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A Comparison of Native Casino Gambling Policy in Alberta and Saskatchewan

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A Comparison of Native Casino Gambling Policy in Alberta and Saskatchewan University of Calgary PRISM: University of Calgary's Digital Repository Graduate Studies Legacy Theses 1996 Time to deal: a comparison of Native casino gambling policy in Alberta and Saskatchewan Skea, Warren H. Skea, W. H. (1996). Time to deal: a comparison of Native casino gambling policy in Alberta and Saskatchewan (Unpublished doctoral thesis). University of Calgary, Calgary, AB. doi:10.11575/PRISM/17273 http://hdl.handle.net/1880/29347 doctoral thesis University of Calgary graduate students retain copyright ownership and moral rights for their thesis. You may use this material in any way that is permitted by the Copyright Act or through licensing that has been assigned to the document. For uses that are not allowable under copyright legislation or licensing, you are required to seek permission. Downloaded from PRISM: https://prism.ucalgary.ca THE UNIVERSITY OF CALGARY Time to Deal: A Coipatiaea of tàe Native Caaino Gambling Policy in Albarta and Saakatchewaa by Warren H. Skea A DfSSERTATION SUBMITTED TO THE FACULTY OF GRADUATE STUDIES IN PARTIAL FULFILLMENT OF THE REQUIREMENTS FOR THE DEGREE OF DOCTOR OF PHILOSOPHY DEPARTMENT OF SOCIOLOGY CALCARY, ALBERTA OCTOBER, 1996 @ Warren H. Skea 1996 AcquWià'ons and Acquisitions et 8iMiognphic Senhœs . oacviaw bibliognphiques The author has granted a non- L'auteur a accordé une licence non exclusive licence dowing the exclusive pamettant à la Nationai Li- of Canada to BibIiothéQiie nationaie du Cana& de teproduce, ban, distn'bute or sell rep~odinte,prêter, distn%uerou copies of Wher thesis by any means vendre des copies de sa thèse de and in any fonn or formai, making -1- manière et sous -1que this thesis available to interested forme qye ce soit pour mettre des persons. exemplaires de cette thèse à la disposition des personnes intéressées. The author retains ownership of the L'auteur CoflSente la propriété du copyright in Mer thesis. Neither droit d'auteur qui protège sa thèse. Ni the thesis nor substantiai extracts la theSe ni des extraits substantiels de fiom it may be printed or otherwise ceIl& ne doivent être imprimés ou reproduced with the author's auffement reproduits sans son permission. autorisation. The process by which Native casino gambling policy was developed in Saskatchewan and Alberta during the period (1992- 1996) is described and analyzed. Document analysis and interviewing was utilized within a rational choice theoretical model to identify macro, mes0 and micro level determinants. In addition, issues of Native sovereignty, self-government and jurisdiction are examined with regard to their role in the policy process. It is also argued that the Native casino gambling policy process unfolded due to the provincial governmentsf ideological system of govemance. Further, results indicate that the sociological stages of legitimation, trust building and institutionalization were important variables in the development of policy. Based on the results, a causal model for Native casino gambling policy making is presented. iii First 1 would like to thank Dr. J.S. Frideres for his support, encouragement and substantial editing of this dissertation. 1 consider Dr. Frideres a mentor who has taught me about the research enterprise, hard work, and how to balance academia with "the real worldn - Codttee members Dr J.R. Ponting, Dr. R. Wanner and Dr. W. Zwerman provided important insights on several occasions from the areas of public policy, Native issues and organizational behaviour. Dr. R. Gibbins improved this dissertation with numerous recommendations from the perspective of a political scientist . The External Examiner, Dr. C. Campbell, contrlbuted valuable suggestions from his considerable experience in gambling studies. Moreover, 1 appreciate that he vas able to clear his schedule in order to attend the oral defense. 1 would also like to thank Greg Argue for his willingness to discuss public policy and politics with me on many occasions. Finally, and most importantly, 1 would like to thank my wife Sharon and our son Taryn. 1 now recognize that it is their support and encouragement that has allowed me to complete this program. 1 look foward to sharing this accomplishment with them. DEDICATION To Sharon and Taryn TABLE OF CO-S Approval Page ii Abstract iii Acknowledgements iv ~edication V Table of Contents vi List of Tables X List of Figures xi CHAPTER ONE: INTRODUCTION: POLICY ANALYSIS AND GAMBLING IN CANADA 1.1 Central Focus of Dissertation 1.2 Statement of the Problem 1.3 Scope of the Dissertation 1-4Assumptions 1 .5 Limitations 1.6 ûverview of Chapters to Follow CHAPTER TWO : T)ig HISTORY OF CASINO GAMBLING POLICY IN CANADA, THE SOCIOLOGICAL( ANALYSfS OF GAMBLING AND GAMBLXNG POLICY ANALYSIS 2.1 A Brief History of Casino Gambling Legislation in Canada 2.2 Sociological Studies of Gambling 2.3 Gambling Policy Studies in Canada 2.3 .i Early Gambling Policy Studies in Canada 2.3.2 The First National Symposium on Lotteries anci Gambling 2.3.3 The Second National Symposium on Lotteries and Gambling 2 -4 Summary CHAPTER THREE: PUBLIC POLICY AND A SELECTIVE CASE STUDY LITERATURE REVIBW 3 - 1 Introduction 3-2 Review of the Public Policy Literature 3-2.1 What is Public Policy? 