The Rise and Fall of the Ministry of State for Urban Affairs: a Re-Evaluation
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Canadian Political Science Review, Vol. 5, No. 2, 2011, 117-126 117 The Rise and Fall of The Ministry of State For Urban Affairs: A Re-Evaluation Zachary Spicer Department of Political Science, University of Western Ontario. E-mail address: [email protected] Abstract. From 1971 to 1979, the Ministry of State for Urban Résumé. De 1971 à 1979, le Ministère d’État chargé des Affairs operated in Canada. Utilizing a policy networks and Affaires Urbaines a fonctionné au Canada. En utilisant un communities framework, this study identifies five govern- cadre d’analyse fondé sur les réseaux et communautés poli- mental and non-governmental actors who contributed to the tiques, cette étude identifie cinq acteurs gouvernementaux et rise and fall of the Ministry of State for Urban Affairs. non-gouvernementaux qui ont contribué à l’émergence et à Through episodic content analysis of newspaper coverage of la chute du Ministère d’État chargé des Affaires Urbaines. A Canadian urban issues and government publications, this travers une analyse épisodique du contenu de la presse quo- study revisits previous accounts of the Ministry of State for tidienne sur les questions urbaines canadiennes et les publi- Urban Affairs lifespan, creating a more holistic analysis of its cations gouvernementales, cette étude analyse de manière inception and downfall. It is concluded that urban advocacy critique les précédents compte-rendus portant sur la durée groups played a large role in placing urban affairs on the de vie du Ministère d’État chargé des Affaires Urbaines, en public agenda, compelling politicians to respond and that construisant une analyse plus globale de ses débuts et de sa the Ministry of State for Urban Affairs ultimately crossed chute. Elle conclut que les groupes de défense de la ville ont into provincial jurisdiction, causing the provinces to object joué un rôle important en plaçant les questions urbaines sur to its existence. l’agenda public, en forçant les hommes politiques à y ré- pondre, et en poussant le Ministère d’État chargé des Af- Keywords. Ministry of State for Urban Affairs; federalism; faires Urbaines de s’immiscer dans les compétences provin- urban studies; urban engagement. ciales, ce qui a conduit les provinces à s’élever contre son existence Mots clefs. Ministère d’État chargé des Affaires Urbaines; fédéralisme; études urbaines; mobilisation urbaine. Introduction servants, and business leaders, which present an interesting mix of analysis and opinion. Oberlander himself is the for- mer deputy minister of MSUA. With such a comprehensive In 1971, the government of Pierre Trudeau created the Min- analysis conducted on the Ministry of State for Urban Af- istry of State for Urban Affairs (MSUA). Not soon after, fairs, why revisit the ministry? Oberlander and Fallick’s work MSUA was shut down. Using a policy communities and is important, but two aspects require more attention: the networks framework, this study examines the rise and fall of origins of MSUA and the role of the provinces. Each aspect is the Ministry of State for Urban Affairs, attempting to ac- crucial to understanding MSUA’s rise and fall. count for this unique experiment in cross-governmental and The role of the provinces are addressed within the book. cross-departmental collaboration. In his conclusion, Oberlander states that the provinces “un- A very detailed history of the Ministry of State for Urban dercut” MSUA in order to reassert their “explicit and exclu- Affairs has already been written. Entitled, The Ministry of sive” jurisdiction in municipal affairs (1987: 132). This is a State for Urban Affairs: A Courageous Experiment in Pub- relatively minor section of Oberlander’s conclusion though. lic Administration, editors H. Peter Oberlander and Arthur He argues in greater detail that MSUA’s undoing was the Fallick evaluate the successes and weaknesses of MSUA. result of other government ministries, who feared that Originally printed in 1987, A Courageous Experiment is a MSUA was encroaching on their policy areas (1987: 131). collection of essays by contributors to the 1985 Canadian Victor Goldbloom, Quebec’s Minister of the Environment Urban Studies Conference hosted by the Institute of Urban and Municipal Affairs during MSUA’s existence, contributes Studies at the University of Winnipeg (Oberlander and Fal- a short article on how the province’s viewed the federal lick 1987: 1). The book’s contributors are of diverse back- government’s urban policy efforts. He acknowledges that the grounds, including geographers, urban planners, public 118 Canadian Political Science Review, Vol. 5, No. 2, 2011, 117-126 provinces and MSUA reached disagreement on several occa- The Policy Networks and Communities sions but he opens his work with a overly optimistic retelling Framework of tri-level bargaining: “we were, to each other, a stimulating and even an enjoyable intellectual challenge” (1987: 50). The literature on policy networks and communities is quite The origins of MSUA are also of great importance. A