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FRIENDS of the GOVERNMENT : an Administrative History of the British Columbia Government Agents

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FRIENDS of the GOVERNMENT : an Administrative History of the British Columbia Government Agents FRIENDS OF THE GOVERNMENT : An Administrative History of the British Columbia Government Agents b y Dennis Munroe Anholt B-Sc., Central Missouri State University, 1968 M.S.W., University of Toronto, 1972 A r*PFPTFî4 Dissertation Submitted in Partial Fulfillment of the I Requirements for the Degree of FACULTY OF G R # U A T E STUDIES DOCTOR OF PHILOSOPHY OEAN in Interdisciplinary Studies DATE, We accept this dissertation as conforming to the required standard D r. J j?Cutt, Supervisor (School of Public Administration) D r. H.J. Will, Departmental Member (School of Public Administration) D r. C.N. Forward, Outside Member (Department of Geography) fember (Department of History) D r. e Member (Department of Political Science) D r . J . Barm; er (Faculty of Education, UBC) (c) DENNIS MUNROE ANHOLT, 1991 University of Victoria All rights reserved. Dissertation may not be reproduced in whole or in part, by photocopying or other means, without the permission of the a u th o r. 11 Supervisor: Dr. J. Cutt ABSTRACT The pivotal figures in the district administration of British Columbia have been the Government Agents. For over a century, isolated citizens received the services of the state from their local agent. The tasks they performed changed but, like the British District Officer and the French Prefect, their primary supervisory and controlling roles remained intact. Civil service reform, however, broke the 'contract' between the agent, district and the government, and diminished their effectiveness. By 1958, the agent was less a unifying and more a coordinating figure. The agents evolved from prominent persons acting alone, then collegially with other civil servants, to weak agents with reduced status. As the primary objective of government altered from the maintenance of law and order to economic and social development their behaviours changed. Their prestige was also reduced as politicians replaced them as guardians of the public interest. Improvements in transportation and communication made them less independent. Continuity, however, has been an equal characteristic of the agents. They have exercised central control through three functions: maintenance of law and order, advocating and executing government policies, and representing provincial interests. Since 1858, the agents have embodied the power of the state and fulfilled Victoria’s wish to control local events. The 1945 civil service reforms, which emphasized standardized procedures and merit in hiring practices, altered irrevocably the character of the agents. Technical skills, not local prestige and knowledge, became the critical factor in new aspirants. Their relationship with government was de-personahzed and they identified more with their organization. These personnel processes and a HI dramatic growth in bureaucratic structures eroded the agents' power base in their districts and the capital and their ability to act as a trustworthy link between Victoria and the regions. The political advantages that saved the agents for decades were missing and they were forgotten. This study is about government decentralization. It chronicles the evolution of unique Canadian public servants who maintained the bond between the governed and the government from colonial to modern times. Finally, it suggests that contemporary observers must consider carefully the expectations politicians have of district public servants. IV Exam iners: , Supervisor (School of Public Administration) D r. H.J. Will, Departmental Member (School of Public Administration) D r. C.N. Forward, Outside Member (Department of Geography) D r . P.E. Roy, putside ^m ber (Department of History) D r . N.J. R u ff smber (Department of Political Science) Dr. J. Barman, External Examiner (Faculty of Education, UBC) TABLE OF CONTENTS TITLE PAGE i ABSTRACT ii TABLE OF CONTENTS v LIST OF TABLES vil LIST OF FIGURES ix ACKNOWLEDGEMENTS x DEDICATION xii CHAPTER I, INTRODUCTION; "The Man with Many Hats" 1 Decentralization, p. 6; The French Prefect, p. 10; The British District Officer, p. 13; Hypothesis and Administrative Questions, p. 19; Data Collection and Study Framework, p. 24; Conclusion, p. 28. CHAPTER II, UBIQUITOUS FUNCTIONARY, 1858-1871 30 The Influence of Sir James Douglas, p. 30; Development of the Administrative Structure, p. 33; The Magistrates, p. 37; Not Mere Adventurers, p. 59; Summary and Conclusion, p. 64. CHAPTER III, RESIDENT HEAD, 1871-1890 67 The Fledgling Bureaucracy, p. 69; The First Government Agents, p. 72; Beginning to Share Authority, p. 86; Community Leaders First, p. 94; Summary and Conclusions, p. 100. vi CHAPTER IV, OBEDIENT SERVANT, 1890-1917 103 An Increasingly