Intergovernmental DynamicsIntergovernmental Dynamics

Douglas Brown Douglas Brown POL 321 POL 321

October October 20072007

Intergovernmental DynamicsIntergovernmental DynamicsHow and why IGR occursHow and why IGR occursDefining Intergovernmental Interests and PositionsDefining Intergovernmental Interests and Positions Geography and territoryGeography and territory Economic, social and cultural factorsEconomic, social and cultural factors Political and Ideological factorsPolitical and Ideological factorsExplaining Intergovernmental StrategyExplaining Intergovernmental Strategy Actors and structuresActors and structures ResourcesResources Strategies and tacticsStrategies and tactics OutcomesOutcomes

Intergovernmental ValuesIntergovernmental Values

Interdependence, not dominationInterdependence, not domination

Negotiation and discussion, not votingNegotiation and discussion, not voting

Therefore: Diplomacy and Bargaining are Therefore: Diplomacy and Bargaining are the normthe norm

Realist power politics (the strong win most Realist power politics (the strong win most often), but tempered by the constitutional often), but tempered by the constitutional equality of the provincesequality of the provinces

Why intergovernmental relations?Why intergovernmental relations?

Inadequate or uncertain division of powersInadequate or uncertain division of powers

Government interdependenceGovernment interdependence welfare statewelfare state globalizationglobalization

Fiscal efficiency and equityFiscal efficiency and equity

Regional representationRegional representation

Intergovernmental interestsIntergovernmental interests

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

Geography and TerritoryGeography and Territory

Where you sit is where you stand…Where you sit is where you stand…

Effects of historic patterns of colonization Effects of historic patterns of colonization and development and development

Huge effect of borders and territorial size Huge effect of borders and territorial size

Significant variation among unitsSignificant variation among units Big Four / Small 6 + 3Big Four / Small 6 + 3

Geographic differences drive certain Geographic differences drive certain issues: e.g. trade, transportation, energyissues: e.g. trade, transportation, energy

Culture and SocietyCulture and Society

French and English-speaking French and English-speaking communitiescommunities

Aboriginal nations Aboriginal nations

Overall, increasingly multicultural due to Overall, increasingly multicultural due to immigration immigration

Growing urbanizationGrowing urbanization

Combined effects of Geography Combined effects of Geography and Cultureand Culture

Dominance of Quebec/Canada Dominance of Quebec/Canada relationship due to Que = 80 % Frenchrelationship due to Que = 80 % French

New Brunswick bilingualNew Brunswick bilingual

Immigrant settlement concentrated in Immigrant settlement concentrated in Toronto, Montreal and VancouverToronto, Montreal and Vancouver

Aboriginal population growth in west and Aboriginal population growth in west and northnorth

Widening gap: urban/ruralWidening gap: urban/rural

Economic structure and classEconomic structure and class

Historic pattern of specialized regional Historic pattern of specialized regional economies (centre-periphery // economies (centre-periphery // manufacturing vs. resource production)manufacturing vs. resource production)

Wealth diversity among provincesWealth diversity among provinces

Dynamics of class organization: farmers, Dynamics of class organization: farmers, unions, small and big business unions, small and big business

Location of economic elites: inside or Location of economic elites: inside or outside the province?outside the province?

Effects of economic factors on Effects of economic factors on IGRIGR

Regionally determined positions and Regionally determined positions and interests for broad economic and industrial interests for broad economic and industrial policy (but less so in free trade era)policy (but less so in free trade era)

Differing fiscal positions (have vs. have-Differing fiscal positions (have vs. have-not) not)

Economic and fiscal positions and Economic and fiscal positions and interests do change, but slowlyinterests do change, but slowly

Political and Ideological factorsPolitical and Ideological factorsSignificance of political stance towards Significance of political stance towards federalism, especially at federal level:federalism, especially at federal level: Expansive, centralizing ideology (Macdonald Expansive, centralizing ideology (Macdonald

Conservatives, Trudeau Liberals)Conservatives, Trudeau Liberals) Province-friendly, decentralist ideology Province-friendly, decentralist ideology

(Laurier Liberals, Mulroney Conservatives)(Laurier Liberals, Mulroney Conservatives)

Quebec nationalism (varieties of positions Quebec nationalism (varieties of positions of Quebec governments)of Quebec governments)Western and Atlantic alienation (e.g. Western and Atlantic alienation (e.g. Alberta, Newfoundland)Alberta, Newfoundland)

Intergovernmental VariablesIntergovernmental Variables(chap 3, draft textbook)(chap 3, draft textbook)

1.1. The actors (and resources)The actors (and resources)2.2. The working rules and structuresThe working rules and structures3.3. Nature of the issueNature of the issue4.4. Interests, goals and objectivesInterests, goals and objectives5.5. Strategies and Tactics Strategies and Tactics 6.6. Arenas and Interactions Arenas and Interactions 7.7. Types of outcomesTypes of outcomes

Actor variablesActor variables

Party labels and ideologyParty labels and ideology

Leader’s personality and management Leader’s personality and management stylestyle

Bureaucratic norms: professional Bureaucratic norms: professional cooperation vs. adversarialcooperation vs. adversarial

Relative independence of decision-Relative independence of decision-makers: who gets to close the deal? Can makers: who gets to close the deal? Can you deliver? you deliver?

Actor Resources Actor Resources

Financial and human resourcesFinancial and human resources

Strategic thinking as a resourceStrategic thinking as a resource

Constitutional resources (legal position, Constitutional resources (legal position, symbolic position)symbolic position)

Political resourcesPolitical resources Electoral cloutElectoral clout Power of the underdog, of the hold-outPower of the underdog, of the hold-out

Working rules and structureWorking rules and structure

No legal or constitutional status, informal No legal or constitutional status, informal working rules, weak consensus formatworking rules, weak consensus format

Canadian governments can often choose Canadian governments can often choose among different forums…among different forums…

Multilateral, Bilateral, UnilateralMultilateral, Bilateral, Unilateral

Interprovincial vs. federal-provincialInterprovincial vs. federal-provincial

Formal meetings vs. informal Formal meetings vs. informal communicationcommunication

Arenas -- Major Intergovernmental Arenas -- Major Intergovernmental ForumsForums

First Ministers ConferencesFirst Ministers Conferences

Council of the Federation (PT only)Council of the Federation (PT only)

Ministerial Conferences (e.g. Health, Ministerial Conferences (e.g. Health, Agriculture, Finance, etc.)Agriculture, Finance, etc.)

Deputy Ministers meetingsDeputy Ministers meetings

task forces, sub-committeestask forces, sub-committees

Regional meetings (e.g. Atlantic Premiers Regional meetings (e.g. Atlantic Premiers Conference)Conference)

Strategy and TacticsStrategy and Tactics

Frank appraisal of goals and resourcesFrank appraisal of goals and resources

Adopting a cooperative or a Adopting a cooperative or a confrontational styleconfrontational style

Joining coalitions, building alliancesJoining coalitions, building alliances

Having a thought-out fall-back position Having a thought-out fall-back position

Use of media, interest groups, appeals to Use of media, interest groups, appeals to the publicthe public

Types of OutcomesTypes of OutcomesNo agreement – acrimony, continued conflictNo agreement – acrimony, continued conflictNo agreement – agree to disagree, do own thingNo agreement – agree to disagree, do own thingNo agreement – just better understanding, do No agreement – just better understanding, do own thingown thingBroad agreement – objectives and principles Broad agreement – objectives and principles onlyonlyDeep agreement – cost-sharing and other jointly Deep agreement – cost-sharing and other jointly funded schemesfunded schemesDeep agreement – regulatory harmonization, Deep agreement – regulatory harmonization, joint agency joint agency Deep agreement – constitutional amendmentDeep agreement – constitutional amendment

Variables affecting outcomesVariables affecting outcomes

EasierEasier No major principle No major principle

or value at stakeor value at stake Low profileLow profile Lower costsLower costs Quantitatively Quantitatively

divisibledivisible Increasing fiscal Increasing fiscal

piepie

HarderHarder High profileHigh profile High costHigh cost Non-divisible (all or Non-divisible (all or

nothing)nothing) Highly symbolicHighly symbolic Decreasing fiscal Decreasing fiscal

pie (zero-sum or pie (zero-sum or worse)worse)

Overall Spectrum of Canadian IGROverall Spectrum of Canadian IGR

Independent governments (minimal Independent governments (minimal relations)relations)Consultation (no binding results)Consultation (no binding results)Coordination (meshing goals and Coordination (meshing goals and strategies)strategies)Collaborative (jointly determined Collaborative (jointly determined outcomes)outcomes)Joint decision-making (cannot act alone)Joint decision-making (cannot act alone)AsymmetricalAsymmetrical