1921 Federal Election in Canada

Canada had emerged out of World War I with a slumping economy and a Union government that was plagued with internal dissention.

Canada had emerged out of World War I with a slumping economy and a Union government that was plagued with internal dissention. As the two traditional parties, the Liberals and the Conservatives, were struggling to rebuild themselves, the populist movement among western Farmers was starting to become a powerful political force. The Progressive Party emerged as a voice for the Farmers’ Movement, which would be the beginning of regionally-based politics in Canada. William Lyon Mackenzie King, Arthur Meighen, and Thomas Crerar would campaign on issues such as the tariff and government accountability, hoping to win votes outside of their regional support bases. The 1921 election would result in Canada’s first ever minority government and a dramatic change in Canada’s political landscape.

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Historical Background of 1921 Election

Canada was faced with post-WWI economic problems and a fragmented Union government, while in the West the Farmers’ movement was gaining momentum.

Robert Laird Borden had been Canada’s Prime Minister throughout World War I, winning the 1917 election by forming a Union government out of the Conservatives and pro-conscription Liberals. However, this Union government started to experience difficulties once the war was over. It had no solid base of support, and therefore could not hope to win another election. The conscriptionist Liberals who had left their party were faced with the decision of becoming full-fledged Conservatives, or going back to their own party (which may have been hostile towards them). Post-war Canada was also plagued with rising unemployment and declining industrial production.

Several events set the stage for the 1921 election:

The Liberal Leadership Convention

Wilfrid Laurier died in 1919. To choose a new leader, the Liberal Party held the country’s first ever leadership Convention. William Lyon Mackenzie King defeated W.S. Fielding to become the new leader of the Liberal Party.

At the Convention, the Liberals also adopted new policies:

• They approved the principle of proportional representation
• They supported a general reduction of the tariff
• They proposed the enactment of schemes of insurance against unemployment, sickness, old age, and disability

The Liberals would enter the 1921 election guided by King’s leadership philosophy – that a leader should bring opposing views together to work towards a common goal. King saw himself as a referee between diverse interests, rather than as the final word on all party decisions.

The Farmers’ Movement

The Farmers’ movement was not a new development. It had been active in the prairie provinces since before World War I, but had been interrupted by the war and the 1917 Unionist election. This movement had always lobbied for free trade with the United States. High tariffs at the American border had meant that farmers were forced to sell their agricultural products at lower prices, and buy farm implements at higher prices. The defeat of the Laurier-led Liberal government in 1911, after they had supported a free trade agreement with the United States, had disappointed western farmers.

After the war, western voters were left with no party loyalties. Their candidates had been those Liberal insurgents who had joined the Union government. Those Liberals/Unionists were left without the solid backing of any party. The conditions were right for the rise of an independent political movement that represented western interests.

Besides trade, the farmers were also dedicated to reforming Canada’s political system along populist lines. The farmers advocated the adoption of instruments of direct democracy, such as citizen initiative, and greater use of plebiscites and referenda. The farmers also favoured the adoption of mechanisms to change the electoral process, such as proportional representation and recall.

Creation of the Canadian Council of Agriculture

In November 1918, the Canadian Council of Agriculture was created. They adopted the “New National Policy,” which repudiated the John A. Macdonald’s 1879 National Policy. Their main goal was a reduction in tariffs. This platform was also supported by the United Farmers of Alberta and Ontario, and the Grain Growers of Saskatchewan and Manitoba.

Formation of the National Progressive Party

The Farmers’ Movement and the Canadian Council of Agriculture had initially hoped to convert the Liberal Party to their point of view, and run Liberal candidates in the West under their platform. The policies adopted by the Liberals in 1919 show that the Liberals were attempting to respond. However, popular support for an independent party spread quickly. Farmers were worried that the Liberals were too concerned with maintaining support in protectionist Quebec to adequately address western concerns.

The June 1919 Union government budget was another blow to the farmers. The government had failed to reduce the tariff. Thomas Crerar, the Minister of Agriculture in Borden’s cabinet, resigned in protest. Nine western Unionists (who were ex-Liberals) also withdrew their support of the government.

This group of politicians, along with the Canadian Council of Agriculture, started their own political action. They started running candidates in by-elections in late 1919, and won many landslide victories throughout western ridings. By 1920, they were entirely committed to independent political action. On February 26, 1920, Crerar and 10 other MPs formed the National Progressive Party.

