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A Comparison of the Native Casino Gambling Policy in Alberta and Saskatchewan

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A Comparison of the Native Casino Gambling Policy in Alberta and Saskatchewan University of Calgary PRISM: University of Calgary's Digital Repository Alberta Gambling Research Institute Alberta Gambling Research Institute 1996-10 Time to deal : a comparison of the Native casino gambling policy in Alberta and Saskatchewan Skea, Warren H. University of Calgary http://hdl.handle.net/1880/540 Thesis Downloaded from PRISM: https://prism.ucalgary.ca THE UNIVERSITY OF CALGARY, •> Time to Deal: A Comparison of the Native Casino Gambling ..'•".' -' Policy in Alberta and Saskatchewan _ • by Warren H. Skea A DISSERTATION • SUBMIfTED TO" THE FACULTY OF GRADUATE STUPIES ," \' ' - FULFILLMENT_OF THE REQUIREMENTS FOR THE DEGREE OF DOCTOR OF PHILOSOPHY DEEARTMENT OF S9CIOLOQY » fc ."*•-•"•'•.-.--•.• -•' * ' ' ' * * •\ ' \. CALGARY-,^- ALBERTA - *. OCTOBER, 1996 * r -. ft **- " * ••*' ; -* * r * * :•'• -r? :' ' ' /'—^~ (ctWarren H, Skea 1996 W/ ' V National Library Btoliotheque national 1*1 of Canada du Canada Acquisitions and Acquisitions et Bibliographic Services services bibliographiques 395 WeWnflton StrMt 395. rue Welington Ottawa ON K1AON4 Ottawa ON K1A ON4 • Canada your tit Varf q The author has granted a non- L'auteur a accorde une licence non exclusive licence .allowing the exclusive permettant a la National Library of Canada to Bibliotheque rationale du Canada de reproduce, loan, distribute or sell reproduire, preter, distribuer ou copies of his/her thesis by any means vendre des copies de sa these de and in any form or format, making quelque maniere et sous quelque , this thesis available to interested forme que ce soit pour mettre des persons. exemplaires.de cette these a la disposition des personnes interessees. The author retains ownership of the L'auteur conserve la propriete du copyright in his/her thesis. Neither droit d'auteur qui protege sa these. Ni the thesis nor substantial extracts la these ni des extcaits substantiels de from it may be printed or otherwise celle-ci ne doivent etre imprimes ou reproduced with the author's autrement reproduits sans son permission.' * . autorisadon. 0-61220772-2 Canada . • THE UNIVERSITY OP CALGARY : FACULTY OF GRADUATE STUDIES The undersigned certify that they have read, and recommend to the Faculty of Graduate Studies for acceptance; a dissertation t entitled "Time to Deal: A Comparison of the Native Casino Gambling Policy in Alberta and Saskatchewan" submitted by Warren H. Skea in partial fulfillment of the requirements for the degree of Doctor of Philosophy. Dr/James S. Frideres, Supervisor •. Department of^Soqioi^gy » - , -~\ s Jfc.'J. Rick Ponting , Department of Sociology Dr. /*9il 1 i am Zwe rman Department of Sociology Dr. Roger Gibbins Department of Political Science -Dr./teTin Campbel] Department of Criminology Malispina University College Date ii \ ABSTRACT 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, meso 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 i gambling policy process unfolded due to the provincial governments' ideological system of governance. Further, results indicate tn^t 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. 111 'ACKNOWLEDGEMENTS .1 • A ' ' First I would like t6 thank Dr. J.S. Frideres*for his support, encouragement and substantial editing of this dissertation. I consider Dr. Frideres a mentor who has taught me about the 'research enterprise, hard work, and how to balance academia with "the real world". Committee members Dr. J..R. Pont ing, 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. Sibbins improved this dissertation with numerous recommendations from the perspective of a political scientist. The External Examiner, Dr.' C. Campbell, contributed valuable suggestions from his considerable experience in gambling studies. Moreover, I appreciate that he was able to clear his " schedule in order to attend>the oral defense. I 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, I would like to thank my wife Sharon and bur son 'Taryn. I now recognize that it is their support and encouragement that has allowed, me to complete this program. I look forward to sharing this accomplishment with-them. IV K' *. V,. •• • ' . • : DEDICATION TfcBLE OF CONTENTS Approval Page Abstract Acknowledgements iv Dedication 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 1.2 Statement of the Problem 2 1.3 Scope of- the Dissertation . 