Case Studies of the Barrett and Vander Zalm Administrations in British Columbia
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PROVlNClAL INTERNATIONAL RELATIONS: CASE STUDIES OF THE BARRtrr AND VANDER ZALAll GOVERNMENTS IN BRITISH COLUMBIA JAPAN AUSTRAL PROVlNClAL INTERNATIONAL RELATIONS: CASE STUDIES OF THE BARRElT AND VANDER ZALM GOVERNMENTS IN BRITISH COLUMBIA James Peter Groen B.A., Simon Fraser University, 1988 THESIS SUBMITTED IN PARTIAL FULFILLMENT OF THE REQUIREMENTS FOR THE DEGREE OF MASTER OF ARTS in the pepartment 0 f Political Science @ James Peter Droen 1991 SIMON FRASER UNIVERSITY JANUARY 19 9 1 All rights reserved. This work may not be reproduced in whole or in part, by photocopy or other means, without permission of the author. Name: James Peter Groen pear em: Master of Arts Title of Thesis: Provincial International Relations: Cam Studies of the Barrett and Vandmr Zalm Administrat ion. in British Columbia Daminina Committu: Chairpersons Laurant Dobuz insk is - Patrick J. Smith Gmn i or Super v i sor Thmodore H. Cohn Second Supmr vi.or Norman ~uff External Exami University of ~icto\ia, Cornett Building, B321 Victoria, B.C. VSW 3PS Date Approved: 25 JAr v' PART I AL COPYRI GliT LICENSE I hereby grani to Simon Fraser University the right to lend my thesis, project or extended essay (the title of which is sho~nbelow) 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. I further agree that permission for multiple copying of this work for scholarly purposes may be granted by me or the Dean of Graduate Studies. It is understood that copying or publication of this work for financial gain shall not be allowed without my written permission. Title of Thesis/Project/Extended Essay Provincial International Relations: Case Studies of the Barrett and Vander Zalm Administrations in British Columbia Author: - signature) James Peter -Green (name January 25, 1991 (date) iii Abstract: "Provincial International Relations: Case Studies of the Barrett and Vander Zalm Government's in British Columbia." This dissertation describes and explains the international activities of the province of British Columbia under two administrations. It assesses the permanent and transient factors which have impelled the province to act internationally through an analysis of eight case studies of intensive activity - the first four during the 1972-75 Barrett administration and the second set under the 1986-1991 Vander Zalm government. This material facilitates the implementation and testing of a model of subnational international activity which will determine whether and how political culture, economic regionalism, intergovern- mental relations, the leadership, and political belief systems have led B.C. to increasingly address the international realm. The major conclusions of the thesis are that: - Under both administrations, B.C. appeared to be a very active international actor, particularly on specific resource and environmental issues thereby transcending the narrow functional activities normally associated with provincial internationalism. - While international substate disputes occurred frequently during Barrettfs tenure, under Vander Zalm, B.C. sought to cooperate with foreign substates as a method of increasing its influence over domestic and international issues. There was also a movement towards greater levels of "directt1international activity. an apparent response to the perceived lack of federal attention to B.C.'s domestic and international needs. - The bulk of B.C.'s international activities were focused upon the Pacific Rim and the U.S.; the latter remains a focal point despite the provincefs increasingly diverse trade links. - Regional political culture and in particular, the operational philosophy of the elite were major determinants shaping the overall direction of international activities. At another level, the Vander Zalm government has sought to emphasize the relatively low level of socio-cultural integration with Eastern Canada and the commonalities between the U.S. Pacific Northwest and B.C. In contrast, the Barrett Government promoted a "nationalistn stance with respect to energy and resources which some maintain was "anti-Americanw. - Economic regionalism and intergovernmental relations appeared to be inextricably tied; B.C.'s dissatisfaction "with the return on Confederationw has whetted the desire for strengthened international links. Ottawa's attempts to distance itself from many of these provincial initiatives underscores B.C.'s "mavericku image and its reputation as federalism's Igbad boys". - The bulk of B.C.'s international activities fall within the ambit of provincial or shared constitutional jurisdiction. However, some do not. The provincefs success in exercising