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

8. The Parliamentary Cycle

I believe [the parliamentary calendar] has been responsible for bringing order to our proceedings and has encouraged and fostered negotiation and compromise between the Parties in the days leading up to the automatic adjournments. Without that co-operation and constant negotiation and compromise, our system of government ceases to operate smoothly.

Speaker John A. Fraser
(Debates, June 13, 1988, p. 16379)

T

he life cycle of a Parliament is regulated by constitutional provisions as well as Standing Orders. The most fundamental of these are the Constitution Acts, 1867 to 1982, which provide first, that only the Crown may “summon and call together the House of Commons”; [1]  second, that subject to a dissolution, five years is the maximum lifespan of the House between general elections; [2]  and third, that “there be a sitting of Parliament at least once every twelve months”. [3] 

At the same time, the financial requirements of the government render a meeting of Parliament every year a practical necessity for the annual granting of Supply by Parliament for a fiscal year (April 1 of one year to March 31 of the following year). [4]  As such, the date selected for the opening of each new Parliament following a general election and of each new session within a Parliament, can and does vary — within constitutional limitations — according to the political and financial priorities of the government.

Against this backdrop, the Standing Orders of the House provide for a pre-determined annual calendar of sittings, known as the parliamentary calendar, which applies only when the House is in session. [5]  In this way, within each session, the days on which the House is likely to meet are known long in advance, thus allowing for a more orderly planning of House business.

The complex procedures and practices surrounding financial matters are addressed in Chapter 18, “Financial Procedures”. The present chapter focusses on the life of a Parliament and its sessions; namely, the opening and closing of a Parliament and a session, and the sitting and non-sitting periods within a session, as determined by the parliamentary calendar.

Terminology

Several recurring terms and phrases associated with the parliamentary cycle require explanation for the purpose of clarity.

Parliament
A Parliament is a period of time, during which the institution of Parliament (comprising the Sovereign, the Senate and the House of Commons) exercises its powers. The process of starting a Parliament begins with the proclamation of the Governor General calling for the formation of a new Parliament and setting the date for a general election. A Parliament ends with its dissolution. A House of Commons has a constitutionally determined maximum lifespan of five years. [6] 
Session
A session is one of the fundamental time periods into which a Parliament is divided, and usually consists of a number of separate sittings. A session begins with a Speech from the Throne when Parliament is summoned by proclamation of the Governor General; it ends with a prorogation or dissolution of Parliament. There may be any number of sessions in a Parliament; the numbers have ranged from one to seven. [7] There is no set length for a session.
Sitting
A sitting is a meeting of the House within a session. The Standing Orders provide times and days for the sittings of the House. [8]  A sitting is not necessarily synonymous with a “day”. Some sittings are very brief; some have extended over more than one calendar day. [9] 
Adjournment
An adjournment is the termination of a sitting (pursuant to Standing or Special Order, or by motion). An adjournment covers the period between the end of one sitting and the beginning of the next. It can be of varying duration — a few hours, overnight, over a weekend, a week or longer. [10]  While prorogation and dissolution are prerogative acts of the Crown, the power to adjourn rests solely with the House.
Parliamentary Calendar
The parliamentary calendar, as laid out in the Standing Orders, provides a fixed timetable of sittings and adjournments for a full calendar year. [11]  In effect, once a session begins, the calendar alternates sitting periods with adjournments at set points throughout the year. Each year consists of seven sitting periods of approximately three to five weeks in length, and seven adjournments of varying lengths.
Prorogation
Prorogation of Parliament is the ending of a session, with a special ceremony held in the Senate Chamber or with the issuance of a Governor General’s proclamation to that effect. Prorogation also refers to the period of time a Parliament stands prorogued.
Recess
The time between the ending of one session and the opening of the next can be called a recess. In practice, the term “recess” is also used in reference to a lengthy adjournment.
Dissolution
Dissolution is the formal ending of a Parliament by proclamation of the Governor General. This has always occurred prior to the five-year time limit set by the Constitution for the expiration of the House of Commons by effluxion of time. Dissolution is followed by a general election.

Opening of a Parliament and a Session

Summoning Parliament

Section 38 of the Constitution Act, 1867 provides for the summoning of Parliament: “The Governor General shall from Time to Time, in the Queen’s Name, by Instrument under the Great Seal of Canada, summon and call together the House of Commons.”

The “Instrument” consists of two forms of proclamation issued by the Governor General on the advice of the Prime Minister [12]  and published in the Canada Gazette. The first form sets the date for which Parliament is summoned (the date can later be advanced or put back). It is issued at the end of the preceding session, in keeping with the principle of the continuity of Parliament, whereby a session ends with provision made for its next meeting. The second form confirms the date and sets the time at which Parliament is summoned to meet for the transaction of business. For example, prior to the opening of the First Session of the Thirty-Sixth Parliament, a series of proclamations was initially issued summoning Parliament to meet on June 23, 1997, then to meet on August 1 and later to meet on August 29, 1997. On August 27, a final proclamation summoned Parliament to meet “for the Despatch of Business” at 11:00 a.m. on September 22, 1997. [13] 

Proceedings on Opening Day

The opening of a Parliament is also the opening of the first session of that Parliament. Two procedures distinguish it from the opening of subsequent sessions. These are the taking and subscribing of the Oath of Allegiance by Members, and the election of a Speaker.

Members Sworn In

Following a general election, the Clerk of the House receives from the Chief Electoral Officer the names of Members elected to serve in the House of Commons. [14]  In order for the elected Members to take their seats in the House, it is required by the Constitution Act, 1867, that they first subscribe to an Oath of Allegiance. [15]  As an alternative to swearing the oath, the Member may make a solemn affirmation. [16] 

The oath or affirmation is administered by the Clerk of the House or another designated Commissioner. [17]  At this time, the newly sworn-in Member signs the Test Roll, a book whose pages are headed by the text of the oath or affirmation. The general practice now is for Members to be sworn in prior to opening day, after the Clerk receives the certificates of election returns from the Chief Electoral Officer. [18] 

Matters relating to the oath, the affirmation and the signing of the Test Roll are covered in greater detail in Chapter 4, “The House of Commons and Its Members”.

Election of the Speaker

Section 44 of the Constitution Act, 1867 provides for the election of a Speaker as the first item of business when Members assemble following a general election. The Standing Orders provide for the manner in which the Speaker is elected. [19]  On the day appointed by proclamation for the meeting of a new Parliament, the Members are summoned by the division bell to assemble in the Chamber, where they receive the Usher of the Black Rod, [20]  who reads a message requesting the immediate attendance of the House in the Senate Chamber.

In a procession led by the Clerk of the House, the Members go to the Senate. There, a Deputy of the Governor General [21]  is seated at the foot of the Throne, and the Speaker of the Senate addresses the Members on the Deputy’s behalf, informing them that “… the Deputy … does not see fit to declare the causes of his (her) summoning of the present Parliament of Canada until the Speaker of the House shall have been chosen according to Law …”. [22]  This means that the Speech from the Throne will not be read until a Speaker has been elected. The Members then return to the House and proceed to elect a presiding officer. (For further details on the election of the Speaker, refer to Chapter 7, “The Speaker and Other Presiding Officers of the House”.)

Presentation of Speaker to Governor General

Following the election of the Speaker, at the time fixed for the purpose of appearing for the formal opening of Parliament with a Speech from the Throne, the House again receives the Usher of the Black Rod, who conveys the message of the Governor General requesting the presence of the House in the Senate. [23]  The procession is led by the Usher of the Black Rod, followed by the Sergeant-at-Arms (bearing the Mace), the Speaker, the Clerk and the Members. At the Bar of the Senate, the newly elected Speaker stands on a small platform, removes his or her hat and receives an acknowledgement from the Governor General, who is seated on the Throne. [24]  The Speaker addresses the Governor General by an established formula, as follows:

May it please Your Excellency,

The House of Commons has elected me their Speaker, though I am but little able to fulfil the important duties thus assigned to me. If, in the performance of those duties, I should at any time fall into error, I pray that the fault may be imputed to me, and not to the Commons, whose servant I am, and who, through me, the better to enable them to discharge their duty to their Queen and Country, humbly claim all their undoubted rights and privileges, especially that they may have freedom of speech in their debates, access to Your Excellency’s person at all seasonable times, and that their proceedings may receive from Your Excellency the most favourable construction. [25] 

The Speaker of the Senate, on behalf of the Governor General, makes the traditional reply: [26] 

Mr. Speaker, I am commanded by His/Her Excellency the Governor General to declare to you that he/she freely confides in the duty and attachment of the House of Commons to Her Majesty’s Person and Government, and not doubting that their proceedings will be conducted with wisdom, temper and prudence, he/she grants, and upon all occasions will recognize and allow, their constitutional privileges. I am commanded also to assure you that the Commons shall have ready access to His/Her Excellency upon all seasonable occasions and that their proceedings, as well as your words and actions, will constantly receive from him/her the most favourable construction. [27] 

The claiming of privileges by the Speaker on behalf of the House occurs only at the opening of a Parliament, and is not repeated in the event a Speaker is elected during the course of a Parliament. [28]  After the claiming of privilege, the session is formally opened by the reading of the Speech from the Throne.

