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SFU Thesis Template Files Mind the Gap: A Case Study of TransLink’s Legislation and the Non-Implementation of the Vehicle Levy in 2001 by Katelyn Kessia Berry McDougall B.A., Vancouver Island University, 2012 Project Submitted in Partial Fulfillment of the Requirements for the Degree of Master of Arts in the Department of Urban Studies Faculty of Arts and Social Sciences © Katelyn Kessia Berry McDougall 2017 SIMON FRASER UNIVERSITY Fall 2017 Approval Name: Katelyn Kessia Berry McDougall Degree: Master of Urban Studies Title: Mind the Gap: A Case Study of TransLink’s Legislation and the Non-Implementation of the Vehicle Levy in 2001 Examining Committee: Chair: Peter V. Hall Professor, Urban Studies Program Anthony Perl Senior Supervisor Professor Urban Studies Program and Department of Political Science Patrick J. Smith Supervisor Professor Urban Studies Program and Department of Political Science Ronald K. Vogel External Examiner Professor Department of Politics and Public Administration Ryerson University Date Defended/Approved: September 28, 2017 ii Ethics Statement iii Abstract The Greater Vancouver metropolitan region has developed a long history of regional collaboration among local municipalities. The 1990s marked a period of highly collaborative intergovernmental planning, which - with the support of the provincial government - resulted in the creation of TransLink, a regional transportation agency that manages major roads, bridges and public transit in the Greater Vancouver metropolitan area. This thesis investigates the provincial government’s decision to not allow TransLink to implement a vehicle levy in 2001. The research uses qualitative methods to examine this decision and the motivating factors that contributed to the provincial government’s approach to regional transportation in the late 1990s and early 2000s. The findings are that technical, organizational, and political factors influenced the provincial government’s vehicle levy decision. This thesis reveals how the provincial government’s political considerations were embedded within a series of events that framed the vehicle levy as a contentious issue. TransLink’s approach to the vehicle levy sparked public concern about fairness and equity, which led to cascading political problems and a lack of regional consensus, which thus resulted in the provincial government’s non-implementation of the levy. Keywords: Regional planning, transportation finance, public policy, multi-level governance, decision-making, urban politics. iv Dedication To my father – for encouraging me to think about cities as sustainable places, by envisioning gardens in the streets and an abundance of public transportation. v Acknowledgements First, I would like to acknowledge my supervisor Anthony Perl for his support and mentorship throughout this process. I am grateful for the guidance, advice, and counsel you offered over the last few years. You have inspired me to achieve critical insights into my thesis topic, while also pushing me to achieve great insights into my strengths and abilities as an individual. While at times it felt like a steep learning curve to climb, these lessons have been critical to my development. I also greatly appreciate the guidance and feedback from Patrick Smith and Ronald Vogel, my examining committee. I would also like to acknowledge the research participants who shared their time and knowledge with me. Without your shared knowledge, this thesis would not be as robust. Without your leadership, this region would not be what it is today. I would also like to extend my appreciation and gratitude to Janice Dudas, the Library Technician at Metro Vancouver’s Harry Lash Library who helped me navigate the region’s archives, and to the various Customer Service Representatives in Metro Vancouver’s Board & Information Services and Legal & Legislative Services departments. To my friends and family who have supported me from both near and far – you were an integral part of my academic endurance. You have been my compass through calm and stormy seas, and I appreciate that you continue to stick with me on my journey. To my partner Ryan, your love, patience, and encouragement enabled my resilience. To my classmates in the Urban Studies program – you inspired me to keep going even in the most challenging moments, for which I will always be in debt to you. I would also like to acknowledge the ancestral, traditional and unceded Aboriginal territories of the Coast Salish Peoples. In Metro Vancouver, it is the Squamish, Musqueam, and Tsleil-Waututh First Nations whose territory I have the privilege of working, living, and studying on. Thank you for your graciousness, and the resilient spirit of your communities. There is still a great need for processes of reconciliation, healing and decolonization, and until such attention is integral to every planning and decision making process, even the best of efforts will reproduce a system of colonization and oppression. vi Table of Contents Approval .......................................................................................................................... ii Ethics Statement ............................................................................................................ iii Abstract .......................................................................................................................... iv Dedication ....................................................................................................................... v Acknowledgements ........................................................................................................ vi Table of Contents .......................................................................................................... vii List of Tables .................................................................................................................. ix List of Figures.................................................................................................................. x List of Acronyms ............................................................................................................. xi Chapter 1. Introduction ............................................................................................. 1 1.1. Research Question ................................................................................................. 2 1.2. Significance of the Research .................................................................................. 3 Chapter 2. Background & Context ............................................................................ 6 2.1. The Greater Vancouver Region .............................................................................. 6 2.2. Changes to Regional Governance and Planning .................................................... 9 2.2.1. Overview of Regional Planning Efforts in the 1990s ................................ 13 2.3. TransLink and Transportation Governance ........................................................... 18 2.3.1. TransLink Strategic Transportation Plan 2000 – 2005 ............................. 22 2.4. The Vehicle Levy .................................................................................................. 24 Chapter 3. Literature Review ................................................................................... 28 3.1. Public Policy Decision Making .............................................................................. 28 3.2. Intergovernmental Complexity of Multi-Level Governance .................................... 36 3.3. Transportation Demand Management .................................................................. 41 Chapter 4. Methodology .......................................................................................... 49 4.1. Document and Content Review ............................................................................. 50 4.1.1. Media Articles ............................................................................................. 52 4.1.2. Reports and Planning Documents............................................................... 52 4.2. Qualitative In-Depth Interviews ............................................................................... 53 4.2.1 Research Participants.............................................................................. 54 Chapter 5. Analysis.................................................................................................. 57 5.1. The Approach to Applying the Vehicle Levy .......................................................... 57 5.1.1. GVRD Proposed Timing and Implementation of TDM .............................. 57 5.1.2. TransLink’s Approach to TDM and the Vehicle Levy ................................ 60 5.1.3. The Vehicle Levy as a Policy Paradox ..................................................... 66 5.2. Conflicts in Multi-Level Governance ...................................................................... 70 5.2.1. Regional Fragmentation .......................................................................... 70 vii 5.2.2. Empowerment vs. Downloading Responsibilities: Levels of Misunderstanding .................................................................................... 82 5.3. Politics and Timing ............................................................................................... 87 5.3.1. The NDP’s Scandals ............................................................................... 88 5.3.2. The NDP Leadership Race & the 2001 Provincial
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