At the time this article was
written Matheiu Proulx was Director of Research and Parliamentary Procedure at
the Quebec National Assembly
Over the past few years the
Quebec National Assembly has set up a repository of information on
parliamentary procedure named in honour of the first Clerk of Lower Canada's
House of Assembly who was appointed in December 1792. This document explains
briefly why a data bank was developed and what sort of information it contains.
Parliamentary institutions in
Canada and Quebec are based on the British model. Our history in the new world
bequeathed to us structures and principles which we have adapted over the years
to suit our own needs. Even today we refer frequently to the rules of procedure
in use at Westminster and to commentaries on those rules. We also look at the
decisions and practices of other Canadian legislatures and from time to time at
precedents established in other Commonwealth parliaments.
Contacts between Clerks of these
parliaments are one way to obtain information about parliamentary procedure.
There is also an incredible variety of books and periodicals available but the
sheer abundance of the documentation can become burdensome to keep on library
shelves or in filing cabinets. Furthermore it may not be consulted as much as
it should if it is not suitably structured. This problem of records management
led the National Assembly to initiate a pilot project to be carried out by its
Procedural Research Branch.
Problems with storing and locating
documentation had been identified: the traditional documentation chain and more
precise indexing were no longer enough to keep up with the ever-expanding
mountain of documents. Getting information to the people who needed it, often
urgently, was slowed down by the time required to trace the relevant
documentation. The pilot project proved to be a success, and the Data Bank was
inaugurated by the President of the Assembly on April 28, 1994.
The choice of software for the data
bank was made on the basis of a recommendation by an in-house task force. The
choice of product and of computer environment was made very judiciously and
only after considerable investigation of the possibilities. Because the data
bank would have to be an effective documentation strategy for the future while
solving the problems already identified, the computer support selected would
have to be highly efficient at retrieving information, user friendly and
adapted to performing within an overall documentation strategy for the
Assembly. The software chosen was CDR, produced by a small Quebec firm called
CEDROM Technologies Inc., which seems firmly committed to staying on the
leading edge of a sector known for its rapid evolution.
CDR is a data-bank software
allowing for whole-text searches, in other words a search may be made for any
word in a text as well as on the basis of predetermined criteria. Documents
entered in the bank can be in either French or English, it makes no difference.
CDR comes with what is known as "hypertext-link capability", which
allows the making of connections among documents in the data bank. Using
hypertext links, a researcher can consult several documents simultaneously, as
though he were sitting at a table in a library with books spread out around
him. The software has two modules, CDA, which builds the data bank, and CDR,
which searches the data bank. The amount stored can be large without slowing
down the search time, and not only text but also images and audiovisual
sequences can be stored. The support can be the hard drive of a PC or a compact
disk (CD-ROM) for wider distribution. The research module is very easy to
learn, using as it does a standard Windows presentation. Those, then, are the
product's main technical characteristics.
It was using this software that the
Samuel-Phillips Data Bank was created and installed. It should be noted that
the whole process was carried out by employees of the Assembly. A development
team of skilled and motivated people was set up to tailor and install the data
bank, rather than having a ready-made system parachuted in by a supplier or a
consultant. One of the attractive features of the chosen software was its
adaptability: a variety of data-bank structures can be produced from it,
depending on the documents and research that have to be accommodated. Having
taken out a corporate license allowing for general use of the software, the
National Assembly will be able to continue developing computerized records
management within other administrative units.
The Samuel-Phillips Data Bank was
structured with a view to simplifying searches for the records it contains. It offers
12 categories of document and eight information fields or research keys. The
categories might be thought of as the shelves in a library, while the
information fields or research keys are used when a researcher wants to track
down a particular document. A list of the categories gives an excellent idea of
the contents of the data bank. To make it easier for the reader, here is a
brief description of the 12 categories:
Procedure and related statutes: provisions of the Assembly's Standing
Orders and operating rules, earlier versions of the Standing Orders and a
selection of the relevant statutes;
Procedure - English version: English versions of the Assembly's
Standing Orders and rules and of certain statutes;
Documents prepared by procedural
clerks: all documents
prepared by experts with the Procedural Research Branch since its inception;
Doctrine: resumés of articles from selected
periodicals and indices or tables of contents from works on procedure or
bibliographies;
Decisions - Assembly: decisions handed down by the President of
the National Assembly since 1984 (when the current Standing Orders were
adopted), and a selection of decisions made before that date;
Decisions - committee: decisions handed down by committee chairmen
since 1984 (when the current Standing Orders were adopted), and a selection of
decisions made before that date;
House of Commons: Standing Orders of the House of Commons
(English and French), Procedural Review and other relevant documents;
Other legislatures: selection of documents dealing with
parliamentary procedure in other Canadian provinces and territories;
Other parliaments: selection of documents dealing with
parliamentary procedure in other parliaments throughout the world;
Judicial rulings: selections of rulings from various courts
having to do with parliamentary procedure;
Quebec legislature - misc.: documents of political or
historical than rather than legal interest, documents from other administrative
units of the Assembly, documents on parliamentary reform and summaries of and
introductions to parliamentary procedure;
Documentary tools: tables of contents of the Standing Orders
and operating rules, concordance tables, thesaurus and other technical
documents, updated regularly.
