Question of Legitimacy in Liberal Democracy: The Trudeau Legacy
Justin Trudeau became leader of the Liberal Party of Canada in 2013 and Canada’s 23rd Prime Minister on 4 November 2015. As Justin Trudeau prepares to step down as leader of the Liberal Party, the IOG will reflect on his legacy through a five-part series. Each installment of this five-part series will explore the Trudeau legacy via a principle of good governance. We start with legitimacy.
By Karl Salgo and Catherine Waters
February 5th, 2025
Legitimacy is a cornerstone of democratic governance. It determines whether a government’s authority is accepted by the public, even by those who did not vote for the governing party, and even when its decisions are unpopular. The foundation of democratic legitimacy rests on a fair electoral process and broad public acceptance of the government’s mandate. However, liberal democratic legitimacy extends beyond elections, requiring institutions that uphold rights, an independent judiciary, a functioning parliament, and meaningful public engagement in decision-making.
A marked trend over the ten years has been the erosion of liberal democratic standards of governance by governments around the world – sometimes in overt ways, more often in insidious ones – and an apparent acceptance and even celebration of this by their electorates. In many countries, new governments have been elected promising to reduce or eliminate measures of liberal democratic legitimacy, often through attacks on the media or politicization of liberal institutions. In contrast, in 2015, when Justin Trudeau became Prime Minister in Canada, part of his electoral success was down to his espousal of the opposite: a return to and greater emphasis on higher standards of institutional and representative legitimacy.
Justin Trudeau’s tenure as Canada’s Prime Minister has been marked by significant challenges to liberal democratic legitimacy, albeit not of the kind and extent seen in the USA. While he championed inclusive representation and reconciliation efforts, his government also faced criticism for centralizing power, stifling parliamentary transparency, and failing to deliver on key democratic reforms.
The Institute on Governance identified five key measures of good governance, the first of which is legitimacy and voice. This article takes on this first measure and evaluates Trudeau’s record on legitimacy, analyzing his institutional approach and his efforts to give marginalized groups a voice.
Institutional Legitimacy: A Failure to Deliver
When Trudeau first took office in 2015, he promised a more representative and responsive democracy. His government pledged to reform the electoral system, ending Canada’s first-past-the-post (FPTP) voting system, which many regarded as giving inordinate power to governments that lacked majority support. However, this promise was quickly abandoned on the claim of insufficient consensus after what looked to many observers like a rather perfunctory effort. Trudeau’s apparent preference for ranked ballots was never formally pursued, leaving the existing system unchanged. The failure to act on electoral reform was seen by many as a betrayal of a key electoral commitment and a missed once-in-a-generation opportunity. .
Further, Trudeau vowed to return power to the cabinet, allowing ministers greater autonomy. Instead, his Prime Minister’s Office (PMO) remained highly centralized, exerting strict control over government messaging, policy implementation, and ministerial decision-making. Senior ministerial staff were often handpicked by the PMO, and cabinet members had limited discretion, contradicting Trudeau’s earlier commitments.
In Parliament, Trudeau resisted applying the provisions of the Reform Act to his own party, which would have empowered Liberal MPs to challenge their leader. This decision ultimately made it difficult for the Liberal caucus to hold him accountable, even as discontent grew. Parliamentary dysfunction became a defining feature of his later tenure, exacerbated by his government’s unwillingness to provide information on foreign interference—an issue that directly tested the principle of democratic oversight.
Trudeau also drew criticism for using omnibus bills, a tactic he once opposed, and for vilifying political opponents. His response to the 2022 truckers’ convoy protests, which included invoking the Emergencies Act and branding demonstrators with sweeping accusations of extremism, fueled debates about democratic fairness and government overreach.
It could be argued that Trudeau’s reform of Senate appointments represents an improvement in legitimacy, with a more independent and merit-based appointment system and the exclusion of senators from the Liberal caucus. But not only are these reforms vulnerably to immediate reversal, but it is debatable whether more active but still unelected and permanent senators amount to more democracy or less.
Giving Voice: Trudeau’s Successes in Representation
Despite his institutional failings, Trudeau made notable progress in enhancing representation within government. From 2015 onwards, his cabinet maintained gender parity, though this required appointing ministers of state to meet the target. Women and visible minorities held key government positions, including the Governor General’s office, signifying an effort to diversify leadership.
His government’s reconciliation efforts empowered Indigenous communities in ways that significantly influenced policy. Indigenous advisory bodies gained prominence, notably in energy regulation, where they were accorded a formal advisory role in shaping pipeline policies. Landmark commissions, such as the Truth and Reconciliation Commission and the Inquiry into Missing and Murdered Indigenous Women, symbolized a broader cultural shift toward Indigenous inclusion. In this respect, Trudeau’s legacy is solid – the language and tone of discussion and debate on policies regarding Indigenous people have shifted over the past 10 years, and the attitudes and values of Canadians along with them.
Trudeau also spearheaded Equity, Diversity, and Inclusion (EDI) initiatives within the public service, setting ambitious targets to reshape its demographic makeup. These efforts reflected a commitment to social representation and opportunities for groups of people who have historically been marginalized, even as critics questioned their effectiveness in addressing systemic barriers.
Conclusion: A Mixed Legacy on Legitimacy and Voice
Trudeau’s leadership presents a paradox in liberal democratic legitimacy. While his government advanced inclusivity and representation, it also centralized power and missed multiple opportunities to improve the legitimacy and effectiveness of Canada’s institutions.. His failure to reform the electoral system, the tightening control of his PMO, and his reluctance to strengthen parliamentary oversight compromised his legitimacy in governance. Yet, his government’s push for greater representation of women, minorities, and Indigenous communities signalled an important shift toward broader democratic participation.
Trudeau’s mixed legacy raises a larger question than his personal performance. How can a government that comes to power partly on a promise to improve the quality of democracy end up doing the reverse in multiple areas? Is this the inevitable dynamic of modern government, or could Canadians themselves have been more vigilant?
Karl Salgo is an Associate and Executive Advisor at the IOG.
Catherine Waters is the Director, Learning Design and Evaluation at the IOG.