3.2.2 The "Goalsw of Public Policy 3-2.3 Ideas and Interests in Public Policy 3.2.4 The Role of Legitimacy in hiblic Policy 3.2.5 The Role of Structures in Public Policy 3.2.6 Summary of Public Policy Dimensions vi 3.3 Apptoaches and Models in Public Policy Analysis 3.3.1 The Micro Dynamics of Policy Making 3-3.2 Bureaucratie Politics of the Meso Level of Analysis 3 -3-3 The Structural or Macro Level of Analys is 3 .4 Review of Case Studies CHAPTER FOUR: THEORETICAL APPROACH 4 .1 Introduction 4.2 The Roots of Rational Choice Theory 4.2.1 Utilitarianism 4-2.2 Paternalism 4.3 The Tenets of Rational Choice Theory 4.4 The Division in the Utilization of Rational Choice Theory 4.5 Rational Choice Theory and Public ~olicy Analysis 4.6 The Expansion of Rational Choice Theory in Public Policy Analysis 4.7 Conceptual Models 4 -8 The Hypotheses 4.9 An Assessrnent of Rational Choice Theory 4.10 Sumlnalry CHAPTER FIVE: METHODOLOGY 5 1 Introduction 5.2 Research Design 5.3 Comparative-Historical Analysis 5.3.1 Causal Complexity in Comparative- Historical Analysis 5.3.2 The Construction of History 5.4 The Role of Qualitative and Quantitative Policy Analysis 5.5 Data Collection Technique 5.6 Reliability and Validity 5.7 Operationalization of Variables 5 -8 Summary CHAPTER SIX: THB RECONSTRUCTION OF THE SASKATCHEWAN NATIVE CASINO GAMBLING POLICY 6.1 Introduction 6.2 The Provincial Government 6.3 The History of Native Gambling in Saskatchewan 6.4 The Government's Policy Goals 6.5 The Policy Process 6.6 The Criminal Code of Canada and the White Bear Incident vii 6-7The Focus of Government Departrnents 6.8 The Role of Public Opinion 6.9 The Crown Corporation Idea and Codssioned Reports 6.10 Early Drafts and the Inter-Departmental Committee 6-11The Dissolution of the Codttee 6.12 The Entrance of Chief Roland Crowe 6.13 Change in Native Goals 6-14 The Role of Interest Groups 6-15 The Political Interaction between Natives and the Government 6.16 The Saskatoon Plebescite 6.17 The Second Agreement 6.18 Was the Policy Process Ad Hoc? CHAPTER SEVEN: THE RECONSTRUCTION OF THE ALBERTA NATIVE CAS IN0 GAMBLING POLICY 7 -1 Introduction 7.2 A Brief History of Casino Gambling Regulations in Alberta 7.3 The History of Native Gaming in Alberta 7.4 The Idea of Native Casino Gaming 7 -5 Govemment Policy Goals, Crown Corporations and the Criminal Code 7.6 The Kowalski Years 7-7Natives Goals 7 .8 Kleinfs Casino Idea 7.9 The Change in Ministers 7.10 Establishment of the Alberta Lotteries Review Committee 7.11 Other For-Profit Casino Proposais and the Gambling Industry 7-12 Political Interaction between the Natives and the Government 7.13 First Nations Gaming Congress 7.14 The Tsuu Tfina Plebescite 7.15 The Lotteries Review Codttee Report 7.16 The Native Gaming Committee Report 7.17 Was the Policy Process Ad Hoc? CHAPTER EIGHT: THE ALBERTA AND SASKATCHEWAN POLICY PROCESS COMPARED 8.1 Introduction 8.2 Causality in the Policy Process 8.3 The Meso Level of Analysls 8.4 Bureaucratie Politics 8-5 The Powerful Departments 8-6 The Political Culture of Alberta and Saskatchewan viii 8.7 The Governments' Ideological System of Governance 8.8 The Role of Legitimacy 8-8.1 Saskatchewan 8-8-2Alberta 8.9 The Testing of the Hypothesis 8.10 The Micro Level of Analysis 8.11 The Role of Leadership 8.12 The Role of Trust 8.13 Testing of Hypothesis 8.14 The Macro Level of Analysis 8.15 Jurisdiction v. Sovereignty 8-16 Other Structural Influences 8.17 Institutionalization 8.18 Testing the Hypothesis 8 -19 Causal Exphnation 8.20 Rational Choice Theory and Alternative Explanations 8.21 Summary CHAPTER NINE : CONCLUS ION : TIME TO DEAL? 9.1 Introduction 9.2 Research Question 9.3 Rational Choice Theory and Native Casino Gambling Policy 9.4 The Hypotheses 9.5 Public Policy and Native Casino Gambling: Conclusions 9.6 The Prospect for Future Research APPENDIX A: LIST OF INTERVIEWEES AND JOB TITLES IN SASKATCHEWAN POLICY RECONSTRUCTION APPENDIX B: LIST OF INTERVIEWEES AND JOB TITLES IN ALBERTA POLICY RECONSTRUCTION LIST OF TABLES Table 6.1: Chronology of Important Dates, Issues and Actors in the Saskatchewan Native Casino Gambling Policy Process Table 7.1: Chronology of Important Dates, Issues and Actors in the Saskatchewan Native Casino Gambling Policy Process LIST OF FIGURES Figure 4.1: Feedback Loop Utilized in Rational Choice Theory Figure 4.2: Conceptual Model for Analyzing
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