Opening a Session

The swearing-in of Members and the election of a Speaker are the distinguishing features of the summoning of a new Parliament for the opening of its first session; in sessions subsequent to the first, there are no preliminary proceedings in the House. The opening of a session — whether it is the first or a subsequent session — is marked by the reading of the Speech from the Throne. On each opening of a session, the House assembles with the Speaker in the Chair, receives the Usher of the Black Rod and proceeds in due course to the Senate for the reading of the Speech from the Throne.

The Speech imparts the causes of summoning Parliament, prior to which neither House can embark on any public business. [29]  It marks the first occasion Parliament meets in an assembly of its three constituent parts: the House of Commons, the Senate and the Sovereign, or Sovereign’s representative.

Opened by the Sovereign

When a session is opened by the Sovereign, as occurred in 1957 and 1977, the message communicated to the House by the Usher of the Black Rod is “Mr. (Madam) Speaker, The Queen (King) commands this Honourable House to attend Her (His) Majesty immediately in the chamber of the Honourable the Senate”. [30] 

Opened by the Governor General

When, as in most cases, the Speech from the Throne is read by the Governor General, [31]  the Usher of the Black Rod delivers a message to the effect that His (or Her) Excellency the Governor General of Canada “desires” the immediate attendance of the House in the Senate chamber. [32] 

Opened by the Administrator

In the event of the death, incapacity, removal or absence from the country of the Governor General, the powers of the office devolve upon the Chief Justice of Canada. When acting in this capacity, the Chief Justice is known as the Administrator of the Government of Canada. [33]  The Speech from the Throne has been read on occasion by the Administrator. [34]  The message conveyed to the House by the Usher of the Black Rod in these cases is “His (Her) Excellency the Administrator desires the immediate attendance of this Honourable House in the chamber of the Honourable the Senate”. [35] 

Speech from the Throne and Subsequent Proceedings in the House

The Speech from the Throne usually sets forth in some detail the government’s view of the condition of the country and provides an indication of what legislation it intends to bring forward. After hearing the Speech, the Speaker and Members return to the House. If the session is the first of a new Parliament, the newly elected Speaker will have made the traditional statement claiming for the House all its “undoubted rights and privileges”. This is reported by the Speaker to the House on returning from the Senate. [36]  The business for the day’s sitting then proceeds.

There are certain items which normally are dealt with by the House on the first day of a session. These are described below, in the order in which they are normally brought before the House. As will be noted, variations can and do occur.

Formal Business

Pro forma bill:
Before proceeding to the consideration of the Speech from the Throne, the House gives first reading to the pro forma Bill C-1, An Act respecting the Administration of Oaths of Office[37]  Typically, the bill is introduced by the Prime Minister; it receives first reading but is not proceeded with any further during the session. Its purpose is to assert the independence of the House of Commons and its right to choose its own business and to deliberate without reference to the causes of summons as expressed in the Speech from the Throne. [38] 
Report of Speech from the Throne:
The Speaker reports to the House on the Speech from the Throne, informing the House that “to prevent mistakes” a copy of the Speech has been obtained; its text is printed in the Debates[39]  A motion is then moved, usually by the Prime Minister, and adopted for the Speech from the Throne to be considered either “later this day” or on a future day, [40]  at which time debate takes place on a motion for an Address in Reply to the Speech from the Throne (for further information on the Address in Reply, see Chapter 15, “Special Debates”).

Routine Opening Day Motions and Announcements

Traditionally, certain other items of business have been attended to following the Speech from the Throne. These are described below, in the order in which they are customarily taken up.

Board of Internal Economy:
The Speaker may make an announcement to the House with regard to Members appointed to sit for the duration of the Parliament on the Board of Internal Economy, the body responsible for all matters of administrative and financial policy affecting the House of Commons. [41] 
Membership of Standing Committees:
At the start of the first session of each Parliament, the membership of the Standing Committee on Procedure and House Affairs is appointed and charged with the selection of Members for all standing committees and standing joint committees. [42]  This is effected by motion moved without notice by a Minister, usually the Government House Leader. [43] 
Election of Other Chair Occupants:
At the beginning of a Parliament, a Chairman of Committees of the Whole (who is also Deputy Speaker) is selected for the duration of that Parliament. [44]  This is done by a government Member (usually the Prime Minister) moving without notice that a particular Member, usually also from the government side, [45] be Chairman of Committees of the Whole. The Deputy Chairman and the Assistant Deputy Chairman of Committees of the Whole are selected in the same manner; [46]  their terms extend for the duration of the session in which they are chosen (for further information on the roles and functions of these Presiding Officers, see Chapter 7, “The Speaker and Other Presiding Officers of the House” [47]). The motions have generally been adopted without dissent. [48] 
Order for Supply:
The Standing Orders require the House at the start of each session to designate, by means of a motion, a continuing Order of the Day for the consideration of the business of Supply. [49]  The designation of a continuing order for Supply follows on the statement usually found in the Speech from the Throne informing Members that they “will be asked to appropriate the funds required to carry out the services and expenditures authorised by Parliament”. [50]  The wording of the motion is generally as follows: “That this House at its next sitting consider the business of Supply”. Once the motion is adopted, a continuing order to deal with Supply is placed on the Order Paper under Government Orders and any Supply item to be considered by the House during the session will appear on the Order Paper under this Order of the Day.

Other Items

Other items of business have been included from time to time on opening day. For example, in 1996, Speaker Parent responded to a point of order raised in the previous session on the first day of the new session after all the usual business items had been dealt with. [51] 

Vacancies:
From time to time, the Speaker is notified that a sitting Member has vacated his or her seat in the House. When this occurs prior to the opening of the session (whether the first or a subsequent session of a Parliament), the Speaker so informs the House at some point during the day’s proceedings. [52] 
New Members:
Members elected in by-elections prior to the opening of a session have been introduced to the House on the first day of the new session. [53] 
Tributes:
When a Member, former Member or distinguished individual has died during a period when the House is not in session, tributes have been offered on the first day of the new session, often at the point in the proceedings following the adoption of the motion to consider the Speech from the Throne. [54]  Such tributes have also been offered early in the session but not as part of the proceedings on the opening day. [55] 
Appointment of House Officials:
In the event that senior officials of the House are appointed between sessions, it has been customary for the Speaker to inform the House of the appointment or appointments on the first day of the new session. [56] 

“Special” Sessions

A small number of sessions (see Figure 8.1) have been termed “special sessions” in the Debates or Journals of the House of Commons. From a procedural standpoint, there is nothing special about a “special” session. The elements required for the opening and closing of a session are present. If the special session is the first of a Parliament (as occurred in 1930), a Speaker of the House must first be elected.

Figure 8.1 – Sessions Identified as “Special” in House of Commons Debates or Journals
Image showing a list of parliamentary sessions identified as “special” in the Debates and Journals of the House of Commons. The image consists of five rows and five columns. Each row corresponds to a specific special session and lists: in the first column, the Parliament and session number; in the second column, the opening day of the session; in the third column, the last sitting day of the House; in the fourth column, the number of days the House sat; and in the fifth column, the specific purpose for the calling of the session.

It will readily be noted that the “special” sessions were short-lived. They also shared certain characteristics. However, other sessions of short duration, though not officially termed “special” in the Debates or Journals of the House of Commons, have shared the same characteristics:

  • Parliament was called to meet for a specific purpose, which was the principal focus of what was in each case a comparatively short Speech from the Throne; [57] 
  • The five sessions specifically designated as “special” took place during a period when sessions were generally shorter, with a fairly predictable annual rhythm of sitting and non-sitting periods; the special sessions were called in late summer or autumn, times of the year when the House did not usually sit; [58] 
  • The House in each of the “special” sessions approved a temporary suspension of certain Standing Orders, with the aim of expediting the business before it. [59] 

The Parliamentary Calendar

The parliamentary calendar, as laid out in the Standing Orders and reproduced as Figure 8.2, sets out a schedule of adjournments of a week or more and thereby provides for sittings, or sitting periods, throughout a year. [60]  It comes into effect once a session starts; in other words, the government is not bound by the Standing Orders in considering plans for the timing and length of sessions. [61]  The calendar works in conjunction with other Standing Orders providing for daily meeting and adjournment times, [62]  and providing for the House not to sit on certain days, most of the days in question being statutory holidays or days deemed to be non-sitting days. [63] 

Historical Perspective

In late 1982, the House agreed for the first time to operate under a fixed parliamentary calendar specifying exactly when longer adjournments would take place and thereby when the House would sit during a session. [64]  For much of its history, however, the House operated differently. There were no written rules specifying when the House would not sit. If the House wished to adjourn for a period of time during a session, it was necessary to adopt a special adjournment motion, even for a statutory holiday. [65] 

Until 1940, sessions tended to be short, beginning in January or February and ending in May or June of the same calendar year. During the years of the Second World War, the burden of government business grew and session length increased; a pattern of long and irregularly timed sessions established itself. [66] 

In 1964, the House adopted a Standing Order specifying certain days (mainly statutory holidays) during a session when the House would not sit. [67]  Despite this, sessions continued to be long and adjournments and prorogations unpredictably timed.