Obviously we are dealing here with
documents of great interest for anyone working in the field of parliamentary
procedure at the National Assembly. If another legislature decided to set up a
specialized data bank on parliamentary procedure, it is highly likely that
virtually the same categories would serve. The documents have been grouped in
this manner both to make it possible to distinguish among them when research is
being done and because each document category is suited to a particular
approach with respect to the information fields it contains. The more time
spent analyzing and classifying at the start by the procedural experts who will
be indexing the documentation before it is entered in the data bank, the less
time researchers will have to devote to their searches. If the full texts of
documents are simply fed in wholesale, it takes much more strategic research to
find all - and only - the relevant documents.
The information fields constitute
research "landmarks" or keys that can be used when interrogating the
data bank. They were not predetermined by the software but were developed
during the designing of the data bank to reflect the documents it would contain
and special research needs. The Samuel-Phillips Data Bank uses eight research
keys. Each of the documents in the bank has information fields added to it
linked to the category to which it belongs. Most of the information fields are
assigned by procedural experts at the time the documentation is indexed, before
it is entered in the bank. These, briefly, are the eight research keys used.
Type of document: to scan one, or any combination of, the 12
categories described above;
Date: to limit the research to certain dates;
Enriched title: to scan words in the title, subtitle,
marginal notes, key words and key articles;
Text: to scan all words in the text;
Authors: for a list of speakers, authors of
doctrine and drafters of texts in the data bank;
Key words: for an alphabetical list of all key words
identified for each document;
References: for file names and other bibliographical
references.
A document's relevance is a very
important element in documentary research. How does a researcher go about
locating only those documents that are relevant to his research, out of the
multitude of records in the data bank? It is true that relevance is ultimately
judged by the user as he does his research, in relation to the specific
question he is asking. But when the data bank was designed, tools were designed
with it to ensure at least a minimum level of relevance in the information and
responses generally sought and expected. The structure of a record requires
that before it is entered in the bank it must have information fields, or
research keys, assigned to it by procedural experts. In this way a relative
importance is assigned to different words in a text. For example, an article
cited in passing in a text would not be as important as an article considered a
"key article", which would be a research key. The same applies to key
words and so on for all the different research keys. When searching the bank, a
researcher can target a question by using one or other of the research keys. In
this way he will get a more precise answer than by combing the whole data bank
without having made any distinctions. The immense quantity of records that a
data bank can contain can become a real problem without a strategy like this.
A certain standardization in the
rules of writing is also a factor that can facilitate a researcher's work, by
reducing the number of variants that must be considered. A human being
searching by concept can recognize the same concept under different guises, but
a computer can only search for a string of characters identical to that in the
question it has been asked. For this reason, when the procedural experts were
indexing the records, they developed a thesaurus that makes it possible to
standardize the data bank's vocabulary of key words.
The elements I have described, i.e.
the classification of the documents into 12 categories, the development of
eight information fields and the standardization of vocabulary using a
thesaurus, are all characteristics of the Samuel-Phillips Data Bank. They make
it possible to distinguish among all the records in the bank and thus ensure
more relevant results when the data bank is being queried. It is still the
researcher's responsibility, however, to implement an effective research
strategy.
Introducing this technology in the
workplace has meant taking a second look at traditional processes and
procedures. Change cannot be avoided. Everyone concerned has to be ready to drop
old habits and reflexes and adopt new ways of doing things. The new ways may be
initially unsettling, but they quickly produce benefits for the organization
and prove to be research tools of inestimable value for the researcher.
Copyright Issues
In the traditional documentation
chain, with "paper support", we place documents on the library
shelves as we obtain them. They are constantly available to people who want to
consult them. The purchase of the document authorizes its future use by any
interested person. If someone wishes to quote from a document in a text he is
writing, the reference to the original document is carefully given. And
everyone knows that photocopying the document or reproducing it in any other
way is forbidden.
How should we proceed in the case
of data banks? You will have noted that certain categories of document in the
Samuel-Phillips Data Bank cover documents produced by other legislatures and
parliaments. Much of the value of a data bank that is specialized in this way
resides in the fact that documents from varied sources can be entered in it. At
the start of this article I said that because Canadian and Quebec parliamentary
procedures were based on the same principles as the British system, the latter
has the advantage of offering a very wide pool of expertise in the area.
However, this poses the problem of authorization for reproduction of documents
in specialized data banks. We believe that to conform to the law we must
request authorization to reproduce documents from the holders of their
copyrights.
A large number of the documents
that we want to include in the Samuel-Phillips Data Bank come from the federal
government and from the legislatures of Canada's provinces. Others come from foreign
parliaments, most frequently Great Britain and Australia, plus certain American
legislatures. They are extremely interesting from the procedural standpoint. In
other cases, the holder of the copyright is an individual or a publishing
house. We should in all these cases ask permission before going ahead. We have
reached that stage in our introduction of the system, and the next step will
depend on the cooperation we receive from the copyright holders. Naturally we
hope for favourable responses from them and the greatest possible openness to
the enormous potential offered by these new technologies. The future looks
promising for research into parliamentary procedure.