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Political Party Profiles

The Progressive Party emerges as a voice for populism, while the Liberals and Conservatives start to repair internal divisions.

The Liberal Party

The Liberals were faced with rebuilding their party after World War I. The party had experienced many internal divisions after the conscription crisis and the 1917 election. However, they had a solid base of support in Quebec, where the Liberals had remained loyal to the anti-conscriptionists.

The Liberals had been approached by the western farmers’ movement to run on the “New National Policy” platform. However, the Liberals were not interested in doing this, because they feared losing support from protectionist Quebec. They entered the 1921 election led by Mackenzie King, who supported Laurier’s policies of balancing opposing views. However, this would be difficult because of the radical protestors in the West.

The Progressive Party

The Progressive Party had its base of support in western farmers. The number one issue to farmers was free trade, which neither the Liberals nor the Conservatives were willing to put their full support behind. With the economic discontent following World War I, the farmers’ movement saw no choice but to start their own political party.

The Progressive Party was unique in that it had no official national leader or policy platform. They relied on the Canadian Council of Agriculture to provide some sort of national organization, but each candidate was free to run on whatever platform he or she chose. They were a decentralized party, focusing on the West and their own constituents.

The Conservative Party

The Conservative Party had committed itself to a Union government in World War I, and as a result came out of the war with a non-partisan focus. That meant they had no solid base of electoral support. They had to rebuild themselves as the Conservatives again, and develop united policy guidelines. The Conservatives were also faced with the blame for rising unemployment and declining industry.

Robert Borden retired from politics in 1920 for health reasons. He was replaced by Arthur Meighen. Meighen had problems gaining the support of French Conservatives, mainly because of his pro-conscription views in the 1917 election. To counter western support of the Progressives and Quebec support of the Liberals, the Conservatives would need to focus on Ontario and the Maritimes to build a base of support.

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Party Leader Profiles

Mackenzie King, Meighen, and Crerar all come from different backgrounds and will represent different interests.

Thomas Alexander Crerar – Progressive Party

Thomas Crerar was born in 1867 in Huron County, Ontario. His family moved west in 1872 to homestead in Manitoba. Crerar worked as the operator of a sawmill and as a farmer. His political career saw the following highlights:

• President of the Manitoba Grain Growers’ Association 1907-1917
• President of the United Grain Growers 1917-1929
• Minister of Agriculture in Borden’s cabinet 1917-1920
• Led the formation of the Progressive Party 1921
• Retired from politics in 1922, returning in 1929
• Cabinet member for Mackenzie King 1935-1945
• Senator 1945-1966

Crerar’s political focus was always the advancement of western farmers through the abolition of the tariff. He died in 1975.

Arthur Meighen – Conservative Party

Meighen was born in Anderson, Ontario on June 16, 1874. He was educated at the University of Toronto, receiving a degree in mathematics. He worked as a teacher, businessman, and lawyer before entering politics. The following are highlights of his political career:

• First elected as a Member of Parliament in 1908, serving until 1926
• Leader of the Conservative Party 1920-1926 and 1941-1942
• Leader of the Official Opposition 1921-1926
• Prime Minister July-December 1921, and June-September 1926
• Senator 1932-1942

Meighen died on August 5, 1960.

William Lyon Mackenzie King – Liberal Party

Mackenzie King was born on December 17, 1874 in Berlin (Kitchener) Ontario. His grandfather was William Lyon Mackenzie, leader of the 1837 Rebellion in Upper Canada. Mackenzie King was educated at the University of Toronto and University of Chicago, and received his Ph.D. from Harvard. He worked in the civil service and as an author before entering politics. The following are highlights of his political career:

• First elected as a Member of Parliament 1908
• Leader of the Liberal Party 1919-1948
• Leader of the Official Opposition 1919-1921 and 1926
• Prime Minister 1921-1926, 1926-1930, and 1935-1948

National unity was always King’s ultimate goal. He wanted to achieve this be accommodating many different viewpoints. Mackenzie King died on July 22, 1950.

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The Election Issues in 1921

Managing the economy and being responsible to Canadians in the post-war world emerge as dominant issues.

The debate about free trade and the tariff played a significant role in this election. However, 1921 was not as focused on a single-issue as the 1911 election. Policy issues took a backseat to accusations of government mismanagement and leadership qualities.

