In many countries, redistricting is conducted by special bodies that are set-up particularly for a specific redistricting exercise, and, at the end of their mandate, are disbanded; some countries might have permanent redistricting bodies. In either case, the permanent electoral management body might be asked to support and lend assistance to the appropriate redistricting body or even to conduct the redistricting exercise itself. Planning for the redistricting exercise should include three broad phases:
- Planning and preparation before the redistricting exercise begins
- Support to the redistricting process once it is underway, and
- Returning to election readiness
In Canada, 10 three-member commissions, one for each province, are established to conduct the redistricting exercise (popularly known as redistribution). Because these are temporary bodies, federally constituted at the beginning of each redistribution exercise once every ten years following the decennial census, the members have little or no experience working within a government structure. To help them manage the administration side of the exercise, the Office of the Chief Electoral Officer of Canada (Elections Canada) provides legal, technical, financial and administrative support to the independent commissions responsible for the periodic process of readjusting federal electoral boundaries, to ensure that representation conforms to the Electoral Boundaries Readjustment Act.
The following tables lists the major activities undertaken by Elections Canada before, during and after the redistribution process
PHASE 1: Planning and Preparation
Up to two years before the independent commissions are established to conduct the redistribution, Elections Canada sectors/divisions begin the planning of Redistribution activities and complete the development of tools and the implementation of infrastructure to support Phase 2 (the independent commissions) of the program. Major activities by sector/division lead follow:
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Division/Sector
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Activities
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Redistribution Directorate (this directorate is re-established every
ten years to plan for the 3 broad phases of the redistribution exercise.
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Staffing of key positions (within Elections Canada)
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Electoral Geography
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Development and implementation of Redistribution tools:
Commission Redistricting Tool (CRT – a GIS application developed by
Elections Canada for boundary delimitation)
Data and Mapping Tools (DMT - applications developed to manipulate
data, print reports and maps)
Public Web Tools (PWT - offers the public web mapping capabilities to
respond to the commission’s proposals in preparation for the hearings.
Prepare for the following:
Provide geography specialists to support Commissions in the field
Providing geography specialists to assist committee of the House of
Commons in its review of objections from Members of Parliament
Production of all geography products requested by legislation
(gazetted proposals, report, newspaper and Web map)
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Information Technology (IT)
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Support for GIS Technology
Support for Redistribution website development
Support for Field application deployment
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Policy, Planning and Public Affairs (PPPA)
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Development of a global communication strategy including Internet
strategy
Development of communication plans for each Commission
Design and construction of Redistribution website
Provision of translation, editing, and graphic design services
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Human Resources
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Developing job descriptions and staffing key Redistribution positions
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Legal Services
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Review of past recommendations for amending redistricting legislation
Impact evaluation of potential modifications of legislation and
Representation formula on the Redistribution process
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PHASE 2: Support of the redistricting process
Elections Canada supports the redistricting commissions in every stage of their operations. Major activities and deliverables by sector/division lead follow:
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Division/Sector
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Activities
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Redistribution Directorate
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Apply representation formula
Organize public sittings
Tabling of reports with the Speaker
Completion of reports following public sittings. Reports referred back
to commissions for reconsideration (as necessary)
Preparation of draft representation order
Overseeing Proclamation of draft representation order
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Electoral Geography
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Provide geography specialists to support Commissions in the field
Providing geography specialists to assist committee of the House of
Commons
Production of all geography products requested by EBRA (gazetted
proposals, report, newspaper and Web map)
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Information Technology (IT)
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On-going support for Redistribution activities (in the field and at Headquarters)
Planning (business requirements, design) for adapting corporate
systems in managing two sets of electoral districts (in the transition period
before the new boundaries become effective).
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Policy, Planning and Public Affairs (PPPA)
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Publication of Representation formula results in Canada Gazette
Gazette proclamation establishing commissions, naming each member
Publication of commissions’ proposals
Publication of notices for public sittings through public
advertisements
Gazetting representation order and proclamation
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Note: this phase of redistribution places the heaviest demand on the services provided by Electoral Geography and by Policy, Planning and Public Affairs. Most of the milestones noted above are governed by legislated (EBRA) timeframes and must be completed on schedule. The services need to be provided to each of the ten commissions, at times concurrently, at times separately but experience has shown that providing the services to the commissions sequentially is not feasible.
PHASE 3: Return to Readiness
Following proclamation of the draft representation order, there is a minimum 7-month period prescribed by the Electoral Boundaries Readjustment Act before the representation order comes into force. This period enables Elections Canada to return to a state of readiness under the new electoral boundaries. (It also enables political parties to adjust their internal operations and organizational structure to reflect the new boundaries/districts.) Any general election called before the 7 month period has passed is conducted under the current boundaries. Any general election called after the 7 month period has passed is conducted under the new boundaries. Any by-election called before the new boundaries come into effect is conducted under the current boundaries.
Two concurrent activities dominate return to readiness across all EC sectors:
- Maintain a state of readiness under the current electoral districts; and
- Establish and maintain a state of readiness under the new electoral districts.
Major activities and deliverables by sector/division lead follow:
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Division/Sector
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Activities
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Electoral Geography
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Maintain current Electoral District (ED) and Polling District (PD)
boundaries
Revise polling divisions to respect new ED boundaries
Prepare new maps at national, provincial, municipal and ED levels and
PD maps
Transpose votes of previous general election to new boundaries
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National Register of Electors (NROE)
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Adjust Corporate Address Register
Prepare two releases (current and new boundaries)
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Field Readiness and Management (FREM)
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Hiring of New Returning Officers
Training of Returning Officers, Assistant Returning Officers,
Automation Co-ordinators,
and Support Network staff
Revise Electoral Event Systems (all systems must be revised to the new
boundaries)
Distribution Centre to prepare material/supplies for new districts
Note: two full
sets of Returning Officers (current
and new) and all other field election staff may be required
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Information Technology (IT)
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Adjust Corporate Data Base (CDB) to maintain current structure and new
required structure
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Policy, Planning and Public Affairs (PPPA)
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Review of Enquiries Unit (Manual and tools) and WEB tools and content
(structure, tools, and all information)
Review of all Backgrounders, Information Kits, Exploring Canada’s Electoral System,
Advertising program and Media buying strategy
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Finance
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Establish accounts for new electoral districts
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As can be seen, the actual setting of new boundaries is just a small part of the redistricting exercise. Planning for, carrying out, and implementing the new boundaries requires a major effort on behalf of the Elections Management Body (Elections Canada) and requires close coordination both within the various sections of Elections Canada and with the external, independent boundary delimitation commissions.