The notion of scheduled adjournments again came to the fore in the early 1980s when the motion to adjourn for the summer became the occasion for extended and rancorous debate. [68]  In November 1982, in accordance with recommendations of a special procedure committee (the Lefebvre Committee), the House adopted a series of measures intended to better organize the time of the House and of Members who, along with responsibilities in the House, were occupied with work in committees and in their constituencies. Chief among the measures was the parliamentary calendar, providing for the first time a fixed schedule of sittings and adjournments for the House and adding some degree of predictability to the scheduling of sitting and non-sitting periods. [69] 

The calendar as adopted in 1982 divided the session into three parts (assuming the House to be in session through an entire calendar year), separated by adjournments at Christmas, Easter and the summer months. Since its implementation, the calendar has undergone some modification. The Christmas and summer adjournments were extended slightly in 1991 and, within the three main sitting periods, additional brief adjournments were added in 1983 and 1991. [70]  These are for the most part clustered around existing statutory holidays observed by the House, with the result that each trimester is further broken down into two to three sitting periods.

Sitting and Non-sitting Periods

The House calendar as it appears in the Standing Orders, reproduced in Figure 8.2, sets out the pattern of adjournments and thereby sittings during a calendar year. [71]  Each adjournment begins at the end of the sitting on the days listed in column A. If such a sitting carries over to another day, the adjournment would still begin at the end of the sitting. In each case the session resumes on the corresponding day listed in column B. In order for the adjournment provisions to take effect, the House must sit on the day listed in column A, unless special arrangements are previously agreed to by the House. [72] 

Figure 8.2 – The House Calendar (Standing Order 28(2))
When the House meets on a day, or sits after the normal meeting hour on a day, set out in column A, and then adjourns, it shall stand adjourned to the day set out in column B.
A B
The Friday preceding Thanksgiving Day The second Monday following that Friday
The Friday preceding Remembrance Day The second Monday following that Friday
The second Friday preceding Christmas Day The first Monday in February
The Friday preceding the week marking the miday point between the first Monday in February and the Friday preceding Good Friday The second Monday following that Friday
The Friday preceding Good Friday The Monday following Easter Monday
The Friday preceding the week marking the midway point between the Monday following Easter Monday and June 23 The second Monday following that Friday or, if that Monday is the day fixed for the celebration of the birthday of the Sovereign, on the Tuesday following that Monday
June 23 or the Friday preceding if June 23 falls on a Saturday, a Sunday or a Monday The second Monday following Labour Day

The House may be recalled, or Parliament may be summoned for the opening of a new session, during what would normally be an adjournment period. The House would then transact its business in the usual way and, unless a special adjournment motion is adopted, would continue to sit during the remaining days of that adjournment period and into the following sitting period as set out in the parliamentary calendar. The next adjournment period would then begin at the end of that sitting period as specified in column A.

The House meets five days a week, from Monday to Friday. [73]  Assuming that the House is in continuous session for the full calendar year, the parliamentary calendar provides for about 135 sitting days and seven adjournment periods at set times throughout the year. This may be described as creating three distinct sitting periods: September to December, February to Easter, and Easter to June. Three major adjournments are scheduled at Christmas (approximately 7 weeks), Easter (2 weeks) and the summer season (approximately 12 weeks). Four additional adjournments, each about a week in duration, occur in mid-October, mid-November and at the midpoints of the second and third trimesters.

Although the span of time in which the House has operated under the fixed parliamentary calendar is relatively brief, it may be said that since its institution, the parliamentary calendar has enjoyed an appreciable level of compliance. Departure from the calendar can and does occur, however. The royal prerogatives of prorogation and dissolution, for example, are not in any way compromised by the existence of the parliamentary calendar. On occasion the House has been recalled during an adjournment, pursuant to Standing Order. [74]  The House has also agreed to vary the calendar, both by unanimous consent [75]  and by the adoption of a motion following notice and debate. [76] 

Statutory Holidays and Other Non-sitting Days

For most of its history, the House had no written rule identifying days during a session when it would not meet. This gave rise to a practice of irregular — if not haphazard — adjournments, mainly for observance of statutory holidays. The question of whether or not the House would adjourn on a particular day was dependent on such variables as:

The Length and Timing of Sessions

In the early post-Confederation years, sessions tended to begin in mid-to late winter and end in late spring; consequently, the question of adjourning over Christmas, for example, did not arise. [77]

The Development of Provisions for Statutory Holidays

In the absence of any written rule, the House tended to make its own decisions with regard to statutory or non-statutory holiday observances (for example, Dominion Day [78]  has been a statutory holiday since 1879, but this has not prevented the House from sitting on that day [79] ).

Prevailing Customs

In the early post-Confederation years, the House adjourned for the day when informed of the death of a sitting Member during the session; by the late nineteenth century this practice had all but disappeared [80] , and in the 1970s and 1980s, it was accepted practice that an adjournment for the remainder of the day would take place when news of the death of a sitting Member reached the House in the course of the sitting. [81]  Another example of a prevailing custom is the practice whereby the House agrees not to sit on certain days to accommodate Members who wish to attend a policy or leadership convention of their political party. [82] 

In 1964, the Standing Orders were amended to include a list of the days on which the House would not sit during a session. [83]  There are nine: New Year’s Day, Good Friday, Victoria Day (celebration of the birthday of the Sovereign), St. John the Baptist Day, Canada Day (Dominion Day), Labour Day, Thanksgiving Day, Remembrance Day and Christmas Day. [84]  All, except St. John the Baptist Day, are statutory holidays as defined by the Interpretation Act[85]  The Standing Order further provides that whenSt. John the Baptist Day (June 24) and Canada Day (July 1) fall on Tuesday, the House does not sit on the preceding day; similarly, when they fall on Thursday, the House does not sit on the following day. Since these non-sitting days typically fall within the periods of long adjournments, this Standing Order rarely comes into play. [86]  It will, of course, come into play if the House meets outside the parliamentary calendar.

Exception to the Calendar

From time to time, the House may be called to reassemble during an adjournment period pursuant to the calendar for the sole purpose of participating in the ceremony granting Royal Assent to a bill or bills. [87]  (For further information, see Chapter 9, “Sittings of the House”; for further information on Royal Assent, see Chapter 16, “The Legislative Process”).

Recall of the House During an Adjournment

When the House stands adjourned during a session, the rules provide the means by which the House may be recalled prior to the date originally specified, to transact business as if it had been duly adjourned to the earlier date. [88]  The decision to recall is taken by the Speaker, after consultation with the government and once the Speaker is satisfied that the public interest would be served by an earlier meeting of the House. [89]  The rule makes no reference to criteria other than the public interest. Should the Speaker be satisfied of the need for the recall, the rule further provides for the Speaker to give notice of the day and hour of the resumption of the session. Normally, the Speaker requests a period of time following the notice (the practice is a minimum of 48 hours) in which to notify Members individually and allow for their travel time. Depending on the circumstances, a Special Order Paper and Notice Paper (in addition to the regular Order Paper and Notice Paper) may be published at the request of the government. [90] 

For the first 70 years after Confederation, the practice was to end the session by prorogation rather than have a lengthy adjournment. [91] In 1940, however, given the uncertainty of the wartime situation, it was deemed advisable to adjourn rather than to prorogue, in order to enable the House to reconvene quickly if necessary. The House adopted a motion to adjourn which empowered the Speaker to recall the House if, after consultation with the government, it was concluded that it was in the public interest to do so. [92]  Similar motions were adopted in subsequent sessions and became routine when the House adjourned for an extended period of time.

The first recall under these circumstances occurred in 1944, when the government wished to apprise the House of the situation arising from the resignation of the Minister of National Defence. [93]  Several other recall took place before 1982, [94]  at which time the practice was codified by the adoption of a Standing Order worded similarly to the adjournment motions used before 1982. [95]  The rule further provides that should the Speaker be unable to act due to illness or other reason, deputy presiding officers may act in the Speaker’s place for the purpose of this particular Standing Order.

Consultation between the Speaker and the government regarding a recall of the House usually begins with a government request made in writing to the Speaker, setting out reasons why it is in the public interest to recall the House. The request may be made at any time. [96]  When a decision is taken to recall the House, the Speaker advises the Clerk of the House and asks that the necessary steps be taken to resume the session. The Clerk then ensures that all is made ready for the resumption of the sittings.