The Tariff

The tariff was regarded in different ways in different parts of the country. For western farmers, the tariff meant low prices for their agricultural products and high cost for farm implements. For eastern business interests, the tariff was desirable because it protected Canadian industry and manufacturing.

The debate over the tariff played its most important role before the election, acting as the catalyst for the creation of an independent western political movement in the Progressive Party. Throughout the campaign, the opinions of leaders and their electorate regarding the tariff were already deeply embedded.

Government Mismanagement and Accountability

At the end of World War I, the Canadian economy was starting to decline. The main problems were unemployment and a drop in manufacturing. Party leaders made the faltering economy an issue of government mismanagement. The Union government was blamed with the economic problems facing Canada. Issues such as government waste during the war, the public debt, increased taxes, and the management of public affairs were characterized as shortcomings of the Union government. Old issues, such as support of conscription, were also brought up again to characterize candidates.

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The 1921 Election Campaign

While regionally-based support was assured for the Progressives and the Liberals, the campaign battles would be fought where politicians thought they could sway votes.

From the beginning, it was clear that the western provinces would support the Progressives and Quebec would support the Liberals. That left Ontario, British Columbia, and the Maritimes as the major battlegrounds.

Conservative Strategy

Meighen supported retaining the tariff, but promised not to increase it. He had pretty much conceded the West as hopeless for the Conservatives, and focused on Ontario, British Columbia, and the Maritimes. Meighen realized that all Quebec would remember was his support of conscription during the 1917 election, and would have a hard time winning French votes.

Meighen attempted to emphasize the benefits of retaining the tariff:

• He promised that it would promote the growth and development of the Canadian economy
• He pointed out that the electorate had voted to keep the tariff in 1878 and 1891
• He promoted the traditional National Policy of John A. Macdonald, which focused on East-West trade to develop Canada’s economy
• He said that the United States’ economy was so superior that it would overtake Canada’s economy

Meighen also used personal attacks against Mackenzie King throughout his campaign, accusing him of being arrogant and vague in his promises.

Liberal Strategy

Mackenzie King wanted to make the political and economic record of the Union government the prominent issue of the campaign. He wanted to make the voters question the leadership abilities of Meighen and the Conservatives. He focused on the negative aspects of their governance:

• He accused the Union government of securing a victory in the 1917 through corrupt means, by enfranchising voters who supported them through the Wartime Elections Act
• He focused on increased taxes and public debt
• He accused the Unionists of practicing “autocracy and extravagance” in the management of public affairs
• He said that Canadian war efforts could have been handled better
• He blamed the Unionists for indirectly causing the postwar depression

Mackenzie King focused on the downfalls of government to distract attention away from his position on the tariff. He wanted to avoid having to stand behind a specific policy on the tariff (even though the Liberal Platform of 1919 had supported a reduction of the tariff).

Progressive Strategy

Crerar supported abolishing the tariff. While this strategy was all he needed in the West, he was faced with a tougher campaign outside of the prairie provinces. To attract votes in other regions, he used the following strategies:

• He refuted the charge that he supported a class-based government
• He emphasized that, above all else, he supported reform and the “spirit of liberalism”
• He said that the real issue wasn’t the tariff, but the ability and desire of the government to promote the good of special interests
• He attacked Liberal and Conservative campaigns as corrupt, saying that railway companies and large corporations should not be allowed to contribute to campaign funds

In the initial stages of the election, Crerar had agreed to work with King because they were fighting the same opponents. However, King withdrew his support because he feared that Crerar’s western support might prevent the Liberals from winning a majority government.

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1921 Federal Election Results

Mackenzie King’s Liberals form the first minority government in Canadian history.

Mackenzie King’s Liberals were one seat short of winning a majority government, and so formed the first minority government in Canadian history. The Liberals won every seat in Quebec, as well as winning substantial support in Ontario and Manitoba. The Progressives won the second most number of seats, but declined to be the Official Opposition because of their lack of national organization. They dominated the West and also won a fair number of seats in Ontario. The Conservatives formed the Official Opposition, with scattered support throughout Ontario, BC, and the Maritimes.

