POLITICAL MANIPULATION AND REWARDS

IN TdE

CROWSNEST PASS, SOUTHERN ALBERTA

John Kenneth Kenward

B. A. (Hons.), Simon Fraser University, 1968

A THESIS SUBMITTED IN PARTIAL FULFILLMENT OF

THE REQUIREMENTS FOR THE DEGREE OF

MASTER OF ARTS

in the Department

0f

Political Science, Sociology and Anthropology

0 JOHN KENNETH KENWARD 1971

SIMON FRASER UNIVERSITY

July, 1971
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APPROVAL

Name : John Kenneth Kenward

Degree : Master of A r t s

T i t l e of T h e s i s : P o l i t i c a l Manipulation and Rewards i n

t h e Crowsnest Pass, Southern A l b e r t a

Examining Committee:

Chairman: Karl Peter

A.H. Somjve
Senior Supervisor

M a r t i n Robin

D.G. B e t t i s o n
E x t e r n a l Examiner
Professor
Department of Sociology and Anthropology
U n i v e r s i t y of Lethbridge
Lethbridge, A l b e r t a

Date Approved:
 iii

,
ABSTRACT

The t h e s i s i s concerned w i t h an examination of t h e concept of

'normative' and ' p r a g m a t i c ' r u l e s a s e l a b o r a t e d by F.G. Bailey i n h i s

book Strategems and S p o i l s , and i t s r e l e v a n c e t o t h e a n a l y s i s of p o l i t -

i c a l processes. B a i l e y ' s t h e o r e t i c a l framework i s based on David

E a s t o n ' s development of 'systems a n a l y s i s ' . Whereas Easton h a s at-

tempted t o l a y t h e b a s i s f o r an ' e m p i r i c a l l y o r i e n t e d g e n e r a l t h e o r y '

by developing t h e concept of p o l i t i c a l s t r u c t u r e as an a b s t r a c t i o n ,

B a i l e y views p o l i t i c a l s t r u c t u r e a s ' a s e t of r u l e s about b e h a v i o r ' .

B a i l e y ' s concept was t e s t e d i n t h e t h e s i s through an a n a l y s i s

of t h e a f f a i r s of l o c a l a u t h o r i t i e s i n t h e Crowsnest P a s s a r e a of

Southern A l b e r t a w i t h p a r t i c u l a r r e f e r e n c e t o t h r e e e v e n t s , namely:

one, t h e f i n a n c i a l arrangement made f o r a r e g i o n a l swimming pool

through t h e Regional R e c r e a t i o n Board; two, t h e g e n e r a t i o n of a s c h o o l

d i v i s i o n and c o n s t r u c t i o n of a c o n s o l i d a t e d s c h o o l ; and t h r e e , a n

a n a l y s i s of t h e circumstance of two p r i v a t e companies which l o c a t e d i n

t h e a r e a under t h e 1963 F e d e r a l government i n c e n t i v e s program.

It i s assumed i n A l b e r t a t h a t a l o c a l a u t h o r i t y h a s what i s

c a l l e d l o c a l autonomy, i . e . a l o c a l a u t h o r i t y h a s t h e r i g h t o r p r i v i -

l e g e , under t h e l e g i s l a t i o n a f f e c t i n g i t , t o manage i t s own a f f a i r s and

t o c o - o r d i n a t e and u t i l i z e such s e r v i c e s of s e n i o r governments made

a v a i l a b l e t o i t i n a manner l i k e l y t o advance i t s i n t e r e s t s .

T h i s assumption r e q u i r e s q u a l i f i c a t i o n when p u t i n t o p r a c t i c e :

f i r s t , t o e x e r c i s e i t s autonomy, a community must b e c a p a b l e of co-

o r d i n a t i n g o r u t i l i z i n g government s e r v i c e s o f f e r e d t o i t . Secondly,
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t h e a d j a c e n t n a t u r e of l o c a l a u t h o r i t i e s - which i s exaggerated i n

p a r t s of t h e P r o v i n c e such a s t h e Crowsnest P a s s , b u t i s common e l s e -

where--permits c o s t s h a r i n g arrangements among them. These arrange-

ments i n t u r n compromise t h e assumption of l o c a l autonomy i n t h e way

i n which such arrangements a r e p u t i n t o p r a c t i c e , though n o t i n t h e

freedom of l o c a l a u t h o r i t i e s t o e n t e r such arrangements.

L o c a l a u t h o r i t i e s a r e dependent f o r development, i n almost

every c a s e , upon monies and s e r v i c e s from s e n i o r l e v e l s of government.

These l e v e l s of government r e q u i r e t h a t developmental s e r v i c e s a r e

a r r a n g e d on s c a l e s adequate f o r t h e i r economic o p e r a t i o n . Such s c a l e s

f r e q u e n t l y s u p e r s e d e t h e boundaries of c o n s t i t u t e d l o c a l a u t h o r i t i e s .

When m u l t i p l e a u t h o r i t i e s become involved because of t h i s requirement,

t h e i n t e r n a l p o l i t i c a l p r o c e s s e s among them, and w i t h i n any one of them,

t e n d t o assume t h e q u a l i t y of m a n i p u l a t i o n .

The p r e s e n c e o r absence of a developmental s e r v i c e , whether

p u b l i c o r p r i v a t e , i m p l i e s a change i n t h e r e l a t i v e s t a t u s o r advantage

of i n t e r a c t i n g l o c a l a u t h o r i t i e s . The outcome of t h e m a n i p u l a t i v e pro-

c e s s e s l o c a l a u t h o r i t i e s engage i n a r e s e e n from t h e o u t s i d e a s b e i n g

p a r t of a ' n a t u r a l ' p r o c e s s of c o m p e t i t i o n f o r s p o i l s t h a t throws up

through i t s o p e r a t i o n t h e most favoured l o c a l e f o r c o n s t r u c t i o n of t h e

developmental s e r v i c e .

Juxtaposed t o t h e s e p r o c e s s e s a r e t h e c o n s i d e r a t i o n s of ' s e n i o r '

r e g i o n a l a u t h o r i t i e s , such as planning and economic development com-

missions. T h e i r p e r s p e c t i v e i s d i f f e r e n t from t h a t of t h e i n t r o v e r t i v e

p e r s p e c t i v e of any one l o c a l a u t h o r i t y , b u t become drawn i n t o t h e manip-

u l a t i v e p r o c e s s e s r e g a r d l e s s of t h e i r p e r s p e c t i v e .
 v

The p r o v i n c i a l government,policy of d i s t r i b u t i n g f i n a n c i a l a s -

s i s t a n c e a c c o r d i n g t o t h e c r i t e r i a of e q u a l i z e d assessment and popula-

t i o n s i z e p r o v i d e s t h e impetus f o r c o m p e t i t i o n among l o c a l a u t h o r i t i e s

and t h e m a n i p u l a t i o n of s e n i o r government a u t h o r i t i e s . While t h i s

c o m p e t i t i o n i s n o t always s u c c e s s f u l f o r l o c a l a u t h o r i t i e s , i t i s

endemic i n t h e p o l i t i c a l p r o c e s s . The 'rewards' a r e returned t o l o c a l

a u t h o r i t i e s by a p r o c e s s which p l a c e s f a c i l i t i e s i n n e u t r a l a r e a s and

n o t n e c e s s a r i l y i n accord w i t h t h e c r i t e r i a a p p r o p r i a t e t o t h e economic

growth of t h e r e g i o n o r any c o n s t i t u e n t p a r t of i t . F e d e r a l government

a s s i s t a n c e t o p r i v a t e i n d u s t r y compromises t h e normative views of t h e

p r o v i n c i a l government w i t h r e g a r d t o f a v o u r i n g one l o c a l a u t h o r i t y over

another. P r i v a t e i n d u s t r y may remain a l o o f from t h e m a n i p u l a t i o n s of

l o c a l a u t h o r i t i e s b u t w i t h o u t n e c e s s a r i l y s e r v i n g t h e i n t e r e s t s of

local authorities.
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TABLE OF CONTENTS
Pages

Chapter I : Introduction

Notes t o Chapter I

C h a p t e r 11: The Swimming P o o l I n t r i g u e

Notes t o C h a p t e r I1

C h a p t e r 111: S c h o o l A d m i n i s t r a t i o n and I t s P o l i t i c a l
'Umbrella'

Notes t o C h a p t e r I11

Chapter I V : P r i v a t e Enterprise--A Confederacy

Notes t o C h a p t e r I V

Chapter V : C o n c h si o n

Notes t o C h a p t e r V

Selected Bibliography
 ACKNOWLEDGMENT

I wish t o acknowledge t h e a s s i s t a n c e and en-

couragement g i v e n t o me i n t h e p r e p a r a t i o n of

t h i s t h e s i s by P r o f e s s o r M. Robin.

To P r o f e s s o r s A.H. Somjee and D.G. Eettison I

owe a s p e c i a l d e b t of g r a t i t u d e f o r t h e en-

couragement and generous a s s i s t a n c e t h e y have

g i v e n me i n t h e p r e p a r a t i o n of t h i s t h e s i s .

My a p p r e c i a t i o n a l s o goes o u t t o t h e Human Re-

s o u r c e s Research Council f o r p r o v i d i n g me w i t h

t h e o p p o r t u n i t y t o do f i e l d r e s e a r c h i n t h e

Crowsnest P a s s , A l b e r t a .
 CWTER I

INTRODUCTION

1. Examination of Two T h e o r e t i c a l P e r s p e c t i v e s

During t h e p a s t twenty y e a r s many p o l i t i c a l s c i e n t i s t s have

p a r t i c i p a t e d i n , and c o n t r i b u t e d t o , an i n t e l l e c t u a l s t r u g g l e . The

g o a l h a s been t o e s t a b l i s h a ' s u b s t a n t i v e t h e o r y of p o l i t i c a l l i f e '

which could be g e n e r a l l y accepted a s a b a s i s o r approach f o r e m p i r i c a l

research.' I t i s presumed t h a t t h i s t h e o r e t i c a l scheme would a l s o

d e f i n e s u c c i n c t l y t h e scope of p o l i t i c a l s c i e n c e , c l e a r l y d i f f e r e n -

t i a t i n g i t s a r e a of concern from t h o s e of o t h e r d i s c i p l i n e s . In spite

of tremendous i n t e l l e c t u a l e f f o r t s , l i t t l e consensus h a s developed

o v e r t h e p o s s i b i l i t y of g e n e r a t i n g one such t h e o r e t i c a l approach t o

p o l i t i c a l analysis. C u r r e n t l y , a number of p o l i t i c a l s c i e n t i s t s con-

t i n u e t o engage i n d e b a t e about t h e v a l i d i t y and e f f i c a c y of t h e ap-

proaches t h a t have been proposed, and s t i l l o t h e r s a r e preoccupied with

t h e development of new approaches. O.R. Young p o i n t s o u t : 'There i s

a c o n s i d e r a b l e amount of disagreement concerning t h e e s s e n t i a l n a t u r e

of an approach t o a n a l y s i s , and t h i s h a s f r e q u e n t l y l e d t o s e r i o u s
2
confusion'.

D e s p i t e t h e v a r i o u s disagreements p r e v a l e n t i n t h e d i s c i p l i n e ,

t h e s e a r c h f o r an ' e m p i r i c a l l y o r i e n t e d g e n e r a l t h e o r y ' h a s borne

fruitful results. 'Systems a n a l y s i s ' , p a r t i c u l a r l y , h a s provided t h e

s t u d e n t of p o l i t i c s w i t h a conceptual s t r u c t u r e through which t h e

a n a l y s i s of p o l i t i c a l behavior can b e approached. Several scholars

have proclaimed an a l l e g i a n c e , of one kind o r a n o t h e r , t o t h i s concept.

David E a s t o n ' s works: The P o l i t i c a l System, A Framework f o r P o l i t i c a l

A n a l y s i s , and A Systems A n a l y s i s of P o l i t i c a l L i f e , p r o v i d e an e x c e l l e n t

example of one s c h o l a r ' s commitment t o 'systems a n a l y s i s ' . This i s n o t

t o s u g g e s t t h a t E a s t o n ' s t h e o r e t i c a l approach r e p r e s e n t s a consensus

among t h e a d h e r e n t s of 'systems a n a l y s i s ' . There i s s t i l l much d i s -

agreement i n r e c e n t w r i t i n g s concerning such q u e s t i o n s a s t h e p r o p e r

d e f i n i t i o n of a p o l i t i c a l system and s o f o r t h . However, i t i s n o t t h e

i n t e n t i o n of t h i s w r i t e r t o become embroiled i n a d i s c u s s i o n of t h e

r e l a t i v e m e r i t s of t h e many d e f i n i t i o n s t h a t have been formulated o r t o

b e l a b o u r t h e v i r t u e s of t h e s e v e r a l ' s y s t e m s ' c o n c e p t s t h a t have been

p r e p a r e d by v a r i o u s i n d i v i d u a l s .

I n s o f a r a s t h e c o n t e n t of systems a n a l y s i s i s concerned, i t i s

probably s u f f i c i e n t t o q u o t e M.A. Kaplan:

A b r i e f and n o n t e c h n i c a l d e s c r i p t i o n of t h e ob-
j e c t i v e of systems a n a l y s i s would i n c l u d e : t h e
s t u d y of a s e t of i n t e r r e l a t e d v a r i a b l e s , a s
d i s t i n g u i s h e d from t h e environment of t h e s e t ,
and of t h e ways i n which t h i s s e t i s maintained
under t h e impact of environmental d i s t u r b a n c e s .
T h i s d e f i n i t i o n emphasizes t h e a r t i c u l a t i o n of
t h e system and of i t s components and t h e be-
h a v i o r s by means of which i t m a i n t a i n s i t s e l f
o v e r time . 3

A. Rapoport h a s observed t h a t , 'The advantages of t h i s approach a r e i n

t h e o p p o r t u n i t i e s i t o f f e r s of b u i l d i n g p o l i t i c a l t h e o r i e s which a r e
4
b o t h g e n e r a l l y and o b j e c t i v e l y v e r i f i a b l e ' .

The purposes of t h i s s e c t i o n a r e b r i e f l y t o examine i n the-

o r e t i c a l terms t h e systems approach and t h e way i n which i t h a s been

5
developed and r e f i n e d by F.G. Bailey.
 S i n c e B a i l e y e x p l i c i t l y acknowledges t h e c o n t r i b u t i o n of David

Easton, i t i s a p p r o p r i a t e t o examine t h a t p o r t i o n of E a s t o n 1 s approach

which i s r e l e v a n t t o ~ a i l e y ' sp r e s e n t a t i o n . Concerned w i t h t h e q u e s t i o n

a f e l u c i d a t i n g a t h e o r y t h a t could enhance t h e p o s s i b i l i t y of a cumu-

l a t i v e development of knowledge i n t h e f i e l d of p o l i t i c a l s c i e n c e ,

Easton h a s become one of t h e major exponents of systems a n a l y s i s . For

t h e l a s t two decades, h e h a s endeavoured t o i m p a r t t o t h o s e a s s o c i a t e d

w i t h t h e d i s c i p l i n e of p o l i t i c a l s c i e n c e t h e i d e a of examining and

understanding p o l i t i c a l l i f e v i a a systems p e r s p e c t i v e . While t h i s

c o n c e p t u a l o r i e n t a t i o n , i t i s i m p o r t a n t t o n o t e , i s designed t o accom-

modate t h e b e h a v i o r a l i s t c o n t e n t i o n ' . . . t h a t
t h e b a s i c element common
6
t o a l l s o c i a l systems i s t h e i n d i v i d u a l p e r s o n ' , Easton argues t h a t ,

'we b e g i n t o e n c o u n t e r c o n c e p t u a l d i f f i c u l t i e s i f we a r e asked t o

e n t e r t a i n t h e n o t i o n t h a t i t may b e i m p o s s i b l e t o adopt t h e human b e i n g

7
as t h e major u n i t f o r a n a l y z i n g s o c i a l systems'. With t h i s i n mind,

Easton h a s designed h i s t h e o r e t i c a l approach w i t h t h e view t o examining

' p o l i t i c a l l i f e ' as a s o c i a l system i s o l a t e d from g e n e r a l s o c i a l ac-

tivity. Hence t h e p o l i t i c a l - s y s t e m i s understood t o b e t h a t s e t of

human i n t e r a c t i o n s and t r a n s a c t i o n s which can b e deemed t o b e p o l i t i c a l

i n nature.

I n o r d e r t o d i s t i n g u i s h t h e p o l i t i c a l system from o t h e r forms

of s o c i a l b e h a v i o r and from t h e non-social s i t u a t i o n , Easton has ad-

vised that the '...political system ...w i l l b e i d e n t i f i e d a s a s e t of

i n t e r a c t i o n s , a b s t r a c t e d from t h e t o t a l i t y of s o c i a l b e h a v i o r , through
8
which v a l u e s a r e a u t h o r i t a t i v e l y a l l o c a t e d f o r a s o c i e t y ' . Concomi-

t a n t l y p o l i t i c a l l i f e i s d e f i n e d a s ' a system of behavior imbedded i n

an environment t o t h e i n f l u e n c e s pf which t h e p o l i t i c a l system i t s e l f

i s exposed and i n t u r n r e a c t s ' . ' Having t h u s i s o l a t e d t h e p o l i t i c a l

system, Easton i s a b l e t o advance t h e p r o p o s i t i o n t h a t t h e aforemen-

t i o n e d s e t of i n t e r a c t i o n s , a s d e f i n e d , p r o v i d e s a means of d i f f e r e n -

t i a t i n g p o l i t i c a l r o l e s from o t h e r s o c i a l r o l e s . He d e s c r i b e s t h o s e

who p a r t i c i p a t e i n t h e i n t e r a c t o r y p r o c e s s a s being 'members of t h e

system' .lo A s an ' a n a l y t i c ' c a t e g o r y t h i s g e n e r i c concept r e c e i v e s

s u b s t a n t i a l s u p p o r t from T a l c o t t P a r s o n s :

Like any s o c i a l system, a p o l i t i c a l system i s

s t r u c t u r a l l y composed of u n i t s and t h e i r r e -
l a t i o n s h i p s . A s every p o l i t i c a l system i s a
c o l l e c t i v i t y , i t s u n i t s a r e always 'members'
which may b e e i t h e r i n d i v i d u a l persons i n r o l e s
o r s u b c o l l e c t i v i t i e s which themselves a r e u l -
t i m a t e l y r e d u c i b l e t o i n d i v i d u a l persons i n
11
member r o l e s .

I t must be observed a t t h i s p o i n t t h a t t h e problem of d i f f e r e n -

t i a t i n g t h e p o l i t i c a l system from o t h e r systems of behavior h a s caused

Easton some concern. With r e f e r e n c e t o ' t r a d i t i o n a l t r i b a l s o c i e t i e s '12

he o b s e r v e s ' . . . t h a t p o l i t i c a l l i f e need n o t b e s h a r p l y demarcated from

o t h e r k i n d s of b e h a v i o r . . . . 'I3 I n a d d i t i o n h e p o i n t s o u t t h a t :

The imagery of a system b e g i n s t o b r e a k down

when we t u r n away from s p e c i a l i z e d r o l e s o r
organized groups t o t h e v a s t complex of p o l i -
t i c a l a c t i v i t i e s t h a t a r e d i f f u s e d throughout
each s o c i e t y , however d i f f e r e n t i a t e d i t s p o l i -
t i c a l s t r u c t u r e . For example, even i n modern
h i g h l y s t r u c t u r e d s o c i e t i e s many members may
engage i n p o l i t i c a l a c t i v i t i e s o u t s i d e of any
formal r o l e t h a t i s d e s i g n a t e d a s p o l i t i c a l o r
a s a p a r t of t h e i r behavior i n r o l e s t h a t a r e
14
distinctly nonpolitical.
 C l e a r l y Easton r e c o g n i z e s , t h e d i f f i c u l t i e s involved i n i s o -

l a t i n g t h e p o l i t i c a l system a s a d i s t i n g u i s h a b l e system of behavior.

However, h e i s a b l e t o overcome t h e s e d i f f i c u l t i e s by arguing t h a t i t i s

possible to '...abstract o u t of t h e t o t a l i n t e r a c t i o n s i n which a per-

son engages t h o s e t h a t a r e o r i e n t e d t o p o l i t i c s ' . l5 This a b s t r a c t i o n ,

which assumes t h e p r e s e n c e of something c a l l e d a ' p o l i t i c a l s y s t e m ' ,

i s an outgrowth of t h e c r i t e r i a used t o d e f i n e one s e t of i n t e r a c t i o n s

a s being p o l i t i c a l .

The most fundamental s i n g l e c h a r a c t e r i s t i c of E a s t o n ' s t h e o r y

i s t h a t t h e p o l i t i c a l system i s an 'open system'.

By i t s v e r y n a t u r e a s a s o c i a l system t h a t h a s
been a n a l y t i c a l l y s e p a r a t e d from o t h e r s o c i a l
systems, such a system must be i n t e r p r e t e d a s
l y i n g exposed t o i n f l u e n c e s d e r i v i n g from t h e
o t h e r systems i n which i t i s embedded. From
them f l o w s a c o n s t a n t s t r e a m of e v e n t s and
i n f l u e n c e s t h a t shape t h e c o n d i t i o n s under which
16
t h e members of t h e system must a c t .

By c o n c e p t u a l i z i n g ' p o l i t i c a l l i f e ' a s a n open system, Easton a r g u e s

t h a t i t is possible '...to understand t h e p r o c e s s e s u n d e r l y i n g t h e

c a p a c i t y of some kind of p o l i t i c a l l i f e t o s u s t a i n i t s e l f i n a so-

ciety.. ..'I7 The r e s p o n s i b i l i t y of t h e p o l i t i c a l s c i e n t i s t i s I.. .to

i d e n t i f y t h e major and g e n e r a l elements of t h e system, ...and to

18
d e s c r i b e what i t i s t h a t l i e s o u t s i d e of a system'. Systems a n a l y s i s ,

a s a n a n a l y t i c approach, a i d s i n t h i s endeavour by drawing a t t e n t i o n t o ,

and p e r m i t t i n g t h e examination o f , ' t h e exchanges t h a t t a k e p l a c e between

19
a system and i t s environment'.

Fred B a i l e y i n h i s book Strategems and S p o i l s h a s adopted, i n

p a r t , E a s t o n ' s concept of t h e open p o l i t i c a l system. Taking up E a s t o n ' s

n o t j o n of a dynamic p r o c e s s , B a i l e y e x p l a i n s t h a t p o l i t i c a l s y s t e r ~ i s ,

' a r e u n d e r s t o o d when t h e c o n t i n u o u s p r o c e s s of a d a p t a t i o n and a d j u s t m e n t

between s t r u c t u r e and environment i s u n d e r s t o o d ' . 20 I n contradis-

t i n c t i o n t o Easton, Bailey p r e f e r s t o d e s c r i b e t h e p o l i t i c a l system a s

an i n t e r a c t o r y p r o c e s s between a p o l i t i c a l s t r u c t u r e and i t s e n v i r o n -

ment. The p o l i t i c a l s t r u c t u r e i n t h i s c a s e ' i s a s e t of r u l e s a b o u t

behavior: t h e s e r u l e s l i s t t h e r i g h t s and d u t i e s of p a r t i c u l a r r o l e s ;

t h e y s a y what a k i n g , a s u b j e c t , a j u d g e , a v o t e r , a p a r t y l e a d e r , a

v i l l a g e headman and s o f o r t h i s e x p e c t e d t o do i n t h a t p a r t i c u l a r

c a p a c i t y and what h e may e x p e c t o t h e r s t o do f o r h i m ' . 21 1n a similar

v e i n , G.H. Mead o b s e r v e d t h a t :

I n t h e same...way t h a t t h e human i n d i v i d u a l be-

comes c o n s c i o u s of h i m s e l f h e a l s o becomes con-
s c i o u s of o t h e r i n d i v i d u a l s ; and h i s c o n s c i o u s -
n e s s b o t h of h i m s e l f and of o t h e r i n d i v i d u a l s
i s e q u a l l y i m p o r t a n t f o r h i s own s e l f -
development and f o r t h e development of t h e
o r g a n i z e d s o c i e t y o r s o c i a l g r o u p t o which h e
22
belongs.

Both E . Durkheim and T a l c o t t P a r s o n s have drawn a t t e n t i o n t o t h e i m -

p o r t a n c e of s o c i a l r o l e s and t h e i r development and i n c r e a s i n g d i f f e r e n -

t i a t i o n i n modern, complex s o c i e t i e s . And R o b e r t Dahl h a s o b s e r v e d

t h a t ' I n e v e r y s o c i e t y , p e o p l e t e n d t o d e v e l o p more o r l e s s s t a n d a r d

e x p e c t a t i o n s a b o u t how t h e y and o t h e r s w i l l behave i n v a r i o u s s i t u a r

tions ' .2 3
F o r B a i l e y t h e environment c o n t a i n s o t h e r s t r u c t u r e s of s o c i a l

a c t i o n , e a c h w i t h i t s own s e t of r u l e s a b o u t b e h a v i o r . H e explains

t h a t ' a t t h e v e r y l e a s t a l l t h e s e d i f f e r e n t r o l e s compete f o r a man's

t i m e and e n e r g y ; t h e y may a l s o d i r e c t l y i n f l u e n c e h i s p o l i t i c a l be-

havior .... The environment b o t h p r o v i d e s r e s o u r c e s f o r p o l i t i c a l u s e

 7

and p u t s c o n s t r a i n t s on p o l i t i c a l , b e h a v i o r 1 . 2 4 F o r example, t h e

economic r o l e of an i n d i v i d u a l may i n t r u d e upon and a f f e c t h i s p o l i -

25
tical role.

I n s o f a r as p o l i t i c a l b e h a v i o r i s c o n c e r n e d , B a i l e y ' s t h e o r e t i c a l

c o n s t r u c t i o n d o e s n o t l i m i t t h e r a n g e of s t r u c t u r e s t h a t may b e , from

time t o t i m e , c o n s i d e r e d p o l i t i c a l i n n a t u r e o r i n i n t e r a c t i o n w i t h t h e

political structure itself. Comparatively speaking, Easton's a n a l y t i c

s y s t e m can provoke a f a r more s t a t i c mode of a n a l y s i s . For Bailey,

' p o l i t i c a l s t r u c t u r e s can b e r e c o g n i z e d a t a l l l e v e l s and i n a l l k i n d s

of a c t i v i t i e s and c a n , when a p p r o p r i a t e , b e compared w i t h one

a n o t h e r ' .26 With r e f e r e n c e t o E a s t o n ' s c o n c e p t of ' p a r a p o l i t i c a l

s y s t e m s ' , 2 7 B a i l e y e x p l a i n s t h a t ' F o r my own p a r t , I f i n d i t e a s i e r t o

r e c o g n i z e p o l i t i c s a s a n a s p e c t of i n t e r a c t i o n a t a l l l e v e l s - - e v e n the

family .... '28 Furthermore: 'To r e c o g n i z e o n l y one l e v e l , o r e v e n t o

f o c u s s t r o n g l y upon i t i s t o b e e t h n o c e n t r i c a n d , more i m p o r t a n t l y t o

w a s t e o p p o r t u n i t i e s f o r c o m p a r a t i v e i n s i g h t ' . 29 The f o r e g o i n g c r i t i c i s m s

n o t o n l y p o i n t t o t h e ' i s o m o r p h i c ' c h a r a c t e r of E a s t o n ' s a p p r o a c h b u t

a l s o emphasize t h a t t h i s a p p r o a c h i s l i m i t e d i n i t s u s e f u l n e s s . Cer-

t a i n l y i t would a p p e a r t h a t E a s t o n ' s p o l i t i c a l s y s t e m i s more a n a l o -

gous t o ' i n s t i t u t i o n a l i z e d ' p o l i t i c a l a r r a n g e m e n t s found i n t h e w e s t e r n

world t h a n w i t h p o l i t i c a l a r r a n g e m e n t s g e n e r a l l y .