influence over such matters - particularly through the technique of establishing coalitions with foreign actors - points to a general expansion of provincial jurisdictional competence. Acknowledgements I wish to extend special thanks to Dr. Paddy Smith, who as my senior supervisor offered guidance and valuable criticism. The suggestions and comments of my second supervisor Dr. Ted Cohn were equally helpful, particularly in streamlining this thesis. The Department of Political Science was generous, providing me with two fellowships and travel stipends. Many government and former government officials gave unstintingly of their time. Their enthusiasm buoyed occasionally sagging spirits and reassured me that I was "on to something." Several individuals require special thanks. Dr. Art Goddard provided free access to External Affairs files in Seattle. My close friend throughout the program, Ingrid Verwoerd was always ready with a sympathetic ear and tirelessly compiled the bibliography. Harry Verwoerd freely provided computers and printer hardware. Art and Nel Kocsar, Henk and Helen Verwoerd, and John and Nel Braacx blessed me with meals, occasional sanction, and most of all friendship. Finally, this thesis is dedicated to my parents John and Nel Groen, who, though distant sources of encouragement, have always remained supportive of my endeavors. Thesis Index Approval ................................................. .ii Abstract .................................................iii Acknowledgements ..........................................vi Chapter 1 Introduction to Subnational Activity ....................... 1 Overview of B.C.'s International Ties ......................4 Thesis Overview ............................................15 ~hesisLayout ..............................................19 Chapter 2 Towards a Categorization of Provincial Transgovernmentalism ....................................... 21 Keohane and Nyefs Definition of Transgovernmental Activity ................................................... 22 Concluding Remarks on Keohane and Nye ...................... 27 Factors Influencing Provincial International Activity ......28 Economic Regionalism .......................................29 The Bureaucratic Impetus ...................................33 Political Culture ..........................................35 B.C. Political Culture .....................................37 Political Culture and Leadership Ideology ..................42 Intergovernmental Relations ................................49 Constitutional Parameters ..................................52 Towards a Model ............................................55 Chapter 3 The International Activities of the Barrett Administration .............................................58 The W.A.C. Bennett Prelude .................................59 Barrett Administration Overview ............................67 B.C.- U.S. Relations Under Barrett ..........................77 Case Study Overviews .......................................81 Natural Gas Dispute ........................................82 The ~egativeAmerican Response .............................87 Canadian Response ..........................................91 Conclusion .................................................95 Trans-Alaska-Pipeline Dispute ..............................100 U.S. Response To B.C.'s Proposal ...........................108 Canadian Response ..........................................113 Conclusion .................................................120 vii The NDPfs Attempt to ene ego ti ate the Columbia Treaty .......126 B.C.'s Threats of Retaliation ..............................135 conclusion to B.C.'s Attempt to ene ego ti ate the Columbia ...................................139 The ~ighRoss Dam ~ispute.................................. 143 conclusion .................................................149 Barrettrs Attempts to Redirect B.C. Trade ..................151 ~ederal-ProvincialConflict In Japan .......................155 preliminary Observations on Chapter 3 ......................164 Chapter 4 Chapter Layout .............................................173 The W.R. Bennett Prelude ...................................173 ~ntroductionto Vander Zalm ................................178 Toward Greater Provincial Autonomy .........................184 Case Studies of the Vander Zalm Government .................187 The 1986 Softwood Lumber Dispute ........................... 191 Canadars Reaction to B.C.'s Negotiating Strategy ...........206 conclusion To The Softwood Lumber Case .....................213 The Nestucca Transboundary Oil Spill ....................... 218 The t or mat ion of the Substate Task Force ................... 227