“Resistance is futile”? Halifax’s experiences with multi-level governance in four policy fields Robert G. Finbow, Dalhousie University
[email protected] Prepared for Presentation at the CPSA Annul meetings, Carleton University, Ottawa, May 27, 2009 © Robert G. Finbow 2009 Draft version: please do not cite without prior permission of the author. Introduction Halifax presents an interesting case study of the evolving nature of multi-level governance in Canada. Amalgamation and reshuffling of provincial-municipal financing in the 1990’s accentuated an enduring gulf in communications between this growing urban region and a province dominated by rural politicians. Fiscal restraint, federal off-loading to provinces and a neo- conservative regime in Ottawa affected Halifax, which has pressing fiscal needs in a politically fragmented, have-not province. Cities like Halifax are enmeshed in deepening layers of “multi- level” or “multi-order” governance as they confront complex challenges on infrastructure, immigration, land management and development, economic competition and security. While multi- level systems are often portrayed as equitable partnerships among government and non- governmental sectors (Leuprecht and Lazar, 2007), the Halifax experience reveals that such arrangements, however essential, create problems of coordination and accountability which work against efficient policy, limit public influence and reduce responsiveness. This essay summarizes data collected for 4 policy areas for the Halifax Regional Municipality as part of the larger project on Public Policy in Municipalities. In each policy area, the focus is on major projects and activities. The study is based on interviews with stakeholders from government, private sector and non-governmental organizations. The interviews focused on core research questions, and were designed to determine what forms of intergovernmental interaction and societal input contributed to policy formulation in the HRM.