It s h o u l d be n o t e d a t t h i s p o i n t t h a t B a i l e y ' s theoretical

development d o e s n o t deny t h e v a l u e of b e i n g i n t e l l e c t u a l l y p r e c i s e o r

a n a l y t i c a l l y s p e c i f i c when a t t e m p t i n g t o e x p l a i n p o l i t i c a l b e h a v i o r .

It d o e s n o t move s y s t e m s t h e o r y toward ' t h e o t h e r d i r e c t i o n of f o c u s -

31
l e s s n e s s 130 by making p o l i t i c s 'c o - e x t e n s i v e w i t h a l l human r e l a t i o n s '.
Bailey explains t h a t : ,

I f a p a r t i c u l a r p o l i t i c a l s t r u c t u r e were i n -
t i m a t e l y connected w i t h e v e r y o t h e r s t r u c t u r e
of s o c i a l a c t i o n s , s o t h a t e v e r y t h i n g which went
on i n economics o r r e l i g i o n o r on t h e domestic
s c e n e v i t a l l y a f f e c t e d i t , t h e t a s k of a n a l y s i s
could n e v e r b e f i n i s h e d . Happily t h i s i s n o t
t h e c a s e , f o r o n l y some p a r t s of an environment
32
hinge onto a p o l i t i c a l s t r u c t u r e .

B a i l e y proposes t h a t t h e i n t e r a c t i o n t h a t t a k e s p l a c e between t h e

p o l i t i c a l s t r u c t u r e and i t s environment t a k e s t h e form of ' a s e r i e s of

discrete events'. He o b s e r v e s :

t h a t w h i l e p o l i t i c a l s t r u c t u r e s a r e connected
w i t h an environment and must c o n t i n u a l l y f i n d
adjustment w i t h t h a t environment, t h e r e i s
n e v e r t h e l e s s a d i s c o n t i n u i t y inasmuch a s not
every change i n t h e environment f e e d s back
33
onto the s t r u c t u r e .

Thus, i n s t e a d of p r e s e n t i n g a ' p o l i t i c a l system' a s a n ab-

s t r a c t e d form of s o c i a l behavior which p e r s i s t s through time, B a i l e y

views i t a s being a ' d i s c r e t e e v e n t ' which i s o n l y a c t i v a t e d when a

p o l i t i c a l s t r u c t u r e i n t e r a c t s w i t h i t s environment.

B a i l e y ' s t h e o r e t i c a l c o n s t r u c t i o n i s c l e a r l y a m o d i f i c a t i o n of

Easton's conceptualization. With r e f e r e n c e t o E a s t o n ' s i d e a s B a i l e y

o b s e r v e s t h a t , w h i l e he h a s r e c e i v e d some d i r e c t i o n from them he hopes

34
t h a t h i s approach i s 'somewhat l e s s m e c h a n i s t i c and l e s s r i g i d ' .

B a i l e y o b v i o u s l y f e e l s t h a t i t i s more u s e f u l t o speak of a p o l i t i c a l

system i n terms of s t r u c t u r e and environment, r a t h e r than t o a t t e m p t t o

i s o l a t e a ' p o l i t i c a l system' a s a form of behavior d i f f e r e n t from o t h e r

forms of s o c i a l behavior. Easton, on t h e o t h e r hand, p r e f e r s t o make a

d i s t i n c t i o n between t h e p o l i t i c a l system i t s e l f and o t h e r s o c i a l systems.

Whereas B a i l e y p r e s e n t s t h e p o l i t i c a l system a s an i n t e r a c t o r y p r o c e s s
between t h e p o l i t i c a l s t r u c t u r e and i t s environment, Easton's concep-

t u a l i z a t i o n p r e s e n t s t h e p o l i t i c a l system as b e i n g one form of s o c i a l

system e x i s t i n g and i n t e r a c t i n g w i t h o t h e r s o c i a l systems i n t h e en-

vironment. Thus '...once t h e i d e a of a boundary between systems i s

i n t r o d u c e d , i t s h o u l d make s e n s e t o s a y t h a t i f something happens i n

35
t h e n o n - p o l i t i c a l a r e n a , i t may i n f l u e n c e t h e p o l i t i c a l system'.

B a i l e y f i n d s i t t h e o r e t i c a l l y more a c c e p t a b l e t o emphasize t h e im-

p o r t a n c e of r o l e s i n t h e i n t e r a c t o r y p r o c e s s as more g e n e r a l l y con-

ceived. I n t h i s way h e a v o i d s t h e problem of having t o f o r m u l a t e ar-

t i f i c i a l boundaries i n o r d e r t o i d e n t i f y ' t h e p o l i t i c a l system'. At

t h e same time h e i s a b l e t o examine p o l i t i c a l b e h a v i o r , n o t as an

i s o l a t e d phenomenon, b u t as a s t r u c t u r e , i . e . ' a s e t of r u l e s about

behavior', which i n t e r a c t s w i t h o t h e r s t r u c t u r e s i n t h e environment.

I n o t h e r words t h e p o l i t i c a l system i s conceived of as a dynamic ar-

rangement, which i s a c t i v a t e d when t h e ' . . . p a r t i c i p a n t s through t h e i r

awareness impose upon t h e i r i n t e r a c t i o n s t h e c h a r a c t e r i s t i c s of a

36
system', r a t h e r t h a n a s an e n t i t y a b s t r a c t e d from t h e t o t a l s t r u c t u r e

of human a c t i v i t y by v i r t u e of i t s r e l e v a n c e f o r ' p o l i t i c a l ' inquiry.

37
Due emphasis must b e g i v e n t o B a i l e y ' s b e h a v i o r a l i s t orien-

tation. H i s s u c c e s s i n d e s c r i b i n g t h e p o l i t i c a l system a s an i n t e r a c -
38
t o r y p r o c e s s i n v o l v i n g ' s e t s of r u l e s about b e h a v i o r ' has c l e a r l y

e s t a b l i s h e d t h a t p o l i t i c a l systems a r e an a c t i v e e x p r e s s i o n of human

consciousness i n t h e e x i s t e n t i a l s e n s e , i . e . t h e p o l i t i c a l system a s a n

i n t e r a c t o r y p r o c e s s i s a p r o j e c t i o n of t h e a c t i v i t i e s and p r a c t i c e s of
39
i n d i v i d u a l s who c o n s c i o u s l y p u r s u e c e r t a i n 'human w a n t s ' . The d e g r e e

of p o l i t i c a l a c t i v i t y i s determined by t h e l e v e l of consciousness o r
 10

p e r c e p t i o n of t h e i n d i v i d u a l s invqlved. And t h e i n t r i n s i c charac-

t e r i s t i c s of t h e ' p o l i t i c a l system' depend l a r g e l y on t h e ' s e t s of r u l e s '

that define particular, p o l i t i c a l roles. The i n d i v i d u a l a c t s i n accord

w i t h t h e s e r u l e s and t h e ' s o c i a l knowledge' h e h a s a t hand. 40 A

' p o l i t i c a l system' i s a c t i v a t e d when a n i n d i v i d u a l , o r group of i n -

d i v i d u a l s , a c t s i n accord w i t h t h a t ' s e t of r u l e s ' which d e f i n e s a

political role. Consequently p o l i t i c a l a n a l y s i s i s d i r e c t e d toward an

examination of t h o s e i n t e r a c t i o n s which a r e an a c t i v e e x p r e s s i o n of

t h o s e ' r u l e s ' which d e f i n e p o l i t i c a l r o l e s i n a s o c i e t y .

I n s p i t e of h i s s t a t e d aim--to c o n s t r u c t a c o n c e p t u a l framework

which w i l l a c t a s an i n s t r u m e n t f o r a n a l y z i n g p o l i t i c a l behavior--

Easton i s unable t o avoid p r e s e n t i n g t h e p o l i t i c a l system a s t h e

'archetype' i n t h e t r a d i t i o n a l sense. He a s s e r t s t h a t '...what dis-

t i n g u i s h e s p o l i t i c a l i n t e r a c t i o n s from a l l o t h e r k i n d s of s o c i a l i n t e r -

a c t i o n s i s t h a t they a r e predominantly o r i e n t e d toward t h e a u t h o r i -

t a t i v e a l l o c a t i o n of v a l u e s f o r a s o c i e t y ' , 4 1 b u t i n doing s o he l i m i t s ,
42
perhaps u n i n t e n t i o n a l l y , t h e scope of p o l i t i c a l a n a l y s i s t o an iden-

t i f i c a t i o n of ' . . . t h e p o l i t i c a l system ...w i t h t h e s t a t e ' . 43 (state, i n

t h i s s e n s e , r e f e r s t o t h e ' i n s t i t u t i o n a l i z e d a s p e c t s of p o l i t i c a l ac-

t i v i t y 144 which a r e an e x p r e s s i o n of 's e t t l e d p o l i t i c a l h a b i t s ' 45).

H.J. S p i r o goes s o f a r a s t o p o i n t o u t t h a t p o l i t i c a l systems 'can. . . b e

s t u d i e d a s systems p r e c i s e l y because t h e y were s e t up t o b e systems'.

46

So, w h i l e E a s t o n ' s c o n c e p t u a l i z a t i o n may o f f e r a means of a n a l y z i n g an

i n h e r e n t c h a r a c t e r i s t i c of ' w i l l e d i n s t i t u t i o n a l a r r a n g e m e n t s ' , i t does

n o t p r o v i d e an e f f e c t i v e a n a l y t i c a l t o o l f o r d e a l i n g w i t h p o l i t i c a l

behavior which e i t h e r o c c u r s o u t s i d e such arrangements, o r i s found i n

 11

s o c i e t i e s i n which such arrangements do n o t e x i s t i n r e a d i l y i d e n t i f i a b l e

forms. Too, i t does n o t r e c o g n i z e t h a t o n l y some a c t i v i t i e s a r e made

t o assume a p o l i t i c a l r e a l i t y and t h a t such a c t i v i t i e s may n o t form a

continuous p r o c e s s which p e r s i s t s through time. The c o n c e p t u a l i z a t i o n

f a i l s t o t a k e i n t o c o n s i d e r a t i o n t h e unique and dynamic c h a r a c t e r i s t i c s

of c e r t a i n p a r t i c u l a r and s p e c i f i c p o l i t i c a l a c t i o n s . It p r e c l u d e s con-

s i d e r a t i o n of ' . . . t h o s e a c t i v i t i e s t h a t a r e undertaken i n o r d e r t o

modify o u r s e t t l e d p o l i t i c a l h a b i t s . . .. t h o s e ' h a b i t s ' which

u s u a l l y f i n d t h e i r e x p r e s s i o n i n t h e form of ' i n s t i t u t i o n a l i z e d arrange-

48
ments' o r ' w i l l e d o r g a n i z a t i o n s ' .

Using t h e c e n t r a l concept of an i n t e r a c t o r y p r o c e s s , B a i l e y h a s

managed t o m a i n t a i n t h e i n d i v i d u a l a s t h e p o i n t of d e p a r t u r e f o r p o l i -

t i c a l analysis. Easton, however, a l t h o u g h i n i t i a l l y advancing t h e

i n d i v i d u a l a s t h e key element of t h e p o l i t i c a l system develops an analy-

t i c a b s t r a c t i o n which s u b o r d i n a t e s t h e i n d i v i d u a l t o t h e system. In

s h o r t , t h e p o l i t i c a l system becomes t h e major u n i t of r e f e r e n c e , r a t h e r

t h a n ' a d e v i c e t o h e l p u s t o understand a d e f i n e d and r e d e f i n a b l e a r e a

of human behavior ' .49 The i n d i v i d u a l a s an ' a c t o r ' i s n o t p u t up f o r

independent s c r u t i n y o r e m p i r i c a l a n a l y s i s ; i n s t e a d , i n d i v i d u a l be-

h a v i o r i s examined i n terms of t h e norms and e x p e c t a t i o n s of a system.

The p r e s u p p o s i t i o n i s t h a t t h e system c l o s e l y d e f i n e s a l l t h e s o c i a l l y

r e l e v a n t b e h a v i o r of t h e 'members' of t h a t system. Political analysis

i s t h u s d i r e c t e d toward an a n a l y s i s of t h e p r o p e r t i e s o r a t t r i b u t e s of

an a b s t r a c t i o n . Whereas t h e 'system' was o r i g i n a l l y construed a s an

a n a l y t i c t o o l t o a i d research i n t o p o l i t i c a l behavior, t h e r e i s l a t e r

imputed t o i t a l i f e of i t s own, i . e . t h e p o l i t i c a l system, a t f i r s t

 12

p r e s e n t e d as a model t o f a c i l i t a t e p o l i t i c a l i n q u i r y , becomes a n t h r o -
I

pornorphized. The p o l i t i c a l p r o c e s s i s d e v e l o p e d a s t h e i n t e r a c t i o n of

a ' s y s t e m ' w i t h i t s environment r a t h e r t h a n t h e i n t e r a c t i o n of i n -

d i v i d u a l s w i t h e a c h o t h e r , and i n d i v i d u a l l y and c o l l e c t i v e l y w i t h t h e i r

environment.

2. F.G. B a i l e y ' s Concept of ' ~ u l e s ' and ' P o l i t i c a l C o m p e t i t i o n '

Holding t o t h e p r o p o s i t i o n t h a t a p o l i t i c a l s t r u c t u r e is a

' s e t of r u l e s ' d e f i n i n g r o l e s and t h a t a p o l i t i c a l s y s t e m i s a c t i v a t e d

when t h i s ' s e t of r u l e s ' i n t e r a c t s w i t h i t s environment B a i l e y e x p l o r e s

t h e p o s s i b i l i t y of examining ' p o l i t i c s as a c o m p e t i t i v e game'. Since

games are by d e f i n i t i o n ' s t a t e m e n t s of r u l e s ' , B a i l e y a r g u e s t h a t t h e

50
p o l i t i c a l p r o c e s s e s of any s o c i e t y a r e a n a l o g o u s t o game p r o c e s s e s .

T h i s means t h a t a n e x a m i n a t i o n of t h e ' p o l i t i c s ' of v a r i o u s s o c i e t i e s ,

t r a d i t i o n a l and modern, w i l l r e v e a l t h e e x i s t e n c e of ' r u l e s ' through

which p o l i t i c a l c o m p e t i t i o n i s r e g u l a t e d and a r t i c u l a t e d . I n a l l cases

i t w i l l b e found t h a t t h e s e ' r u l e s ' d e t e r m i n e t h e c h a r a c t e r of i n d i v i -

d u a l and c o l l e c t i v e c o m p e t i t i v e i n t e r a c t i o n . A p o l i t i c a l system, t h e r e -

f o r e , c o n s t i t u t e s p o l i t i c a l a c t s , c o m p e t i t i v e i n n a t u r e , which p r o c e e d

i n accord w i t h c e r t a i n b a s i c c r i t e r i a , c a l l e d ' r u l e s ' . These ' r u l e s '

are ' n o r m a t i v e l y r e s p e c t a b l e ' i n t h e c u l t u r a l s e n s e i n t h a t t h e y a r e

51
c u l t u r a l l y p r o v i d e d and are i n t e r n a l i z e d by t h e members of a s o c i e t y .

Rules can t h u s b e ' c u l t u r a l l y understood'. T h i s means, a c c o r d i n g t o

Bailey, that:

Beneath t h e c o n t e x t u a l v a r i a t i o n s and c u l t u r a l
d i f f e r e n c e s , p o l i t i c a l b e h a v i o r reveals s t r u c t u r a l
r e g u l a r i t i e s - - e a c h c u l t u r e h a s i t s own set of
r u l e s f o r p o l i t i c a l m a n i p u l a t i o n , i t s own anguage
of p o l i t i c a l wisdom and p o l i t i c a l a c t i o n .
53
and

you have t o l e a r n t h e a p p r o p r i a t e language

and t h e r u l e s of t h e game b e f o r e you can
p l a y e f f e c t i v e l y . 53

Thus, t o t h e e x t e n t t h a t i t f u r n i s h e s a means of d e f i n i n g r o l e s ,

t h e 'set of r u l e s ' a l s o p r o v i d e s a guide f o r p o l i t i c a l b e h a v i o r and

conditions p o l i t i c a l a c t s .

B a i l e y a s s e r t s t h a t by s t u d y i n g p o l i t i c s i n terms of ' r u l e s '

he hopes t o i s o l a t e ' t h e c u l t u r a l idiom i n which they ( p o l i t i c i a n s )

54
a c t e d and d e s c r i b e d and j u s t i f i e d t h e i r a c t i o n s ' . T h i s approach h e

f e e l s w i l l c a s t some l i g h t upon t h e q u e s t i o n of why c e r t a i n a c t s prove

t o b e p o l i t i c a l l y more ' e f f e c t i v e ' than other a c t s .

A t t h e r o o t of B a i l e y ' s t h e o r e t i c a l approach i s t h e premise

t h a t t h e r e e x i s t i n a s o c i e t y ' r u l e s ' which d e l i n e a t e ' n o r m a t i v e l y

a c c e p t a b l e ' l i n e s of b e h a v i o r . These r u l e s c o n s t i t u t e an undeniable

f o r c e o r i n f l u e n c e i n t h e environment of i n d i v i d u a l a c t i o n , i . e . the

i n d i v i d u a l i s c o g n i z a n t of and a c t s i n accord w i t h t h e s e ' r u l e s ' .

Bailey explains t h a t :

Normative r u l e s do n o t p r e s c r i b e a p a r t i c u l a r
k i n d of a c t i o n , b u t r a t h e r s e t broad l i m i t s t o
p o s s i b l e a c t i o n s . 55

and

Normative r u l e s a r e v e r y g e n e r a l guides t o conduct;

they a r e used t o judge p a r t i c u l a r a c t i o n s e t h i c a l l y
r i g h t o r wrong; and w i t h i n a p a r t i c u l a r p o l i t i c a l
s t r u c t u r e t h e y can b e used t o j u s t i f y p u b l i c l y a
c o u r s e of a c t i o n . 56

B a i l e y e x p l a i n s f u r t h e r t h a t , ' p o l i t i c s ' n o t only h a s i t s

1
...p u b l i c f a c e (normative r u l e s ' ..., b u t alsol...its p r i v a t e wisdom
56a
(pragmatic r u l e s ) ' .
 Pragmatic r u l e s a r e s;atements n o t about whether ,

a p a r t i c u l a r l i n e of conduct i s j u s t o r u n j u s t ,
b u t a b o u t whether o r n o t i t w i l l be e f f e c t i v e .
They a r e n o r m a t i v e l y n e u t r a l . They may o p e r a t e
w i t h i n t h e l i m i t s s e t by t h e r u l e s of t h e game:
o r t h e y may n o t . They range from r u l e s of
'gamesmanship1 (how t o win w i t h o u t a c t u a l l y
c h e a t i n g ) t o r u l e s which a d v i s e on how t o win
by c h e a t i n g w i t h o u t being d i s q u a l i f i e d . . . '57
Thus B a i l e y a r g u e s t h a t ' . . . e a c h c u l t u r e h a s i t s own s e t of r u l e s f o r

p o l i t i c a l m a n i p u l a t i o n , i t s own language of p o l i t i c a l wisdom and p o l i -

t i c a l a c t i o n ' . 58 The ' r u l e s ' c o n s t i t u t e a b a s i s f o r l i m i t i n g , and

making e x p l i c i t , t h e scope of a p o l i t i c a l a c t i n terms of i t s p u b l i c

acceptability. The c r i t i c a l f e a t u r e of a ' s e t of r u l e s ' i s t h a t i t

e x p r e s s e s a r e l a t i v e l y d i s t i n c t s e t of v a l u e s f o r p o l i t i c a l c o m p e t i t i o n .

P o l i t i c a l c o m p e t i t i o n , t h e r e f o r e , h i n g e s upon t h e p r e p a r e d n e s s of

c o m p e t i t o r s t o l i m i t t h e i r a c t s t o t h e bounds of what i s c o n s i d e r e d

'acceptable'. The ' r u l e s ' e s t a b l i s h t h e c r u c i a l parameters of p o l i t i c a l

c o m p e t i t i o n by d e f i n i n g t h e i s s u e s a t s t a k e , t h e c h a r a c t e r of t h e

s t r u g g l e , and t h e b a s i s f o r t e r m i n a t i n g t h e s t r u g g l e . I n o t h e r words,

' r u l e s ' p r o v i d e b o t h t h e e s s e n t i a l b a s i s f o r t h e p a t t e r n of c o m p e t i t i v e

p o l i t i c a l i n t e r a c t i o n and t h e means f o r a r g u i n g t h e e t h i c a l v a l i d i t y of

t h e r e a s o n i n g behind a p a r t i c u l a r p o l i t i c a l a c t , and i t s r e s u l t a n t g o a l .

Thus, f o r t h e homos p o l i t i c u s , t h e s e ' r u l e s ' have s t r a t e g i c v a l u e i n

t h a t t h e y can b e u t i l i z e d t o demand s u p p o r t f o r o r t o j u s t i f y a par-

t i c u l a r c o u r s e of a c t i o n a s being s o c i a l l y b e n e f i c i a l o r conducive t o

t h e well-being of s o c i e t y . I n t u r n , an 'opponent1 can be accused of

f o l l o w i n g a c o u r s e of a c t i o n which i s s o c i a l l y harmful o r conducive t o

t h e d i s r u p t i o n of s o c i e t y , and t h e r e b y be p u b l i c l y d i s c r e d i t e d . A

p o l i t i c a l a c t c a n , t h e r e f o r e , b e understood t o b e a unique e x p r e s s i o n
 15

of t h e l o c a l and s p e c i a l v a l u e s of a d i s t i n c t i v e community of people.

I

Consequently, w h i l e a p o l i t i c a l a c t may t e n d t o be e s s e n t i a l l y oppor-

t u n i s t i c , i t i s a p r o j e c t i o n of what t h e homos p o l i t i c u s views t o b e

'socially acceptable'.

B a i l e y ' s c o n c e p t u a l i z a t i o n c r e d i t s t h e i n d i v i d u a l w i t h having a

s u f f i c i e n t amount of i n t e l l i g e n c e t o make t h o s e d e c i s i o n s which w i l l

f a c i l i t a t e t h e accomplishment of a p a r t i c u l a r g o a l . S i n c e 'human wants'

and t h e ' a b i l i t y t o r e o r g a n i z e impulses and r e d i r e c t h a b i t s f 5 ' v a r y

from one i n d i v i d u a l t o a n o t h e r , each i n d i v i d u a l ' s p o l i t i c a l a c t i o n s and

e x p e r i e n c e s w i l l b e d i f f e r e n t from t h o s e of o t h e r s . While i n d i v i d u a l

a c t i v i t i e s o v e r l a p and i n t e r p e n e t r a t e , t h e i n t e r a c t i v e s p h e r e of be-

h a v i o r remains unique, a s do e x p e r i e n c e s . I n t h e c o n t e x t of a c h i e v i n g

p o l i t i c a l g o a l s , B a i l e y assumes t h a t p o l i t i c a l a c t i o n i s r a t i o n a l ,

i.e. t h e i n d i v i d u a l w i l l choose from t h e c o u r s e s of a c t i o n open t o him,

one, which w i l l p e r m i t him t o a t t a i n a p a r t i c u l a r g o a l and, a t t h e same

time, t o m a i n t a i n a p u b l i c l y a c c e p t a b l e image. The homo p o l i t i c u s i s

d i s t i n g u i s h e d by h i s c a p a c i t y t o a n a l y z e a p a r t i c u l a r s i t u a t i o n and t o

choose a c o u r s e of a c t i o n , from among s e v e r a l a l t e r n a t i v e s , which w i l l

f a c i l i t a t e t h e accomplishment of a p a r t i c u l a r g o a l . Through e x p e r i e n c e

t h i s individual is a b l e t o a s s o c i a t e p a r t i c u l a r goals with c e r t a i n a c t s ,

and i s t h u s a b l e t o p i c k out a p a r t i c u l a r c o u r s e of a c t i o n from o t h e r s

and combine and recombine i t on o c c a s i o n w i t h o t h e r a c t i o n s . In this

way t h e p o l i t i c i a n i s a b l e t o choose t h e most adequate and harmonious

c o u r s e of a c t i o n g i v e n t h e s i t u a t i o n and t h e g o a l t o b e achieved.

P o l i t i c a l s u c c e s s depends l a r g e l y upon t h e i n d i v i d u a l ' s a b i l i t y t o

a n a l y z e a c o u r s e of a c t i o n i n terms of i t s f u t u r e r e s u l t s o r consequences
 16

Having decided on a p a r t i c u l a r g o a l t h e i n d i v i d u a l r e l a t e s i t t o i t s
,
environment i n o r d e r t o d e c i d e on a f i n a l a c t i o n . The i n d i v i d u a l ' s

e x p e r i e n c e , knowledge of t h e ' r u l e s ' , and t h e g o a l t o b e pursued, w i l l

determine t h e d i r e c t i o n , n a t u r e , and s u c c e s s of h i s p o l i t i c a l a c t .