House officials are responsible for the logistics of the recall, including informing the Members and publishing the Order Paper and Notice Paper (and a Special Order Paper and Notice Paper, if the government so requests). [97] 

Cancelling Recall Order

No mechanism exists to cancel an order to recall the House. However, on one occasion, after receiving such a request from all the recognized parties in the House, the Speaker issued a formal statement in which he cancelled an earlier notice for recall. The original notice was given on June 26, 1992, for the House to meet on July 15, 1992; the notice of cancellation was given on July 11, 1992, and tabled on September 8, 1992, at which time the Speaker made a statement to the House. [98] 

Tabling of Pertinent Correspondence by Speaker

It is usual practice, when the House reassembles following a recall, for the Speaker to inform the House of the reason for the recall, the various steps taken to effect the recall and, if a Special Order Paper and Notice Paper was requested, the steps taken for its publication and circulation. [99]  Since 1980, the Speaker has also tabled correspondence received from the government concerning the recall. [100] 

Order of Business Upon Resumption of Sitting

A recall has no effect on the ordinary daily order of business of the House. When the House first meets following a recall, Routine Proceedings, Question Period and other proceedings are all held in the usual manner depending on the time of meeting of the House, which is set out in the notice of recall. [101]  Unless a motion to adjourn to a later date is adopted, or the session is ended by prorogation, the House merely continues on subsequent days with its regular sittings as if it had been adjourned to the recall date. In such cases, the House may well operate outside the parliamentary calendar for some time, as it did in 1987 when the House was recalled in early August and did not again adjourn for an extended period until the December break, which was in accordance with the calendar. [102] 

“Recall” During a Prorogation

When Parliament is prorogued, the proclamation issued by the Governor General on the advice of the Prime Minister and Cabinet includes a date for the opening of the new session. This date can be changed by means of a further proclamation, resulting not in a recall as such but in an opening of the session at an earlier date than that given in the initial proclamation. The new session commences and is conducted as an ordinary session. [103] It is also possible to prorogue Parliament and end a session by proclamation during an adjournment. [104]  Parliament would then meet for a new session in the normal manner on the date set in the proclamation.

Prorogation and Dissolution

Prorogation

Prorogation of a Parliament results in the termination of a session. Parliament then stands prorogued until the opening of the next session. Like the summoning and dissolution of Parliament, prorogation is a prerogative act of the Crown, taken on the advice of the Prime Minister. [105]  Parliament is actually prorogued either by the Governor General (or Deputy of the Governor General) in the Senate Chamber, or by proclamation published in the Canada Gazette. When Parliament stands prorogued to a certain day, a subsequent proclamation (or proclamations) may be issued to advance or defer the date. [106] 

Effects of Prorogation

The principal effect of ending a session by prorogation is to terminate business. Members are released from their parliamentary duties until Parliament is next summoned. All unfinished business is dropped from or “dies” on the Order Paper and all committees lose their power to transact business, providing a fresh start for the next session. No committee can sit during a prorogation. [107] Bills which have not received Royal Assent before prorogation are “entirely terminated” and, in order to be proceeded with in the new session, must be reintroduced as if they had never existed. [108] 

On occasion, however, bills have been reinstated by motion at the start of a new session at the same stage they had reached at the end of the previous session; committee work has similarly been revived. This has been accomplished in various ways:

  • The House has given unanimous consent to a motion to reinstate a bill in a new session at the same stage it had reached before prorogation. [109] 
  • The House has adopted amendments to its Standing Orders to carry over legislation to the next session, following a prorogation. [110] 
  • In 1991, Parliament was prorogued for one day, ending the Second Session of the Thirty-Fourth Parliament. The Third Session started a day later. Two standing committees were then revived by unanimous consent so that they might terminate mandates from the previous session, provided that these committees would cease to exist once their reports were presented in the House. A special joint committee was likewise revived and two bills were reinstated. [111]  However, when unanimous consent was withheld to reinstate a further six bills, the government sought and achieved reinstatement by adoption of a motion, following notice. [112] 
  • In the Second Session of the Thirty-Fifth Parliament (1996-97), the first item of government business (laid out in a special Order Paper and Notice Paper) was a motion “to facilitate the conduct of the business of the House”, which included a mechanism for reinstatement of bills — private Members’ as well as government bills. [113] 

For further information about the reinstatement of bills in a new session, see Chapter 16, “The Legislative Process”.

There is also a provision in the Standing Orders for any outstanding Orders or Addresses of the House for returns or papers to be presented to the House. They are considered to have been readopted at the start of the new session without a motion to that effect. [114]  The Speaker has ruled that outstanding government responses to committee reports and to petitions are also given the status of returns ordered by the House and therefore would be tabled in the House in the new session. [115] 

Prorogation in Practice

Prorogation practices have varied over time. Two methods have been used. Parliament has in recent years been prorogued by proclamation while the House is adjourned, with the date of the new session being fixed by proclamation. [116]  The House has also in the past adjourned for a period of time, reconvened, and Parliament has been prorogued shortly thereafter with the new session opening soon afterward. [117]  On several occasions, the session was ended by prorogation in the morning, with the new session starting in the afternoon of the same day. [118] 

Traditionally, the House was summoned to the Senate to hear the Governor General (or the Deputy of the Governor General) deliver a speech reviewing the accomplishments of the session, and to hear the Speaker of the Senate read a message containing the date for the opening of the new session. At the end of the ceremony, the House of Commons delegation would leave the Senate Chamber, but the procession would not return to the House of Commons Chamber. The Speaker would return to the Speaker’s chambers and other Members would simply disperse. The prorogation ceremony is a convention and is not required by any Standing Order or statute. [119] 

It is the prerogative of the Crown, on the advice of the Prime Minister, to determine which method to use for prorogation.

Dissolution

A dissolution terminates a Parliament and is followed by a general election. [120]  The date of the election is set in accordance with the provisions of the Canada Elections Act[121]  Like the summoning and prorogation of a Parliament, dissolution is a prerogative act of the Crown, normally taken on the advice of the Prime Minister and proclaimed under the Great Seal of Canada by the Governor General. [122] 

Usually three proclamations are issued at the time of dissolution. The first is for the dissolution itself, stating that Parliament is dissolved and declaring that “the Senators and Members of Parliament are discharged from their meeting and attendance”. A second proclamation usually appears simultaneously; it calls the next Parliament and informs with regard to the issuance of writs of election, the date set for polling and the date set for the return of the writs. The third proclamation fixes the date on which Parliament is summoned to meet, sometime following the return of the writs. [123]  The date of this summons may be changed through the issuance of a further proclamation. [124] 

A Parliament may be dissolved at any time. If the House is sitting and there is not to be a prorogation ceremony in the Senate Chamber, the dissolution is usually announced to the House by the Prime Minister or another Minister. [125]  The Speaker then leaves the Chair without further ado.

The demise of the Crown does not have the effect of dissolving Parliament. [126]  In ancient British practice and until 1843 in Canada, however, the demise of the Crown resulted in an automatic dissolution of Parliament. Because the summoning of Parliament is a royal prerogative and Parliament sits at the pleasure of the Crown, its demise meant a lapsing of the summons and thus dissolution. [127]  In 1843, an act was passed in the Province of Canada providing that a parliament in existence at the time of any future demise of the Crown should continue as it would have otherwise, unless dissolved by the Crown. [128]  Similar legislation existed in other provinces prior to Confederation. [129]  The law was re-enacted in the First Session of the First Parliament of Canada. [130] 

Effects of Dissolution

With dissolution, all business of the House is terminated. The Speaker, the Deputy Speaker and the Members of the Board of Internal Economy continue in office for the acquittal of certain administrative duties until they are replaced in a new Parliament. [131]  For the purposes of certain allowances payable to them, Members of the House of Commons at the time of dissolution are deemed to remain so until the date of the general election. [132] 

Expiration of the House of Commons

The Constitution states that no House “shall continue for longer than five years”. [133]  Mindful of this deadline, all governments since Confederation have resorted to dissolution. In some cases, the dissolution took place within days of when the House would have expired through effluxion of time. [134] 

Extension of Life of the House of Commons

Since 1949, the Constitution has provided that in time of war, invasion or insurrection, the five-year limit of the lifetime of the House of Commons “may be continued by Parliament” if no more than one third of the Members oppose the continuation. [135]  Prior to the existence of this provision, such an extension required a constitutional amendment, a means resorted to only once. Due to circumstances relating to World War I, the life of the Twelfth Parliament (1911-17) was extended in this way for one year — from 1916 to 1917. [136] 

