes from World War I. Below
them is a frieze of Canada's flora and fauna sculpted from
white oak.
At the far end of the chamber is an elevated platform where
the Speaker's Chair is located.
Directly behind it are the thrones reserved for the Queen or
the Governor General and their consort. Each senator has a
designated seat. Members of the political party that forms
the Government generally sit to the Speaker's right, while
members of the Opposition sit to the left. Those senators who
are not affiliated with a political party sit as
independents.
The Mace is a richly ornamented staff of brass and gold
dating back to the 1850s. As a symbol of the Senate's
authority, it is set on the Clerk's table pointing toward the
throne whenever the Senate is sitting.
Senate proceedings are open to the public and the media. The
galleries at the north and south ends of the chamber can
accommodate 350 people.
6 - Roles in the Senate
Speaker
The Speaker, appointed by the Governor General on the
recommendation of the Prime Minister, presides over the
Senate Chamber, maintaining order and decorum, directing
debates, and ensuring that proper parliamentary procedure is
followed.
Leader of the Government
Appointed by the Prime Minister and usually a member of
Cabinet, the Leader of the Government performs the dual role
of representing the Government in the Senate and the Senate
in Cabinet. The Leader organizes government strategy,
sponsors legislation, manages government business in the
Senate, and responds to questions during Question
Period.
The Speaker of the Senate is fourth in the Order of
Precedence following the Governor General, the Prime
Minister, and the Chief Justice of the Supreme Court of
Canada.
Leader of the Opposition
Selected by the largest opposition party, the Leader of the
Opposition coordinates party members' activities in the
chamber and in committees. Another important responsibility
of the Leader is to act as the spokesperson of his or her
party.
Deputy Leaders
The Deputy Leader of the Government and the Deputy Leader of
the Opposition manage the day-to-day operations in the
chamber for their respective parties. They negotiate the
scheduling of the legislative activities and the sittings of
the Senate.
Hansard is a printed record of each day's debates in the
Senate. The name is taken from the family once responsible
for transcribing the proceedings of the British
Parliament.
Whips
Both the Government and Opposition parties have Whips in the
Senate who are responsible for keeping their senators
informed of Senate business and schedules, making certain
there is a quorum in the Senate Chamber and at committee
meetings, and ensuring attendance when a vote is called. They
also decide, in consultation with their leaders, who is
assigned to which committee and where members of their party
will sit in chamber.
Procedural Clerks
A number of procedural clerks assist the Speaker in the
chamber. The Clerk of the Senate, who is also Clerk of the
Parliaments, functions as the chief administrative officer.
Among other duties, the Clerk is custodian of all Acts
approved by Parliament and is responsible for authenticating
copies of them. The Deputy Clerk, Law Clerk, and Clerks of
Committees also provide support and advice.
Pages
Each year, university students from across Canada are hired
by the Senate as pages. They provide support and assistance
to senators in the chamber and in committee meetings.
7- The Legislative Process
The making of laws is the most important function of
Parliament. The process begins with the introduction of a
bill- a proposal to create a new law, or change an existing
one. Bills may be introduced in either the Senate or the
House of Commons except for those involving the collection or
spending of public funds. These are called money bills and
they must always begin in the House of Commons.
On its way to becoming law, a bill must move through a series
of stages so as to ensure that the proposed legislation is
given due consideration. These stages include three readings
in each house:
First Reading
The bill is presented and circulated.
Second Reading
The principle and purpose of the bill are debated and voted
upon. If the members agree to pursue the bill, it is then
sent to committee for closer review and report.
Third Reading
The committee's report on the bill is considered by the whole
house and the bill is debated once more before a final vote
is taken. The bill may be passed, amended, or defeated. Once
passed, with or without amendments, it is sent to the other
house which applies the same process of examination.
When one house amends a bill received from the other, the
bill is sent back to the originating house with a message
requesting acceptance of the changes. In the case of a
disagreement, the two houses continue to exchange messages
until a compromise is reached.
In 1999, the Senate Committee on Social Affairs, Science and
Technology recommended amendments to Bill C-6, the Electronic
Commerce Bill, because of a concern that the bill did not
sufficiently protect the privacy of personal health
information. The Committee suggested changes to offer
improved security. The Senate adopted the amendments and sent
the amended bill back to the House of Commons, where it was
approved and eventually became law.
Either chamber is able to vote down a bill approved by the
other, while both houses must approve bills separately in
order for them to become law. Once approved by both, the bill
is presented for Royal Assent and is made law.
No bill can become law in Canada until the Senate has
approved it.
Amending Bills
The necessity of having both houses approve legislation
ensures that proper checks and balances are in place. One
house may have passed a bill too quickly or failed to
consider input from certain interested groups. The other
house then has the opportunity to address these concerns.
Since most government bills are introduced in the House of
Commons, the role of offering "sober second thought" usually
falls to the Senate.
In 1998, the Legal and Constitutional Affairs Committee of
the Senate opposed Bill C-220. The bill would have given the
Government the authority to censor publications written by
persons convicted of crimes where the publication was based
substantially on the crime. The Senate Committee believed
that the bill was a direct violation of the Canadian Charter
of Rights and Freedoms which guarantees freedom of
expression. Although the bill had been passed by the House of
Commons, the Senate agreed with the Committee's
recommendation and rejected the bill.