B a i l e y does n o t make g e n e r a l assumptions about human moti-

vation. He makes i t q u i t e c l e a r t h a t i t i s n o t h i s aim t o expound upon

t h e q u e s t i o n of human m o t i v a t i o n o r t o o f f e r moral judgments concerning

t h e p o l i t i c a l b e h a v i o r which he d e s c r i b e s i n h i s c a s e s t u d i e s . Addi-

t i o n a l l y , h e w i l l n o t presume t o o f f e r moral e v a l u a t i o n s of t h e g o a l s

or 'prizes' sought by t h e i n d i v i d u a l s concerned. Such c o n s i d e r a t i o n s

a r e n o t demanded by t h e n a t u r e of h i s t h e o r e t i c a l scheme o r t h e prob-

l e m s h e wishes t o d e a l w i t h . With r e g a r d t o normative r u l e s , f o r ex-

ample, h e does n o t b e l i e v e i t would be advantageous t o o f f e r h i s o p i n i o n

about whether o r n o t they might b e t h e ' r e a l r e a s o n s ' f o r a p o l i t i c a l

act. R a t h e r , he p r e f e r s t o a n a l y z e them i n terms of p o l i t i c a l u t i l i t y

w i t h r e g a r d t o t h e accomplishment of g o a l s . He i s p r e p a r e d t o a c c e p t

t h a t '...by and l a r g e statesmen a c t i n t h e i n t e r e s t of what t h e y con-

c e i v e t o b e t h e g e n e r a l good'. '' C l e a r l y , i t i s n o t t h e 'game' i n t h e

s u p e r f i c i a l sense t h a t i n t e r e s t s Bailey, but r a t h e r t h e competitive

a c t s t h a t a r e i n v o l v e d , t h e r u l e s t h a t d e f i n e t h e s e a c t s , and t h e

' c u l t u r a l idiom' w i t h i n which t h e s e a c t s a r e g e n e r a t e d . H i s concern i s

w i t h such c o n s i d e r a t i o n s a s '...how a p o l i t i c i a n ' s s u p p o r t i s eroded;

how, i n a p a r t i c u l a r c u l t u r e , c h a l l e n g e s a r e i s s u e d ; how t h e p r o t a g o n i s t s
61
come t o know one of them h a s won and t h e o t h e r h a s l o s t and s o f o r t h ' .
He e x p l a i n s t h a t : ,

My c e n t r a l s i t u a t i o n i s n o t t h e game (which con-

n o t e s o n l y o r d e r l i n e s s ) nor t h e f i g h t (where no
h o l d s a r e b a r r e d ) b u t c o m p e t i t i o n which, u n l i k e
t h e game, l i e s c l o s e t o t h e edge of anarchy be-
cause t h e c o n t e s t a n t s do n o t ' l a c k a l l convic-
t i o n ' , because, i n o t h e r words, t h e y t h i n k t h a t
62
what i s a t s t a k e i s i m p o r t a n t ' .

The concept of ' s c a r c i t y ' i s an i n t e g r a l p a r t of B a i l e y ' s

theory. I n e v e r y s o c i e t y , h e a r g u e s , p o l i t i c s i s a m a n i f e s t a t i o n of

the competition f o r scarce ' p r i z e s ' . And, 'people compete o n l y because

.
t h e p r i z e s a r e i n s h o r t s u p p l y 1 63 The v a l u e of t h e ' p r i z e ' is in-

t i m a t e l y a s s o c i a t e d w i t h , and i s o l a t e d by, t h e c u l t u r a l p e c u l i a r i t i e s

of t h e s o c i e t y i n which i t e x i s t s .

The p r i z e i s always normatively r e s p e c t a b l e . One

i d e n t i f i e s a p r i z e by s e e i n g what k i n d s of ends
can b e p u b l i c l y proclaimed t o j u s t i f y c o m p e t i t i v e
64
behavior and t o d e n i g r a t e opponents.

The n a t u r e of t h e p r i z e , t h e r e f o r e , and t h e environment which encap-

s u l a t e s i t , w i l l determine t h e v a r i o u s s o r t s of a c t i o n s t h a t could be

used t o a c q u i r e i t . The i n h e r e n c e of a c e r t a i n v a l u e i n a c e r t a i n

g o a l , and t h e r u l e s a s s o c i a t e d w i t h t h e g o a l , w i l l d e f i n e t h e p o l i t i c a l

act. Concomitantly, o n l y when an i n d i v i d u a l becomes i d e n t i f i e d w i t h a

' p r i z e ' through a p u r p o s e f u l a c t does a system become i d e n t i f i a b l e and

t a k e on a p o l i t i c a l meaning. A ' p o l i t i c a l system' can t h u s be under-

s t o o d t o b e a p r o c e s s which comes i n t o e x i s t e n c e when an i n d i v i d u a l o r

c o l l e c t i v i t y a c t s i n such a way a s t o u s e 'normatively a c c e p t a b l e '

t e c h n i q u e s t o a c h i e v e valued o b j e c t i v e s o r g o a l s . The t e c h n i q u e s a r e

d e f i n e d by t h e ' r u l e s ' which e x i s t t o r e g u l a t e p o l i t i c a l behavior.

 18
I

I n d e e d , i t i s f o r t h e r e a s o n s t a t e d above--pronounced cornit-

merits t o p a r t i c u l a r g o a l s - - t h a t 'rules' acquire t h e i r significance.

Without ' r u l e s ' man's s t r u g g l e f o r ' s c a r c e p r i z e s ' would t a k e t h e form

of a f i g h t r a t h e r t h a n a c o m p e t i t i o n o r , t o u s e B a i l e y ' s t e r m i n o l o g y ,

.
a n ' e n c o u n t e r ' r a t h e r t h a n a 'conf r o n t a t i o n ' 65 Bailey explains t h a t ,

'The o r d e r l i n e s s of a c o m p e t i t i o n ...depends upon b o t h s i d e s knowing t h e

rules. . .'66 This i s n o t t o suggest t h a t a l l behavior i s i n accord with

t h e 'set of r u l e s ' found i n a p a r t i c u l a r s o c i e t y . I g n o r a n c e , misunder-

s t a n d i n g and s o f o r t h can c a u s e a n a c c i d e n t a l d e v i a t i o n away f r o m what

a r e c o n s i d e r e d t o b e a c c e p t a b l e c o u r s e s of a c t i o n o r t h e ' . . . r e g u l a r

and a c c e p t e d ways of g e t t i n g t h i n g s done and of p r e v a i l i n g o v e r

others.. .'67 i n addition: 'Sometimes t h e r e may b e a d r i f t away from

t h e n o r m a t i v e r u l e s , a r i s i n g from t h e a c t i o n s of i n d i v i d u a l s , b u t un-

i n t e n d e d by them'. 68 A l s o , from time t o t i m e , a n i n d i v i d u a l may

i n i t i a t e a c o u r s e of a c t i o n w i t h o u t knowing what t h e consequences w i l l

be. Bailey observes t h a t :

I t f o l l o w s t h a t t h e r e c a n b e a l e v e l of under-
s t a n d i n g of how a game o r a c o m p e t i t i o n works,
which may n o t b e known t o t h e p l a y e r s them-
69
selves.

and

C l o s e a n a l y s i s of any s e t of r u l e s w h e t h e r n o r -
m a t i v e o r p r a g m a t i c , may r e v e a l consequences
70
unknown t o t h o s e who p l a y t h e game.

P o l i t i c a l entrepreneurship requires a capacity f o r innovation,

Bailey explains. While p o l i t i c a l a c t s c a n t a k e a v a r i e t y of forms,

depending on t h e ' c u l t u r a l i d i o m ' and t h e ' r u l e s ' involved, Bailey

makes i t q u i t e c l e a r t h a t t h e p o l i t i c a l r e s o u r c e s a v a i l a b l e t o a n
i a r e n o t u n l i m i t e d , and t h u s t h e i n d i v i d u a l must r e l y on h i s
I
fif t o i n v e n t ' . . . n e w s t r a t e g e m s which w i l l throw t h e opponent o f f
i, 71
balance ' . However, h e a l s o p o i n t s o u t t h a t ' . . . r e s o u r c e s expended on

p o l i t i c s s h o u l d n o t exceed a p r o p o r t i o n of t h e s o c i e t y ' s t o t a l r e -
72
sources'. Even though t h e ' . . . e l e m e n t of s e l f - d e s t r u c t i o n i s b u i l t

i n t o any p o i i c i c a i s t r u c t u r e from t h e moment i t d e f i n e s p r i z e s , which

n o t e v e r y o n e can win' , 7 3 t h e 'set of r u l e s ' o r p o l i t i c a l s t r u c t u r e o f f e r s

a means of r e g u l a t i n g p o l i t i c a l c o m p e t i t i o n s o t h a t i t w i l l n o t

r a d i c a l l y change o r d e s t r o y a p a r t i c u l a r s o c i e t y . To a s i g n i f i c a n t

e x t e n t , t h e r e f o r e , c o m p e t i t i o n e v o l v e s i n s u c h a way a s n o t t o r u n

completely counter t o t h e ' r u l e s ' t h a t r e g u l a t e p o l i t i c a l competition.

Whereas a p o l i t i c a l a c t '...may b e a c a l c u l a t e d d e v i a t i o n from t h e

n o r m a t i v e r u l e s of f a i r p l a y ...' 7 4 i t w i l l not conflict with the

' r u l e s ' t o s u c h a n e x t e n t t h a t t h e s o c i e t y , o r human s u r v i v a l i t s e l f ,

i s placed i n jeopardy. This i s n o t t o s a y t h a t Bailey does n o t

r e c o g n i z e t h e ' r e a l p o l i t i c s ' of r e v o l u t i o n s b u t t h a t h i s s t a t e d

i n t e r e s t is t h e '...competition...which l i e s c l o s e t o t h e edge of

anarchy. . . . '15 I n s h o r t , h e a r g u e s t h a t p o l i t i c a l c o m p e t i t o r s have a

common i n t e r e s t i n p r e s e r v i n g t h o s e ' r u l e s ' which r e g u l a t e p o l i t i c a l

c o m p e t i t i o n and t h a t p o l i t i c a l a c t s must be judged i n terms of t h e i r

overall cost t o society.

The s e t of r u l e s which r e g u l a t e p o l i t i c a l com-

p e t i t i o n must f i n d some a d j u s t m e n t w i t h t h e
s e t of r u l e s which r e g u l a t e economic i n t e r -
action, family l i f e , r e l i g i o u s organization,
76
e d u c a t i o n a l o p p o r t u n i t i e s , and s o f o r t h .

B a i l e y o b s e r v e s t h a t , ' I f we s t a n d i n s i d e o n e p o l i t i c a l s t r u c -

t u r e , t h e n i t s environment may i n c l u d e , b e s i d e s economic, r e l i g i o u s and

 20

o t h e r k i n d s of s t r u c t u r e , o t h e r p o l i t i c a l structure^'.^^ Having t h u s

e s t a b l i s h e d t h a t a v a r i e t y of p o l i t i c a l s t r u c t u r e s may e x i s t i n a

s o c i e t y , B a i l e y a r g u e s t h a t some of them may be viewed a s b e i n g

'encapsulated'. By t h i s he means t h a t c e r t a i n p o l i t i c a l s t r u c t u r e s

can b e s e e n t o b e ' . . . p a r t l y independent o f , and p a r t l y r e g u l a t e d by, a

l a r g e r e n c a p s u l a t i n g s t r u c t u r e ' . 78 For t h e e n c a p s u l a t e d s t r u c t u r e t h e

'difficulty' i s t h e same t h a t ' . . . f a c e s a l l political structures:

how t o m a i n t a i n themselves by f i n d i n g adjustment w i t h a changed

79
environment'.

3. Background t o t h e T h e s i s

The s u b r e g i o n a l p l a n of t h e Crowsnest P a s s , prepared by t h e

Oldman River Regional Planning Commission, e x p l a i n s t h a t :

ol he Crowsnest P a s s Area of A l b e r t a i s c o n s t r u e d
a s b e i n g an a r e a extending from Burmis on t h e
e a s t t o t h e A l b e r t a - B r i t i s h Columbia b o r d e r on
t h e w e s t , t h e width i n a north-south d i r e c t i o n
extending from one t o s e v e r a l m i l e s . "

Within t h i s a r e a t h e t h e s i s w i l l make s p e c i f i c r e f e r e n c e t o t h e f o l l o w i n g

communities: t h e Towns of Blairmore and Coleman, t h e V i l l a g e s of Frank

and B e l l e v u e , t h e community of H i l l c r e s t and Improvement D i s t r i c t #5.

A comprehensive h i s t o r y of t h e s e communities i s a v a i l a b l e i n t h e Planning

Commission's s u b r e g i o n a l s t u d y and i n J . Cousins' M.A. thesis titled,

A H i s t o r y of t h e Crow's Nest P a s s .

It i s n e c e s s a r y t o g i v e a b r i e f o u t l i n e of t h e r e s p o n s i b i l i t i e s

of t h r e e government a g e n c i e s which a r e mentioned a t v a r i o u s p o i n t s

throughout t h i s p r e s e n t a t i o n .

Municipal Financing C o r p o r a t i o n and Local A u t h o r i t i e s Board--

At t h e p r e s e n t time t h e Municipal Financing Corporation makes l o a n s t o

A l b e r t a m u n i c i p a l i t i e s on t h e b a s i s of a f i f t y - d o l l a r p e r c a p i t a guide-

line. The Local A u t h o r i t i e s Board i s r e s p o n s i b l e f o r a s c e r t a i n i n g t h e

f i n a n c i a l s i t u a t i o n of a m u n i c i p a l i t y , and, having done s o , makdng a

recommendation t o t h e Municipal Financing Corporation concerning a l o a n

f o r t h a t municipality.

Oldman River Regional Planning Commission--The Commission i s

made up of s e v e r a l r e p r e s e n t a t i v e s from v a r i o u s m u n i c i p a l i t i e s l o c a t e d

i n Southern A l b e r t a . The p r o f e s s i o n a l p l a n n e r s , employed by t h e Com-

m i s s i o n , a r e charged w i t h t h e r e s p o n s i b i l i t y of p r o v i d i n g e x p e r t o p i n i o n

on m a t t e r s of planning f o r t h e m u n i c i p a l i t i e s r e p r e s e n t e d on t h e Com-

mission.

The purpose of t h i s t h e s i s i s t o u s e B a i l e y ' s t h e o r e t i c a l

framework t o a n a l y z e and d e s c r i b e a s e r i e s of d i s c r e e t p o l i t i c a l e v e n t s

t h a t o c c u r r e d i n t h e Crowsnest P a s s . The second c h a p t e r a n a l y z e s t h e

n a t u r e of t h e c o m p e t i t i v e i n t e r a c t i o n t h a t took p l a c e among t h e Crows-

n e s t P a s s communities w i t h r e g a r d t o t h e l o c a t i o n of a r e g i o n a l swimming

pool. To i l l u s t r a t e t h e importance t h a t t h e Crowsnest P a s s communities

a t t a c h t o t h e i r l o c a l autonomy and t h e p o s i t i o n of t h e p r o v i n c i a l

government w i t h r e g a r d t o t h a t a t t a c h m e n t , t h e t h i r d c h a p t e r d e s c r i b e s

and a n a l y z e s t h e p o l i t i c a l p r o c e s s e s involved i n t h e f o r m a t i o n of a

s c h o o l d i v i s i o n i n t h e Crowsnest P a s s , and i n t h e s e l e c t i o n of a s i t e

f o r a composite h i g h s c h o o l . The f o u r t h c h a p t e r o f f e r s an e l a b o r a t i o n

of B a i l e y ' s t h e o r y and d i r e c t s a t t e n t i o n t o t h e r e l a t i o n s h i p between

l o c a l a u t h o r i t i e s and p r i v a t e investment. The conclusion p r o v i d e s an

o v e r a l l a n a l y s i s of why t h e Crowsnest P a s s communities compete w i t h one

a n o t h e r , and t h e g o a l s they a r e t r y i n g t o accomplish; t h e r e l a t i o n s h i p

of senior government authorities and local authorities; and the role of

private enterprise with regard to economic development and growth at

the local level.

Field work was carried out as a part of the Human Resources

Research Council's Urban Studies project. The research techniques used

included extensive interviews with selected individuals. Among the

individuals interviewed were: provincial government civil servants and

M.L.A.'s; local community secretary-treasurers and councillors; local

service directors and co-ordinators; newspaper editors; managers of

private companies; and residents of the Crowsnest Pass area. The pur-

pose of the interviews was to uncover the various political activities

involved in the projects under analysis, and to have elucidated the ex-

planations and attitudes of behavior that individuals ascribed to their

activities. Concurrently, an analysis was made of the correspondence

and written material associated with the public development projects.

With regard to private companies, the written material was limited to

annual reports, budget sheets, and so forth.

 Notes t o Chapter I

1 ) E a s t o n , D . , A Framework f o r P o l i t i c a l A n a l y s i s . P r e n t i c e - H a l l I n c . ,
Englewood C l i f f s , N . J . 1965. p. i x .

2) Young, O.R., Systems of P o l i t i c a l S c i e n c e . P r e n t i c e - H a l l I n c . ,

Englewood C l i f f s , N . J . 1968. p. 3.

3) C h a r l e s w o r t h , J . C . , Contemporary P o l i t i c a l A n a l y s i s . The F r e e
P r e s s , New York. 1967. p. 150.

4) E a s t o n , D . , Varieties o f P o l i t i c a l Theory. P r e n t i c e - H a l l I n c . ,
Englewood C l i f f s , N . J . 1966. p. 141.

5) B a i l e y , F.G., S t r a t e g e m s and S p o i l s . Copp C l a r k , T o r o n t o . 1969.

6) E a s t o n , D . , P o l i t i c a l A n a l y s i s , op. c i t . , p. 35.

7) i b i d . , p. 36.

8) i b i d . , p. 57.

9) E a s t o n , D . , P o l i t i c a l Theory, op. c i t . , p. 144.

10) Easton, D., P o l i t i c a l A n a l y s i s , op. c i t . , p. 57.

11) Easton, D., P o l i t i c a l Theory, op. c i t . , p. 75.

12) Easton, D . , P o l i t i c a l A n a l y s i s , op. c i t . , p. 141.

13) i b i d . , p. 41.

1 4 ) i b i d . , p . 40.

1 5 ) i b i d . , p. 43.

16) Easton, D . , P o l i t i c a l Theory, op. c i t . , p . 144.

- , p.
17) i b i d . 146.

18) Easton, D . , P o l i t i c a l A n a l y s i s , op. c i t . , p. 57.

1 9 ) i b i d . , p. 62.

20) B a i l e y , F.G., S t r a t e g e m s , op. c i t . , p. 10.

21) i b i d . , p. 10.

22) Mead, G.H., Mind, S e l f and S o c i e t y . U n i v e r s i t y o f Chicago P r e s s ,

Chicago. 1967. p. 253.
Dahl, R . , Modem P o l i t i c a l A n a l y s i s . P r e n t i c e - H a l l I n c . , Englewood
Cliffs, N.J. 1963. p. 11.

B a i l e y , F.G., S t r a t e g e m s , op. c i t . , p. 10.

i b i d . , p . 10.

ibid- 3 P* 12.

i b i d . , p. 145.

i b i d . , p. 182.

i b i d . , p. 182.

Charlesworth, J . C . , Contemporary P o l i t i c a l A n a l y s i s , op. c i t . , p. 172.

ibid ., p . 171.

B a i l e y , F.G., S t r a t e g e m s , op. c i t . , p. 11.

ibid. , p. 193.

Easton, D., P o l i t i c a l A n a l y s i s , op. c i t . , p. 59.

Charlesworth, J . C . , Contemporary P o l i t i c a l A n a l y s i s , op. c i t . , p. 172.

B a i l e y , F.G., S t r a t e g e m s , op. c i t . , p. 9.

i b i d . , p. 10.

A.H. Somjee d i r e c t s a t t e n t i o n t o Dewey's argument t h a t 'Human wants

a s e x p r e s s e d by i n d i v i d u a l s . . . a r e i n f a c t t h e p r o d u c t s
of t h e s o c i a l m i l i e u i n which t h e y l i v e and a c t ' .
Somjee, A.H., The P o l i t i c a l Theory of John Dewey.
Teachers C o l l e g e P r e s s , New York. 1968. p. 116.

'Knowledge', Somjee a s s e r t s , ' i s a p r o d u c t of s o c i a l endeavour, b u t

i t i s i n d i v i d u a l s who p u t i t t o f r u i t f u l purposes--
i n d i v i d u a l s d i f f e r i n g i n i n s i g h t , a p t i t u d e and r e s o u r c e -
f u l n e s s . A p p l i c a t i o n of s o c i a l knowledge a t t h e i r hands
consequently y i e l d s d i f f e r m g r e s u l t s ' . i b i d . , p. 157.

E a s t o n , D . , P o l i t i c a l A n a l y s i s , op. c i t . , p. 50.

E a s t o n does p o i n t o u t t h a t a system ' . . . i s a d e v i c e t o h e l p u s t o

u n d e r s t a n d a d e f i n e d and r e d e f i n a b l e a r e a of human be-
h a v i o r , n o t a s t r a i t j a c k e t t o imprison a n a l y s i s per-
manently w i t h i n a preconceived mold o r model. i b i d . ,
p. 67.
 25

43) C h a r l e s w o r t h , J . C . , Contemporary P o l i i i c a l A n a l y s i s , op. c i t . , p. 166.

t
44) Somjee, A.H., The P o l i t i c a l Theory of J o h n Dewey, op. c i t . , p. 122.
1
I 45) i b i d . , p. 123.

46) C h a r l e s w o r t h , J . C . , Contemporary P o l i t i c a l A n a l y s i s-, op. c i t . , p. 167.

47) Somjee, A.H., The P o l i t i c a l Theory of J o h n Dewey, op. c i t . , p. 122.

48) i b i d . , pp. 122-123.

I
!E 49) E a s t o n , D . , P o l i t i c a l A n a l y s i s , op. c i t . , p. 67.

50) B a i l e y , i t must b e n o t e d , i s n o t making r e f e r e n c e t o 'game t h e o r y ' .

t
I 51) B a i l e y , F.G., S t r a t e g e m s , op. c i t . , p. 1 0 .

j 52) i b i d . , p. i x .

i 53) i b i d . , p. 6.

54) i b i d . , p . 54.

55) i b i d . , p . 5.

56) i b i d . , p. 5.

569) i b i d . , p. 5

57) i b i d . , p . 6.

58) i b i d . , p . 6.

59) Somjee, A.H., The P o l i t i c a l Theory of J o h n Dewey, op. c i t . , p. 114.

60) B a i l e y , F.G., S t r a t e g e m s , op. c i t . , p. x i .

61) i b i d . , p. xiii.

62) i b i d . , p. xiii.

63) i b i d . , p . 21.

64) i b i d . , p. 21.

65) i b i d . , p. 94.

66) i b i d . , pp. 115-116.

67) i b i d . , p . x i i i .

68) i b i d . , p. 113.
69) i b i d . , p. 7.

70) w.,p. 8.

71) i b i d . , p. 113.

72) i b i d . , p . 115.

73) i b i d . , p . 1 2 1 .

74) i b i d . , p. 113.

75) i b i d . , p. x i i i .

76) i b i d . , p. 1 4 5 .

77) i b i d . , p. 1 4 5 .

78) i b i d . , p. 12.

79) i b i d . , p. 181.
 CHAPTER I1
I

THE SKIMMING POOL INTRIGUE

Organized i n October of 1967, t h e Crowsnest P a s s R e c r e a t i o n

Board was one of t h e f i r s t r e g i o n a l r e c r e a t i o n boards i n A l b e r t a .

Geographically i t s a r e a of r e s p o n s i b i l i t y e x t e n d s from Burmis,

A l b e r t a , t o t h e B r i t i s h Columbia b o r d e r ; an a r e a of approximately

twenty-six m i l e s i n l e n g t h and one and one-half t o two m i l e s i n

width. T h i s expanse, which i s t h e geographic l o c a t i o n of t h e

Crowsnest P a s s , h a s a p o p u l a t i o n of approximately seven thousand

people who l i v e i n t h e communities of Coleman, Blairmore, Frank,

H i l l c r e s t , Bellevue, and i n t h o s e a r e a s d e f i n e d by t h e S u m i t Lime

Works and Improvement D i s t r i c t #5.

I t was v i s u a l i z e d i n 1967, t h a t r e c r e a t i o n i n t h e 'Pass a r e a

would b e co-ordinated, promoted, and d i r e c t e d by a R e c r e a t i o n D i r e c t o r

and R e c r e a t i o n Board, b o t h o p e r a t i n g i n accordance w i t h t h e R e c r e a t i o n

Development Act. While i t i s c e r t a i n l y t r u e t h a t t h e r e s p o n s i b i l i t i e s

of t h e R e c r e a t i o n D i r e c t o r and Board were and a r e of a r e g i o n a l n a t u r e ,

'.
each i n d i v i d u a l m u n i c i p a l i t y s t i l l m a i n t a i n s i t s r i g h t v i s a v i s

money by-laws. T h e r e f o r e , a l t h o u g h each m u n i c i p a l i t y found i t n e c e s s a r y

t o a g r e e t o a 69$ p e r c a p i t a t a x a t i o n formula i n o r d e r t o o b t a i n a

p r o v i n c i a l g r a n t , major e x p e n d i t u r e s f o r r e g i o n a l r e c r e a t i o n f a c i l i t i e s
1
have t o be passed by each i n d i v i d u a l m u n i c i p a l i t y i n t u r n .

I n o t h e r words, each community a s s o c i a t e d w i t h t h e Crowsnest P a s s

R e c r e a t i o n Board r e t a i n s t h e a u t h o r i t y t o determine t h e d e g r e e
 I

t o which i t i s p r e p a r e d t o co-operate, and t o d e c i d e t h e l i m i t of i t s

f i n a n c i a l commitment. The s i g n i f i c a n c e of t h i s p a r t i c u l a r arrangement

w i l l become c l e a r a s t h e c a s e s t u d y i s developed.

I n 1968 t h e R e c r e a t i o n D i r e c t o r was p r e s s u r e d by a number of

P a s s r e s i d e n t s t o persuade t h e R e c r e a t i o n Board t o p a r t i c i p a t e i n a

s t u d y which would examine t h e p o s s i b i l i t y of b u i l d i n g a swimming

pool f o r t h e 'Pass a r e a . The d e s i r e f o r s u c h a p o o l had a l r e a d y

been c l e a r l y demonstrated by t h e f a c t t h a t s e v e r a l ' p o o l o r g a n i z a t i o n s '

had been formed. Indeed, t h e n o t i o n of b u i l d i n g a swimming p o o l which

would meet t h e needs of t h e ' p a s s communities had a l r e a d y r e c e i v e d

considerable debate before the Director's a r r i v a l . Although h e was

n o t p a r t i c u l a r l y e n t h u s i a s t i c about t h e p r o j e c t , t h e D i r e c t o r d i d

proceed t o a n a l y z e t h e s i t u a t i o n . H i s analysis indicated that the

Coleman swimming p o o l w a s f a r t o o small f o r a swimming program and

t h a t f o r s e v e r a l y e a r s p a r e n t s had been f o r c e d t o d r i v e t h e i r c h i l d r e n

t o P i n c h e r Creek f o r swimming i n s t r u c t i o n . Having concluded t h a t a

l a r g e number of p a r e n t s were v e r y i n t e r e s t e d i n swimming f a c i l i t i e s

f o r t h e i r c h i l d r e n and r e c o g n i z i n g t h a t a t r i p from t h e Crowsnest Pass

t o Pincher Creek involved a d i s t a n c e of t h i r t y m i l e s , t h e R e c r e a t i o n

D i r e c t o r decided t o a s s i s t w i t h t h e proposed p r o j e c t . A t that point

i n time, i t s h o u l d b e n o t e d , t h e D i r e c t o r f e l t t h a t t o a s s i s t , r a t h e r
2
thar, t o assume c o n t r o l , would produce b e t t e r r e s u l t s i n t h e long run.