3 1.4 Assumptions 4' <1.5 Limitations 5 •1.6 Overview of Chapters to Follow 6' CHAPTER TWO: THE HISTORY OF CASINO GAMBLING POLICY IN CANADA, THE' SOCIOLOGICAL ANALYSIS OF GAMBLING AND GAMBLING ^POLICY ANALYSIS 2.1 A Brief History of Casino Gambling Legislation in Canada 8 2.2 Sociological Studies of Gambling 13 2.3 Gambling Policy Studies in Canada 19 2.3:i Early Gambling Policy Studies jj in' Canada 19 ' " ;"• 2.3.2 The First National Symposium •on Lotteries and Gambling 22 2.3.3 The Second National Symposium on Lotteries and Gambling 28 2.4 Summary 33 V CHAPTER THREE: PUBLIC POLICY AND A SELECTIVE CASE STUDY LITERATURE REVIEW 35 3.1 Introduction 35 3.2 Review of the Public Pol*icy Literature 35 , 3.2.1 What is Public Policy? ''36' 3.2.2 The' "Goals" of Public Policy 38 - 3.2.3 Ideas and Interests in Public Policy 39 3.2.4 The Role of Legitimacy in Public * • Policy 40 , .3.2,5 The Role of Structures in Public . 3 Policy . 41.. 3.2.6 Summary of Public Policy Dimensions 42/* 6.7 The Focus of Government Departments 120 6.8 The Role of Public Opinion 124 6.9 The Crown Corporation Idea and ,' ' Commissioned Reports ' 128 . 6.10 Early Drafts and the Inter-Departmental Committee 134 6.11 The Dissolution of the Committee 135 •6.12 The Entrance of Chief Roland Crowe , 137 6.13 Change in .Native Goals 143 6.14 The Role of Interest Groups . 146 6 . ^ The. Political Interaction between Natives and the Government -151 6.16 The Saskatoon Plebescite • 156 6.17 The Second Agreement "• 158 6.18 Was the Policy Process Ad Hoc? 164 CHAPTER SEVEN: THE RECONSTRUCTION OF THE, . ' ALBERTA NATIVE CASINO GAMBLING POLICY . 166 " V 7.1 Introduction . 166 7.2 A Brief History of Casino Gambling Regulations in Alberta 166 7.3 The History of Native Gaming in Alberta' 170 7.4 The Idea of Native Casino Gaming 173 . .7.5 Government Policy Goals, Crown Corporations and the Criminal Code ' 176 7.6 The Kowalski Years ' 180 7.7 Natives Goals . 182 7.8 Klein' s Casino Idea *• - . .185 • 7.9 The Change in Ministers ' 186 7.10 Establishment of the Alberta Lotteries Review Committee 189 7.11 Other For-Profit Casino Proposals and . the Gambling Industry , 193 7.12 Political Interaction between the Natives and the Government • .197 . - 7.13 First Nations Gaming Congress 202 7.14 The Tsuu T'ina Plebescite .204 7.15 The Lotteries Review Committee Report ' 207 7.16 The Native Gaming Committee Report 209 7.17 Was the Policy Process Ad Hoc? ' '215 CHAPTER EIGHT: THE ALBERTA AND SASKATCHEWAN' POLICY PROCESS COMPARED ^ 217 8.1 Introduction " '" 217. 8.2 Causality in the Policy Proce'ss 8.3 The Meso Level of Analysis . • • 220 . 8.4 Bureaucratic Politics 220 - 8.5 The Powerful Departments 222. 8.6 The Political Culture of Alberta • and Saskatchewan ' Vlll 8.7 The Governments' Ideological System . •, of Governance , 228 8.8, The Role of Legitimacy 233- 8.8.1 Saskatchewan 234 • . 8.8.2 Alberta '' 236 • 8.9 The Testing of the Hypothesis 239 8.10 The Micro Level of Analysis 240 8.11 The Role of Leadership 240 8.12 The Role of Trust 243 8.13 Testing of.Hypothesis 248 8.14 The Macro Level of Analysis 249 1 8.15 Jurisdiction v. Sovereignty 251 8.16 Other Structural Influences 254 8.17 Institutionalization" 260 8.18 Testing the Hypothesis , • 265 8.19 Causal Explanation 266 8.20 Rational Choice Theory and .. -. Alternative Explanations >70 . 8.21 Summary 271 CHAPTER NINE: CONCLUSION r^TIME, T<5'DEAL? 273 9.1 Introduction ' • • 273 9-2 Research Question " 274 9.3 Rational CTioice Theory and Native Casino Gambling Policy 274 .!" ^ 9.4 The Hypotheses 275 9.5 Public Policy and Native Casino Gambling: Conclusions 277 9.6 The Prospect for Future Research 278 APPENDIX A: LIST OF INTERVIEWEES AND JOB TITLES IN SASKATCHEWAN POLICY RECONSTRUCTION 281, APPENDIX B: LIST, OF INTERVIEWEES AND JOB TITLES IN ALBERTA POLICY RECONSTRUCTION 282 tt BIBLIOGRAPHY 28.3 LIST OF TABLES Table 6.1: Chronology of Important Dates, ••Issues and Actors in the Saskatchewan Native Casino Gambling Policy Process 101 Table 7.1: Chronology of Important: Dates, Issues and Actors in the Saskatchewan Native Casino Gambling Policy Process 171 *. \ v LIST OF FIGURES' Figure 4/1: Feedback Loop Utilized in Rational Choice Theory 57, Figure 4.2: Conceptual' Model for Analyzing the Public Policy Process 71 Figure 6.1: Schematic Diagram of Government Departments and Committees Involved in the Policy Process 120 Figure 8.1: The Three Conceptual Phases of J:he Native Casino Gambling Policy Process iri Alberta and Saskatchewan 268 Figure 8.2: Causal Model of Native Casino Gambling Policy Making ;270 XI *; •K. ONE INTRODUCTION: POLICY* ANALYSIS AND GAMBLING IN CANADA "In its various aspects, gambling is at once a major recreational institution, a minor vice, a large-scale ipdustry, a powerfuj source of crime and political corruption,, a perennial'social problem, a fascinating psychological puzzle, and an- intriguing pa'sbime." (Devereux,1968:53) , ^ A 1.1 CENTRAL FOCUS OF THE DISSERTATION .
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