Intergovernmental Dynamics Douglas Brown POL 321 October 2007

Intergovernmental Dynamics How and why IGR occurs Defining Intergovernmental Interests and Positions Geography and territory Geography and territory Economic, social and cultural factors Economic, social and cultural factors Political and Ideological factors Political and Ideological factors Explaining Intergovernmental Strategy Actors and structures Actors and structures Resources Resources Strategies and tactics Strategies and tactics Outcomes Outcomes

Intergovernmental Values Interdependence, not domination Negotiation and discussion, not voting Therefore: Diplomacy and Bargaining are the norm Realist power politics (the strong win most often), but tempered by the constitutional equality of the provinces

Why intergovernmental relations? Inadequate or uncertain division of powers Government interdependence welfare state welfare state globalization globalization Fiscal efficiency and equity Regional representation

Intergovernmental interests “There are no permanent alliances, only permanent interests” (Palmerston) Provincial and territorial interests defined by geography, society, economy –but also by politics Federal government alone does not define the “national interests” Federal position = more than the sum of the parts?

Geography and Territory Where you sit is where you stand… Effects of historic patterns of colonization and development Huge effect of borders and territorial size Significant variation among units Big Four / Small Big Four / Small Geographic differences drive certain issues: e.g. trade, transportation, energy

Culture and Society French and English-speaking communities Aboriginal nations Overall, increasingly multicultural due to immigration Growing urbanization

Combined effects of Geography and Culture Dominance of Quebec/Canada relationship due to Que = 80 % French New Brunswick bilingual Immigrant settlement concentrated in Toronto, Montreal and Vancouver Aboriginal population growth in west and north Widening gap: urban/rural

Economic structure and class Historic pattern of specialized regional economies (centre-periphery // manufacturing vs. resource production) Wealth diversity among provinces Dynamics of class organization: farmers, unions, small and big business Location of economic elites: inside or outside the province?

Effects of economic factors on IGR Regionally determined positions and interests for broad economic and industrial policy (but less so in free trade era) Differing fiscal positions (have vs. have- not) Economic and fiscal positions and interests do change, but slowly

Political and Ideological factors Significance of political stance towards federalism, especially at federal level: Expansive, centralizing ideology (Macdonald Conservatives, Trudeau Liberals) Expansive, centralizing ideology (Macdonald Conservatives, Trudeau Liberals) Province-friendly, decentralist ideology (Laurier Liberals, Mulroney Conservatives) Province-friendly, decentralist ideology (Laurier Liberals, Mulroney Conservatives) Quebec nationalism (varieties of positions of Quebec governments) Western and Atlantic alienation (e.g. Alberta, Newfoundland)

Intergovernmental Variables (chap 3, draft textbook) 1.The actors (and resources) 2.The working rules and structures 3.Nature of the issue 4.Interests, goals and objectives 5.Strategies and Tactics 6.Arenas and Interactions 7.Types of outcomes

Actor variables Actor variables Party labels and ideology Leader’s personality and management style Bureaucratic norms: professional cooperation vs. adversarial Relative independence of decision- makers: who gets to close the deal? Can you deliver?

Actor Resources Financial and human resources Strategic thinking as a resource Constitutional resources (legal position, symbolic position) Political resources Electoral clout Electoral clout Power of the underdog, of the hold-out Power of the underdog, of the hold-out

Working rules and structure No legal or constitutional status, informal working rules, weak consensus format Canadian governments can often choose among different forums… Multilateral, Bilateral, Unilateral Interprovincial vs. federal-provincial Formal meetings vs. informal communication

Arenas -- Major Intergovernmental Forums First Ministers Conferences Council of the Federation (PT only) Ministerial Conferences (e.g. Health, Agriculture, Finance, etc.) Deputy Ministers meetings task forces, sub-committees Regional meetings (e.g. Atlantic Premiers Conference)

Strategy and Tactics Frank appraisal of goals and resources Adopting a cooperative or a confrontational style Joining coalitions, building alliances Having a thought-out fall-back position Use of media, interest groups, appeals to the public

Types of Outcomes No agreement – acrimony, continued conflict No agreement – agree to disagree, do own thing No agreement – just better understanding, do own thing Broad agreement – objectives and principles only Deep agreement – cost-sharing and other jointly funded schemes Deep agreement – regulatory harmonization, joint agency Deep agreement – constitutional amendment

Variables affecting outcomes Easier No major principle or value at stake No major principle or value at stake Low profile Low profile Lower costs Lower costs Quantitatively divisible Quantitatively divisible Increasing fiscal pie Increasing fiscal pieHarder High profile High cost Non-divisible (all or nothing) Highly symbolic Decreasing fiscal pie (zero-sum or worse)

Overall Spectrum of Canadian IGR Independent governments (minimal relations) Consultation (no binding results) Coordination (meshing goals and strategies) Collaborative (jointly determined outcomes) Joint decision-making (cannot act alone) Asymmetrical