A s a r e s u l t , h e encouraged n o t o n l y t h e o r g a n i z a t i o n of a R e c r e a t i o n

Board committee, a s a f o r m a l l y c o n s t i t u t e d a u t h o r i t y of t h e Board

t o o v e r s e e t h e p r o g r e s s of t h e proposed p r o j e c t , b u t a l s o t h e f o r m a t i o n
 I

of a ' P a s s Pool P r o j e c t Committee. The l a t t e r o r g a n i z a t i o n was t o be

primarily responsible f o r the co-ordination, s u p e r v i s i o n , and promotion

of a c t i v i t i e s a t t h e community l e v e l . While t h i s o r g a n i z a t i o n was

a c t i v a t e d i n o r d e r t o p r o v i d e a mechanism f o r f a c i l i t a t i n g l o c a l

endeavors, and f o r e x p l o i t i n g a l l a v a i l a b l e r e s o u r c e s , i t was a l s o

an a t t e m p t t o develop a s e n s e of co-operation among t h e v a r i o u d

communities--something which had been l a c k i n g up t o t h a t point--in

a p r o j e c t which would, i f brought t o f r u i t i o n b e of some advantage t o

them a l l . S i g n i f i c a n t l y , t h e committee was only e s t a b l i s h e d a f t e r

innumerable m e e t i n g s , and even t h e n i t was q u e s t i o n a b l e a s t o whether

o r n o t i t would f u n c t i o n e f f e c t i v e l y . Once t h e P r o j e c t Committee

was e s t a b l i s h e d , t h e R e c r e a t i o n Board r e q u e s t e d i t t o r e g u l a r l y

communicate a l l p r o g r e s s t o t h e Board committee, t o make i n f o r m a t i o n

a v a i l a b l e t o t h e r e s i d e n t s of t h e ' p a s s communities through l o c a l

o r g a n i z a t i o n s , and t o d e a l w i t h t h e m a t t e r of fund r a i s i n g . However

d e b a t e concerning t h e proposed swimming p o o l became i n t e n s i f i e d ,

p a r t i c u l a r l y on t h e q u e s t i o n of l o c a t i o n . On March 6 , 1969, s h o r t l y

a f t e r t h e R e c r e a t i o n D i r e c t o r had a r r i v e d i n t h e Crowsnest P a s s , t h e

' P a s s Herald p u b l i s h e d a l e t t e r from a Bellevue r e s i d e n t , which s t a t e d ,

i n part, that: '...the Crowsnest P a s s h a s l i t t l e harmony among t h e towns

when i t comes t o t h e l o c a t i o n of a s c h o o l , a swimming p o o l , o r any-

t h i n g t h a t r e q u i r e s co-operation from a l l towns i n t h e Crowsnest P a s s . '

To e a s e t h e s i t u a t i o n , t h e P r o j e c t Committee was asked t o become

dormant f o r a s h o r t p e r i o d w h i l e t h e R e c r e a t i o n Board committee

 ,
a t t e m p t e d t o f a m i l i a r i z e i t s e l f w i t h t h e v a r i o u s problems t h a t were

a s s o c i a t e d w i t h t h e b u i l d i n g of a r e g i o n a l swimming p o o l f o r t h e

' P a s s communities.

Although t h e d e b a t e continued among t h e communities, by t h e

summer of 1968, t h e R e c r e a t i o n Board had embarked, w i t h o t h e r l o c a l

o r g a n i z a t i o n s , on a n i n t e n s i v e s t u d y of t h e p o s s i b i l i t y of b u i l d i n g

a swimming p o o l . I n J u l y of 1968, t h e f i r s t d o n a t i o n , a sum of t e n

d o l l a r s , was r e c e i v e d by t h e P r o j e c t Committee. During t h e ensuing

months, w h i l e t h e Board committee conducted i t s r e s e a r c h , f u r t h e r

c o n t r i b u t i o n s were made t o t h e p o o l fund. Throughout 1969, enthusiasm

f o r t h e c o n s t r u c t i o n of a p o o l continued t o grow, e s p e c i a l l y among

t h e young. On June 1, 1969, one thousand marchers p a r t i c i p a t e d i n a

'march f o r a swimming pool' and t h i s , t h e D i r e c t o r l a t e r r e p o r t e d ,

'...accomplished a g r e a t d e a l ; f u n d s were r a i s e d f o r t h e p o o l , and i t

gave t h e ' P a s s an o p p o r t u n i t y t o u n i t e a s one and work f o r a common

goal. '
By t h e end of 1969, t h e R e c r e a t i o n Board, having r e c e i v e d

a d v i c e from a f i r m of c o n s u l t i n g e n g i n e e r s , was c o n f i d e n t t h a t t h e

' P a s s a r e a had a l a r g e enough p o p u l a t i o n t o w a r r a n t t h e c o n s t r u c t i o n

of a p o o l and s u f f i c i e n t f i n a n c i a l r e s o u r c e s t o pay f o r i t .

A t a s p e c i a l meeting of t h e R e c r e a t i o n Board, on September

3, 1969, t h e v a r i o u s r e p r e s e n t a t i v e s t o t h e Board from t h e communities

unanimously decided t o proceed w i t h a c o u r s e of a c t i o n which would

3
p r o v i d e f o r t h e b u i l d i n g of a swimming pool. It was agreed t h a t
 31

e a c h c o u n c i l and t a x c o l l e c t i n g a u t h o r i t y i n t h e ' P a s s axea would

b e r e q u e s t e d t o raise t h e i r s h a r e of t h e c a p i t a l c o s t involved. In

a d d i t i o n , i t was a l s o decided t h a t t h e Tmprovement D i s t r i c t would

b e approached t h r o u g h t h e Department of Municipal A f f a i r s f o r a

c o n t r i b u t i o n toward t h e c a p i t a l c o s t . The s t u d y , which had been

u n d e r t a k e n by t h e f i r m of c o n s u l t i n g e n g i n e e r s , i n d i c a t e d t h a t t h e

t o t a l c a p i t a l c o s t f o r t h e swfmming p o o l would b e $154,000.00. It

i s a l s o i m p o r t a n t t o n o t e h e r e t h a t a s i t e i n Blairmore had been

chosen by t h e e n g i n e e r s a s t h e most s u i t a b l e l o c a t i o n f o r t h e pool.

On J a n u a r y 7 , 1970, t h e R e c r e a t i o n Board met w i t h t h e represen-

t a t i v e s of t h e e n g i n e e r i n g f i r m t o e s t a b l i s h procedures f o r a p p o i n t i n g

a c o n s u l t a n t t o s u p e r v i s e t h e c o n s t r u c t i o n of t h e p o o l , and t o p r e p a r e

t h e n e c e s s a r y a d v e r t i s i n g f o r t h e c a l l i n g of t e n d e r s . A t t h i s meeting

t h e D i r e c t o r and one o t h e r member of t h e Board a c c e p t e d t h e r e s p o n s i -

b i l i t y f o r p r e s e n t i n g t o t h e ' P a s s community c o u n c i l s , i n f o r m a t i o n con-

c e r n i n g t h e t y p e , l o c a t i o n and c o s t of t h e p o o l , and t h e p l a n t o b e

followed i n i t s c o n s t r u c t i o n . I n a d d i t i o n , t h e R e c r e a t i o n Board

decided t h a t a news r e l e a s e c o n t a i n i n g g e n e r a l c o s t s , d e c i s i o n s , and

p r o g r e s s r e l a t i n g t o t h e p o o l would b e i s s u e d t h e f o l l o w i n g week. The

Board a l s o d e c i d e d , presumably t o a v o i d o f f e n d i n g any group o r i n d i v i d u a l ,

t h a t a c t u a l c o s t f i g u r e s would n o t b e r e l e a s e d , and t h a t a c o n s u l t i n g

e n g i n e e r would n o t b e employed t o s u p e r v i s e c o n s t r u c t i o n u n t i l a f t e r

p r o p e r p r e s e n t a t i o n s had been made t o t h e community c o u n c i l s .

The c o u n c i l s of Frank and Bellevue gave t h e R e c r e a t i o n Board,

on J a n u a r y 2 8 , 1970, a ' v e r b a l i n d i c a t i o n ' t h a t t h e y were p r e p a r e d t o

s u p p o r t t h e p r o p o s a l t o c o n s t r u c t a swimming p o o l f o r t h e ' P a s s

area. A t t h i s j u n c t u r e , t h e n , s i n c e Blairmore and Coleman had

a l r e a d y approved i n p r i n c i p l e t h e R e c r e a t i o n Board's p r o p o s a l ,

a l l t h e communities had o f f e r e d t h e i r endorsement. The p o s s i b i l i t y

of a c o n t r i b u t i o n from t h e Improvement D i s t r i c t was s t i l l b e i n g

d i s c u s s e d by t h e R e c r e a t i o n D i r e c t o r w i t h t h e Department of Municipal

Affairs. However, i t i s s i g n i f i c a n t t h a t t h e L e t h b r i d g e Herald

r e p o r t e d t h a t Blairmore had '...approved i n p r i n c i p l e t h e proposals

of t h e Crowsnest Pass R e c r e a t i o n Board f o r a swimming p o o l t o b e

b u i l t on t h e Armories s i t e i n west B l a i r m o r e ' , and t h a t t h e c o u n c i l s

of Frank and Bellevue had i n d i c a t e d t h a t ' . . . t h e y a r e i n agreement

w i t h t h e c o n s t r u c t i o n of a swimming p o o l i n t h e ' P a s s ' . These r e p o r t s

would s u g g e s t t h a t , a l t h o u g h t h e c o u n c i l s of each community had had t h e

o p p o r t u n i t y t o submit s i t e s t o t h e c o n s u l t i n g e n g i n e e r s f o r consider-

a t i o n , t h e d e c i s i o n t o l o c a t e t h e p o o l i n Blairmore w a s n o t b e i n g view-

ed w i t h a g r e a t d e a l of f a v o u r by any of t h e c o u n c i l s e x c e p t f o r

Blairmore's. O f e q u a l i n t e r e s t i s t h e f a c t t h a t none of t h e c o u n c i l s

made r e f e r e n c e t o a f i n a n c i a l commitment. So, w h i l e t h e c o u n c i l s were

p r e p a r e d t o convey t h e i r a p p r o v a l s i n p r i n c i p l e , none of them had i n -

d i c a t e d t h e i r w i l l i n g n e s s t o commit f u n d s , and o n l y t h e Blairmore

c o u n c i l had s i g n i f i e d a p p r o v a l f o r t h e s i t e chosen by t h e c o n s u l t i n g

engineers.

The R e c r e a t i o n Board, a t i t s meeting of February 25, a c c e p t e d

t h e D i r e c t o r ' s s u g g e s t i o n t h a t p u b l i c forums should b e h e l d i n each

major l o c a l i t y i n o r d e r t o f a m i l i a r i z e ' P a s s r e s i d e n t s w i t h t h e f a c t s
 33

concerning t h e proposed swimming pool. T h i s recommendation was a n

1

a t t e m p t on t h e p a r t of t h e D i r e c t o r t o o f f e r a method whereby t h e

R e c r e a t i o n Board could s u c c e s s f u l l y d e a l w i t h t h e i n c r e a s i n g number

of c r i t i c i s m s being d i r e c t e d a t t h e p o o l p r o p o s a l .

I t should b e mentioned t h a t t h e S o c i a l C r e d i t M.L.A. for

t h e a r e a informed t h e Board on February 25 of t h e p o s s i b i l i t y of

r e c e i v i n g $43,240.00 from I.D.iI5. He e x p l a i n e d t h a t t h e I . D . ' s

t a x p o r t i o n was a v a i l a b l e i n a fund s e t a s i d e f o r such a development

p r o j e c t a s a swimming pool. However, he p o i n t e d o u t t h a t i t was

up t o t h e p r o p e r t y owners r e s i d i n g i n I.D.i/5 t o d e c i d e whether t h i s

'lump sum' should be committed t o t h e swimming pool. A s a con-

sequence, a P o s t O f f i c e Vote--a m a i l b a l l o t procedure followed by t h e

Department of Municipal A f f a i r s t o f a c i l i t a t e v o t i n g i n Improve-

ment Districts--would b e h e l d on A p r i l 8, 1970.

Having been informed of t h e A p r i l 8 v o t e , t h e R e c r e a t i o n

Board, a t a meeting on March 5 , d e c i d e d t h a t t h e v a r i o u s c o u n c i l s

should hold t h e i r by-law v o t e s on t h e same day. In addition, the

Board decided t o make a l a s t u n i f i e d e f f o r t t o p r e s e n t , t o t h e r a t e -

p a y e r s of t h e 'Pass a r e a , t h e d e t a i l s concerning t h e proposed swimming

pool. However, i t was determined t h a t i n s o f a r a s t h e formal a d v e r t i s i n g

of t h e by-law v o t e s was concerned, each c o u n c i l would b e r e s p o n s i b l e

f o r i t s own. Moreover, p u b l i c meetings would be l e f t t o t h e d i s c r e t i o n

of t h e v a r i o u s towns and v i l l a g e s ; however, t h e d a t e s would be f i n a l i z e d

by t h e Board b e f o r e i t s n e x t meeting.
 34

S h o r t l y a f t e r t h e March m e e t i n g t h e c o u n c i l s of e a c h community
,
d e c i d e d t h a t t h e y would p r e f e r t o h o l d a n ' o p i n i o n v o t e ' b e f o r e g o i n g

ahead w i t h a by-law v o t e . Significantly, the Bellevue council a l s o

d e c i d e d t h a t t h e y would h o l d t h e i r v o t e on A p r i l 1 5 , r a t h e r t h a n on

A p r i l 8. As a r e s u l t , on A p r i l 8 , t h e p o o l p r o p o s a l was p u t t o t h e

voters--except f o r t h o s e r e s i d i n g i n I.D.#5 and t h e V i l l a g e of B e l l e -

vue--in t h e form of a n o p i n i o n p o l l . Following t h e Bellevue v o t e , t h e

f o l l o w i n g r e s u l t s were o f f i c i a l l y p u b l i s h e d : Coleman, 196 i n f a v o u r t o

152 opposed; F r a n k , 36 i n f a v o u r t o 23 opposed; B l a i r m o r e , 360 i n f a v o u r

t o 1 2 7 opposed; I.D.#5, 324 i n f a v o u r t o 85 opposed; and B e l l e v u e , 86

i n f a v o u r t o 182 opposed.

The B e l l e v u e v o t e p u t t h e p o s s i b i l i t y of b u i l d i n g a r e g i o n a l

swimming p o o l i n j e o p a r d y . However, on May 27, t h e D i r e c t o r was

a b l e t o r e p o r t t o t h e Board t h a t a l t h o u g h t h e B e l l e v u e r a t e p a y e r s had

v o t e d a g a i n s t t h e p o o l p r o j e c t , t h e Department of Youth had a d v i s e d

him t h a t t h e r e m a i n i n g communities c o u l d c o n t r i b u t e t h e i r p r o v i n c i a l

r e c r e a t i o n g r a n t s t o t h e p r o p o s e d p o o l , and t h a t t h e I.D.115 c o m i t -

ment was s t i l l a v a i l a b l e . On t h e o t h e r hand, h e e x p l a i n e d f u r t h e r ,

t h e l o s s of B e l l e v u e ' s g r a n t and d e b e n t u r e amounted t o e i g h t e e n

t h o u s a n d d o l l a r s and t h i s would r e q u i r e a n a d j u s t m e n t t o t h e b u d g e t as

o t h e r funds were n o t a v a i l a b l e . Following a d i s c u s s i o n concerning

t h e D i r e c t o r ' s r e p o r t , t h e R e c r e a t i o n Board members a t t e m p t e d t o

d e t e r m i n e why t h e m a j o r i t y of t h e B e l l e v u e r e s i d e n t s had v o t e d a g a i n s t

t h e pool proposal. One of t h e B e l l e v u e r e p r e s e n t a t i v e s s u g g e s t e d

t h a t t h e m a j o r r e a s o n f o r t h e outcome may h a v e been t h a t t h e Recrea-

t i o n D i r e c t o r had n o t a p p o i n t e d d Bellevue r e p r e s e n t a t i v e

a t t h e meeting preceding t h e v o t e t o a r g u e t h e s u p p o r t i n g c a s e .

However, f u r t h e r d i s c u s s i o n r e v e a l e d t h a t t h e D i r e c t o r had made

every a t t e m p t t o do t h i s , b u t t h e r e had been a ' l a c k of communica-

t i o n ' between t h e V i l l a g e , t h e R e c r e a t i o n Board and t h e r e p r e s e n -

t a t i v e s t o t h e Board from Bellevue. The Mayor of Bellevue then

e x p l a i n e d t h a t t h e r a t e p a y e r s had v o t e d a g a i n s t t h e p r o p o s a l because

t h e V i l l a g e was a t t h a t time c o n f r o n t e d w i t h a twenty thousand d o l l a r

r e p a i r j o b t o i t s i c e hockey a r e n a . Furthermore, many r e s i d e n t s f e l t

t h a t t h e V i l l a g e could n o t a f f o r d t o c o n t r i b u t e any more money t o

r e g i o n a l r e c r e a t i o n , i t s commitment a l r e a d y amounting t o 1%mills. At

t h i s p o i n t a n o t h e r member of t h e Board r e q u e s t e d i n f o r m a t i o n con-

c e r n i n g t h e c i r c u l a r l e t t e r which had been s e n t o u t t o t h e Bellevue

r e s i d e n t s by t h e Bellevue Council b e f o r e t h e v o t e had taken p l a c e .

The r e p r e s e n t a t i v e s u g g e s t e d t h a t t h i s p a r t i c u l a r p i e c e of m a t e r i a l

had o n l y mentioned t h e t o t a l c o s t of t h e p o o l , and had n o t g i v e n t h e

d e t a i l s concerning t h e a c t u a l c o s t breakdown. It was decided by t h e

Board t h a t d i s c u s s i o n i n t h i s a r e a would prove t o b e of no v a l u e s i n c e

t h e v o t e had a l r e a d y t a k e n p l a c e .

It was a t t h i s p o i n t t h a t a r e p r e s e n t a t i v e from t h e Department

of Youth informed t h e Board t h a t w i t h t h e Bellevue c o u n c i l ' s a p p r o v a l ,

t h e Department was p r e p a r e d t o p e r m i t t h e c o u n c i l t o u s e i t s p r o v i n c i a l

g r a n t t o c o v e r a p o r t i o n of t h e c o s t of b u i l d i n g t h e new pool. Follow-

i n g t h i s m a t t e r up, t h e Mayor of Bellevue a d v i s e d t h e Board t o p r e s e n t

the p r o p o s a l by l e t t e r t o t h e Bellevue c o u n c i l . A f t e r t h e Mayor's

 36

comment, a Board member observed t h a t i f t h e Bellevue c o u n c i l d i d

indeed a l l o c a t e i t s g r a n t toward t h e c o n s t r u c t i o n of t h e p o o l t h e n

t h e r e s t of t h e d e f i c i t c o u l d b e made up through p u b l i c c o n t r i b u t i o n s
4
and t h e c u t t i n g of c o n s t r u c t i o n c o s t s .

Analysis

As t h e above comments i n d i c a t e , c e r t a i n Bellevue r e s i d e n t s ,

a s s o c i a t e d w i t h t h e R e c r e a t i o n Board a n d / o r h o l d i n g p o s i t i o n s of

a u t h o r i t y i n t h e V i l l a g e , had managed t o i n f l u e n c e a l a r g e number

of r a t e p a y e r s i n Bellevue t o v o t e a g a i n s t t h e proposed p r o j e c t .

The Bellevue c o u n c i l had s u p p o r t e d t h e p o o l p r o p o s a l i n p r i n c i p l e

and had s u b m i t t e d , when r e q u e s t e d , a s i t e t o b e examined by t h e

engineers. The c o u n c i l s ' s u p p o r t , however, had been c a r e f u l l y worded

i n o r d e r t o avoid a f i n a n c i a l commitment t o t h e c o n s t r u c t i o n of a

p o o l i n Blairmore o r , f o r t h a t m a t t e r , i n any l o c a t i o n i n t h e Crowsnest

Pass. So w h i l e t h e c o u n c i l had endorsed t h e p o o l p r o p o s a l t h i s d i d

n o t , i n t h e view of some c o u n c i l l o r s , commit i t t o any f i n a n c i a l

obligation. However, t h e i n d i v i d u a l s who were opposed t o t h e p r o p o s a l

could n o t a f f o r d t o appear t o b e d e l i b e r a t e l y opposed. Therefore, i n

o r d e r t o p r e c l u d e o r r e d u c e t h e p o s s i b i l i t y t h a t t h e m a j o r i t y of r a t e -

payers would s u p p o r t t h e p r o p o s a l , i t became n e c e s s a r y t o t a k e d i s c r e e t

action. Obviously t h e p r e s e n t a t i o n of t h e t o t a l c o s t of t h e p o o l r a t h e r

t h a n t h e r e a d i l y a v a i l a b l e c o s t breakdown was a 'pragmatic' technique

t o persuade v a c i l l a t i n g o r uninformed i n d i v i d u a l s t o v o t e a g a i n s t t h e

pool proposal. A number of r a t e p a y e r s became convinced t h a t t h e y had

t o choose between t h e a r e n a and t h e pool. To them i t was p e r f e c t l y

clear that the Village would be unable to repair the arena if it

became involved in the financing of what in their view was an

extremely expensive pool. As a result they voted against the pro-

posal. Clearly a few astute individuals realized, that given such

a choice, the majority of voters would opt for the arena. The

importance attached to the arena cannot be underestimated. Not

only does it have historical significance for the residents, but

also symbolic value in terms of the community's competitive status

vis k vis other communities. Thus the notion of providing financial

assistance to 'build a pool for Blairmore' was an abhorrent sugges-

tion in the eyes of the majority of residents, at a time when the

Village's own arena required repair.

Over a period of months the relationship between the

Recreation Director and the Bellevue council had slowly deteriorated

as is evidenced by the following excerpt extracted from a letter sent

to the Director by the secretary-treasurer of Bellevue on March 17,

1970:

"I am further instructed by the Council of

the Village of Bellevue, to respectfully
request, that any business you may have
with the Council, as Director of the
Recreation Board, be conducted with the
Village representatives on that Board.
Please govern yourself accordingly."

It seems reasonable to assume that the ~irector's attempts to pro-

mote the swimming pool were viewed by the Bellevue council as a threat to

its own recreational goals. The evidence indicates that the Director

received very little, if any assistance from the council. Since

t h i s c o u n c i l had found i t n e c e s s w y t o obscure c e r t a i n d e t a i l s con-

c e r n i n g t h e p r o p o s a l , i t i s n o t s u r p r i s i n g t h a t i t d i d n o t respond

t o t h e D i r e c t o r ' s s u g g e s t i o n t h a t p u b l i c m e e t i n g s should b e h e l d and

t h a t they should b e properly advertised. The c o u n c i l , needing a

s c a p e g o a t , q u i c k l y blamed t h e l a c k of s u p p o r t f o r t h e p r o p o s a l on

t h e R e c r e a t i o n ~ i r e c t o r ' sincompetence. By c a s t i g a t i n g t h e D i r e c t o r ,

t h e c o u n c i l obviously hoped t o avoid b e i n g accused of c u l p a b i l i t y

i n t h e a c t i v i t i e s t h a t had culminated i n t h e n e g a t i v e v o t e . When i t

was p o i n t e d o u t t h a t t h e D i r e c t o r had t a k e n e v e r y p o s s i b l e measure

t o make t h e V i l l a g e r e s i d e n t s aware of t h e d e t a i l s r e l a t i n g t o t h e

p r o p o s a l , t h e m a t t e r was q u i c k l y dropped.

Presumably, t h e Bellevue c o u n c i l ' s d e c i s i o n t o h o l d i t s

' o p i n i o n v o t e 1 one week a f t e r t h e o t h e r c o u n c i l s h e l d t h e i r s was

a t e c h n i q u e t o slow down t h e p r o g r e s s of t h e p o o l p r o p o s a l and t o

a c q u i r e a d d i t i o n a l time t o persuade r a t e p a y e r s n o t t o v o t e i n f a v o u r

of i t . However i t i s i n t e r e s t i n g t o n o t e t h a t , although t h e c o u n c i l s

had agreed n o t t o r e l e a s e t h e i r r e s u l t s u n t i l such time t h a t a l l t h e

v o t e s had been completed and t h e b a l l o t s counted, t h e towns of B l a i r -

more and Coleman and t h e V i l l a g e of Frank r e l e a s e d t h e i r r e s u l t s

almost immediately. The r e a s o n why t h e s e l a t t e r cormnunities decided

n o t t o a b i d e by t h e o r i g i n a l agreement h a s n o t been determined by t h i s

writer.

It should b e noted t h a t c e r t a i n c o u n c i l l o r s and o t h e r i n d i v i d u a l s

found i t convenient t o e x p l a i n t h a t t h e i r l a c k of s u p p o r t f o r t h e pro-

p o s a l was a product of t h e i r o p i n i o n t h a t t h e o l d a g e p e n s i o n e r s ,
 39
r e s i d e n t i n t h e V i l l a g e a s r a t e p a y e r s , were a l r e a d y under too much
I

financial strain. The s i n c e r i t y of t h i s p a r t i c u l a r argument was high-

l y q u e s t i o n a b l e s i n c e t h e same i n d i v i d u a l s were prepared t o commit a

t o t a l of twenty thousand d o l l a r s t o t h e a r e n a . T h i s l a t t e r com-

mitment, however, had r e c e i v e d t h e f u l l s u p p o r t of t h e i n d i v i d u a l who

was, and s t i l l i s , considered t h e p e n s i o n e r ' s r e p r e s e n t a t i v e on t h e

council. H i s s t r o n g f e e l i n g s concerning i c e hockey and B e l l e v u e , a s

a s e p a r a t e and independent community, a r e well-known i n the area.

I n f a c t h i s a n a l y s i s of t h e p o o l i s s u e persuaded a number of p e n s i o n e r s

t o vote against t h e proposal. While t h e m a j o r i t y of p e n s i o n e r s may

n o t have a t t r i b u t e d t o o much importance t o t h e f i n a n c i a l f a c t o r , t h e y ,

among a c o n s i d e r a b l e number of o t h e r s , were i n f l u e n c e d by t h e argument

t h a t s u p p o r t f o r t h e pool would p l a c e t h e f u t u r e of t h e a r e n a i n jeo-

pardy. It i s c l e a r t h a t t h o s e i n d i v i d u a l s who r e f e r r e d t o t h e

f i n a n c i a l p o s i t i o n of t h e p e n s i o n e r s were merely a t t e m p t i n g t o make

t h e i r p o s i t i o n 'normatively r e s p e c t a b l e ' .

Following t h e d i s c l o s u r e of t h e Bellevue r e s u l t s a s e r i e s of

l e t t e r s was p u b l i s h e d i n t h e Pass Herald. One of them, p u b l i s h e d on

A p r i l 2 2 , 1970, s t a t e d :

'Itemarks have been made t h a t i t was t h e o l d age p e n s i o n e r s

who v o t e d t h e p o o l o u t , I s a y 'hogwash', t h e s e grand
people knew t h a t t h e t a x i n c r e a s e was s o s m a l l t h a t
i t was less t h a n a c a r t o n of c i g a r e t t e s a y e a r . The
w a s t e f u l and t r a g i c l o s s of l i f e by drowning h a s been
p a r t i c u l a r l y heavy i n t h e B e l l e v u e a r e a and a r e v i v i d
i n t h e minds of t h e n o t t o o o l d and e l d e r l y c i t i z e n s .
 40

P u t t h e blame where i t, r e a l l y b e l o n g s , on a few who are

g i f t e d enough w i t h t h e gab t o convince t h e uninformed.
I t ' s t h e squeaking wheel t h a t always g e t s t h e g r e a s e
and t h o s e who were a g a i n s t t h i s p r o j e c t made enough
n o i s e u n t i l they were h e a r d . T h i s was q u i t e e v i d e n t
by t h e v o t e . "

T h i s l e t t e r i l l u s t r a t e s t h a t a t l e a s t one e x p l a n a t i o n provided by

c e r t a i n i n d i v i d u a l s i n B e l l e v u e had n o t been a c c e p t e d by a number of

residents.

