CITIZENS AND THEIR MUNICIPAL GOVERNMENTS: INCREASING ACCOUNTABILITY by Kennedy Stewart B.A., Acadia University, 1988 THESIS SUBMITTED IN PARTIAL FULFILLMENT OF THE REQUIREMENTS FOR THE DEGREE OF MASTER OF ARTS in the Faculty of Political Science OE.C.Kennedy Stewart 1995 SIMON FRASER UNIVERSITY April 1995 All rights reserved. This work may not be reproduced in whole or in part, by photocopy or other means, without the permission of the author. National Library Bibliothkque nationale m+B of Canada du Canada Acquisitions and Direction des acquisitions et Bibliographic Services Bianch des services bibliographiques 395 Wellington Street 395. we Wellington Ottawa. 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ISBN 0-612-06822-6 APPROVAL Name: E.C. Kennedy Stewart Degree: Master of Arts Title of Thesis: Citizens and Their Municipal Governments: Increasing Accountability Examining Committee: Chair: Michael Howlett - Patrick J. Smith Senior Supervisor Associate Professor of Political Science David Laycock ( Associate Professor of Po1i;izal Science - ~xternalbxaminer - Jeremy Wilson Professor of Political Science University of Victoria Date Approved: I hereby grant to Simon Fraser Universi the right to lend my thesis, pro'ect or extended essay (the title o7 which is shown below) 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. 1 further agree that permission %r multiple copying of this work for scholarly purposes may be granted by me or the Dean of GI-aclllale 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 Citizens and Their Municipal Governments: Increasing Accountability ABSTRACT This thesis examines factors affecting voter participation in Canadian municipal elections through longitudina! case studies of local voting in two major Canadian cities: Vancouver and Winnipeg. It poses this in the context of current generalizations about the municipal electoral process. This study suggests that certain of these factors - particularly those focusing information for local voters - may explain important variations in municipal voting turnout patterns. The rationale for this research is based on suggestions from a number of democratic theorists that there is a relationship between public participation and democratic accountability in municipal governance. Countering this contention that the more citizens participate in elections, the more governments are held accountable for their decisions, is the clear finding that many municipal elections in Canada do not generate high voter turnout rates. These low rates hint at a weakening of electoral accountability mechanisms. The research results are drawn from observations of a four stage study conducted in the two cities. Voter turnout data from mayoral elections in Vancouver and Winnipeg were compiled from primary and secondary sources. These data were organized chronologically for each city to determine general trends and periods during which electoral participation peaked. These critical 'peak' periods were then examined, exposing a small variety of recurring factors. Finally, observations from both cities were compared to establish parallel trends. These findings and comparisons were tested against generalizations about municipal elections in Canada. The study concluded that some factors were instrumental in explaining higher rates of local electoral participation: specifically, the highest and most stable periods of voting occur in ward based elections contested between parties. This finding suggests a need for additional research and a need to rethink some of what we think we know about the municipal electoral process in Canada. iii ACKNOWLEDGMENTS As this is the final requirement for the completion of my Master's degree 1 would like to thank the people who pushed me to this stage, guided my progress, and helped me see this entire venture through. The list is lengthy, but as luck would have it most of those who would feel insulted if I did not mention their name are unlikely to read these credits. I can just tell them I mentioned them. First and foremost, I would like to thank Paddy Smith for not only stimulating my interest ig municipal politics, but for his overall mentorship. Others who have guided me both with my thesis and general academic progress have been David Laycock, Lynda Erickson and Avagail Eisenberg. I was also assisted greatly by Christopher Leo and Philip Wichern during my stay in Winnipeg. My friends, classmates and family members have supported me as well. I owe special thanks to my friend and brother Evan Stewart. Finally, although this thesis is about institutional change, I wish to thank an institution that I hope will not change, the Funky Armadillo, for its mediocre food, cheeky staff,and tasty beverages. TABLE OF CONTENTS Title Page .....................................................................................................page i .. Approval ............................................................................................. .........page 11 ... Abstract ........................................................................................................page 111 Acknowledgments ........................................................................................ page iv Table of Contents .........................................................................................page v List of Tables ................................................................................................page vi .. List of Figures .............................................................................................. page vli Chapter 1 - Introduction ...............................................................................page 1 Chapter 2 - Democratic Theory and Municipal Politics ..................................page 13 10. Chapter 3 .Methodology ............................................................................. .page 27 1 1 . Chapter 4 .Vancouver .................................... ..............................................page 37 12. Chapter 5 .Winnipeg ....................................................................................page 70 13. Chapter 6 - Conclusions ................................................................................page 98 14. Appendices ...................................................................................................p age 103 15. Bibliography .................................................................................................page 117 LIST OF TABLES 1. Table 1.1 .Election Turnout Rates in Seven Countries ................................. Pas8 2 . Table 2.1 .Eight Factors Affecting Voter Turnout Rates ..............................page 2 1 3 . Tabk 2.2 - Five Factors Affecting Voter Turnout Rates ................................page 24 4 . Table 4.1 - Vancouver Civic Parties ............................................................... page 49 5. Table 4.2 - Vancouver Communities Ranked by Socio-Economic Status ........ p age 57 LIST OF FIGURES I . Graph 4.1 .Turnout in Vancouver Mayoralty Elections ................................page 38 2 . Graph 4.2 - Increases in Population and Voter Turnout in Vancouver ........... page 40 2 . Graph 4.3 - Election Turnout in Vancouver ............................................ ......page 42 4 . Graph 4.4 - Vancouver Mayoral Election Turnouts (1 998- 1993) ................... page 44 5 . Graph 4.6 - Communities of High and Low Socio-Economic Status (1) ........page 54 6 . Graph 4.7 - Communities of High and Low Socio-Economic Status (2) ........page 55 7 . Graph 5.1 - Turnout in Winnipeg Mayoralty Elections ..................................page 71 8. Graph 5.2 - Increases in Population and Voter Turnout in Winnipeg .............page 73 9 . Graph 5.3 - Election Turnout in Winnipeg ....................................................page 75 10. Graph 5.4 - Winnipeg Mayoral Elections (I 902- 1992) ........................ ..........page 77 1 1 . Graph 5.6 - Communities of High and Low Socio-Economic Status (1) ......... page 89 vii CHAPTER 1- INTRODUCTION Since the free individrtal cat? otdy ntait~tait~his idenliiy withiti cr society/c~iltztreof n certnit~kind. ..we exercise crfrrller freeclot??rf wr UZII help determine the shnpe of this society ntd cldtwe. -