rich. The policy communities and policy networks frame- Courageous Experiment contains one section on the origins work evolved from an acknowledgement that policy creation of MSUA, but each of the three articles within it focus largely existed at the sub-state level and that certain non-state ac- on the legislative origins of the ministry. Fallick focuses on tors, such as urban activists, city councils and municipal the need for an urban ministry and presents a legislative associations, can influence, shape and craft policy (Skogstad chronology of MSUA (1987: 7), Oberlander relates the chal- 2008: 205). lenges experienced when attempting to establish the minis- When policy interests align with the interests of many try (1987: 18), and Michael Pitfield evaluates the logic be- like-minded groups they represent a policy network. The hind creating various ministries of state (1987: 27). All three balance of power within these networks determines the accounts provide insights into government decision-making effectiveness of the network. Some actors within these net- during the creation of MSUA, but none addresses the role of works hold veto powers and, as such, exercise more power the public. How did urban affairs arrive on the legislative within the network. Veto powers can control the health of agenda of the government? What prompted the government the network and can dissolve the network if chosen. This to address this policy area? concept is central to this paper, as the federal and provincial A policy networks and communities framework can help governments can be seen has holding veto power and with it, answer these questions. By bringing the public and the prov- the power to end the network. inces back into the equation, the policy network and com- Previously, policy networks and policy communities were munities framework can provide a more holistic approach to viewed as separate phenomenon. Policy communities gener- understanding the Ministry of State for Urban Affairs and ally referred to a set of actors – public or private – that properly situate it within Canada’s experiences with multi- shared an interest in a certain policy area and coalesced level governance. Through an episodic content analysis of around a desire to bring change to that policy area (Skogstad published newspaper coverage and the ministry’s annual 2008: 208). These policy communities were interested in reports, this paper asks two essential research questions: 1) influencing policy through informal means, while policy what led to the creation of MSUA? and; 2) what factors led to networks involved the formal mechanisms of power and the MSUA being dismantled? power relationships between sub-government and govern- Using a policy community and networks framework, this ment policy actors (Skogstad 2008: 208). Over time, these paper will attempt to explain the interdependence of differ- concepts were drawn together and eventually seen as inter- ent groups that were advancing the urban agenda. Five dependent. On policy communities and policy networks, categories of actors that contributed to the creation of the Coleman and Atkinson state that “the community refers to Ministry of State for Urban Affairs can been identified: the actors; the network refers to the relationships among 1. Urban activists actors” (1992: 156). As such, the two are connected. 2. City councils Policy networks and communities rely on actor constella- 3. Municipal associations tions, the basic composition of policy groupings. Actor con- 4. Provincial governments stellations make a distinction between two types of actors: 5. Federal government those who directly participate in policy formulation and those who act as policy advocates (Montpetit 2003: 41). The Each group can be seen as either advancing the urban agen- composition of these groups affects their efficiency and da or responding to it during the 1960s. While Oberlander policy output. If the non-state actors in the network are and Fallick account for the legislative origins of MSUA, it is strong, they can lead the group into one policy direction important to understand why the government became inter- (Schrapf 1997: 71). For groups to be successful however, two ested in urban affairs during the late 1960s and early 1970s. conditions must be satisfied. First, there must be an equilib- By analyzing the role of urban activists, city councils and rium between the goals each actor brings to the group, as municipal associations – three groups hypothesized to have Skogstad states that policy networks are constructed on been urban policy advocates – a deeper understanding of the common world-views (Skogstad 1998: 469). There must be a origins of MSUA can be reached. Similarly, analyzing the basis for cohesion and communication between actors, re- role of the provinces in the urban policy realm and their gardless of whether the links between the actors are formal relations to the federal government’s efforts in a policy area or informal. Second, there must be diversity between the entirely under provincial jurisdiction can help explain the resources that each actor brings to the constellation ministry’s downfall.