A g u e s t , a t t h e l a s t meeting r e f e r r e d t o above, r e q u e s t e d

i n f o r m a t i o n concerning t h e p o s s i b i l i t y of a re-vote. He was informed

by a r e p r e s e n t a t i v e , on t h e one hand, t h a t t h e M.L.A. was p r e p a r i n g

t o make an a t t e m p t t o g e t t h e B e l l e v u e r e s i d e n t s t o g e t h e r f o r t h a t

purpose, and by t h e Mayor, on t h e o t h e r , t h a t p r o v i n c i a l government

l e g i s l a t i o n p r e v e n t e d s u c h a move and t h e r e f o r e i t was u s e l e s s t o

debate t h e issue. The Mayor, a s a c o u n c i l l o r p a r t y t o t h e c i r -

c u l a t i o n of t h e l e t t e r i n t h e V i l l a g e , a p p e a r s t o have t a k e n t h e pre-

c a u t i o n of examining government l e g i s l a t i o n t o d e t e r m i n e whether o r

n o t i t would b e p o s s i b l e t o h o l d a n o t h e r v o t e . From a s t r a t e g i c p o i n t

of view t h e l e g i s l a t i o n was p a r t i c u l a r l y u s e f u l . However, t h e g u e s t

pursued t h e m a t t e r and e n q u i r e d i n t o t h e p o s s i b i l i t y t h a t t h e Bellevue

r a t e p a y e r s could demand a money by-law v o t e . A t t h i s p o i n t one of t h e

r e p r e s e n t a t i v e s , n o t a s s o c i a t e d w i t h t h e V i l l a g e of B e l l e v u e , e x p l a i n e d

t h a t i t would be a complete waste of time t o n e g o t i a t e w i t h t h e V i l l a g e ,

p a r t i c u l a r l y s i n c e i t was c l e a r t h a t t h e rest of t h e communities were

p r e p a r e d t o proceed. The Mayor, a p p a r e n t l y i n an a t t e m p t t o r e t a i n

some i n f l u e n c e o v e r t h e s i t u a t i o n , t h e n s t a t e d t h a t s e v e r a l r e s i d e n t s
 41

had i n d i c a t e d t o him t h a t t h e y were w i l l i n g t o pay d o u b l e t h e i r

I

assessments i n o r d e r t h a t t h e pool could b e b u i l t . He f u r t h e r

argued, i t is important t o note, t h a t t h e H i l l c r e s t arena should be

taken i n t o consideration a s a l o c a t i o n f o r t h e pool. Naturally,

s i n c e H i l l c r e s t i s a community c l o s e l y a s s o c i a t e d w i t h B e l l e v u e , b o t h

s o c i a l l y and g e o g r a p h i c a l l y , t h i s s u g g e s t i o n was a c l e a r a t t e m p t n o t

o n l y t o s t o p t h e p o o l from b e i n g b u i l t i n B l a i r m o r e , b u t a l s o t o

p r o v i d e a ' s o l u t i o n ' which would b e a d v a n t a g e o u s t o B e l l e v u e .

I n r e p l y t o t h e Mayor's s t a t e m e n t , a r e p r e s e n t a t i v e p o i n t e d

o u t t h a t t h e Board had a l r e a d y employed t h e s e r v i c e s of a q u a l i f i e d

e n g i n e e r and h e had d e t e r m i n e d a f t e r t h o r o u g h s t u d y t h a t t h e B l a i r -

more Armories was t h e most s u i t a b l e l o c a t i o n . This p o i n t having been

made c l e a r , a n o t h e r r e p r e s e n t a t i v e s u g g e s t e d t h a t a committee of

t h r e e i n d i v i d u a l s from B e l l e v u e s h o u l d b e o r g a n i z e d and a s k e d t o

promote s u p p o r t f o r t h e p o o l among t h e r a t e p a y e r s of t h e V i l l a g e .

Not l i k i n g t h i s p a r t i c u l a r s u g g e s t i o n , t h e Mayor q u i c k l y a s k e d i f

t h e a d v e r t i s i n g which had accompanied t h e I . D . # 5 ' s b a l l o t s could

h a v e had a n y t h i n g t o do w i t h t h e r e s u l t i n g v o t e i n t h a t area. He

a l s o informed t h e Board t h a t some of t h e I.D.#5 r e s i d e n t s had re-

c e i v e d t h r e e o r more v o t e s . Presumably, by b r i n g i n g i n t o q u e s t i o n

t h e promotion t e c h n i q u e s t h a t had been u s e d i n t h e Improvement D i s -

t r i c t , i n t h i s r a t h e r p e c u l i a r way, t h e Mayor hoped t o p e r s u a d e t h e

Board t o d i s m i s s t h e committee s u g g e s t i o n . O f c o u r s e , h i s comments

c o u l d a l s o h a v e t h e e f f e c t of d i r e c t i n g t h e B o a r d ' s a t t e n t i o n away

f r o m t h e f a c t t h a t t h e B e l l e v u e c o u n c i l ' s b e h a v i o r , up t o t h a t p o i n t ,
could b e viewed a s b e i n g b o t h q u e s t i o n a b l e and somewhat i r r e g u l a r .

But i t was p o i n t e d o u t by t h e R e c r e a t i o n D i r e c t o r t h a t t h e Depart-

ment of Municipal A f f a i r s had t a k e n t h e p r e c a u t i o n of having t h e I.D.

v o t e properly screened. A t t h i s point a Bellevue r e p r e s e n t a t i v e

i n d i c a t e d t h a t he was p r e p a r e d t o form a committee which would

approach non-pensioners f o r p l e d g e s i n s u p p o r t of t h e swimming pool.

I t must b e understood t h a t t h e n a t u r e of t h e competition

between t h e communities i n t h e ' P a s s a r e a i s such t h a t i t p r e c l u d e s

any community-wide s u p p o r t f o r a scheme t h a t might prove t o b e t t e r

t h e p o s i t i o n of any one community. The r e a s o n s f o r t h i s c o m p e t i t i o n

w i l l be analyzed i n t h e c o n c l u s i o n of t h i s t h e s i s . A t t h i s juncture

t h e a n a l y s e s w i l l o n l y d e a l w i t h t h e s t r a t e g y used t o a c h i e v e ' d e s i r e d

goals'. The above a n a l y s i s g i v e s a r e a s o n a b l y c l e a r p r e s e n t a t i o n of

how t h e B e l l e v u e c o u n c i l managed t o ' e f f e c t i v e l y ' d i s s u a d e Bellevue

r e s i d e n t s from s u p p o r t i n g t h e p o o l p r o p o s a l .

----------------

Soon a f t e r t h e r e s u l t of t h e Bellevue c o u n c i l had been d e c l a r e d ,

Coleman C o l l e r i e s L t d . i n d i c a t e d t o t h e R e c r e a t i o n Board t h a t i t was

p r e p a r e d t o make a d o n a t i o n of $8,000.00 toward t h e c o n s t r u c t i o n of

a Crowsnest P a s s swimming pool. The company s t i p u l a t e d t h a t t h e don-

a t i o n would b e g i v e n on t h e b a s i s t h a t a l l t h e communities, i n c l u d i n g

B e l l e v u e , would have t h e p r i v i l e g e of u s i n g t h e pool. A t t h e May

27 meeting of t h e Board, a B e l l e v u e r e p r e s e n t a t i v e announced t h a t

t h e c o u n c i l had decided t o m a i n t a i n i t s p o s i t i o n w i t h r e g a r d t o
 43

c o n t r i b u t i n g t o the c a p i t a l c o s t q f t h e p o o l , however, i t was pre-

pared t o a c c e p t i t s s h a r e of t h e o p e r a t i n g c o s t s . T h i s d e c i s i o n was

o b v i o u s l y a r e s u l t of t h e d o n a t i o n and t h e s t i p u l a t i o n which i t

entailed. The c o u n c i l knew t h a t i t w a s no l o n g e r i n a p o s i t i o n t o

c o n t i n u e i t s r a t h e r c o v e r t a c t i v i t i e s and s t i l l j u s t i f y i t s e l f

publicly. However, i t i s i n t e r e s t i n g t o n o t e t h a t t h e Bellevue c o u n c i l

had n o t found i t n e c e s s a r y t o h o l d a n o t h e r v o t e concerning t h e m a t t e r ,

and had s i m p l y , w i t h o u t r e f e r r a l t o t h e r e s i d e n t s of t h e V i l l a g e ,

decided t o a s s i s t w i t h f u t u r e o p e r a t i o n a l c o s t s . Since a number of

r a t e p a y e r s presumably v o t e d a g a i n s t t h e p r o p o s a l f o r r e a s o n s , o t h e r

t h a n f i n a n c i a l , i t might be argued t h a t t h e c o u n c i l was, i n f a c t ,

obligated t o place the e n t i r e matter again before the ratepayers. In

view of t h e f a c t t h a t c e r t a i n i n d i v i d u a l s had s p e n t a g r e a t d e a l of

time p r e s e n t i n g arguments a g a i n s t t h e p r o p o s a l , i t may b e assumed

t h a t t h e c o u n c i l was n o t e n t i r e l y c o n f i d e n t , even though t h e

C o l l e r i e s had c o n t r i b u t e d $8,000.00, t h a t t h o s e r a t e p a y e r s who had

v o t e d a g a i n s t t h e p r o p o s a l would now be p r e p a r e d t o v o t e i n s u p p o r t .

On t h e o t h e r hand, t h e c o u n c i l may have concluded t h a t t h e r a t e -

p a y e r s would succumb t o p u b l i c p r e s s u r e and v o t e f o r c o n t r i b u t i n g

t o the capital cost. E i t h e r r e s u l t would prove t o b e a n embarrass-

ment f o r t h e c o u n c i l .

A t i t s May 2 7 meeting, t h e R e c r e a t i o n Board was informed by

a r e p r e s e n t a t i v e of t h e new Bellevue committee t h a t t h i s committee had

managed t o o b t a i n pledges from p r o p e r t y owners. I n f a c t , t h e committee

had been r e a s o n a b l y s u c c e s s f u l , r e c e i v i n g i n some i n s t a n c e s pledges of

$2, $5 and $10. This would i n d i c g t e t h a t a number of r e s i d e n t s were

indeed prepared t o s u p p o r t t h e b u i l d i n g of a new p o o l f o r t h e ' P a s s

area. But t h e d e b a t e i n and among t h e v a r i o u s c m u n i t i e s c o n t i n u e d ,

and a v a r i e t y of i n d i v i d u a l s p e r s i s t e d w i t h t h e i r e f f o r t s t o have t h e

proposal defeated. The e d i t o r of t h e Pass Herald s t a t e d i n h i s column

on May 27 t h a t :

"There a r e some p e o p l e i n p u b l i c o f f i c e i n t h i s
b e a u t i f u l v a l l e y who a r e doing e v e r y t h i n g i n
t h e i r power t o buck t h e b u i l d i n g of a community
swimming pool.

I f e e l I am u s i n g a m i l d word when I u s e "buck"

a s an e x p r e s s i o n of t h e i r a c t i v i t i e s . Okay, i f
t h e s e people want t o f r u s t r a t e t h e v o t e of t h e
m a j o r i t y , t h e n I f e e l i t i s my d u t y a s an e d i t o r
t o expose them.

They s a y t h a t i f you g i v e a p e r s o n enough r o p e ,

t h e y w i l l hang themselves. I f e e l some have
had p l e n t y and have managed t o avoid t h e noose
SO f a r . "

The Pass Herald r e p o r t e d on September 2 , 1970, t h a t ,

' p r o v i d i n g e v e r y t h i n g e l s e goes smoothly w i t h t h e by-laws, the

e n g i n e e r s can b e g i n t o draw up t h e f i n a l p a p e r s of s p e c i f i c a t i o n s .

We would b e ready f o r t e n d e r s a t t h e s t a r t of t h e year and swimming

by summer of 1971.' Discord concerning t h e p o o l p r o p o s a l , how-

e v e r , had n o t s u b s i d e d . Although t h e C o l l e r i e s ' c o n t r i b u t i o n had

persuaded t h e Bellevue c o u n c i l t o co-operate, d e b a t e continued

i n t h e Town of Coleman. While t h e c o u n c i l s of Blairmore and Frank

had decided t h a t , because t h e y had s u f f i c i e n t f i n a n c i a l r e s o u r c e s ,

a money by-law was unnecessary, t h e Coleman c o u n c i l announced i t s

i n t e n t i o n t o proceed with one. More than s e v e n t y p e r c e n t of t h e

Coleman r a t e p a y e r s t u r n e d o u t t o v o t e on t h e by-law. The r e s u l t

was extremely c l o s e , t h e t o t a l number of v o t e s c a s t i n f a v o u r of t h e

p r o p o s a l b e i n g o n l y two o r t h r e e v o t e s more t h a n t h e o p p o s i t i o n

total. As a r e s u l t a r e c o u n t was r e q u e s t e d . Two days l a t e r t h e

r e c o u n t was h e l d and t h e A s s i s t a n t Deputy M i n i s t e r of Municipal

A f f a i r s , who had been i n t h e ' P a s s a r e a t o a t t e n d a l o c a l government

s t u d y meeting t h e n i g h t b e f o r e , watched t h e procedure. The o f f i c i a l

r e c o u n t d i s c l o s e d t h a t o u t of 469 v o t e s c a s t , 233 were i n favour of t h e

by-law, 228 v o t e s w e r e a g a i n s t and 8 had been s p o i l e d .

A f t e r t h e Coleman r e c o u n t , i t was g e n e r a l l y f e l t and a n t i -

c i p a t e d i n t h e ' P a s s a r e a t h a t t h e Coleman c o u n c i l would t a k e t h e

n e c e s s a r y a c t i o n t o borrow t h e money r e q u i r e d t o pay i t s s h a r e of

t h e c a p i t a l c o s t of t h e swimming pool. But i t soon came t o l i g h t

t h a t t h r e e Coleman c o u n c i l l o r s were d i s s a t i s f i e d w i t h t h e way i n

whlch t h e by-law had been p r e s e n t e d t o t h e r a t e p a y e r s of Coleman.

I n o r d e r t o f a c i l i t a t e t h e p r e s e n t a t i o n of t h e by-law, one member

of t h e c o u n c i l , who was known t o s u p p o r t t h e p r o p o s a l , a u t h o r i z e d

the secretary-treasurer t o i n i t i a t e by-law procedures. The m a t t e r

was n o t r e f e r r e d t o t h e c o u n c i l a s a whole f o r i t s c o n s i d e r a t i o n .

Having r e c e i v e d t h e o r d e r , t h e s e c r e t a r y - t r e a s u r e r p l a c e d p u b l i c

n o t i c e s i n t h e l o c a l newspaper and made t h e n e c e s s a r y arrangements,

soon a f t e r , f o r t h e v o t e .
 I

Analysis

A t no t i m e , d u r i n g t h e months b e f o r e t h e by-law v o t e , d i d

t h e Coleman c o u n c i l g i v e t h e impression t h a t i t was s i n c e r e l y pre-

pared t o c o - o p e r a t e w i t h t h e o t h e r communities. A t t h e May 2 7

R e c r e a t i o n Board meeting a r e p r e s e n t a t i v e from Coleman i n d i c a t e d

t h a t t h e Town was prepared t o draw up a money by-law, b u t only

a f t e r t h e Board had accepted c e r t a i n amendments t o t h e J o i n t

Agreement. This Agreement had been drawn up a s a c o n t r a c t and out-

l i n e d t h e p r i v i l e g e s and r e s p o n s i b i l i t i e s of t h e v a r i o u s communities.

One c l a u s e was extremely s i g n i f i c a n t a s f a r a s t h e Coleman c o u n c i l

was concerned. It s t a t e d t h a t i f f o r some r e a s o n t h e R e c r e a t i o n

Board was disbanded, t h e Blairmore c o u n c i l would a d m i n i s t e r t h e

p o o l u n t i l a n o t h e r committee c o u l d b e organized. One of t h e Cole-

man amendments o b v i a t e d t h e p o s s i b i l i t y of Blairmore e v e r having

'control' over t h e p o o l f o r any l e n g t h of time. Even though t h e

Coleman c o u n c i l had a p p a r e n t l y decided t o co-operate w i t h t h e pro-

p o s a l , t h e c o m p e t i t i v e f e e l i n g s and d i s t r u s t s t i l l p e r s i s t e d . It

had been d i f f i c u l t enough, and l a t e r proved i m p o s s i b l e , f o r t h e

Coleman c o u n c i l t o a c c e p t t h a t t h e proposed p o o l would b e b u i l t i n

Blairmore. For t h e c o u n c i l t o e n d o r s e an agreement, which appeared

t o p r o v i d e Blairmore w i t h p r o p o r t i o n a t e l y more c o n t r o l over t h e

f i n i s h e d p r o j e c t than Coleman, was o u t of t h e q u e s t i o n . Though i t

was c l e a r t h a t t h e J o i n t Agreement had been phrased and s t r u c t u r e d i n

s u c h a way a s t o p r o v i d e a mechanism whereby t h e d i s c o n t i n u a t i o n of

the R e c r e a t i o n Board would n o t o v e r l y a f f e c t t h e o p e r a t i o n of t h e

p o o l , t h e n o t i o n of a l l o w i n g Blairmore t o have a p r i v i l e g e d p o s i t i o n

f o r any l e n g t h of time was q u i t e u n a c c e p t a b l e t o t h e Coleman c o u n c i l .

Indeed, t h e c o u n c i l was r e l u c t a n t t o a c c e p t any agreement which

even gave t h e impression t h a t Blairmore had more c o n t r o l o r i n f l u e n c e

o v e r t h e f u t u r e p o o l t h a n t h e o t h e r communities. The f a c t t h a t t h e

Coleman c o u n c i l s u g g e s t e d , i n a n o t h e r amendment, t h a t each con-

t r i b u t i n g community s h o u l d have t i t l e t o t h e p o o l p e r i o d i c a l l y i s a

good i n d i c a t i o n of t h e c o u n c i l ' s d e s i r e t h a t none of t h e con-

t r i b u t i n g communities should appear t o have a p r i v i l e g e d p o s i t i o n .

While t h e Coleman c o u n c i l was n o t p r e p a r e d t o a c c e p t a c l a u s e

which allowed f o r t h e p o s s i b i l i t y of Blairmore a d m i n i s t e r i n g t h e

p o o l f o r a c e r t a i n l e n g t h of t i m e , i t was p r e p a r e d t o s u g g e s t

t h a t the t i t l e be rotated. Since t h e Coleman c o u n c i l had made i t

q u i t e e x p l i c i t t h a t c o n t r o l over t h e p o o l should remain w i t h t h e

R e c r e a t i o n Board, o r i f t h i s o r g a n i z a t i o n should c e a s e t o e x i s t ,

w i t h a committee 'composed of one r e p r e s e n t a t i v e from each con-

t r i b u t i n g a u t h o r i t y , ' i t i s r e a s o n a b l e t o assume t h a t one of t h e

r e a s o n s f o r t h e c o u n c i l ' s d e s i r e t o have t i t l e r o t a t i o n was 'appear-

ance'. A d d i t i o n a l l y , t i t l e r o t a t i o n meant t h a t t h e v a r i o u s commun-

i t i e s would r e c e i v e , f o r p e r i o d s of f i v e y e a r s , t h e f r o n t a g e t a x

involved. A s f a r a s water consumption c o s t s were concerned, t h e

Coleman c o u n c i l was prepared t o l e a v e t h i s f i n a n c i a l o b l i g a t i o n

w i t h Blairmore. It can b e argued that t h e Coleman c o u n c i l , having

rather u n w i l l i n g l y accepted t h e Blairmore s i t e , had no i n t e n t i o n of

 48
I

p e r m i t t i n g t h e B l a i r m o r e c o u n c i l t o r e a p any b e n e f i t s t h a t might

a c c r u e t o i t b e c a u s e of t h e p o o l l o c a t i o n . C e r t a i n l y t h e Cole-

man c o u n c i l w a s n o t p r e p a r e d t o a s s i s t w i t h w a t e r consumption c o s t s

even though i t was q u i t e p r e p a r e d t o r e c e i v e t h e f r o n t a g e t a x f o r

p e r i o d s of f i v e y e a r s a t a t i m e .

By S u n e 1, 1370, a t h i r d d r a f t of t h e J o i n t Agreement, con-

t a i n i n g many of t h e amendments proposed by t h e c o u n c i l s of t h e

communities, had b e e n p r e p a r e d and was s u b m i t t e d t o t h e Local

A u t h o r i t i e s Board f o r i t s a p p r o v a l . Having r e c e i v e d t h e Agreement,

t h e L.A.B. r e f e r r e d i t t o t h e Department of M u n i c i p a l A f f a i r s and sub-

s e q u e n t l y t h i s Department i n d i c a t e d t h a t two a g r e e m e n t s would be

required--one c o v e r i n g j o i n t c o n s t r u c t i o n , and one c o v e r i n g j o i n t

operation. On J u n e 30, t h e D i r e c t o r of F i e l d S e r v i c e s e n t two

d r a f t s of t h e . A g r e e m e n t t o t h e R e c r e a t i o n D i r e c t o r , and p o i n t e d

o u t t h a t minor changes had been made by h i s D e p a r t m e n t ' s s o l i c i t o r .

During t h e e n s u i n g weeks, t h e v a r i o u s m u n i c i p a l i t i e s s i g n e d t h e two

agreements a n d , f i n a l l y , on J u l y 23, t h e D i r e c t o r s'ent them b a c k t o

t h e Department of M u n i c i p a l A f f a i r s f u l l y s i g n e d . S e v e r a l months l a t e r ,

a f t e r t h e e v e n t s s u r r o u n d i n g t h e by-law v o t e and t h e A t t o r n e y G e n e r a l ' s

l e t t e r s ( t h e s e w i l l be d e a l t w i t h f u r t h e r on i n t h e a n a l y s i s ) , t h e Mayor

of Coleman v i s i t e d t h e s o l i c i t o r who p r o v i d e s l e g a l s e r v i c e s f o r b o t h

Department of M u n i c i p a l A f f a i r s and t h e L o c a l A u t h o r i t i e s Board. The

Mayor complained t h a t a l t h o u g h B e l l e v u e had n o t c o n t r i b u t e d towards t h e

c a p i t a l c o s t of t h e p o o l , t h e V i l l a g e had been i n c l u d e d i n t h e owner-

s h i p c l a u s e of one agreement. T h i s remark, presumably a n o t h e r a t t e m p t

 49

hy the Mayox t o c a u s e f u r t k e r pxqblems, d i d draw t h e s o l i c i t o r ' s

a t t e n t i o n t o t h e f a c t that t h e r e was an i n c o n s i s t e n c y between t h e

two agreements from a l e g a l v i e w p o i n t . To r e s o l v e t h e m a t t e r , t h e

s o l i c i t o r decided t h a t two more agreements had t o b e p r e p a r e d and

s i g n e d b y t h e communities. I n s o f a r a s t h e o p e r a t i o n of t h e p o o l

was concerned v i s v i s o p e r a t i o n , ownership e t c . , i t r e a l l y d i d

n o t m a t t e r whether o r n o t Bellevue was i n c l u d e d i n t h e ownership

clauses. The Mayor, however, a l t h o u g h presumably being w e l l aware

of t h i s f a c t , d i d n o t f e e l t h a t i t w a s ' f a i r ' f o r Bellevue t o b e

i n c l u d e d i n t h e ownership c l a u s e . While t h e s o l i c i t o r was n o t

concerned w i t h t h e Mayor's o p i n i o n w i t h r e g a r d t o ~ e l l e v u e ' s

i n c l u s i o n , h i s d e c i s i o n concerning t h e i n c o n s i s t e n c y s a t i s f i e d

t h e Mayor's g o a l , i . e . t o have two more agreements p r e p a r e d which

i n t u r n would c a u s e f u r t h e r d e l a y . I n a c t u a l f a c t , i t was n e v e r

assumed o r proposed by t h e R e c r e a t i o n Board t h a t Bellevue should b e

mentioned i n t h e ownership c l a u s e s of t h e two Agreements and t h e r e -

f o r e i t w a s a p p a r e n t t h a t ~ e l l e v u e ' si n c l u s i o n i n t h e c l a u s e

of one agreement was simply a m i s t a k e . I n s o f a r as i t s $8,000.00

c o n t r i b u t i o n was concerned, Coleman C o l l e r i e s had o n l y s t i p u l a t e d

t h a t every m u n i c i p a l i t y s h o u l d c o n t r i b u t e towards t h e o p e r a t i n g c o s t

of t h e p o o l and t h a t e v e r y community should have t h e r i g h t t o u s e

t h e p o o l f a c i l i t i e s , and had n o t s u g g e s t e d t h a t every community should

b e c o n s i d e r e d a p a r t y t o i t s ownership.

The Coleman c o u n c i l ' s d e c i s i o n t o proceed w i t h a money by-

l a w was a manoeuvre t o d e l a y t h e p r o g r e s s of t h e p o o l and, i n

a d d i t i o n , t o f o r e s t a l l t h e p o s s i b i l i t y of c r i t i c i s m and d i s p u t e f o r
 50

impeding the p r o g r e s s of t h e p r o p o s a l . Before t h e Bellevue c o u n c i l ' s

d e c i s i o n t o p a r t i c i p a t e in t h e o p e r a t i n g c o s t of t h e proposed p o o l ,

t h e Coleman c o u n c i l had made i t q u i t e c l e a r t h a t Coleman was prepared

t o f i n a n c e its s h a r e of t h e c a p i t a l c o s t o u t of a v a i l a b l e r e s o u r c e s

and, t h e r e f o r e , a b y l a w was unnecessary. T h i s p o s i t i o n s a t i s f i e d

the ' P a s s r e s i d e n t s t h a t t h e Coleman c o u n c i l was prepared t o go

along w i t h the proposal. A p p a r e n t l y , however, t h e Coleman c o u n c i l

was merely a t t e m p t i n g t o c r e a t e an a c c e p t a b l e p u b l i c image and

had no r e a l i n t e n t i o n of p r o v i d i n g a s h a r e of t h e c a p i t a l c o s t . It

s h o u l d b e mentioned t h a t n o t a l l of t h e c o u n c i l l o r s were opposed

t o the project. I n f a c t t h e c o u n c i l was e v e n l y d i v i d e d on t h e

s u b j e c t , t h r e e c o u n c i l l o r s b e i n g i n f a v o u r of t h e p r o p o s a l a s i t

had been p r e s e n t e d t o t h e ' P a s s , t h r e e opposed, and one a b s t e n t i o n .

