Canadian multilateral intergovernmental institutions and the limits of institutional innovation

Abstract

In 2003, the premiers of Canada’s ten provinces and three territories established the Council of the Federation (CoF) to strengthen interprovincial cooperation and exercise leadership on national issues. However, the purpose of COF in practice has not been the subject of systematic study. Against the backdrop of its predecessor, the Annual Premiers’ Conference, and the broader institutional and economic forces that contribute more generally to weak institutionalization of Canada’s multilateral intergovernmental forums, this paper considers the functioning of CoF in practice by analysing the nature of the joint positions of premiers expressed in communiqués it has issued to the end of Conservative government rule, 2015. This analysis reveals the spectrum of ‘vertical’ and ‘horizontal’ measures that CoF has undertaken, and the nature of integration of CoF with other multilateral intergovernmental forums. It concludes that CoF is not immune to the underlying forces contributing more generally to the weak institutionalization of multilateral intergovernmental councils.

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