FROM UNAIDED POLITICIANS TO UNNOTICED CABINETS? THE DEVELOPMENT OF BRITISH COLUMBIA‟S EXECUTIVE BRANCH OF GOVERNMENT by Faizel Gulamhussein Bachelor of Arts, Simon Fraser University, 2006 THESIS SUBMITTED IN PARTIAL FULFILLMENT OF THE REQUIREMENTS FOR THE DEGREE OF MASTER OF ARTS In the Department of Political Science © Faizel Gulamhussein 2009 SIMON FRASER UNIVERSITY Summer 2009 All rights reserved. This work may not be reproduced in whole or in part, by photocopy or other means, without permission of the author. APPROVAL Name: Faizel Gulamhussein Degree: Master of Arts, Department of Political Science Title of Thesis: From Unaided Politicians to Unnoticed Cabinets? The Development of British Columbia’s Executive Branch of Government Examining Committee: Chair: Dr. Paul Delany, Professor Department of Political Science ______________________________________ Dr. Patrick Smith, Professor Senior Supervisor Department of Political Science ______________________________________ Dr. Andrew Heard, Associate Professor Supervisor Department of Political Science ______________________________________ Dr. Dennis Pilon, Assistant Professor External Examiner Department of Political Science University of Victoria Date Defended/Approved: 5 August 2009 ii Declaration of Partial Copyright Licence The author, whose copyright is declared on the title page of this work, has granted to Simon Fraser University the right to lend this thesis, project or extended essay to users of the Simon Fraser University Library, and to make partial or single copies only for such users or in response to a request from the library of any other university, or other educational institution, on its own behalf or for one of its users. The author has further granted permission to Simon Fraser University to keep or make a digital copy for use in its circulating collection (currently available to the public at the “Institutional Repository” link of the SFU Library website <www.lib.sfu.ca> at: <http://ir.lib.sfu.ca/handle/1892/112>) and, without changing the content, to translate the thesis/project or extended essays, if technically possible, to any medium or format for the purpose of preservation of the digital work. The author has further agreed that permission for multiple copying of this work for scholarly purposes may be granted by either the author or the Dean of Graduate Studies. It is understood that copying or publication of this work for financial gain shall not be allowed without the author’s written permission. Permission for public performance, or limited permission for private scholarly use, of any multimedia materials forming part of this work, may have been granted by the author. This information may be found on the separately catalogued multimedia material and in the signed Partial Copyright Licence. While licensing SFU to permit the above uses, the author retains copyright in the thesis, project or extended essays, including the right to change the work for subsequent purposes, including editing and publishing the work in whole or in part, and licensing other parties, as the author may desire. The original Partial Copyright Licence attesting to these terms, and signed by this author, may be found in the original bound copy of this work, retained in the Simon Fraser University Archive. Simon Fraser University Library Burnaby, BC, Canada Last revision: Spring 09 ABSTRACT While British Columbia has changed considerably since the province first entered confederation in 1871, many of its political institutions remain intact. This thesis explores the evolution of one of these institutions—the political executive—in order to better understand contemporary politics in British Columbia. The research presented herein suggests that British Columbia has evolved from a traditional executive, when the province entered confederation, to a departmentalised executive in the 1960s and 1970s. The mid to late 1970s brought about an institutionalised executive while, more recently, British Columbia has moved towards a first minister centred model of government. The study concludes by examining some of the implications of a first minister centred executive. In particular, the thesis suggests that first minister centred government poses challenges to the conventions of responsible government. First minister centred government may also be detrimental to the customary relationship between the political executive and the public bureaucracy. Keywords: British Columbia; Provincial Government; Political Executive; First Minister Centred Government iii DEDICATION For my family. iv ACKNOWLEDGEMENTS I am deeply indebted to the many people who have supported me throughout the completion of this thesis. A special thank you is due to my Senior Supervisor, Dr. Patrick J. Smith. Ever since my time as an undergraduate at Simon Fraser University, Dr. Smith has been a significant source of encouragement. I am also thankful to my Supervisor, Dr. Andy Heard, for his helpful feedback on my thesis. Dr. Dennis Pilon, my External Examiner from the University of Victoria, also provided useful comments which strengthened my work and for which I am grateful. Together, my supervisory committee gave generously of their time and provided guidance on how to improve my work. Several additional professors have helped me reach this point in my academic career. Dr. Michael Howlett was particularly supportive while I was an undergraduate and continued to provide guidance throughout graduate school. I would also like to thank Drs. Greg Clarke, Liz Elliott, Lynda Erickson, Sandra MacLean, and Stephen McBride for their insights. I also want to extend a thank you to the secretaries in the Department of Political Science for their continuous help. In particular, I would like to thank former graduate secretary Laura Sparrow and current graduate secretary Shantala Singh for keeping me on track throughout the graduate programme. The company of several colleagues, only a few of which I can name here, considerably enriched my experience as graduate student. Sherri Brown, Sima v Joshi-Koop, Julie MacArthur, and Patti Ryan: thank you for making political science more than just a discipline. Sima‟s proofreading skills also greatly improved this work. This research benefited greatly from the insights I gained as an Intern in the British Columbia Legislative Assembly Internship Programme. I would like to thank everyone who made my time as an Intern so special, especially Dr. Smith, Academic Director, and Karen Aitken, Programme Director. During my placement in the Ministry of Finance (Treasury Board), Performance Budgeting Office, I benefited greatly from the mentorship of Anne Minnings and the department‟s supportive environment. During my legislative placement, former Government Caucus Communications Director, Doug Brown, and the entire caucus staff made my stay pleasant and memorable. I would like to also thank Bill Bennett and Ron Cantelon, who welcomed me to their constituencies and shared their experiences with me as MLAs. Finally, to my fellow interns in the class of 2007 who provided many opportunities for discussions and distractions: thank you. My friends have provided great support along the way. They have been successful at keeping me from my work on several occasions, but have also proven understanding when my work has kept me from them, which has more often been the case. In particular, I would like to thank Karl Segnoe who is an amazing friend foremost but has gone beyond the call of duty in providing academic counsel. vi Lastly, I am indebted to my family. This includes my multiple sets of parents and grandparents as well as many second homes but especially mom, dad, and Narissa. vii TABLE OF CONTENTS Approval .............................................................................................................. ii Abstract .............................................................................................................. iii Dedication .......................................................................................................... iv Acknowledgements ............................................................................................ v Table of Contents ............................................................................................ viii List of Tables ...................................................................................................... x Chapter One Introduction ............................................................................. 1 1.1 The Argument..................................................................................... 6 1.2 The Plan ............................................................................................. 7 Chapter Two Studying Executive Government: The Search for a Theoretical Framework ......................................................... 12 2.1 Modes of Cabinet Organisation ........................................................ 13 2.1.1 Traditional ..................................................................................... 18 2.1.2 Departmentalised .......................................................................... 19 2.1.3 Institutionalised ............................................................................. 22 2.1.4 First Minister Centred .................................................................... 26 2.1.5 Summary of the Principal Modes of Cabinet Organisation ............ 29 2.2 Factors Affecting Executive Organisation ........................................