Of t h e t h r e e i n o p p o s i t i o n , one was t h e Mayor, one a s c h o o l t e a c h e r ,

and t h e t h i r d t h e owner of t h e o n l y h o t e l s t i l l i n o p e r a t i o n i n

Coleman. Following t h e Bellevue d e c i s i o n , t h e l a t t e r t h r e e

c o u n c i l l o r s d e c i d e d t h a t a by-law was indeed n e c e s s a r y and managed

t o g e t t h e i r way. The n o t i o n of a by-law v o t e obviously had m e r i t

s i n c e t h e procedures l e a d i n g up t o i t would c a u s e enough d e l a y f o r

t h e c o u n c i l l o r s t o a t t e m p t t o convince t h e m a j o r i t y of t h e

Coleman r e s i d e n t s n o t t o s u p p o r t t h e p r o p o s a l .

Having f a i l e d t o 'persuade1--this p e r s u a s i o n took v a r i o u s

forms, b u t probably t h e most i n t e r e s t i n g was a s i g n on t h e h o t e l

window which r e a d , ' F r e e b e e r f o r a l l t h o s e who v o t e Against1--the

t h r e e opposing c o u n c i l l o r s had t o develop an a l t e r n a t i v e s t r a t e g y

t o f o r e s t a l l Coleman's c o n t r i b u t i o n t o t h e c a p i t a l c o s t . On
Noyember 1 8 , 1970, t h e Mayor of Cdleman informed t h i s w r i t e r t h a t

s i n c e t h e by-law had passed by s u c h a s m a l l m a r g i n , h e d i d n o t

f e e l t h a t i t would be r e s p o n s i b l e f o r him and h i s c o u n c i l t o proceed

t o i s s u e a debenture. However t h e Mayor could n o t a r g u e t h i s

p a r t i c u l a r c o n t e n t i o n p u b l i c l y w i t h o u t t h e r i s k of provoking wide-

spread c r i t i c i s m . To avoid g e n e r a t i n g such c r i t i c i s m and s t i l l

impede t h e p r o g r e s s of t h e p r o p o s a l , t h e Mayor d e c i d e d t o r e q u e s t

l e g a l a d v i c e from t h e Attorney G e n e r a l ' s Department concerning

t h e money by-law v o t e . He p o i n t e d o u t i n h i s l e t t e r t h a t on March

1 0 , 1970, t h e Coleman c o u n c i l had given t h e by-law i t s f i r s t r e a d i n g

and t h e n l a t e r , on A p r i l 8, had h e l d an o p i n i o n p o l l t o d i s c o v e r

whether o r n o t t h e ' r a t e p a y e r s of Coleman were i n f a v o u r of t h e Town

of Coleman p a r t i c i p a t i n g i n t h e c o n s t r u c t i o n of a swimming p o o l

i n Blairmore'. Although t h e l a t t e r s e n t e n c e i s n o t p a r t i c u l a r l y

s i g n i f i c a n t from a l e g a l p o i n t of view, i t i s i n t e r e s t i n g t o

n o t e t h a t t h e Mayor made s p e c i f i c r e f e r e n c e t o t h e f a c t t h a t t h e

p o o l would b e c o n s t r u c t e d i n Blairmore and a p p a r e n t l y found no

r e a s o n t o i n d i c a t e t h a t i t would p r o v i d e a s e r v i c e f o r a l l t h e

communities i n t h e ' P a s s a r e a . This would s u g g e s t t h a t i n s o f a r a s t h e

Mayor was concerned, t h e r e a l i s s u e was t h e proposed p o o l ' s l o c a t i o n .

The m e a s u r e s t a k e n t o s e l e c t a s i t e were q u i t e i r r e l e v a n t , t h e

u l t i m a t e d e c i s i o n b e i n g of f a r more concern. In h i s l e t t e r t o

t h e A t t o r n e y General, t h e Mayor observed, among o t h e r t h i n g s ,

t h a t t h e c o u n c i l had n o t consented t o t h e by-law v o t e ; t h e by-

law had n o t been a d v e r t i s e d p r o p e r l y ; and t h e by-law had n o t been

 52

s u b m i t t e d t o t h e Local A u t h o r i t i e s Board f o r approval.

I

In r e p l y t o the Mayor, t h e A t t o r n e y General s t a t e d t h a t

h e had o b t a i n e d t h e o p i n i o n of t h e D i r e c t o r of C i v i l Law and

t h a t , a s a consequence, i t was t h e o p i n i o n of h i s o f f i c e , t o which

h e concurred, that t h e by-law was i l l e g a l and of no f o r c e because

i t had n o t r e c e i v e d ' t h e a p p r o v a l of t h e Local A u t h o r i t i e s Board

a s i s r e q u i r e d by S e c t i o n 311 of t h e Municipal Government A c t . '

That t h e A t t o r n e y General decided t o g i v e t h e Mayor and h i s

c o u n c i l l e g a l a d v i c e i s worthy of comment, s i n c e h i s d e p a r t m e n t ' s

r e s p o n s i b i l i t y is o n l y t o p r o v i d e l e g a l s e r v i c e s t o t h e government

and t h e v a r i o u s d e p a r t m e n t s , and t o s u p e r i n t e n d t h e a d m i n i s t r a t i o n

of j u s t i c e w i t h i n t h e province. Taking t h i s i n t o c o n s i d e r a t i o n one

might s u g g e s t t h a t t h e Attorney General s h o u l d have a d v i s e d t h e

Mayor t o r e f e r t h e e n t i r e m a t t e r t o t h e Local A u t h o r i t i e s Board.

T h i s t h e Mayor was h a r d l y l i k e l y t o do, s i n c e a p p r o v a l from t h e L.A.

B. would have r e q u i r e d Coleman t o t a k e up i t s s h a r e of t h e c a p i t a l

cost. The Mayor was c l e a r l y more i n t e r e s t e d i n having t h e by-law

d e c l a r e d i l l e g a l and on t h i s p o i n t t h e Attorney G e n e r a l ' s o f f i c e

proved o b l i g i n g . During c o n v e r s a t i o n s w i t h i n d i v i d u a l s i n Edmonton

t h i s w r i t e r l e a r n e d t h a t i t i s u n u s u a l and, i n t h e o p i n i o n of some,

improper o r i n j u r i o u s f o r t h e Attorney ~ e n e r a l kDepartment t o

provide l e g a l advice t o municipalities. A c i v i l servant expressed

t h e o p i n i o n t h a t because t h i s y e a r i s an e l e c t i o n y e a r , t h e Attorney

General h a s i n s t r u c t e d h i s s o l i c i t o r s t o o f f e r a s s i s t a n c e n o t only t o

municipalities, but a l s o t o individuals. This present p o l i c y has

been exemplified b y t h e Departmeqt's w i l l i n g n e s s t o o f f e r l e g a l

a d v i c e t o t h e Town of Coleman. So, a l t h o u g h t h e m a j o r i t y of t h e

Coleman r a t e p a y e r s , who v o t e d , s u p p o r t e d t h e money b y l a w , t h e

Mayor and two of h i s c o u n c i l l o r s were a b l e t o d e l a y t h e p r o g r e s s

of t h e p o o l by u t i l i z i n g t h e s e r v i c e s of the A t t o r n e y G e n e r a l ' s

Department. It was v e r y convenient t o t h e Mayor and his two

c o l l e a g u e s t o have t h e by-law d e c l a r e d i l l e g a l . The A t t o r n e y

G e n e r a l ' s d e c i s i o n provided v i n d i c a t i o n of t h e i r p o s i t i o n concerning

t h e by-law and, i n a d d i t i o n , provided a d d i t i o n a l time f o r them t o

proceed t o a r g u e t h a t t h e i r o p p o s i t i o n t o t h e p r o p o s a l w a s a product

of sound r e a s o n i n g .

The h o t e l owner, d u r i n g h i s campaign f o r a s e a t on t h e Crows-

n e s t Pass s c h o o l b o a r d , p o i n t e d o u t i n a n a p p e a l f o r s u p p o r t , p u b l i s h e d

i n t h e P a s s Herald on December 2 , 1970, t h a t :

"1t h a s been brought t o my knowledge t h a t

many people i n t h i s a r e a f e e l t h a t I was
n o t i n f a v o u r towards t h e swimming p o o l
i s s u e , b u t t h i s i s n o t t r u e . I would
l i k e t o s e e an indoor swimming p o o l
c o n s t r u c t e d a t t h e s i t e of t h e new
Crowsnest Pass School where i t belongs."

This c o u n c i l l o r r e a l i z e d t h a t , i n o r d e r t o g e t s u p p o r t from t h e

v o t e r s , i t w a s n e c e s s a r y t o s t a t e t h a t h e was n o t opposed t o t h e

b u i l d i n g of a p o o l i n p r i n c i p l e , b u t f e l t r a t h e r t h a t i t s h o u l d

b e b u i l d a d j a c e n t t o t h e new h i g h s c h o o l . T h i s o p i n i o n , which

c o n v e n i e n t l y i g n o r e d t h e f a c t t h a t t h e e n g i n e e r s had chosen t h e

Blairmore s i t e f o r geographic and p o p u l a t i o n r e a s o n s , was a n

a t t e m p t t o c o n v i n c e Coleman r e s i d e n t s t h a t t h e o b s t r u c t i o n i s t

t a c t i c s t h a t had been used up t o t h a t p o i n t were m e r e l y a t t e m p t s

t o have t h e p o o l p r o p e r l y l o c a t e d . Of c o u r s e , as h a s b e e n p o i n t e d

o u t , t h e t h r e e Coleman c o u n c i l l o r s were p r i m a r i l y i n t e r e s t e d i n

p r e v e n t i n g t h e p o o l from b e i n g b u i l t i n B l a i r m o r e . The s u i t a b i l i t y

of t h e h i g h s c h o o l s i t e was of l i t t l e s i g n i f i c a n c e , i t s main

a t t r i b u t e b e i n g , i n t h e minds of t h e c o u n c i l l o r s , t h a t i t was much

c l o s e r t o Coleman t h a n B l a i r m o r e . Nevertheless the councillors

c o n t i n u e d t o j u s t i f y t h e i r d e l a y i n g t a c t i c s by making r e f e r e n c e t o

t h i s site. S i n c e t h e h o t e l owner was d e f e a t e d i n h i s a t t e m p t t o

o b t a i n a s c h o o l board s e a t , i t a p p e a r s t h a t t h e m a j o r i t y of Cole-

man v o t e r s w e r e n o t s a t i s f i e d w i t h h i s a c t i v i t i e s up t o t h a t p o i n t .

T h i s i s n o t t o s a y t h a t t h e Mayor and h i s two c o u n c i l l o r s were n o t

h a v i n g some s u c c e s s i n c o n v i n c i n g p e o p l e t h a t t h e p o o l s h o u l d r e a L l y

be b u i l t a t t h e h i g h s c h o o l s i t e . I n a d d i t i o n , t h e Nayor had managed

t o c o n v i n c e t h e Coleman r e p r e s e n t a t i v e of t h e o l d a g e p e n s i o n e r s t h a t

Coleman's s h a r e of t h e c a p i t a l c o s t w a s s o h i g h t h a t t h e p e n s i o n e r s

would s u f f e r a d v e r s e l y . T h i s r e p r e s e n t a t i v e i n t u r n convinced h i s own

p e o p l e t h a t t h e y had b e t t e r v o t e a g a i n s t t h e by-law. I n o t h e r words,

t h e %yor was making, d u r i n g t h e d e l a y s h e and h i s two c o l l e a g u e s

c r e a t e d , e v e r y a t t e m p t t o a c q u i r e enough v o t e s t o d e f e a t t h e money

by-law when i t was p r e s e n t e d t o t h e Town f o r t h e second time. He

a l s o hoped t h a t by c a u s i n g d e l a y s h e would f o r c e t h e o t h e r communities

i n t o considering t h e high school s i t e . H i s representations t o the

pensioners were only a ploy t o g e t t h e i r n e g a t i v e v o t e . If t h e high

 55

s c h o o l s i t e was chosen t h e n t h e c p s t f a c t o r would immediately l o s e

significance. On t h e o t h e r hand, i f h e f a i l e d t o a c h i e v e this l a t t e r

g o a l t h e n h e was l e f t w i t h o n l y one o t h e r c o u r s e of a c t i o n , i . e . to

s t o p t h e p o o l from b e i n g b u i l t a t a l l . Having achieved t h i s h e would

presumably j u s t i f y his p o s i t i o n by r e f e r r i n g t o t h e a t t r i b u t e s of

t h e h i g h s c h o o l s i t e and i t s advantages o v e r t h e Blairmore s i t e .

And h i s e x p r e s s e d concern f o r t h e o l d age p e n s i o n e r s would g i v e added

credence t o t h e ' r e s p e c t a b i l i t y ' of t h e p o s i t i o n t h a t h e and h i s

two c o u n c i l l o r s h e l d .

In February 1971, t h e R e c r e a t i o n D i r e c t o r managed t o o b t a i n ,

a f t e r months of d i f f i c u l t y , two J o i n t Agreements, and a by-law

f o r each of t h e v a r i o u s communities t o s i g n . The Blairmore c o u n c i l

s i g n e d t h e document immediately and s h o r t l y t h e r e a f t e r t h e Recrea-

t i o n D i r e c t o r r e q u e s t e d t h e Coleman c o u n c i l t o do t h e same. How-

e v e r t h e Coleman c o u n c i l decided t h a t i t could n o t p o s s i b l y s i g n

Agreements which had n o t r e c e i v e d o f f i c i a l r a t i f i c a t i o n from t h e

s o l i c i t o r of t h e Local A u t h o r i t i e s Board. I n o r d e r t o o b t a i n such

r a t i f i c a t i o n , t h e D i r e c t o r s e n t a copy of t h e by-law t o t h e s o l i c i t o r

i n Edmonton. Within a v e r y s h o r t time t h e D i r e c t o r r e c e i v e d a

phone c a l l from a r e p r e s e n t a t i v e of t h e L.A.B. and was a d v i s e d t h a t

t h e by-law would have t o b e changed and t h a t a r e v i s e d v e r s i o n would

b e p r e p a r e d by t h e s o l i c i t o r and mailed t o t h e D i r e c t o r a s soon a s

possible. Thus t h e D i r e c t o r was nolJ i n t h e p o s i t i o n of having t o

go back t o t h e Blairmore c o u n c i l and i n d i c a t e t h a t t h e by-law,

 56
I

which they had passed and s i g n e d , had been changed by t h e s o l i c i t o r .

A s a r e s u l t t h e Blairmore c o u n c i l had t o p a s s a new by-law and s i g n

two new J o i n t Agreements, s i n c e t h e d a t e s on t h e s e l a t t e r documents

would have t o correspond w i t h t h e passage of t h e by-law. olem man's

demand f o r r a t i f i c a t i o n , which had been e s s e n t i a l l y a n o t h e r a t t e m p t

t o d e l a y t h e p r o g r e s s of t h e swimming p o o l p r o p o s a l , had, i n

f a c t , proved t o b e worthwhile f o r everybody concerned. However

t h e t h r e e c o u n c i l l o r s , who opposed t h e p o o l , now decided t h a t i t

w a s n e c e s s a r y , i n o r d e r t o e n s u r e t h a t no councillor--one was

a b s e n t from t h i s meeting--would b e denied t h e o p p o r t u n i t y t o

v o t e on t h e by-law because of i l l n e s s e t c . , t o g i v e t h e by-law

r e a d i n g s a t two s e p a r a t e c o u n c i l meetings i . e . t h e f i r s t two

r e a d i n g s a t one meeting and t h e t h i r d r e a d i n g a t t h e f o l l o w i n g

meeting. While t h e l e g i s l a t i o n does n o t r e q u i r e t h a t t h e r e a d i n g s

should b e h e l d a t two s e p a r a t e meetings, i t i s t h e p r e r o g a t i v e of

a c o u n c i l t o f o l l o w such a procedure i f i t s o d e s i r e s . Blairmore

gave t h e by-law a l l t h r e e r e a d i n g s a t one meeting. It i s probably

n o t n e c e s s a r y t o p o i n t o u t t h a t c e r t a i n of t h e c o u n c i l l o r s were

f u l l y aware t h a t t h e d e c i s i o n t o d e a l w i t h t h e by-law i n t h i s

f a s h i o n would cause a t l e a s t a one month d e l a y i n proceedings.

A t t h i s same meeting, t h e c o u n c i l decided n o t t o send t h e twenty-

f i v e d o l l a r f e e , r e q u i r e d by t h e L.A.B. f o r f i l i n g a by-law,

u n t i l t h e L.A.B. had o f f i c i a l l y r e q u e s t e d i t . Notably t h i s c o u n c i l

h a s , from time t o time, r e q u e s t e d a p p r o v a l from t h e L.A.B. on

 57

o t h e r by-laws, and i s t h e r e f o r e f u l l y cognizant of t h e f a c t t h a t such

I

a f e e is required. The c o u n c i l ' s new p o s i t i o n on t h e m a t t e r w a s s t i l l

another attempt t o delay progress. Being aware of t h i s p a r t i c u l a r

s i t u a t i o n , t h e D i r e c t o r informed a r e p r e s e n t a t i v e of t h e Local Authori-

t i e s Board who immediately wrote a l e t t e r t o t h e Town O f f i c e i n

Coleman which w a s r e c e i v e d on March 1, 1971.

The D i r e c t o r ' s a t t e m p t s t o encourage t h e Coleman c o u n c i l

t o h a s t e n i t s a c t i v i t i e s caused one of t h e c o u n c i l l o r s , t h e h o t e l

owner, t o a c c u s e him of being 'pushy, pushy, pushy'. At a later

d a t e t h e c o u n c i l l o r e x p l a i n e d t o t h i s w r i t e r t h a t t h e r e a s o n why

t h e Coleman c o u n c i l had been s o c a r e f u l w i t h by-law procedures

w a s t h a t t h e R e c r e a t i o n D i r e c t o r w a s 'pushy, young, and incompetent'.

It soon became a p p a r e n t t h a t t h i s p a r t i c u l a r e s t i m a t i o n of t h e D i r e c t o r

had been c i r c u l a t e d throughout t h e ' P a s s communities. Generally

s p e a k i n g , i t had n o t been accepted a s an o p i n i o n worthy of con-

s i d e r a t i o n ; however, i t can be i n t e r p r e t e d t h a t t h e t h r e e c o u n c i l l o r s

i n Coleman and o t h e r s were a t t e m p t i n g t o p l a c e r e s p o n s i b i l i t y f o r

c e r t a i n of t h e i r a c t i v i t i e s on t h e R e c r e a t i o n D i r e c t o r .

I n f a c t t h e evidence s u g g e s t s t h a t t h e a c t i v i t i e s and views

of c e r t a i n i n d i v i d u a l s r e s i d e n t i n Coleman had n o t gone unnoticed

by t h o s e who were i n f a v o u r of t h e p o o l p r o p o s a l . The P a s s Herald

p u b l i s h e d , on October 7 , 1970, an a d v e r t i s e m e n t t i t l e d 'To t h e r a t e -

payers--Town of Coleman', which had been sponsored by a group of

people who r e f e r r e d t o themselves as ' p e o p l e who c a r e ' . The adver-

tiseslent s t a t e d t h a t ; ,
I1
There a p p e a r s t o have been c o n s i d e r a b l e
m i s r e p r e s e n t a t i o n on i n f o r m a t i o n about
t h e proposed swfmming p o o l . For t h e
b e n e f i t of t h e r a t e p a y e r s of Coleman,
t h e f a c t s a s t h e y r e l a t e t o Coleman
a r e a s follows.. .I1

A s w e l l a s providing information p e r t a i n i n g t o c o s t , t h e advertise-

ment a l s o i n c l u d e d p a r t i c u l a r s concerning t h e forthcoming money by-

law v o t e and ended b y s u g g e s t i n g t h a t 'The ' p a s s w i l l b e a b e t t e r

p l a c e t o l i v e i f we have a p o o l - regardless of where i t i s l o c a t e d . '

D e s p i t e t h e p r e p a r a t i o n f o r t h e money by-law v o t e and t h e a d d i t i o n a l

a s s i s t a n c e provided by ' i n t e r e s t e d c i t i z e n s ' , and t h e f a c t t h a t t h e

m a j o r i t y of t h e r a t e p a y e r s i n Coleman who v o t e d were i n f a v o u r of

t h e p r o p o s a l , t h e Mayor and two c o u n c i l l o r s managed, a s h a s been

p o i n t e d o u t , t o e f f e c t i v e l y s t a l l t h e p r o g r e s s of t h e p o o l p r o p o s a l .

I n an a t t e m p t t o g i v e a r e a s o n f o r t h e i r o p p o s i t i o n t o t h e

p o o l p r o p o s a l , t h e Mayor and one of h i s c o u n c i l l o r s e x p l a i n e d t o t h i s

w r i t e r t h a t Blairmore had r e f u s e d t o a c c e p t t h e Coleman c o u n c i l ' s

o f f e r of an o l d s c h o o l b u i l d i n g f o r t h e l o c a t i o n of t h e pool. The

u t i l i z a t i o n of t h i s b u i l d i n g , t h e y e x p l a i n e d , would have reduced

t h e c o s t of t h e p o o l from $154,000.00 t o $50,000.00. It would

a l s o have provided a cover f o r i t . The Mayor went on t o o b s e r v e

t h a t w h i l e t h e Town of Coleman makes an e x t e n s i v e c o n t r i b u t i o n t o

t h e ' p a s s a s a whole, Coleman C o l l e r i e s p r o v i d i n g a l a r g e number of

j o b s , t h e town i t s e l f r e c e i v e s v e r y l i t t l e c o n s i d e r a t i o n i n r e t u r n
5
from t h e o t h e r ' P a s s communities.
 59
Notes t o Chapter I1

1 ) The c o u n c i l of a m u n i c i p a l i t y ' m a y , 'by by-law l e v y a s p e c i a l t a x

on a l l p r o p e r t y w i t h i n a r e c r e a t i o n a r e a e s t a b l i s h e d by
by-law o r i n c l u d e d i n a j o i n t program t h a t a p p e a r s on
t h e assessment r o l e of t h e m u n i c i p a l i t i e s ' . And ' t h e
c o u n c i l may p a s s t h e by-law u n l e s s a p e t i t i o n i s r e -
c e i v e d w i t h i n 30 days of t h e d a t e when t h e n o t i c e of t h e
by-law was p u b l i s h e d i n t h e newspaper from 1 0 p e r c e n t
of t h e p r o p r i e t a r y e l e c t o r s who r e s i d e i n t h e r e c r e -
a t i o n a r e a a s k i n g t h a t t h e by-law be submitted t o a v o t e
of t h e p r o p r i e t a r y e l e c t o r s who r e s i d e i n t h e r e c r e -
a t i o n a r e a ' . And ' i f a p e t i t i o n i s r e c e i v e d a s k i n g t h a t
t h e by-law be submitted t o a v o t e , t h e by-law s h a l l be
s u b m i t t e d t o a v o t e of t h e p r o p r i e t a r y e l e c t o r s who re-
s i d e i n t h e r e c r e a t i o n a r e a and s h a l l n o t be passed by
t h e c o u n c i l u n t i l i t h a s been approved by a m a j o r i t y of
t h e p r o p r i e t a r y e l e c t o r s voting thereon'.

2) To a s s i s t r a t h e r t h a n t o c o n t r o l was t h e major p r i n c i p l e behind t h e

n o t i o n of r e g i o n a l r e c r e a t i o n development a s propounded
by t h e p r o v i n c i a l government.

3 ) Number of r e p r e s e n t a t i v e s from each community: Coleman--2;

Blairmore--2; Frank--1; Bellevue--2; I.D.#5--2.

4) The agreement n e g o t i a t e d between t h e Crowsnest P a s s communities and

t h e p r o v i n c i a l government provided f o r a government
g r a n t of $12,000.00 p e r y e a r f o r t h r e e y e a r s . The
l o c a l governments a c c o r d i n g t o t h e agreement were
r e s p o n s i b l e f o r t a x i n g t h e r e s i d e n t s t o a maximum of
6 9 ~ p e r c a p i t a f o r t h o s e t h r e e y e a r s . For t h e f i r s t
y e a r t h e t o t a l working budget which had t o cover a l l
o p e r a t i n g expenses i n c l u d i n g t h e o p e r a t i o n of a summer
program i n t h e a r e a amounted t o $18,000.00 of which
approximately $6,000.00 was d e r i v e d through l o c a l tax-
a t i o n . I n 1969 t h e Department of Youth provided an e x t r a
g r a n t of $12,000.00 i n o r d e r t h a t t h e R e c r e a t i o n Board
could employ an a d d i t i o n a l s t a f f member.

5) On J u l y 2 , 1971, t h e L e t h b r i d g e Herald r e p o r t e d t h a t t h e Coleman r a t e -

p a y e r s had r e j e c t e d t h e ' P a s s swimming pool w i t h a v o t e
of 269 a g a i n s t and 2 4 1 i n f a v o u r .
 CW'TER 111

School A d m i n i s t r a t i o n and Its P o l i t i c a l "Umbrella"

During t h e e a r l y days of t h e p r o v i n c e ' s development, t h e

communities of t h e Crowsnest P a s s area, a l t h o u g h v e r y much preoccupied

w i t h t h e day t o day problems u s u a l l y a s s o c i a t e d w i t h s t r u g g l i n g company

c o a l towns, launched s i x s c h o o l d i s t r i c t s : Coleman s c h o o l d i s t r i c t

il1216; Blairmore s c h o o l d i s t r i c t #628; Frank s c h o o l d i s t r i c t A629;

B e l l e v u e s c h o o l d i s t r i c t #1336; Mohawk s c h o o l d i s t r i c t #5080; and H i l l -

c r e s t s c h o o l d i s t r i c t #5081. The f i r s t s t e p toward an i n t e g r a t i o n of

s c h o o l s e r v i c e s i n t h e ' P a s s a r e a took t h e form of an arrangement

between Blairmore and Frank i n 1921. A t the i n i t i a l stage t h i s

arrangement p e r m i t t e d Frank h i g h s c h o o l s t u d e n t s t o a t t e n d c l a s s e s i n

Blairmore and a t a l a t e r d a t e was extended t o accommodate a l l t h o s e

s t u d e n t s r e g i s t e r e d i n g r a d e seven and above i n c l u s i v e . The f a c t t h a t

t h e Frank mine was c l o s e d permanently a f t e r an e x p l o s i o n i n 1917 induced

t h i s community, now f a c e d w i t h extreme f i n a n c i a l d i f f i c u l t i e s , t o view

w i t h equanimity an arrangement w i t h Blairmore.

While t h e communities of Frank and Blairmore n e g o t i a t e d t h e i r

arrangement, B e l l e v u e and H i l l c r e s t d i s c u s s e d t h e p o s s i b i l i t y of i n t e -

grating t h e i r services i n a similar fashion. From i t s i n c e p t i o n i n

1905 H i l l c r e s t had been a ' c l o s e d ' town o p e r a t e d by t h e H i l l c r e s t c o a l

and coke company. Although t h e mine had s u r v i v e d a d i s a s t e r of extreme

magnitude i n 1914 and had managed t o c o n t i n u e p r o d u c t i o n throughout t h e

e a r l y y e a r s of World War I , d u r i n g which time t h e demand f o r c o a l was

 61

on t h e d e c l i n e , i t was unable t o remain i n o p e r a t i o n .