[1] 
Constitution Act, 1867, R.S.C. 1985, Appendix II, No. 5, s. 38.
[2] 
Constitution Act, 1867, R.S.C. 1985, Appendix II, No. 5, s. 50; Constitution Act, 1982, R.S.C. 1985, Appendix II, No. 44, s. 4(1).
[3] 
Constitution Act, 1982, R.S.C. 1985, Appendix II, No. 44, s. 5.
[4] 
Section 53 of the Constitution Act, 1867, R.S.C. 1985, Appendix II, No. 5, and Standing Order 80(1) stipulate that all financial legislation must originate in the House of Commons. The fiscal year is defined in the Financial Administration Act, R.S.C. 1985, c. F-11, s. 2.
[5] 
Standing Order 28(2).
[6] 
Constitution Act, 1867, R.S.C. 1985, Appendix II, No. 5, s. 50; Constitution Act, 1982, R.S.C. 1985, Appendix II, No. 44, s. 4(1).
[7]
See Appendix 12, “Parliaments Since 1867 and Number of Sitting Days”.
[8] 
Standing Order 24.
[9] 
For example, on March 30, 1973, there were two sittings in a single day (Journals, March 30, 1973, p. 229). For an example of the House sitting continuously over two days, see Journals, December 18 and 19, 1980, pp. 951-1130. For an example of the House sitting continuously over several days, see Journals, March 10-15, 1913, pp. 326-40. In 1982, the division bells were rung continuously, resulting in a two-week sitting (Journals, March 2-17, 1982, p. 4608).
[10] 
Standing Order 24 provides for adjournments overnight and over weekends. Standing Order 28 provides for periodic adjournments of a week or more. Occasionally, there are brief adjournments of a few hours’ duration. See, for example, Journals, September 9, 1992, p. 1957; June 15, 1995, p. 1768.
[11] 
Standing Order 28(2).
[12] 
See Privy Council minute, P. C. 3374, dated October 25, 1935, a “Memorandum regarding certain of the functions of the Prime Minister”, which stated that recommendations (to the Crown) concerning the convocation and dissolution of Parliament are the “special prerogatives” of the Prime Minister.
[13] 
See proclamations in the Canada Gazette, Part II, Vol. 131, Extra No. 3 (April 28, 1997), Extra No. 5 (June 20, 1997), Extra No. 6 (July 31, 1997) and Extra No. 7 (August 28, 1997).
[14] 
When the House meets for the despatch of business, the Clerk lays upon the Table a list of the elected Members certified by the Chief Electoral Officer. The certificate and list are printed in the Journals. See, for example, Journals, January 17, 1994, pp. 2-9.
[15] 
Constitution Act, 1867, R.S.C. 1985, Appendix II, No. 5, s. 128. The requirement stems from British practice dating back to the sixteenth century. Amid the political and religious conflicts of the time, the Act of Supremacy was adopted, requiring all Members to declare their belief in the Sovereign as supreme governor in matters both temporal and ecclesiastical. See Redlich, Vol. II, pp. 62-4.
[16] 
Affirmation is not mentioned in the Constitution. Instructions issued by the Crown in 1905 allowed for Members to take the oath or make an affirmation. See Beauchesne, 4th ed., p. 13. For further information on the affirmation, see Chapter 4, “The House of Commons and Its Members”.
[17] 
Section 128 of the Constitution Act, 1867, states that the oath is to be taken before “the Governor General or some person authorized by him”. For the Thirty-Sixth Parliament, the Clerk of the House of Commons, the Deputy Clerk and the Sergeant-at-Arms were so authorized (Journals, September 22, 1997, p. 1).
[18] 
For the opening of the Thirty-Sixth Parliament in 1997, group swearing-in ceremonies were organized for Members of the Reform, New Democratic and Progressive Conservative parties. In 1985, the McGrath Committee recommended, in the interest of increasing awareness of parliamentary institutions, a televised collective swearing-in of all Members, in addition to the customary private swearing-in for individual Members (see pages 57 and 58 of the Third Report of the Special Committee on Reform of the House of Commons, June 1985).
[19] 
Standing Order 2.
[20] 
The Usher of the Black Rod is an officer of the Senate whose responsibilities include delivering messages to the House of Commons when its Members’ attendance is required in the Senate Chamber by the Governor General or a Deputy of the Governor General. (On November 6, 1997, the title of the Office was changed from the “Gentleman Usher of the Black Rod” to the “Usher of the Black Rod”. See the Journals of the Senate, pp. 165-7 and the Debates of the Senate, pp. 333-43.)
[21] 
A Deputy to the Governor General is a person, usually a Justice of the Supreme Court, who exercises the powers of the Governor General on certain occasions (Constitution Act, 1867, R.S.C. 1985, Appendix II, No. 5, s. 14; see also Part VII of Letters Patent Constituting the Office of Governor General of Canada, effective October 1, 1947).
[22] 
Since the opening of the Fifth Session of the Third Parliament in 1878, a Deputy of the Governor General rather than the Governor General has received the House in the Senate prior to the election of a Speaker (Bourinot, 2nd ed., pp. 274-5). See also Beauchesne, 4th ed., p. 19.
[23] 
This message can be delivered on the same day as the election of the Speaker, or on another day. See, for example, Journals, December 12, 1988, pp. 3-4 (the sitting was suspended following the election of the Speaker, and resumed some hours later); September 22, 1997, p. 9 (after the election of the Speaker, the House adjourned to the following day).
[24] 
The tradition of meeting in the Senate accords with the practice established in the United Kingdom whereby the rightful place of the Sovereign in Parliament is in the Upper House— no monarch, or monarch’s representative, having entered the British House of Commons since King Charles I in 1642 (see Redlich, Vol. II, pp. 89-90). During the rebuilding of the Canadian Parliament following the great fire of 1916, the first session in the new building opened on February 26, 1920. Because the Senate Chamber was not ready, the Senate occupied the House of Commons Chamber on opening day, thereafter moving to the Railway Committee Room elsewhere in the building (Debates of the Senate, February 26, 1920, p. 1; February 27, 1920, p. 2).
[25] 
See, for example, Debates of the Senate, September 23, 1997, p. 3.
[26] 
See also Chapter 3, “Privileges and Immunities”. There is not now any question of the choice of Speaker by the House being subject to approbation, confirmation or ratification by the Crown. In the pre-1841 legislatures of Upper and Lower Canada, however, it was customary for the new Speaker to seek the approval of the governor. In 1827 Lord Dalhousie, then Governor General of Lower Canada, refused to accept Louis-Joseph Papineau as Speaker of the Legislative Assembly. The Assembly passed resolutions declaring this action unconstitutional, and expunged the proceedings from their Journals. The Governor General prorogued Parliament and in a subsequent session Mr. Papineau received the approval of Sir James Kempt, Lord Dalhousie’s successor. The practice of ratifying the Assembly’s choice of Speaker was discontinued in the first session following union in 1841, the Act of Union being silent on the matter (Bourinot, 4th ed., pp. 92-3).
[27] 
See, for example, Debates of the Senate, September 23, 1997, p. 4.
[28] 
Bourinot, 4th ed., pp. 49-50.
[29] 
See Speaker’s ruling respecting the first day of a session, Journals, March 24, 1873, p. 58. In this ruling, the Speaker referred to the procedural authorities Hatsell, Dwarris, May and Todd. An exception to this established procedure occurred in October 1995, when the First Session of the Fifty-Third Legislative Assembly of New Brunswick was called, pursuant to proclamation, and the Administrator made a short statement after the election of the Speaker; whereupon the Assembly proceeded to consider a resolution concerning the distinct-society status of Quebec. When this was disposed of, a message was read calling the Assembly to the formal opening of the session on February 6, 1996. At that time the Speech from the Throne was read by the Lieutenant-Governor (Journals of the Legislative Assembly, October 25, 1995, pp. 1-6; February 6, 1996, pp. 7-27).
[30] 
Journals, October 14, 1957, p. 8; October 18, 1977, p. 2.
[31] 
On two occasions, the wife of the Governor General shared in the reading of the Speech from the Throne. Jules Léger took office as Governor General in January 1974; in June of that year, he suffered a debilitating stroke which affected his speech. During his tenure, four sessions of Parliament were opened: on September 30, 1974, the Speech from the Throne was read by the Administrator; on October 18, 1977, it was read by the Sovereign; on October 12, 1976, and October 11, 1978, the Governor General and Madame Léger shared the reading of the Speech from the Throne.
[32] 
See, for example, Journals, September 23, 1997, p. 11.
[33] 
Letters Patent Constituting the Office of Governor General of Canada (1947), R.S.C. 1985, Appendix II, No. 31, art. VIII.
[34] 
See, for example, Journals, March 12, 1931, p. 3; May 16, 1940, p. 9; May 16, 1963, p. 9; September 30, 1974, p. 8.
[35] 
See, for example, Journals, September 30, 1974, p. 8.
[36] 
See, for example, Journals, September 23, 1997, p. 11.
[37] 
See, for example, Journals, September 23, 1997, p. 11. For an example of an occasion on which the practice was not adhered to, see Journals, August 29, 1950, p. 4. The House had been recalled to a special session that day, to deal with a labour dispute, among other matters. Instead of the usual pro forma bill, the government introduced back-to-work legislation which was read the first time and ordered for a second reading later that day. See also Debates, August 29, 1950, pp. 1-2.
[38] 
The introduction of a pro forma bill as a ritual act of independence has existed as a practice of the House since prior to Confederation. It originated in the British House of Commons in 1571, being confirmed in the following resolution adopted on March 22, 1603: “That the first day of sitting, in every Parliament, some one Bill, and no more, receiveth a first reading for form’s sake” (Hatsell, Vol. II, p. 81). The custom is observed in other parliaments where, in most cases, the bill is read a first time and not heard of again until the start of the next session: the Australian House of Representatives refers to its “formal” or “privilege” bill (House of Representatives’ Practice, 3rd ed., pp. 234-5); in the British House, it is called the Outlawries Bill (May, 22nd ed., p. 245). In the Legislative Assembly of British Columbia, the pro forma bill is Bill 1, An Act to ensure the Supremacy of Parliament (see, for example, Votes and Proceedings for March 17, 1992, and March 26, 1998).
[39] 
The text of the Speech from the Throne used to be printed in the Journals as well as the Debates. However, beginning in 1996, at the opening of the Second Session of the Thirty-Fifth Parliament, the text was tabled and printed in the Debates but not in the Journals (Debates, February 27, 1996, pp. 1-6; September 23, 1997, pp. 5-12; Journals, February 27, 1996, pp. 1-2; September 23, 1997, p. 12).
[40] 
The motion is debatable and amendable. In 1988, for example, the motion was debated and adopted on recorded division (Journals, December 12, 1988, pp. 6-7). In 1926, an amendment was moved, debated at length and eventually negatived on recorded division (Journals, January 8, 1926, pp. 12-3; January 15, 1926, pp. 28-9).
[41] 
See, for example, Journals, December 12, 1988, p. 8. The announcement is made pursuant to s. 50(4) of the Parliament of Canada Act, R.S.C. 1985, c. P-1 as amended by S.C. 1991, c. 20, s. 2. For further information on the role and functions of the Board of Internal Economy, see Chapter 6, “The Physical and Administrative Setting”.
[42] 
Standing Order 104(1). See, for example, Journals, January 18, 1994, p. 18. Formerly, this Standing Order provided for the appointment of a seven-member Striking Committee at the commencement of the first session of each Parliament. In 1991, the rule was amended (see Journals, April 11, 1991, pp. 2904-5, 2922) and the task of selecting committee membership became one of the duties of a new standing committee, since renamed Procedure and House Affairs. The practice has been that a motion to appoint a committee to designate standing and joint committee membership is moved and disposed of on the opening day of the Parliament. In 1962, however, such a motion was moved and adopted by unanimous consent on the eleventh sitting day (Journals, October 12, 1962, p. 63).
[43] 
A well-entrenched practice exists whereby, on opening day, Ministers move certain motions without notice and the House disposes of them. Normally, the Order Paper and Notice Paper is not produced for the first day of the session. Bourinot’s first edition (1884) describes the practice of moving a formal resolution for the appointment of committees without notice (pp. 231-2).
Standing Order 55(1) provides for a Special Order Paper during a prorogation or when the House stands adjourned and the Government wishes a matter requiring notice to be considered when the House reconvenes.  A Special Order Paper and Notice Paper was produced for the opening of the Second Sessions of the Thirty-Fifth Parliament on February 27, 1996, and for the opening of the Thirty-Sixth Parliament on September 23, 1997; they contained notices of items of Government Business.  In 1997, the notice included among other matters, the proposed membership of the committee charged with selecting members for committees.
In Australia, there is no Notice Paper for the first day of sitting and notice would normally be required for first day business, though examples exist of business proceeding by leave of the House or suspension of the rules (House of Representatives Practice, 3rd ed., pp. 235-6).  In New Zealand, an Order Paper is produced and notice is required for opening day motions (McGee, 2nd ed., p. 99).
[44] 
Standing Order 7(1). Standing Order 7(3) provides for the selection of a successor should a vacancy arise during the course of the Parliament.
[45]
However, in 1973 and 1979, for example, the Deputy Speakers (Robert McCleave and Gérald Laniel) were chosen from among the Members of the Official Opposition.
[46] 
They are usually from the government side; however, in 1997, for example, the Deputy Chairman of Committees of the Whole (Ian McClelland) was chosen from among the Members of the Official Opposition.
[47]
See also Appendix 3, “Deputy Speakers and Chairmen of Committees of the Whole House Since 1885”; Appendix 4, “Deputy Chairmen of Committees of the Whole House Since 1938”; Appendix 5, “Assistant Deputy Chairmen of Committees of the Whole House Since 1967”.
[48] 
Exceptions occurred in 1962 when the motion to select the Deputy Speaker was adopted after a recorded division (Journals, January 18, 1962, pp. 6-7); in 1990 when the motion to select the Assistant Deputy Chairman of Committees of the Whole was adopted on recorded division (Journals, October 2, 1990, p. 2050); in 1996, when the motion to select the Deputy Chairman of Committees of the Whole was adopted on recorded division (Journals, February 27, 1996, p. 3) and the motion to select the Assistant Deputy Chairman of Committees of the Whole was also adopted on a recorded division (Journals, February 27, 1996, p. 4; February 28, 1996, pp. 9-10). Later in the session, the post of Deputy Chairman of Committees of the Whole was vacated and a motion was moved selecting a successor. It was debated, an amendment was moved and negatived on recorded division, the motion was closured and later adopted on recorded division (Journals, October 28, 1996, pp. 778-9; October 29, 1996, pp. 784-9).
[49] 
Standing Order 81(1). An Order of the Day is an item of business on the House agenda (the Order Paper). “Continuing” means that the Order for the Business of Supply will remain on the Order Paper for every sitting of the session thereafter.
[50] 
See, for example, Journals, May 13, 1991, p. 11; January 18, 1994, p. 17. For further information on the Supply process, see Chapter 18, “Financial Procedures”. On occasion the statement has not been made in the Speech from the Throne (see Journals, September 8, 1930, p. 9; January 25, 1940, p. 8; October 9, 1951, pp. 2-4; December 12, 1988, pp. 5-6; April 3, 1989, pp. 3-12). The Speaker ruled on May 2, 1989, that the Standing Orders do not specify that a request for funds must appear in the Speech from the Throne (Debates, pp. 1175-7).
[51] 
Debates, February 27, 1996, pp. 16-20. The point of order concerned the designation of the Official Opposition, when events had resulted in an equality of seats between the two main opposition parties. Although prorogation normally puts to an end any outstanding business, the Speaker determined that the recent equality of seats had created a new context and required an immediate statement on the issue. For further information on the point of order and the Speaker’s ruling, see Chapter 1, “Parliamentary Institutions”.
[52] 
See, for example, Journals, September 15, 1949, pp. 10-3; October 9, 1979, pp. 17-8; October 1, 1986, pp. 24-5; December 12, 1988, pp. 7-8; February 27, 1996, p. 2. For further information, see Chapter 4, “The House of Commons and Its Members”.
[53] 
See, for example, Journals, August 29, 1950, p. 4; April 3, 1989, p. 3. For matters relating to a new Member’s entrance in and introduction to the House, see Chapter 4, “The House of Commons and Its Members”.
[54] 
For example, on the opening day of the Third Session of the Twenty-First Parliament, tributes were offered in memory of former Prime Minister W.L. Mackenzie King, two Members (Mr. Mitchell and Mr. Belzile) and former Speaker Casgrain (Debates, August 29, 1950, pp. 5-10). For other examples of tributes given on the opening day of a session, see Debates, September 12, 1968, pp. 10-1; January 4, 1973, pp. 8-11; September 30, 1974, pp. 8-9; October 12, 1976, pp. 4-5; October 9, 1979, pp. 7-8; December 12, 1988, pp. 11-2.
[55] 
See, for example, the tributes made on the second day of the session in Debates, January 5, 1973, p. 14; May 14, 1991, pp. 55-8; and on the fourth and fifth days of the session in Debates, January 20, 1994, pp. 108-12; January 21, 1994, pp. 157-8; September 25, 1997, pp. 104-6; September 26, 1997, pp. 153-6.
[56] 
See, for example, announcements informing the House of the appointment of a new Clerk (Journals, February 5, 1925, p. 1; October 9, 1979, p. 18) and of a new Sergeant-at-Arms (Journals, March 18, 1918, p. 7; January 14, 1960, p. 8).
[57] 
Journals, August 18, 1914, pp. 2-3; September 8, 1930, p. 9; September 7, 1939, p. 2; January 25, 1940, p. 8; March 19, 1945, pp. 2-3; August 29, 1950, pp. 4-5; November 26, 1956, p. 2; December 12, 1988, pp. 5-6.
[58] 
At the time of the short-lived First Session of the Thirty-Fourth Parliament, which is not specifically designated as “special” in the Debates or Journals of the House of Commons, the situation had evolved to where Parliament was sitting year-round. It is worth noting that in this case Parliament was summoned to meet only three weeks after the general election of November 21, 1988. Parliament met on December 12, 1988, and this was also the date set for the return of the writs. The list of Members elected and the accompanying certificate of the Chief Electoral Officer, usually tabled by the Clerk immediately when the House meets for the despatc of business, was in this instance not tabled until December 15, 1988, the fourth sitting day of the session (Journals, pp. 26-33). The session started on December 12, 1988, and dealt with a bill to implement a free trade agreement between Canada and the United States. On December 23, the House passed the bill and pursuant to Special Order, adjourned, reconvened for the Royal Assent on December 30 and adjourned until March 6, 1989. Parliament was prorogued by proclamation dated February 28, 1989.
[59] 
Journals, August 18, 1914, p. 3; September 8, 1930, p. 10; September 7, 1939, p. 5; August 29, 1950, p. 5; November 26, 1956, p. 3. Rules were also suspended in two other sessions of short duration not designated as “special” in the Debates or Journals of the House of Commons: in 1945 (Sixth Session of the Nineteenth Parliament), the House agreed to give precedence to Government Business for the balance of the session and to treat Wednesdays (then a day of early adjournment) as other sitting days (Journals, March 19, 1945, p. 3); in 1988 (First Session of the Thirty-Fourth Parliament), a motion was adopted (and deemed rescinded on completion of the business at hand) to extend the hours of sitting and suspend the operation of certain Standing Orders (Journals, December 16, 1988, pp. 46-9; December 30, 1988, p. 87).
[60] 
Standing Order 28(2).
[61] 
In 1986, for example, the House was recalled for a day during the summer adjournment (July 24) in order to consider a Senate amendment to a government bill. Parliament was prorogued on August 28 and the new session opened on September 30, some three weeks after the date provided in that year’s calendar for the resumption of sittings.
[62] 
Standing Order 24.
[63] 
Standing Order 28(1).
[64] 
Journals, November 29, 1982, p. 5400.
[65] 
See, for example, Journals, March 19, 1894, p. 15; Debates, March 19, 1894, cols. 78-9 (adjournment over Easter).
[66] 
For session dates, see Appendix 12, “Parliaments Since 1867 and Number of Sitting Days”. In 1947, responding to "complaints… that protracted sessions of Parliament are caused by deficiencies in the rules of procedure …", the Speaker put forward a Report on Procedure containing (among other items) a suggestion that sessions be divided into three sections, or sitting periods (Journals, December 5, 1947, pp. 7, 24-5). This recommendation was not acted on; nor were later proposals of a similar nature (see Appendix “J” to the Report of the Sub-Committee on the Use of Time, Standing Committee on Procedure and Organization, Minutes of Proceedings and Evidence, September 30, 1976, Issue No. 20, pp. 53-4. See also pages 4 and 5 of the document entitled “Position Paper: The Reform of Parliament”, tabled on November 23, 1979 (Journals, p. 260)).
[67] 
Journals, October 9, 1964, pp. 780-1.
[68] 
Journals, July 18, 1980, p. 488; July 21, 1980, pp. 492-5; July 22, 1980, pp. 498-9; July 10, 1981, pp. 2848-50; July 16, 1981, pp. 2864-5 (notice of closure); July 17, 1981, pp. 2868-71.
[69] 
See Part II of the Third Report of the Special Committee on Standing Orders and Procedure, presented on November 5, 1982 (Journals, p. 5328). The recommendations were adopted on November 29, 1982 (Journals, p. 5400). For an example of comments on the anticipated effect of the new parliamentary calendar, see Debates, November 29, 1982, p. 21069. See also certain interventions in the Debates of June 1988, when the government sought to introduce a motion proposing the temporary suspension of certain Standing Orders, including the parliamentary calendar (Debates, June 9, 1988, pp. 16296-7, 16301; June 10, 1988, pp. 16322-3; June 13, 1988, pp. 16379 (Speaker’s ruling), 16389; June 20, 1988, p. 16626).
[70] 
Journals, December 19, 1983, pp. 55-6 (see also the First Report of the Special Committee on Standing Orders, presented on December 15, 1983, Journals, p. 47); April 11, 1991, pp. 2902-7.
[71] 
Standing Order 28(2).
[72] 
See, for example, Journals, April 21, 1994, p. 380.
[73] 
Standing Order 24(1). Weekend sittings take place infrequently and in unusual circumstances; for example, in 1995, pursuant to a Special Order, the House met on Saturday and Sunday to consider back-to-work legislation (Journals, March 23, 1995, p. 1265).
[74] 
Standing Order 28(3) provides for recall during an adjournment. For examples, see Appendix 13, “Recalls of the House of Commons During Adjournment Periods Since 1867”.
[75] 
See, for example, Journals, December 10, 1991, pp. 909-10.
[76] 
Journals, June 20, 1988, pp. 2925-7. Following the appearance of the government’s notice of a motion to suspend the operation of certain Standing Orders— including the parliamentary calendar— points of order were raised as to the receivability of the motion. See Debates, June 13, 1988, pp. 16376-9 for the text of the Speaker’s ruling.
[77]
See Appendix 12, “Parliaments Since 1867 and Number of Sitting Days”.
[78] 
An Act to make the first day of July a Public Holiday, by the name of Dominion Day, S.C. 1879, c. 47. Dominion Day was renamed Canada Day in an amendment to the Holidays Act (S.C. 1980-83, c.124), assented to October 27, 1982 (Journals, p. 5288).
[79] 
See, for example, Journals, July 1, 1891, 1919, 1931, 1947, 1958 and 1961.
[80] 
Bourinot, 4th ed., pp. 211-2. See also Debates, June 3, 1872, cols. 947-9, concerning the evolution of the practice.
[81] 
Debates, November 17, 1970, p. 1228. For example, in 1976 when evening sittings were routine, a Member died at “supper hour”, and when the House reconvened, a motion to adjourn was immediately moved and adopted (Journals, December 16, 1976, p. 251; Debates, December 16, 1976, pp. 2088-9).
[82] 
See, for example, Debates, January 11, 1958, p. 3187 and Journals, January 11, 1958, p. 337; Debates, October 27, 1977, p. 324 and Journals, October 27, 1977, p. 42; Debates, June 7, 1993, p. 20462 and Journals, June 7, 1993, p. 3136; Debates, February 17, 1998, p. 4033; February 26, 1998, pp. 4505, 4512-3 and Journals, February 17, 1998, p. 497.
[83] 
Journals, October 9, 1964, pp. 780-1.
[84] 
Standing Order 28(1).
[85] 
Interpretation Act, R.S.C. 1985, c. I-21.
[86] 
Within the parliamentary calendar, the only day not specifically covered in all cases by a long adjournment would be Victoria Day (celebration of the birthday of the Sovereign).
[87] 
Standing Order 28(4). See, for example, Journals, July 7, 1994, pp. 672-3. The rule, which was adopted on June 10, 1994, codifies a pre-existing practice whereby the House would adopt an order enabling it to reconvene for the sole purpose of granting Royal Assent (see, for example, Journals, June 23, 1992, pp. 1833-4).
[88] 
Standing Order 28(3). See also Appendix 13, “Recalls of the House of Commons During Adjournment Periods Since 1867”.
[89] 
See, for example, Journals, September 8, 1992, p. 1924. On July 3, 1987, the government requested a recall, citing pressing legislation then in the Senate. The House was not recalled; it was reported that the government and the Senate were pursuing an agreement on the handling of the bills in question. On August 7, 1987, citing different reasons, the government again requested a recall; the Speaker granted the request and the House was recalled on August 11 (Journals, p. 1308). During the 1991 crisis in the Persian Gulf, the House adopted a motion allowing two of its standing committees to request that the Speaker recall the House, with Standing Order 28(3) temporarily modified to provide for 12-hour notice (Journals, January 21, 1991, pp. 2587-8).
[90] 
Standing Order 55. See also Chapter 12, “The Process of Debate”.
[91]
See Appendix 12, “Parliaments Since 1867 and Number of Sitting Days”.
[92] 
Journals, August 3, 1940, p. 325.
[93] 
Journals, November 22, 1944, p. 921. See also Debates, November 22, 1944, p. 6505. The recall of 1944 was the first to take place pursuant to an Order of the House.
[94] 
Recalls from adjournment took place in 1951, 1966, 1972, 1973, 1977 and 1980.
[95] 
Standing Order 55. See page 12 of the Third Report of the Special Committee on Standing Orders and Procedure, presented on November 5, 1982 (Journals, p. 5328). The Standing Order came into effect on December 22, 1982 (Journals, November 29, 1982, p. 5400). The House was later recalled pursuant to Standing Order in 1986, 1987, 1991 (twice) and 1992. See Appendix 13 for a list of recalls and the reasons for the recalls.
[96] 
In 1991, for example, the letter requesting the January recall was dated Saturday, January 12, 1991 (Journals, January 15, 1991, p. 2556).
[97] 