Defeating Bills
At times, one house refuses amendments to a bill made by the
other. In this case, if a compromise cannot be reached, the
legislation is defeated and the bill "dies." The Senate does
not enact this veto power often, but has rejected bills when
it was felt the Government did not have an electoral mandate
for a measure, when the bill was obviously outside the
constitutional authority of Parliament, or under other
extraordinary circumstances.
Delaying Bills
The Senate also has the power to delay a bill. Without being
officially rejected, a delayed bill dies at the end of that
session of Parliament. This action on the part of the Senate
can draw public attention to an issue and lead to more
careful scrutiny of the proposed legislation. In some
instances, it can persuade a Government to seek a new mandate
from the people. Bills originating in the Senate are
identified as S-bills, those from the House of Commons as
C-bills.
In 1988, the Senate delayed passage of Bill C-130,
legislation to implement the free trade agreement with the
United States. This caused the Government to call an election
on the issue. Once re-elected, the Government proposed a
similar bill which was passed by Parliament.
8 - Senate Committees
A vital part of the work of the Senate takes place in its
committees. These study groups, made up of from five to
fifteen senators, have three main functions: to approve or
amend bills, to investigate policy matters and to examine the
Government's spending proposals.
The Senate's more flexible timetable allows for thorough,
in-depth investigations of issues before Parliament.
Each committee has its own area of focus, from foreign
affairs or Aboriginal peoples to transport and
communications. Because of the diversity of background and
experience in the Senate Chamber, there is a wealth of
relevant expertise to draw on in the make-up of these groups.
In addition to their own knowledge, senators rely upon
outside advice and information gathered through hearings
where experts and the general public are invited to appear.
Committees request study papers and reports, and seek out the
views and opinions of a wide range of people who may be
affected by the matters under consideration.
In committee, senators have the opportunity to examine how a
bill affects the daily lives of Canadians. Among the subjects
that may be reviewed are children's rights, literacy,
terrorism, health, illicit drugs, euthanasia, the
technological revolution, and poverty. These investigations
give people from all walks of life a chance to have their
voices heard on issues that matter. Senate committees hold an
average of 400 meetings, hear from more than 1000 witnesses,
and produce more than 100 reports annually.
9 - Tradition and Ceremony
The Senate Chamber is the setting for major parliamentary and
state ceremonies, such as the installation of a new Governor
General, the Speech from the Throne, and Royal Assent.
Royal Assent, the final step in making a bill law, requires
the presence of all three components of Parliament: the
Queen, represented by the Governor General, the Senate, and
the House of Commons. During this ceremony, rich in tradition
and symbolism, a representative of the Crown enters the
chamber to take a seat on the dais. The senators are in their
seats as the Usher of the Black Rod summons the Members of
the House of Commons to the Senate Chamber.
Sometimes the Governor General appears in person, but is more
often represented by a deputy, generally a Justice of the
Supreme Court of Canada.
With their Speaker at the head, the Members of the House of
Commons meet at the rear of the chamber behind the brass bar.
By their presence, the members of both chambers indicate that
the people of Canada ask the Crown to ensure that the bill
becomes law and that they agree to be governed by it. After
the title of the bill is read aloud, the Governor General or
representative nods to indicate that consent is given, and
the bill becomes law.
Suggested Educational Activities
Here are suggested educational activities for introducing students to the topic of the Senate.
Tracking History
Devise a time-line that shows the evolution of the Senate
from its beginnings until the present. Make note of
significant people who have served (for example, the first
woman senator, the first Aboriginal senator) as well as
landmark events in the history of the Senate.
Making Law
Stage a role-playing exercise to follow a bill through the
various stages in both chambers to final passage and Royal
Assent. Students may act as senators, Members of the House of
Commons, Speakers, the Governor General, etc. Create a
fictional bill based on a local or school-specific issue of
interest to students. You may want to review actual Senate
bills from the Hansard archives or consult the Canadian
Parliament's website (www.parl.gc.ca).
Compare and Contrast
The Senate and the House of Commons are two independent
chambers with similar powers. Make a chart to compare and
contrast the Upper and Lower Houses in terms of roles and
responsibilities, number of members, regional representation,
membership criteria, etc.
Construct a Crossword
What is the meaning of "bicameral"? What does the Whip do?
Design a crossword puzzle using terms relating to the
Senate.
Conduct a Committee Investigation
Select an issue to research and review in a mock Senate
committee investigation. Students playing the parts of
witnesses (experts, government officials, individual
citizens, etc.) must present accurate information and be
convincing in their responses to the committee's questions.
Those acting as committee members must develop and articulate
their opinions based on the information they gather.
Reporting on the Senate
Take on the role of reporter in the Press Gallery to describe
a significant event that took place in the Senate Chamber.
Search for newsworthy stories for radio, TV, or print
coverage.
Profile a Senator
Prepare a biography of a senator that includes details of his
or her background, interests, professional pursuits, and
record in the Senate. Present the information as an
encyclopedia entry, magazine article, web page, or video
script.
Art as Symbol
Examine the art and the architecture of the Senate Chamber
and discuss the messages they convey. Create a collage using
the symbols found in the room, or re-design the chamber to
reflect a contemporary perspective.
Possible topics for research, written reports, or in-class
discussion and debate: