Intergovernmental Dynamics

1. Intergovernmental Dynamics Douglas Brown POL 321 October 2007

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

3. 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

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

5. 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?

6. 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 6 + 3 • Geographic differences drive certain issues: e.g. trade, transportation, energy

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

8. 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

9. 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?

10. 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

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

12. Intergovernmental Variables(chap 3, draft textbook) • The actors (and resources) • The working rules and structures • Nature of the issue • Interests, goals and objectives • Strategies and Tactics • Arenas and Interactions • Types of outcomes

13. 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?

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

15. 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

16. 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)

17. 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

18. 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

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

20. 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