I
Following t h e

c l o s u r e of t h e H i l l c r e s t mine t h e community j o i n e d w i t h Bellevue t o

form t h e B e l l e v u e - H i l l c r e s t s c h o o l d i s t r i c t . S i g n i f i c a n t l y , Bellevue

was a l s o s u f f e r i n g economic d i f f i c u l t i e s . Thus t h e new amalgamated

s c h o o l d i s t r i c t , formed i n 1921, was brought t o f r u i t i o n o n l y a f t e r t h e

mine c l o s u r e i n H i l l c r e s t and B e l l e v u e was no l o n g e r i n t h e p o s i t i o n t o

c o n t i n u e paying f o r t h e c o s t s of i t s own s c h o o l f a c i l i t i e s . Discussion

p r e v i o u s t o t h e g e n e r a l d e c l i n e of t h e c o a l market had o n l y involved a

j u d i c i o u s examination of t h e p o s s i b i l i t y of i n t e g r a t i n g t h e s c h o o l

f a c i l i t i e s of B e l l e v u e and H i l l c r e s t . The s u p p o s i t i o n h e r e i s t h a t

w h i l e t h e H i l l c r e s t mine was producing and B e l l e v u e was f e e l i n g eco-

nomically s e c u r e t h e r e was l i t t l e r e a s o n f o r e i t h e r community t o view

an amalgamated s c h o o l d i s t r i c t w i t h a g r e a t d e a l of i n t e r e s t o r enthu-

siasm. The c l o s u r e of t h e mine and a g e n e r a l l y d e c l i n i n g economic

s i t u a t i o n i n t h e c o a l i n d u s t r y w e r e t h e major f a c t o r s which c o n t r i b u t e d

t o t h e f o r m a t i o n of an amalgamated d i s t r i c t . Following 1921, t h e r e f o r e ,

t h e 'Pass s c h o o l d i s t r i c t s i n c l u d e d : t h e Bellevue-Hillcrest school

d i s t r i c t ; t h e Blairmore s c h o o l d i s t r i c t ; t h e Frank s c h o o l d i s t r i c t ; t h e

Mohawk s c h o o l d i s t r i c t ; and t h e Coleman s c h o o l d i s t r i c t .

Following t h e Bellevue-HiLlcrest amalgamation, and f o r a number

of y e a r s a f t e r w a r d s , t h e n o t i o n of amalgamating a l l t h e d i s t r i c t s came

up f o r f r e q u e n t d i s c u s s i o n i n t h e communities concerned, b u t produced

n o t h i n g i n t h e way of f r u i t f u l r e s u l t s . F i n a l l y , i n March of 1956, t h e

secretary-treasurer of Blairmore, who was a l s o s e c r e t a r y f o r t h e s c h o o l

board, was i n s t r u c t e d by t h a t board t o w r i t e t o t h e s e c r e t a r y - t r e a s u r e r

of t h e Bellevue s c h o o l d i s t r i c t and i n d i c a t e t o him t h a t ' t h e Blairmore

 62

board i s d e s i r o u s of c a l l i n g a j o i n t meeting of t h e boards i n t h e 'Pass

t o a g a i n c o n s i d e r t h e i d e a of an enlarged s c h o o l a r e a ' . I t was agreed

t h a t t h e v a r i o u s boards would meet a t t h e T u r t l e Mountain playgrounds

i n t h e v i l l a g e of Frank on May 1 5 , 1956, t o d i s c u s s t h e m a t t e r of

c o n s o l i d a t i o n w i t h v a r i o u s r e p r e s e n t a t i v e s of t h e Department of Edu-

cation. The meeting w a s h e l d ; however, s h o r t l y a f t e r w a r d s , on June 1 5 ,

t h e Coleman s c h o o l board passed a r e s o l u t i o n which made i t c l e a r t h a t

t h e f o r m a t i o n of a d i v i s i o n a t t h a t time i n t h e i r view would be inim-

i c a l t o t h e i n t e r e s t s of t h e i r s c h o o l d i s t r i c t and would t h e r e f o r e n o t

r e c e i v e endorsement from t h e Coleman s c h o o l board. The l e t t e r t o t h e

s e c r e t a r y - t r e a s u r e r of Bellevue s t a t e d t h e r e a s o n f o r t h i s d e c i s i o n was

prompted by t h e f a c t t h a t t h e economic c o n d i t i o n s i n t h e Crowsnest P a s s

d i d n o t seem t o f a v o u r major expansion of s c h o o l f a c i l i t i e s . Having

been informed of t h e Coleman p o s i t i o n , t h e board members of t h e

B e l l e v u e - H i l l c r e s t s c h o o l d i s t r i c t unanimously a g r e e d , on J u n e 1 9 , t o

p r e s e n t t h r e e r e s o l u t i o n s t o t h e M i n i s t e r of Education f o r h i s consid-

eration. The f i r s t suggested t h e formation of a d i v i s i o n which would

comprise t h e d i s t r i c t s of Coleman, Blairmore, Frank, and Bellevue-

Hillcrest. The second, o b v i o u s l y one t o overcome t h e i n f l e x i b l e

p o s i t i o n t a k e n by Coleman, suggested a s c h o o l d i v i s i o n which would

exclude Coleman. The t h i r d suggested t h a t i f n e i t h e r of t h e above two

was a c c e p t a b l e t h a t t h e B e l l e v u e - H i l l c r e s t d i s t r i c t be included i n t h e

P i n c h e r Creek s c h o o l d i v i s i o n .

On June 26 t h e Deputy M i n i s t e r of t h e Department of Education,

i n r e s p o n s e t o t h e l e t t e r , observed t h a t he and t h e M i n i s t e r had been

informed of Coleman's d e s i r e t o remain independent of any proposed form

of amalgamation and ' t h i s being t h e c a s e i t i s h i g h l y improbable t h a t

a c t i o n w i l l be t a k e n t o f o r c e t h e Coleman d i s t r i c t i n t o any amalga-

mation'. (The Act makes i t q u i t e c l e a r t h a t t h e M i n i s t e r of Education

h a s t h e power i f h e chooses t o u s e i t t o d i s s o l v e a s c h o o l d i s t r i c t

and make i t a p a r t of a s c h o o l division.') I n t h e same v e i n t h e

Deputy M i n i s t e r proceeded t o e x p l a i n t h a t i n c l u s i o n i n t h e P i n c h e r

Creek s c h o o l d i v i s i o n would b e p o s s i b l e by M i n i s t e r i a l Order; however,

' i t i s n o t an a c t i o n which t h e department i s l i k e l y t o t a k e without t h e

consent of t h e s c h o o l d i v i s i o n . ' Moreover, he noted t h a t t h e l o c a t i o n

of P i n c h e r Creek i n r e l a t i o n t o B e l l e v u e - H i l l c r e s t made it extremely

u n l i k e l y t h a t P i n c h e r Creek would g i v e i t s c o n s e n t , s i n c e t h e e x p e r i -

ence of t h e Department had been ' t h a t i n t h e main s c h o o l d i v i s i o n s do

n o t f a v o u r t h e i n c l u s i o n of d i s t r i c t s such a s your own u n l e s s t h e y a r e

a b l e t o i n t e g r a t e t h e s c h o o l s e r v i c e s t h e r e w i t h t h e i r e x i s t i n g ones by

t h e e s t a b l i s h m e n t of a c e n t r a l i z e d s c h o o l . ' The Deputy M i n i s t e r

s u g g e s t e d t h a t t h i s o p i n i o n could o n l y be e x p l o r e d f u r t h e r through

d i r e c t c o n v e r s a t i o n s w i t h t h e Board of T r u s t e e s of t h e Pincher Creek

School D i v i s i o n . A s f o r s e t t i n g up a d i v i s i o n excluding Coleman, t h e

Deputy M i n i s t e r p o i n t e d o u t t h a t 'unhappily S u b s e c t i o n 5 of S e c t i o n 23

of t h e School Act which was i n c l u d e d i n i t i n 1954 t o t a k e c a r e of an

a n t i c i p a t e d Crowsnest Pass School D i v i s i o n g i v e s t h e M i n i s t e r power

o n l y t o e s t a b l i s h a d i v i s i o n "comprising a l l s c h o o l d i s t r i c t s i n t h e

a r e a c o n t a i n e d w i t h i n t h e o u t e r b o u n d a r i e s of Local Improvement

District #lo". '2 The Deputy M i n i s t e r ended by s u g g e s t i n g t h a t t a k i n g ,

a s p r e c e d e n t , Turner Valley 'where a s i n g l e s c h o o l d i s t r i c t of consid-

e r a b l e a r e a i n c l u d e s Black Diamond, Turner V a l l e y , and o t h e r commu-

 64

n i t i e s and farm l a n d s , t h e m i n i s t e,r could by M i n i s t e r i a l Order con-

s t i t u t e a d i s t r i c t comprising o n l y Blairmore, Frank, and Bellevue-

Hillcrest'. I t i s i m p l i c i t i n t h e l e t t e r , however, t h a t t h e M i n i s t e r

would o n l y t a k e such a c t i o n i f t h e cormnunities t h a t would comprise such

a d i v i s i o n f i r s t i n d i c a t e d t h e i r approval. On June 27 t h e board of t h e

Frank s c h o o l d i s t r i c t agreed t o proceed w i t h t h e e s t a b l i s h m e n t of an

enlarged administrative area. The Blairmore board had a l r e a d y passed a

r e s o l u t i o n t o t h e same e f f e c t two days p r e v i o u s l y . I n response t o

Frank, t h e Deputy M i n i s t e r acknowledged t h a t h e had r e c e i v e d t h e i r

l e t t e r and t h a t t h e Department would, having concurrence from a l l t h r e e

s c h o o l d i s t r i c t s , now a t t e m p t t o overcome c e r t a i n problems; however,

t h i s would t a k e ' a l i t t l e time' because ' t h e M i n i s t e r i s c u r r e n t l y

a b s e n t from h i s o f f i c e on o f f i c i a l d u t i e s . ' To t h e s e c r e t a r y - t r e a s u r e r

of t h e B e l l e v u e - H i l l c r e s t s c h o o l d i v i s i o n h e wrote, 'I wish t o inform

you t h a t because of reduced s t a f f due t o t h e h o l i d a y s e a s o n and t h e

p r o s p e c t i v e absence of t h e M i n i s t e r on h i s own v a c a t i o n , t h e q u e s t i o n

of amalgamation of d i s t r i c t s cannot b e d e a l t w i t h immediately'.

The M i n i s t e r , presumably having s u c c e s s f u l l y s o r t e d o u t t h e

c o n f l i c t of h i s ' h o l i d a y s e a s o n ' w i t h h i s ' o f f i c i a l d u t i e s ' managed t o

' d i s p o s e of t h e matter,' and on January 1, 1957 t h e d i s t r i c t s of

Bellevue-Hillcrest, Mohawk, Frank, and Blairmore combined t h e i r school

o r g a n i z a t i o n s and became t h e Crowsnest Consolidated School D i s t r i c t #78.

To understand why i t was t h a t t h e v a r i o u s d i s t r i c t s agreed t o form a

c o n s o l i d a t e d s c h o o l d i s t r i c t , i t must b e made c l e a r t h a t Blairmore was

i n t h e p o s i t i o n of having good t e a c h e r s , poor s c h o o l s , and no budget

s u r p l u s , and B e l l e v u e had a s u r p l u s , l i m i t e d s c h o o l f a c i l i t i e s , and was

 65

s h o r t of t e a c h e r s . Frank was s t i l l i n t h e p o s i t i o n of having no h i g h

I

s c h o o l and paying a f e e t o Blairmore f o r t h a t community's s c h o o l

services. Through c o n s o l i d a t i o n t h e communities were a b l e t o f i n a n c e ,

w i t h p r o v i n c i a l government a s s i s t a n c e , a new h i g h s c h o o l , which was

e v e n t u a l l y b u i l t i n Blairmore, and a new elementary s c h o o l f o r Bellevue.

Coleman, on t h e o t h e r hand, having r e f u s e d t o p a r t i c i p a t e i n a c o n s o l i -

d a t i o n program w a s t o l d by t h e p r o v i n c i a l government t h a t i t would

r e c e i v e no a d d i t i o n a l p r o v i n c i a l g r a n t s u n t i l such time t h a t i t j o i n e d

the consolidated school d i s t r i c t . I t i s worth n o t i n g t h a t Coleman, a t

t h a t time, was i n t h e advantageous p o s i t i o n of having s u f f i c i e n t s c h o o l

f a c i l i t i e s and s o f o r t h , and was n o t i n t h e p o s i t i o n of B e l l e v u e and

Blairmore which had decided t o r e l i e v e t h e i r e d u c a t i o n a l d i f f i c u l t i e s

by c o - o r d i n a t i n g t h e i r r e s o u r c e s and f a c i l i t i e s . C l e a r l y Coleman's

r e l u c t a n c e was a r e f l e c t i o n of i t s u n w i l l i n g n e s s t o p a r t i c i p a t e i n a

v e n t u r e which might prove t o b e c o s t l y and beyond t h e means of i t s

r e s o u r c e s which depended l a r g e l y on a f l u c t u a t i n g c o a l market. Though

t h e f o r e g o i n g may v e r y w e l l be t r u e , i t must a l s o b e acknowledged t h a t

Coleman's d e s i r e t o remain autonomous from t h e o t h e r communities a l s o

played an important p a r t i n i t s d e c i s i o n .

I n 1960 t h e Coleman s c h o o l d i s t r i c t s e n t a d e l e g a t i o n t o

Edmonton and r e q u e s t e d t h e government t o g r a n t t h e r e q u i r e d a s s i s t a n c e

f o r t h e b u i l d i n g of a new h i g h s c h o o l . Notably, t h e government acceded

t o t h e d i s t r i c t ' s r e q u e s t and a new h i g h s c h o o l w a s b u i l t i n Coleman.

The government's s h i f t of p o s i t i o n of c o u r s e r e s u l t e d i n t h e continu-

a t i o n of two s e p a r a t e s c h o o l d i s t r i c t s i n t h e Crowsnest P a s s a r e a .

Apparently, t h e government f e l t o b l i g e d n o t t o f o r c e Coleman t o j o i n

t h e c o n s o l i d a t e d s c h o o l d i s t r i c t ; r e a s o n s f o r t h i s w i l l become i n c r e a s -
I

i n g l y c l e a r throughout t h e paper.

October of 1966 must have appeared t o a member of t h e Department

of Education a p r o p i t i o u s moment t o a g a i n promote t h e i d e a of a s c h o o l

d i v i s i o n f o r t h e e n t i r e Crowsnest P a s s . He a d v i s e d t h e members of t h e

s c h o o l board of t h e Crowsnest Consolidated School D i s t r i c t i n a l e t t e r

t o them t h a t he had had d i s c u s s i o n s w i t h t h e D i r e c t o r of School

A d m i n i s t r a t i o n concerning h i s r e c e n t v i s i t t o t h e Crowsnest P a s s a r e a

and had a l s o conversed w i t h members of t h e E x e c u t i v e Council whom h e

had accompanied on a v i s i t t o t h e ' P a s s t h a t September. He f u r t h e r

explained :

"I am prompted a t t h i s t i m e t o propose t h a t t h e

whole a r e a of t h e Crowsnest P a s s should b e con-
s t i t u t e d a s a s c h o o l d i v i s i o n . Such adminis-
t r a t i o n could reduce some d u p l i c a t i o n of s e r -
v i c e s , p a r t i c u l a r l y i n secondary e d u c a t i o n . It
would p r o v i d e o p p o r t u n i t y t o e s t a b l i s h one
c e n t r a l h i g h s c h o o l w i t h a more d i v e r s e program
than now e x i s t s i n e i t h e r s c h o o l . I t would a l s o
w a r r a n t an a p p l i c a t i o n t o s e c u r e F e d e r a l a s s i s -
t a n c e f o r e s t a b l i s h m e n t of a b u s i n e s s e d u c a t i o n
s e c t i o n on a v o c a t i o n a l b a s i s . Any a p p l i c a t i o n
i n t h i s r e s p e c t would have t o b e proceeded w i t h
v e r y q u i c k l y . I'

On Sunday, November 2 7 , 1966, t h e e n t i r e Coleman s c h o o l board,

t r u s t e e s from t h e Crowsnest .Consolidated School D i s t r i c t , t h r e e s c h o o l

p r i n c i p a l s , t h e s u p e r i n t e n d e n t of s c h o o l s , and two r e p r e s e n t a t i v e s of

t h e Department of Education met a t t h e I s a b e l l e S e l l o n School t o d i s c u s s

t h e f o r m a t i o n of a s c h o o l d i v i s i o n . At t h i s meeting a r e p r e s e n t a t i v e of

t h e Department of Education 'surmised' t h a t t h e p r o v i n c i a l government,

b e i n g c o g n i z a n t of t h e f a c t t h a t t h e f e d e r a l government was proposing

t o d i s c o n t i n u e i t s p l a n of o f f e r i n g f e d e r a l a s s i s t a n c e f o r v o c a t i o n a l
 67

s e r v i c e s , 'might s h a r e some p o r t i o p toward a v o c a t i o n a l commercial wing

f o r t h e new s c h o o l . 13 Those p r e s e n t a t t h e meeting were informed t h a t

i f t h e communities pursued t h e m a t t e r w i t h t h e M i n i s t e r concerning such

a s s i s t a n c e , i t was p o s s i b l e t h a t h e would a l l o c a t e supplementary a s s i s -

t a n c e of $2.00 - $3.00 p e r s q u a r e f o o t f o r a l i b r a r y , $4.00 p e r s q u a r e

f o o t f o r i n d u s t r i a l a r t s , and $7.00 p e r f o o t f o r a language l a b o r a t o r y ,

i f enrolments were h i g h enough, i . e . , 360 minimum. Needless t o s a y , i t

was n e c e s s a r y f o r t h e communities t o p a r t i c i p a t e t o g e t h e r i f they were

t o b e a s s u r e d of some p o s s i b i l i t y of s u c c e s s i n t h e i r p u r s u i t of such a

grant. A t t h e same time a d i v i s i o n , because of t h e l a r g e s t u d e n t

enrolment i n v o l v e d , would j u s t i f y f u r t h e r a s s i s t a n c e i n t h e form of

g r a n t s f o r a home economics program i n g r a d e 9 t o be continued through

t o g r a d e 1 2 , and b e supplemented by 'some o t h e r ' v o c a t i o n a l programs.

The D i r e c t o r of School A d m i n i s t r a t i o n a l s o suggested t h a t t h e e x i s t i n g

s c h o o l s i n t h e ' P a s s could a l l b e t u r n e d i n t o elementary s c h o o l s and

thus a l l e v i a t e a d i s t i n c t shortage i n t h a t area. However, of c o u r s e ,

a l l t h e s e p r o p o s a l s were dependent upon a p o s i t i v e d e c i s i o n t o form a

division. Another r e p r e s e n t a t i v e of t h e Department of Education

e x p l a i n e d t h a t t h e c o s t of a s c h o o l was $16.00 p e r s q u a r e f o o t f o r a l l

'approved s p a c e ' . He f u r t h e r informed t h o s e i n a t t e n d a n c e t h a t

'approved s p a c e ' c o n s i s t e d of 4,000 s q u a r e f e e t ' f o r t h e b u s i n e s s a r e a ,

3,600 s q u a r e f e e t f o r t h e shop, 900 s q u a r e f e e t f o r t h e language

l a b o r a t o r y and l i b r a r y , and a d d i t i o n a l allowances f o r equipment. If

t h e c o s t proved t o b e more t h a n $16.00 p e r s q u a r e f o o t t h e l o c a l a r e a s

would be a s s e s s e d a c c o r d i n g l y .

Following t h e t a l k s g i v e n by t h e g u e s t s p e a k e r s and s t a t e m e n t s
by one o r two members of t h e board? i n v o l v e d , t h e board members a s a

whole voted unanimously i n f a v o u r of s u p p o r t i n g t h e f o r m a t i o n of a d i v i -

sion. One of t h e main s p e a k e r s d u r i n g t h e d e l i b e r a t i o n had been a

r e p r e s e n t a t i v e of t h e Coleman s c h o o l board and t h e one chosen t o c h a i r

t h e meeting. H i s obvious s u p p o r t , from t h e beginning, r e f l e c t e d

Coleman's conversion concerning t h e f o r m a t i o n of a d i v i s i o n which would

i n c l u d e i t s e l f and t h e o t h e r communities. The o r i g i n a l s t a n d s taken by

t h o s e who had agreed t o a c o n s o l i d a t e d s c h o o l d i s t r i c t had n o t changed

over t h e ten-year i n t e r v a l .

During t h o s e y e a r s when two s c h o o l d i s t r i c t s o p e r a t e d i n t h e

Crowsnest P a s s a r e a , t h e s c h o o l s i t u a t i o n had changed s u f f i c i e n t l y t o

make t h e d i v i s i o n p r o p o s a l f a r more t o l e r a b l e from Coleman's p o i n t of

view. The comments made by t h e r e p r e s e n t a t i v e of t h e Coleman s c h o o l

board c e r t a i n l y i l l u s t r a t e d t h a t government f u n c t i o n a r i e s had e x p l a i n e d

t o him t h e advantages t h a t would a c c r u e t o Coleman i f t h a t d i s t r i c t

cooperated i n t h e f o r m a t i o n of a d i v i s i o n . I t can be argued t h a t

Coleman's p o s i t i o n , a t t h a t p o i n t being one of r a p i d d e t e r i o r a t i o n , had

been an e s s e n t i a l f a c t o r i n t h e government's renewed i n t e r e s t i n

a s s i s t i n g w i t h t h e f o r m a t i o n of a d i v i s i o n . While t h e Deputy M i n i s t e r

had informed t h e communities t e n y e a r s e a r l i e r of t h e M i n i s t e r ' s r e l u c -

-
t a n c e and perhaps r e f u s a l t o i n t e r v e n e i n t h e d e b a t e between t h e

communities, h e now f e l t more a t e a s e i n proposing a g a i n a d i v i s i o n and,

i n a d d i t i o n , had t h e p e r s u a s i v e power of vague promises of s p e c i a l

assistance. Common s e n s e p r e v a i l e d i n Coleman. B u f f e t e d by changes i n

t h e c o a l market and a g e n e r a l d e c l i n e of i t s s c h o o l f a c i l i t i e s , t h e

community r e a l i z e d t h a t i t would r e q u i r e a s s i s t a n c e , and n a t u r a l l y t h i s

 69
a s s i s t a n c e could o n l y b e o b t a i n e d through i t s agreement t o p a r t i c i p a t e

i n t h e f o r m a t i o n of a d i v i s i o n . Scant p e r s u a s i o n was r e q u i r e d t o g e t

t h i s community's approval.

Analysis

O f c o u r s e , t h e o p e r a t i o n of two h i g h s c h o o l s o n l y two m i l e s

a p a r t i n v o l v e s d u p l i c a t i o n of f a c i l i t i e s , and can t h e r e f o r e b e con-

s i d e r e d an unwarranted wastage of p u b l i c monies. Presumably, t h e

government had y i e l d e d t o Coleman's v o c i f e r o u s demands i n 1960 i n

o r d e r t o avoid f u t u r e v i t u p e r a t i o n from t h a t community. Reasons g i v e n

by Coleman i n 1956 t o v i n d i c a t e i t s n e g a t i v e p o s i t i o n v i s \a vis a

d i v i s i o n c e r t a i n l y come i n t o q u e s t i o n . The f l u c t u a t i o n s of t h e c o a l

market had n o t subsided by 1960, and y e t Coleman found i t s e l f i n an

a f f l u e n t enough p o s i t i o n t o r e q u e s t a s s i s t a n c e from t h e government and

t h u s commit c e r t a i n l o c a l monies toward t h e b u i l d i n g of a new h i g h

school. The town, i t may be concluded, was more i n t e r e s t e d i n main-

t a i n i n g l o c a l c o n t r o l over i t s s c h o o l f a c i l i t i e s t h a n t h e immediate

costs entailed i n participating i n a division. I t can b e i n t e r p r e t e d

t h a t t h e government i n 1956 d i d n o t wish t o push t h i s community i n t o

co-operating w i t h t h e o t h e r d i s t r i c t s and, a s a r e s u l t , i n v o l v e i t s e l f

i n a s i t u a t i o n which might have had p o l i t i c a l r e p e r c u s s i o n s . There i s

no doubt t h a t from t h e p o i n t of v i e w a f c o s t and e f f i c i e n c y t h e M i n i s t e r

had e v e r y r e a s o n t o t a k e t h o s e s t e p s which would have r e q u i r e d Coleman's

co-operation. Apparently, i n 1960 t h e government was s t i l l n o t i n t h e

p o s i t i o n of being a b l e t o o b t a i n Coleman's s u p p o r t f o r a d i v i s i o n , and

t h u s allowed i t s e l f t o engage i n a p r o p o s a l which would n o t o n l y even-

t u a t e i n w a s t e f u l e x p e n d i t u r e s b u t would a l s o p r o t r a c t an awkward
 70

situation. I t wasn't u n t i l 1966, when Coleman's s c h o o l f a c i l i t i e s had

a g a i n d e g e n e r a t e d , t h a t t h e community i n d i c a t e d a w i l l i n g n e s s t o par-

t i c i p a t e w i t h t h e o t h e r d i s t r i c t t o form a d i v i s i o n . By t h i s time, n o t

s u r p r i s i n g l y , Coleman's d e b e n t u r e s i t u a t i o n d i d n o t a l l o w i t t o f i n a n c e

a new elementary s c h o o l t o r e p l a c e t h e one t h a t had been condemned a s

a f i r e h a z a r d ; t o o , t h e community was f i n d i n g i t extremely d i f f i c u l t t o

o b t a i n q u a l i f i e d teachers prepared t o accept the conditions t h a t e x i s t e d

i n t h e elementary s c h o o l a t t h a t time. Blairmore and Bellevue were a l s o

facing d i f f i c u l t i e s : t h e Bellevue elementary s c h o o l was no l o n g e r a b l e

t o accommodate g r a d e s i x s t u d e n t s from Blairmore a s w e l l a s i t s own

elementary s c h o o l s t u d e n t s . N a t u r a l l y , Blairmore wanted government a i d

t o expand i t s elementary s c h o o l ; however, Bellevue a l s o wanted such

a s s i s t a n c e f o r i t s own s c h o o l , and t h e d e b a t e between t h e two communities

about which one should r e c e i v e a s s i s t a n c e was w e l l on i t s way by t h e

t i m e t h e Department r e p r e s e n t a t i v e proposed t h a t t h e communities should

j o i n t o g e t h e r and form a d i v i s i o n . S t i m u l a t e d by t h e f a c t t h a t i t

would have t o make a d e c i s i o n which would r e s o l v e t h e Bellevue-Blairmore

d e b a t e , and t h a t t h i s d e c i s i o n would e n t a i l n o t only an e x p e n d i t u r e of

p u b l i c funds b u t would a l s o probably evoke a s i t u a t i o n which might have

p o l i t i c a l r a m i f i c a t i o n s , 'and a l l t h i s added t o Coleman's r e q u e s t f o r

-
s p e c i a l a s s i s t a n c e , provoked t h e government t o o f f e r a ' c a r r o t ' i n the

form of a composite high s c h o o l t o f a c i l i t a t e t h e move toward t h e

c r e a t i o n of a d i v i s i o n . The government had supported and attempted t o

encourage, from time t o time, t h i s t y p e of s c h o o l o r g a n i z a t i o n f o r t h e

' P a s s a r e a ; however, i t w a s n ' t u n t i l 1966 t h a t t h e s i t u a t i o n i n t h i s

a r e a had r i p e n e d s u f f i c i e n t l y f o r t h e government t o b r i n g i t s p e r s u a s i v e
 71

powers t o t h e f o r e w i t h o u t becoming
, involved i n a d e c i s i o n which might
have had a d v e r s e p o l i t i c a l r a m i f i c a t i o n s .