Complex Bureaucracy, p. 104; No Longer Constables, p. 113; The Boundary Agents, p. 127; Summary and Conclusions, p. 158. CHAPTER V, TITULAR HEAD, 1917-1958 161 The Interventionist State, p. 165; Civil Service Reform, p. 180; Financial Policemen, p. 192; Political Interference, p. 218; Bureaucratic Influences, p. 230; The Boundary District Agents and Their Colleagues, p. 236; Summary and Conclusions, p. 257. CHAPTER VI, SUMMARY AND CONCLUSIONS 260 EPILOGUE 283 FOOTNOTES 300 Chapter I, Introduction, p. 300; Chapter II, Ubiquitous Functionary, 1858-1871, p. 304; Chapter III, Resident Head, 1871-1890, p. 311; Chapter IV, Obedient Servant, 1890-1917, p. 314; Chapter V, Titular Head, 1917-1958, p. 320; Chapter VI, Summary and Conclusions, p. 330; Epilogue, p. 333. BIBLIOGRAPHY 337 Primary Sources, p. 337; Printed Government Records, p. 343; Secondary Sources, p. 344; Interviews, p. 353. vil LIST OF TABLES British Columbia Government Departments, Estimates of Permanent Staff/Headquarters and Field in Person Years, 1871-1891. 71 II Government Agent/Gold Commissioner and Other Office Locations, 1871-1891. 74 III Total Public Servant Salaries as Percentage of Government Expenditures and Government Agent Salaries as a Percentage of Total Public Servant Salaries, 1871-1891. 77 IV British Columbia Government Departments - Estimates of Permanent Staff in Headquarters and Field in Person Years, 1891-1918. 105-106 British Columbia Government Specialized Functions/Offices, 1891-1918. 107 VI Total Public Servant Salaries as a Percentage of Government Expenditures and Government Agent Salaries as a Percentage of Total Public Servant Salaries, 1891-1918. 112 VII British Columbia Government Agent and Other Office Locations, 1891-1918. 116 VIII Police/Agent Positions and Person Years in Boundary District, 1891-1918. 134 IX Growth of Government Departments by Function, 1919-1958 (Permanent and Probationary Staff). 166 viii Growth of Government Departments by Function, 1919-1958 (Expenditures - $ millions). 167 XI Government of British Columbia, Headquarters and Field Staff, 1917 and 1944. 171 XII Government Agents/Sub-Agents, 1917-1958. 200 XIII Government Agent Permanent Staff, 1917-1958. 204 XIV Total Public Servant Salaries as a Percentage of Government Expenditures and Government Agent Salaries as a Percentage of Total Public Servant Salaries, 1917-1958. 205 XV Government Agents' Average Age, Length of Service and Monthly Salary, 1917-1958. 207 XVI Government Agent Statutory Appointments (30 Government Agents - c. 1920's). 242 ix LIST OF FIGURES Districts and Principal Settlements of the United Colonies of British Columbia and Vancouver Island, c. 1871. 36 II Location of Government Agent/Gold Commissioner and Subordinate Offices, 1890. 75 III The Boundary District, c. 1906. 128 IV Location of Government Agents or Sub-Agents, 1917. 201 V Location of Government Agents or Sub-Agents, 1958. 202 VI Percentage of Appointments to Civil Service by order-in-Council, 1919-1945, (Permanent and Temporary). 219 ACKNOWLEDGEMENTS To my wife, Gwen, whose patience, understanding and love was sorely tested over these years; I cannot find words to express my thanks. To my daughter, Jennifer, who put up with my lack of patience, thank you for your patience. To my mother-in-law, Pauline, who conscientiously typed and re-typed, edited and re-edited and worked countless hours to get this done, I express my heartfelt thanks. To my supervisory committee. Professors Cutt, Forward, Roy, Ruff and Will of the University of Victoria, thank you for your encouragement and endurance. The end result is infinitely better because of your insights. To the Government of British Columbia for allowing me educational leave to commence this research and for being an understanding employer, my appreciation. To David L. Emerson, former Deputy Minister of Finance and my boss, thank you for encouraging me to undertake this project and recognizing its importance. Thank you also for recommending me for educational leave. To Russ Hardy, my appreciation for explaining the mysteries of the computer and assisting me, often at short notice, when technological disaster seemed imminent. To Brian Young, Archivist, your assistance was incalculable. I apologize for complaining when you found those hundreds of boxes of valuable but unprocessed correspondence. To Marilyn Berry, Social Sciences Reference Librarian, your willing assistance and friendly advice was always welcome and most appreciated. To Drew Smyth, whose artistic talents far exceed mine, my thanks. To Peter Baskerville, my sincere gratitude for your words of encouragement and for your helpful advice. xi To Philip Halkett, Richard Dalon and Gerry Armstrong, thank you for agreeing when I needed to rearrange my leave. To Gary Moser, my appreciation for facilitating my educational leave and transfer back to the bureaucracy. To all my friends, who
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