Population of Canada (1921): 8,760,211
Number of electors on list: 4,435,310
Total ballots cast: 3,139,306
Voter turnout: 67.7%

	Seats won	% of popular vote	# of candidates	# of Valid votes cast
Conservative	50	30.3	208	945,681
Liberal	116	40.7	202	1,272,660
Progressive	64	22.9	148	714,620
Other	5	6.1	77	190,942
Total	235	100	635	3,123,903

Provincial Breakdown:

	Conservative		Liberal		Progressive		Other
	# of seats	% of vote	# of seats	% of vote	# of seats	% of vote	# of seats	% of vote
NS	0	32.3	16	52.4	0	12.3	0	3.0
NB	5	39.4	5	49.4	1	10.4	0	0.8
PEI	0	37.2	4	45.7	0	12.3	0	4.8
PQ	0	18.4	65	70.2	0	3.7	0	7.7
ON	37	39.2	21	29.8	24	27.7	0	3.3
MB	0	24.4	1	10.9	12	43.7	2	20.9
SK	0	16.7	1	20.7	15	61	0	1.6
AB	0	20.3	0	15.8	10	52.5	2	11.3
BC	7	47.9	3	29.8	2	9.0	1	13.3
YK	1	51.1	0	47.6	0	0	0	1.3
Canada	50	30.3	116	40.7	64	22.9	5	6.1

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Historical Significance of the 1921 Election

The Canadian political landscape underwent a dramatic change as Canada’s first significant regionally-based party emerges, while women make their debut in Canadian politics.

The 1921 was significant not for the issues it raised, but for the changes to the Canadian political landscape. This election was defined by regional divisions, and this was the first time that a political party – the Progressives – gained success by targeting its platform to a specific region with a specific policy. Canada’s first legitimate third-party had emerged out of this election.

The following aspects of the 1921 election made it one of the most important in Canadian political history:

The Regional Character of Political Parties

Up until 1921, Canadian politics had primarily been about the French/English and Catholic/Protestant divides. Governments who had been successful, such as Wilfrid Laurier, had managed to balance those interests for a common good. However, the farmers’ movement in the West would add a new dimension to Canadian politics. As the western population grew and agriculture became more important to the Canadian economy, farmers started to demand that their interests be addressed also. It was inevitable that if one of the two traditional parties could not meet the needs of westerners, a new political movement would grow out of the prairies.

The Progressive Party would be the first in a long tradition of western-based protest parties. The regional differences that separate Canada – economic, social, and demographic interests – would become an important dynamic of Canadian politics. Catering to those special interests would be crucial to the success of political parties. Regional politics in Canada have been deeply entrenched ever since.

Quebec Emerges from Isolation

The Liberals won an overwhelming victory in Quebec, winning all 65 seats. Quebec had suffered a blow in the 1917 election, when the Laurier had been defeated by the Union government. French interests had always been marginalized in Canadian politics. When it came to controversial French-English issues, the English majority had usually managed to prevail. However, the Liberal victory with Quebec support in 1921 meant that French Canada would have a more prominent place in Canadian politics.

Canada’s First Minority Government

Mackenzie King was faced with having to govern without a majority government. During his first term, he had to deal with the tariff and freight rates, controversial issues with westerners. In the 1925 election, King was again elected with a minority government, and relied on the support of the Progressives to govern.

Women in Canadian Politics

The Wartime Elections Act had enfranchised some women for the 1917 election. In 1918, legislation was passed that enfranchised all women over the age of 21. The 1921 election was the first time that the majority of Canadian women were able to vote.

In 1919, women also became eligible to run for seats in the House of Commons. Four women candidates ran in the 1921 election (2 Labour, 1 Progressive, and 1 Liberal). Agnes Macphail, the Progressive candidate from Grey South East in Ontario, was elected and became the first woman to sit in the Canadian House of Commons.

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Sources and Further Reading on the 1921 Election

Learn more about the election and the politicians involved.

J.M. Beck, Pendulum of Power (Scarborough: Prentice Hall of Canada, Ltd., 1968).

John Duffy, Fights of Our Lives: Elections, Leadership, and the Making of Canada (Toronto: Harper Collins Publishers, 2002).

For More Information:

Library and Archives Canada Website,

• First Among Equals: The Prime Minister in Canadian Life and Politics
• Library and Archives Canada, Celebrating Women’s Achievements: Agnes Campbell Macphail

Government of Canada

• Elections Canada: Voter Turnout Statistics