A message is sent to all Members over the Speaker’s signature advising of the date and time of the recall. Since 1986, these messages have been sent via electronic mail; see, for example, Debates, July 24, 1986, p. 15011; Journals, January 15, 1991, p. 2556. Prior to this, telegrams were used (see, for example, Debates, November 22, 1944, p. 6504; August 9, 1977, p. 8129). In cases where special transportation arrangements are required, House officials may work with the Department of National Defence and will include in the notice to Members details of routing and scheduling of aircraft. In 1977, for example, travel by military aircraft was arranged when the House was recalled due to a nation-wide strike which had the effect of closing down the commercial air transportation industry.
The party Whips’ offices are also notified of the recall and of any special transportation arrangements.  As well, the necessary steps are taken to ensure that Members travelling on parliamentary business at the time of a recall are informed of the recall and provided assistance in returning to Ottawa.
In the past, a notice of recall was published over the Speaker’s signature in a special or "extra" edition of the Canada Gazette. There is no statutory requirement for this measure, and the practice was abandoned with the recall of February 1991.  See also Appendix 13.
[98] 
Journals, September 8, 1992, p. 1924; Debates, September 8, 1992, p. 12709.
[99] 
See, for example, Debates, November 22, 1944, p. 6504; January 29, 1951, p. 755; August 30, 1973, p. 6059; January 15, 1991, p. 16981.
[100] 
Journals, October 6, 1980, p. 504; July 24, 1986, p. 2474; August 11, 1987, p. 1308; January 15, 1991, p. 2556; February 25, 1991, p. 2602; September 8, 1992, p. 1924.
[101] 
On Mondays, for example, the usual time of meeting is 11:00 a.m. (Standing Order 24(1)); when the House was recalled at 2:00 p.m. on Monday, February 25, 1991, the Speaker made the usual statement as to the recall, and the House proceeded with the daily program for Monday afternoon as set out in the Standing Orders (Journals, February 25, 1991, pp. 2602-21).
[102] 
Journals, August 11, 1987, p. 1308; December 18, 1987, pp. 2018-9.
[103]
See, for example, the so-called special sessions, described elsewhere in this chapter.
[104] 
For example, during the First Session of the Thirty-Third Parliament, the House adjourned on July 24, 1986, until September 8, 1986. On August 28, 1986, the session was ended by prorogation and the Second Session was set to begin on October 1, 1986. On September 25,1986, a new proclamation was issued, fixing September 30, 1986, as the date of the opening of the new session.
[105] 
See Privy Council minute, P. C. 3374, dated October 25, 1935, a “Memorandum regarding certain of the functions of the Prime Minister”, which stated that recommendations (to the Crown) concerning the convocation and dissolution of Parliament are the “special prerogatives” of the Prime Minister.
[106] 
For example, the opening of the Fifth Session of the Twenty-Fourth Parliament, originally set for November 7, 1961, was changed by successive proclamations to December 16, 1961, then to January 25, 1962, and finally to January 18, 1962.
[107]
For further details, see Chapter 20, “Committees”.
[108] 
Bourinot, 4th ed., pp. 102-3.
[109] 
See, for example, Journals, October 21, 1970, p. 46; May 9, 1972, p. 281; March 8, 1974, pp. 25-6; October 3, 1986, pp. 47-8. In 1986, the special order included a provision to bring forward from committee any evidence adduced and documents received in relation to the revived bills. A bill has also been reinstated after a dissolution; see Journals, October 1, 1997, p. 56, and Debates, October 1, 1997, p. 338.
[110] 
Journals, July 22, 1977, p. 1432; March 22, 1982, pp. 4626-8.
[111] 
Journals, May 17, 1991, pp. 42-5; May 23, 1991, p. 59.
[112] 
Debates, May 28, 1991, pp. 702-3; May 29, 1991, pp. 733-5; Journals, May 29, 1991, pp. 102-9.
[113] 
If, when proposing a motion for the first reading of a bill during the first 30 sitting days of the new session, the mover stated that the bill was in the same form as a bill at the time of prorogation, and if the Speaker was so satisfied, then the bill was deemed to have reached the same stage as the previous bill at prorogation. The motion was moved on the second sitting day of the session, and closured and adopted on the third day (Journals, March 1, 1996, pp. 23-5; March 4, 1996, pp. 33-5, 39-41).
[114] 
Standing Order 49.
[115] 
Debates, June 27, 1986, p. 14969.
[116] 
For example, during the First Session of the Thirty-Fourth Parliament, the House adjourned on December 30, 1988, to resume on March 6, 1989; Parliament was prorogued on February 28, 1989, with the opening of the Second Session fixed for April 3, 1989. During the Second Session of the Thirty-Fourth Parliament, the House adjourned to the call of the Chair on May 8, 1991. Parliament was prorogued on May 12, 1991, with the opening of the Third Session fixed for May 13, 1991.
[117] 
For example, the 1940-42, 1942-43, 1943-44, 1977-78 and 1978-79 sessions (the first four sessions of the Nineteenth Parliament and the Second,Third and Fourth Sessions of the Thirtieth Parliament) were in each case adjourned, reconvened, ended by prorogation with the new session starting the next day.
[118] 
See, for example, Journals, January 8, 1957; May 8, 1967; October 12, 1976.
[119] 
Prorogation has not taken place in this manner since 1983, the end of the First Session of the Thirty-Second Parliament (Journals, November 30, 1983, pp. 6632-46).
[120] 
The Constitution provides for a maximum five-year lifespan for the House, and for a sitting of Parliament at least once every 12 months (see Constitution Act, 1867, R.S.C. 1985, Appendix II, No. 5, s. 50; Constitution Act, 1982, , R.S.C. 1985, Appendix II, No. 44, ss. 4(1), 5). For comments on this issue, see J. Patrick Boyer, Election Law in Canada, Vol. 1, Toronto: Butterworths, 1987, pp. 164-6.
[121] 
Canada Elections Act, R.S.C. 1985, c. E-2, s. 79.
[122] 
In June 1926, Governor General Byng refused to dissolve Parliament, whereupon Prime Minister Mackenzie King resigned and the leader of the opposition, Arthur Meighen, was invited to form a government (Journals, June 28-9, 1926, pp. 483-6; Debates, June 28-9, 1926, pp. 5096-7). For further details, see Chapter 2, “Parliaments and Ministries”.
[123] 
Bourinot, 4th ed., pp. 104-5.
[124] 
In 1997, for example, the proclamation of April 27, summoning Parliament to meet on June 23, was superseded by proclamations which changed the date of summons to August 1, then to August 29 and finally September 22.
[125] 
See, for example, Journals, February 1, 1958, p. 398, and Debates, February 1,1958, pp. 4199-202; Journals, December 14, 1979, p. 350, and Debates, December 14, 1979, p. 2363 (announced by the Prime Minister); Journals, March 26, 1979, p. 594, and Debates, March 26, 1979, p. 4517 (announced by the Deputy Prime Minister and President of the Privy Council).
[126] 
Parliament of Canada Act, R.S.C. 1985, c. P-1, s. 2. A demise of the Crown can occur on the death, deposition or abdication of the sovereign, at which time the Kingdom is transferred or demised to a successor.
[127] 
Wilding and Laundy, pp. 202-3.
[128] 
An Act for continuing the Provincial Parliament, in case of the demise of the Crown, S.C. 1843, c. 3.
[129] 
Bourinot, 4th ed., pp. 103-4.
[130] 
An Act for continuing the Parliament of Canada, in case of the demise of the Crown, S.C. 1867-68, c. 22. See also Bourinot, 4th ed., pp. 103-4.
[131] 
Parliament of Canada Act, R.S.C. 1985, c. P-1 as amended by S.C. 1991, c. 20, s. 2 (s. 53).
[132] 
Parliament of Canada Act, R.S.C. 1985, c. P-1, s. 69.
[133] 
Constitution Act, 1982, , R.S.C. 1985, Appendix II, No. 44, s. 4(1). See also Constitution Act, 1867, R.S.C. 1985, Appendix II, No. 5, c. 50.
[134] 
The Seventh and Seventeenth Parliaments extended almost to the five-year limit. In the first case, the date set for the return of the writs was April 25, 1891 (Journals, Vol. XXV (1891), p. x) and dissolution took place on April 24, 1896 (Journals, Vol. XXXI (1896), p. v). In the second case, the writs were returnable on August 18, 1930 (Journals, Vol. LXVIII, Special Session (1930), p. iv) and Parliament was dissolved on August 15, 1935 (Journals, Vol. LXXIV (1936), p. iii).
In Australia, the Third Parliament (the only instance of the expiration of the House of Representatives through effluxion of time) had its final sitting on December 8, 1909, was prorogued to January 26, 1910, and on January 18 was again prorogued to February 19, 1910, at which time it expired.  Election writs were issued on February 28, 1910 (House of Representatives Practice, 3rd ed., p. 238).
The expiration of New Zealand’s twenty-seventh Parliament in 1946 went unnoticed due to an earlier departure from the country’s usual electoral timetable, and a proclamation dissolving the Parliament was made and acted on.  The forty-second Parliament was dissolved in 1990 on the day it was due to expire.  According to the practice in New Zealand, when Parliament expires, the procedures for holding a general election operate as if a dissolution had taken place on the date of expiration (McGee, 2nd ed., pp. 128-30).
[135] 
British North America (No. 2) Act, 1949, R.S.C. 1985, Appendix II, No. 33; see also Constitution Act, 1982, R.S.C. 1985, Appendix II, No. 44, s. 4(2).
[136] 
British North America Act, 1916, R.S.C. 1985, Appendix II, No. 24. The writs for the general election electing the Twelfth Parliament were returnable on October 7, 1911 (Journals, Vol. XLVI (1910-11), p. 563). Dissolution occurred on October 6, 1917 (Journals, Vol. LIV (1918), p. iii). The Act was repealed by the Statute Law Revision Act, 1927.

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.