A f t e r t h e v o t e a t t h e November 2 7 meeting, t h e D i r e c t o r of

School A d m i n i s t r a t i o n e x p l a i n e d t h a t w h i l e t h e boards could t a k e a

p l e b i s c i t e on t h e m a t t e r of forming a d i v i s i o n , i t was n o t n e c e s s a r y .

Considering t h a t t h e disharmony between t h e communities was s t i l l pro-

nounced, t h e D i r e c t o r ' s o b s e r v a t i o n could b e viewed a s an a t t e m p t t o

circumvent a c t i o n t h a t would p u t t h e d i v i s i o n p r o p o s a l b e f o r e t h e com-

munities f o r t h e i r approval. The b u i l t - i n r e s i s t a n c e a g a i n s t co-

o p e r a t i o n , and t h e a l r e a d y s u b s t a n t i a l commitments made by t h e Town of

Coleman f o r t h e f i n a n c i n g of s c h o o l f a c i l i t i e s , made i t extremely un-

l i k e l y t h a t t h e r e s i d e n t s of t h a t community would s u p p o r t a p r o p o s a l

which would have t h e e f f e c t of reducing t h e i r c o n t r o l over t h e i r own

school f a c i l i t i e s .

I t was a t t h i s meeting t h a t t h e m a t t e r of r e p r e s e n t a t i o n on t h e

d i v i s i o n s c h o o l board was d i s c u s s e d , a t o p i c t h a t r e c e i v e d f u r t h e r

comment and a t t e n t i o n i n l a t e r months. The p r o p o s a l t h a t emerged a t

t h i s time was: one r e p r e s e n t a t i v e f o r B e l l e v u e and Maple L e a f ; two f o r

Blairmore; t h r e e f o r Coleman; and one f o r H i l l c r e s t and Frank. Sensibly

enough, t h e p r o p o s a l was weighed i n Coleman's f a v o u r . However, i t was

p o i n t e d o u t a t t h e meeting t h a t t h e p i n i s t e r had t h e a u t h o r i t y t o b o t h

d e c i d e t h e q u e s t i o n of r e p r e s e n t a t i o n and t h e q u e s t i o n of l o c a t i o n f o r

t h e new s c h o o l . Presumably, i t could have been a l s o p o i n t e d o u t t h a t

t h e M i n i s t e r ' s p r e v i o u s r e l u c t a n c e t o i n t e r v e n e i n t h e a f f a i r s of com-

m u n i t i e s made t h i s s u g g e s t i o n r a t h e r vacuous. Even had t h e communities

i n d i c a t e d t h e i r d e s i r e t o have t h e M i n i s t e r make e i t h e r one o r b o t h of

 72

t h e s e d e c i s i o n s , i t can b e assumed,, t a k i n g precedent as a g u i d e , t h a t

he would probably have r e l u c t a n t l y r e f u s e d . Aside from t h i s , i t i s

important t o n o t e t h a t t h e q u e s t i o n of s i t e s e l e c t i o n was a l r e a d y

coming t o t h e f o r e and t h a t t h e s u g g e s t i o n t o i n v o l v e t h e M i n i s t e r was

obviously an a t t e m p t t o o f f e r a p r e s c r i p t i o n t o r e s o l v e p r o s p e c t i v e

d i f f i c u l t i e s concerning t h i s m a t t e r . I n f a c t , prominent among t h e

p o i n t s r a i s e d d u r i n g t h e meeting was t h e p r o p o s a l t h a t t h e new s c h o o l

being promised by t h e government, i f a d i v i s i o n w a s formed, should b e

l o c a t e d on ' n e u t r a l ground'.

A r e p r e s e n t a t i v e of t h e Department of Education advised t h e

meeting t h a t t h e q u e s t i o n of forming a d i v i s i o n should be brought t o a

r a p i d c o n c l u s i o n s i n c e i t was always more a g r e e a b l e t o s t a r t a d i v i s i o n

a t t h e beginning r a t h e r t h a n toward t h e end of a s c h o o l y e a r . Having

taken t h i s a d v i c e i n t o c o n s i d e r a t i o n , t h e Coleman board decided t o hold

a meeting on December 8, and t h e Consolidated School D i s t r i c t board

arranged one f o r December 2 , b o t h groups i n d i c a t i n g a d e s i r e t o have

r e p r e s e n t a t i v e s of t h e Department of Education i n a t t e n d a n c e a t t h e s e

meetings t o answer q u e s t i o n s .

A t t h e p u b l i c meeting of t h e Crowsnest Consolidated School

D i s t r i c t , w i t h t h e S o c i a l C r e d i t M.L.A. f o r that area i n the chair, the

s u p e r i n t e n d e n t of t h e P i n c h e r Greek School D i v i s i o n e x p l a i n e d t h a t t h e

Dominion Government was i n t e n d i n g t o withdraw i t s v o c a t i o n a l g r a n t s and

t h a t ' t h e f i g u r e s quoted as g r a n t e s t i m a t e s i n t h e minutes of t h e j o i n t

meeting a r e minimum under A l b e r t a r e g u l a t i o n s and would be augmented by

any g r a n t s o f f e r e d by t h e Dominion Government'. How, i f Dominion a s s i s -

t a n c e d i d n o t e v e n t u a t e , t h e A l b e r t a g r a n t s would be supplemented was

 73

n o t made c l e a r . F u r t h e r t o t h i s , powever, t h e s u p e r i n t e n d e n t r e i t e r a t e d

t h e advantages of having a composite s c h o o l which would p r o v i d e f o r t h e

e d u c a t i o n and t r a i n i n g of nonacademic s t u d e n t s . The Mayor of Blairmore,

speaking on behalf of t h a t community, d e c l a r e d t h a t t h e c o u n c i l was i n

f u l l s u p p o r t of t h e d i v i s i o n p r o p o s a l and s u g g e s t e d t h a t such f a c t o r s

a s a d e q u a t e water supply, sewerage f a c i l i t i e s and a i r p o l l u t i o n b e t a k e n

i n t o c o n s i d e r a t i o n by t h o s e who would be r e s p o n s i b l e f o r choosing a s i t e

f o r t h e new h i g h school. The import of t h e Mayor's l a t t e r s t a t e m e n t was

n o t immediately e v i d e n t a t t h i s meeting; however, i t would become more

s o d u r i n g t h e ensuing months. F i n a l l y , a f t e r due d e l i b e r a t i o n , t h o s e

i n a t t e n d a n c e v o t e d t o s u p p o r t t h e f o r m a t i o n of a d i v i s i o n and t h e

meeting c l o s e d .

On December 1 4 , t h e s e c r e t a r y of t h e Consolidated School D i s -

t r i c t board w r o t e t o t h e Deputy M i n i s t e r of Education and advised him

t h a t t h e board was d e s i r o u s of forming a d i v i s i o n w i t h t h e Coleman

s c h o o l board. S h o r t l y a f t e r w a r d s , t h e Deputy M i n i s t e r r e c e i v e d a

l e t t e r from t h e Coleman s c h o o l board i n d i c a t i n g t h a t b o a r d ' s w i l l i n g -

ness to participate. A copy of t h e M i n i s t e r i a l Order covering t h e f o r -

mation of t h e Crowsnest P a s s School D i v i s i o n #63 was d u l y r e c e i v e d from

t h e Department of Education by t h e two b o a r d s involved. The Order

i n d i c a t e d t h a t t h e d i v i s i o n (would b e d i v i d e d i n t o t h e f o l l o w i n g sub-

divisions: Coleman s c h o o l d i s t r i c t il1216; Blairmore s c h o o l d i s t r i c t

#628; and t h e t h i r d would i n c l u d e Frank s c h o o l d i s t r i c t iI629, Bellevue

s c h o o l d i s t r i c t #1336, Mohawk s c h o o l d i s t r i c t #5080, and H i l l c r e s t

s c h o o l d i s t r i c t #5081. With r e f e r e n c e t o r e p r e s e n t a t i o n , t h e Order

d i c t a t e d t h a t s u b d i v i s i o n I would have t h r e e r e p r e s e n t a t i v e s , and t h a t

 74

t h e o t h e r two would each have two r e p r e s e n t a t i v e s .

I
I n accord w i t h t h e

M i n i s t e r i a l Order, t h e temporary s e c r e t a E y of t h e d i v i s i o n h e l d e l e c -

t i o n s i n t h e v a r i o u s s u b d i v i s i o n s on February 1, 1967.

The 'Pass communities, having been persuaded t o endorse t h e

n o t i o n of forming a d i v i s i o n a f t e r f i f t y y e a r s of c o n t r o v e r s y and de-

b a t e , now had a new i n t e r e s t , i . e . t h e s i t e t o be s e l e c t e d f o r t h e

l o c a t i o n of t h e new composite h i g h s c h o o l .

What must be emphasized i s t h a t t h e M i n i s t e r of Education h a s

t h e a u t h o r i t y t o b r i n g about t h e c o n s o l i d a t i o n of s c h o o l d i s t r i c t s

w i t h o u t w a i t i n g f o r t h e a p p r o v a l of t h e d i s t r i c t s involved. Insofar

a s t h e M i n i s t e r ' s p o s i t i o n on t h i s m a t t e r i s concerned, t h e S o c i a l

C r e d i t philosophy concerning ' l o c a l autonomy' comes t o t h e f o r e . If the

M i n i s t e r had used t h e a u t h o r i t y r e f e r r e d t o above t o h a s t e n t h e con-

s o l i d a t i o n of s c h o o l d i s t r i c t s i n t h e Crowsnest P a s s , h i s p o s i t i o n

could have been viewed a s being a n t i t h e t i c a l t o t h a t h e l d by t h e govern-

ment r e g a r d i n g l o c a l decision-making. I t can be s u g g e s t e d , however,

t h a t i n s o f a r a s c o n s o l i d a t i o n was concerned, t h e d i s t r i c t s of t h e ' P a s s

a t no p o i n t ' w i l l i n g l y ' amalgamated t h e i r s c h o o l f a c i l i t i e s , b u t were

r a t h e r ' f o r c e d ' t o do s o o u t of n e c e s s i t y . Considering t h e s t a t e of

a f f a i r s i n t h e two d i s t r i c t s i n 1966, t h e boards r e a l l y had no c h o i c e

b u t t o a g r e e t o a d i v i s i o n i f t h e y were t o r e c e i v e a s s i s t a n c e from t h e
\

p r o v i n c i a l government.

The argument h e r e i s t h a t w h i l e t h e p r o v i n c i a l government may

v e r y w e l l advocate t h e importance of l o c a l autonomy, i t h a s t h e l e g a l

power and s u f f i c i e n t command o v e r f i n a n c i a l , p r o f e s s i o n a l , e t c . ,

r e s o u r c e s t o a l l o w i t t o i n d i r e c t l y dominate and d i r e c t t h e a f f a i r s of
 75

local authorities. It would a p p e a r t h a t t h e p r o v i n c i a l government's

I

s t r e n g t h i s i n v e r s e l y p r o p o r t i o n a t e t o a l o c a l a u t h o r i t y ' s weakness.

A community w i t h a h i g h m i l l r a t e and u n a b l e t o a f f o r d l a r g e expen-

d i t u r e s i s u s u a l l y n o t i n a p o s i t i o n t o q u e s t i o n a Department of Edu-

c a t i o n p r o p o s a l f o r r e s o l v i n g s c h o o l f a c i l i t y problems. The Department,

on t h e o t h e r hand, h a s t o b e c a r e f u l n o t t o a p p e a r t o be p r e s s u r i n g a

community and must o f f e r t h e ' c a r r o t ' , i.e., p r o p o s a l , i n s u c h a way as

t o make t h o s e i n v o l v e d f e e l t h a t t h e y h a v e come t o a d e c i s i o n i n d e p e n d e n t

of o u t s i d e i n t e r f e r e n c e . F o r example, i t h a s b e e n p o i n t e d o u t t h a t

b e f o r e p u b l i c d i s c u s s i o n t o o k p l a c e c o n c e r n i n g t h e m a t t e r of forming a

d i v i s i o n , c e r t a i n Department of E d u c a t i o n r e p r e s e n t a t i v e s and employees

t o u r e d t h e ' P a s s a r e a and d i s c u s s e d w i t h r e p r e s e n t a t i v e s of t h e two

s c h o o l d i s t r i c t s t h e problems t h a t t h e y were e x p e r i e n c i n g v i s vis

school f a c i l i t i e s . It was d u r i n g t h i s t o u r t h a t t h e n o t i o n of a

d i v i s i o n was a g a i n p r o p o s e d , and t h i s t i m e was viewed w i t h ' a p p x o v a l '

by t h e Coleman s c h o o l b o a r d . I n f a c t , t h e d e c i s i o n a b o u t forming a

d i v i s i o n was made q u i t e some t i m e b e f o r e t h e f i r s t p u b l i c m e e t i n g .

However, t h e m e e t i n g was r e q u i r e d t o make i t c l e a r t h a t t h e s c h o o l

b o a r d s and r e s i d e n t s of t h e ' p a s s were making an i n d e p e n d e n t d e c i s i o n .

I n t h i s way t h e l o c a l a u t h o r i t i e s s a t i s f i e d t h e i r need t o f e e l t h a t t h e y

were s t i l l i n c o n t r o l of t h e i r own a f f a i r s and w e r e making t h e i r 'own

.
d e c i s i o n ' w h i l e s a t i s f y i n g t h e M i n i s t e r ' s penchant f o r having l o c a l

a u t h o r i t i e s make t h e i r own d e c i s i o n s .

The r i t u a l was b r o u g h t t o a c o n c % u s i o n w i t h a comment made by a

Coleman s c h o o l b o a r d r e p r e s e n t a t i v e who a t t e n d e d t h e l a s t Crowsnest P a s s

Consolidated School D i s t r i c t meeting: 'Both b o a r d s s h o u l d b e v e r y proud

 76

f o r b e i n g i n s t r u m e n t a l i n t h e f o r m a t i o n of a d i v i s i o n f o r t h e whole of

t h e Crowsnest P a s s a r e a . '

On February 6 , 1967, t h e newly-elected s c h o o l board r e p r e s e n t a -

t i v e s commissioned a r c h i t e c t s t o d e s i g n t h e s c h o o l ; d i r e c t e d t h e s e c r e -

t r a r y t o a d v i s e a l l t h e c o u n c i l s throughout t h e d i v i s i o n t h a t they should

submit t h e i r s i t e s e l e c t i o n s f o r t h e new s c h o o l b e f o r e t h e n e x t r e g u l a r

board meeting; and passed t h e f o l l o w i n g motion:

' T r o v i d i n g t h e board cannot come t o an agree-

ment on t h e s i t e of t h e new h i g h s c h o o l , t h e
Department of Education be asked t o choose t h e
l o c a t i o n w i t h t h e u n d e r s t a n d i n g t h a t t h e board
w i l l a c c e p t t h e i r recommendation."

The l a t t e r motion r e f l e c t s t h e b o a r d ' s f e e l i n g t h a t w h i l e t h e

communities had been induced i n t o a g r e e i n g t o form t h e d i v i s i o n , t h e

c o m p e t i t i o n between them had n o t subsided t o any s i g n i f i c a n t e x t e n t .

Thus, i t was probably thought t h a t t h e s e l e c t i o n of a s i t e would prove

t o be a r a t h e r d i f f i c u l t p r o c e s s and, i n t h e long r u n , might r e q u i r e t h e

Department of E d u c a t i o n ' s a s s i s t a n c e .

On February 20 t h e board met and d i s c u s s e d t h e submissions t h a t

had been p r e s e n t e d t o them by t h e Towns of Coleman and Blairmore, t h e

V i l l a g e of Frank, and t h e H i l l c r e s t c i t i z e n s committee. A t the fol-

lowing meeting on Marsh 20, t h e board s e l e c t e d t h r e e s i t e s f o r f u r t h e r

examination: t h e Coleman E a s t s i t e , t h e Blairmore South s i t e , and t h e

Frank s i t e . Subsequently, a t a s p e c i a l board meeting, t h e r e p r e s e n t a -

t i v e s expressed t h e i r impressions about t h e t h r e e s i t e s and r e s o l v e d

t h a t t h e Oldman River Regional Planning Commission should be asked f o r

i t s a d v i c e , and t h a t t h e s e c r e t a r y - t r e a s u r e r should w r i t e t o t h e
M i n i s t e r of Highways concerning t h e r o u t e of a proposed new highway.

A r e p r e s e n t a t i v e of t h e Planning Commission met w i t h t h e s c h o o l

board on May 1 5 , 1967 and c a n d i d l y e x p l a i n e d t h a t , a l t h o u g h h e w a s pre-

pared t o o f f e r h i s o p i n i o n concerning t h e r e l a t i v e advantages and d i s -

advantages of t h e t h r e e s i t e s which had been s e l e c t e d f o r examination,

i t was i m p o s s i b l e f o r him t o recommend one of them. He f u r t h e r ex-

p l a i n e d t h a t h e and h i s c o l l e a g u e s were s t i l l w a i t i n g f o r a d e c i s i o n

from t h e p r o v i n c i a l and f e d e r a l governments concerning t h e f i n a n c i n g of

4
a s u b r e g i o n a l s t u d y of t h e 'Pass a r e a . T h i s d e c i s i o n was expected

w i t h i n two weeks, and i f t h e two governments approved of t h e p r o j e c t ,

then t h e Commission would be a b l e t o p r e s e n t a s i t e recommendation s i x

months a f t e r t h e s t u d y was i n i t i a t e d .

The s e c r e t a r y of t h e s c h o o l board r e c e i v e d a l e t t e r from t h e

M i n i s t e r of Highways on May 1 which e x p l a i n e d t h a t t h e ' q u i t e d i f f i -

c u l t ' and ' r e s t r i c t i v e ' n a t u r e of t h e t e r r a i n i n t h e Crowsnest P a s s

a r e a had c r e a t e d an involved t a s k f o r t h e planning branch of t h e High-

ways Department, and f o r t h i s r e a s o n i t was n o t p o s s i b l e , a t t h a t time,

t o make a recommendation concerning a permanent r e a l i g n m e n t of Highway

#3. However, s i n c e t h e proposed highway would be u n a b l e t o accommodate

an a c c e s s road from t h e new s c h o o l , ' i t would n o t be a d v i s a b l e t o l o c a t e

t h e s c h o o l c l o s e t o i t and i t would be p r e f e r a b l e t o depend on a c c e s s

1

t o t h e s c h o o l from t h e e x i s t i n g highway.' He concluded by s t a t i n g :

"I have checked t h e t h r e e t e n t a t i v e s i t e s which

you a r e c o n s i d e r i n g f o r t h e s c h o o l and none of
t h e s e would appear t o i n t e r f e r e w i t h any s i t e
t h a t may b e chosen f o r t h e new highway. It
would a l s o appear t h a t t h e r e i s r e a s o n a b l e ac-
c e s s from each of t h e t h r e e s i t e s t o t h e ex-
i s t i n g highway. "
 78

It i s somewhat d i f f i c u l t t o understand how t h e M i n i s t e r c o u l d ,

w i t b o u t a ' c l e a r c u t ' d e c i s i o n from h i s p l a n n e r s , endorse, a l t h o u g h

a d m i t t e d l y i n r a t h e r vague t e r m s , t h r e e s i t e s , each i n a d i f f e r e n t

community. But t h e s u b s t a n c e of h i s l e t t e r d i d g i v e t h e s c h o o l board

a s u f f i c i e n t amount of leeway t o d i s c u s s t h e t h r e e s i t e s t e n t a t i v e l y

suggested.

On June 12 t h e s c h o o l board was informed t h a t t h e Planning

C o m i s s i o n had r e c e i v e d ' u n o f f i c i a l r e p o r t s ' t o t h e e f f e c t t h a t t h e two

s e n i o r governments were prepared t o f i n a n c e a s u b r e g i o n a l s t u d y of t h e

'Pass a r e a . And on J u l y 17 t h e Commission r e p r e s e n t a t i v e t o l d t h e

board t h a t i t would be well-advised t o postpone i t s s i t e d e c i s i o n ' a s

t h e Commission h a s i n f o r m a t i o n which cannot b e r e v e a l e d a t t h i s t i m e ' .

To a l l i n t e n t s and purposes, t h e s c h o o l board was now j u s t i f i e d i n

t h i n k i n g t h a t i t would b e r e c e i v i n g a recommendation w i t h i n a v e r y s h o r t

time. While t h e Commission r e p r e s e n t a t i v e had n o t t o l d t h e board ex-

p l i c i t l y t h a t t h e p r o j e c t had r e c e i v e d b o t h f e d e r a l and p r o v i n c i a l

government concurrence, t h e board was l e f t , a s a consequence of t h e

i n f o r m a t i o n i t had r e c e i v e d , w i t h t h e impression t h a t t h e s u b r e g i o n a l

s t u d y was a c e r t a i n t y .

A l e t t e r from t h e board s e c r e t a r y t o t h e Planning Commission

r e p r e s e n t a t i v e , d a t e d November 1 5 , 1 9 6 7 , e x p r e s s e d t h e b o a r d ' s a n x i e t y
\

about t h e p r o g r e s s of t h e r e p o r t t h a t had been 'promised'. The

r e p r e s e n t a t i v e , a t t h e November 27 r e g u l a r board meeting, attempted t o

meet t h e b o a r d ' s demand f o r some a c t i o n by e x p l a i n i n g t h a t t h e f e d e r a l

government had n o t g i v e n o f f i c i a l s a n c t i o n t o t h e s t u d y and ' t h e r e f o r e

t h e s t u d y h a s n o t progressed a s p r e v i o u s l y a n t i c i p a t e d ' . Again, t h e

 79

r e p r e s e n t a t i v e w a s u n a b l e t o make a recommendation; however, h e d i d

I

promise t o have a b r i e f ready f o r t h e December 1 9 meeting and r e q u e s t e d

t h a t a s i t e d e c i s i o n be delayed u n t i l t h a t time.

I n accord w i t h h i s promise, t h e Planning Commission r e p r e s e n t a -

t i v e had a r e p o r t prepared on t h e s i t e s . The r e p o r t , t i t l e d 'Report on

S i t e f o r Proposed Composite High School--Crowsnest Pass', stated that:

"Of a l l t h e s i t e s , i t i s c o n s i d e r e d t h a t t h e l o -
c a t i o n e a s t of Coleman i s t h e most s u i t a b l e a f t e r
taking i n t o consideration a l l f a c t o r s except the
highway, b u t t h e d e c i s i o n of t h e Department of
Highways would appear t o p r e c l u d e t h e u s e of t h i s
s i t e . I'

S i n c e t h e Department of Highways had g i v e n permission t o t h e s c h o o l

board t o proceed w i t h p l a n s f o r t h e Coleman E a s t s i t e s e v e r a l months

b e f o r e , i t can b e assumed t h a t t h e P l a n n i n g Commission had n o t been

f u l l y informed of a l l t h e d e c i s i o n s t h a t had been made concerning t h e

three s i t e s . A l t e r n a t i v e l y , t h e Department of Highways might have

changed i t s mind concerning t h e Coleman E a s t s i t e , b u t t h e r e i s no

r e c o r d of i t having done s o . However, t h e Commission r e p o r t d i d en-

courage t h e s c h o o l board t o a g a i n e n q u i r e i n t o t h e s t a t u s of t h i s s i t e

"is v i s t h e new highway.

During t h e January 22, 1968 s c h o o l board meeting, t h e D i r e c t o r

of School A d m i n i s t r a t i o n phoned t h e board and appealed f o r a q u i c k s i t e

d e c i s i o n , i n d i c a t i n k t h a t t h e new s c h o o l was h i g h on t h e government's

p r i o r i t y l i s t b u t t h a t f u r t h e r v a c i l l a t i o n might make f i n a n c i n g a

problem i n t h e f u t u r e . Without f u r t h e r c o g i t a t i o n t h e board voted f o r

i t s f i r s t two s i t e c h o i c e s . The Coleman E a s t s i t e r e c e i v e d f o u r v o t e s

and t h e Blairmore South s i t e , two v o t e s . Following t h e v o t e , t h e board

passed t h e f o l l o w i n g motion: 1

"1n t h e e v e n t a r e p l y i s n o t r e c e i v e d from t h e
Department of Highways r e g a r d i n g Coleman s i t e ,
w i t h i n t e n days of t h e proposed meeting w i t h t h e
Department's o f f i c i a l s , t h e s c h o o l board proceed
t o p r o c u r e t h e Blairmore s i t e . "

The board a l s o d i r e c t e d t h e s e c r e t a r y t o c o n t a c t t h e s u p e r i n t e n d e n t and

r e q u e s t him t o a r r a n g e a meeting f o r January 25 w i t h o f f i c i a l s of t h e

Departments of Highways and Education t o d i s c u s s t h e Coleman E a s t s i t e ,

So, a f t e r more than a y e a r of work, t h e board had managed t o e l i m i n a t e

one s i t e of t h e t h r e e o r i g i n a l l y chosen and was s t i l l sounding o u t t h e

Department of Highways.

A s a consequence of t h e P l a n n i n g Commission r e p o r t and i t s

d e c i s i o n t o make t h e E a s t Coleman s i t e i t s f i r s t ohoice of l o c a t i o n f o r

t h e new s c h o o l , t h e board w r o t e t o t h e M i n i s t e r of Highways:

11
We have been informed t h a t t h i s s i t e c o n f l i c t s
w i t h t h e proposed l o c a t i o n of t h e re-routed
highway. We s i n c e r e l y r e q u e s t your c o n s i d e r a t i o n
f o r t h e a d o p t i o n of an a l t e r n a t i v e highway r o u t e
s o t h a t t h i s l a n d may b e a v a i l a b l e t o t h e s c h o o l
division.

I t i s i m p e r a t i v e t h a t t h e s c h o o l d i v i s i o n com-
mence c o n s t r u c t i o n a s soon as p o s s i b l e . The
board h a s agreed upon a s i t e , and i t i s ad-
v i s a b l e t h a t a c t i o n on t h i s l o c a t i o n b e t a k e n
immediately .I'

I n h i s r e p o r t of February 1 9 , t h e s u p e r i n t e n d e n t informed t h e
I
board t h a t t h e 'original p l a n f o r t h e highway shows t h a t t h e r o u t e

passed through t h e c e n t r e of t h e a r e a we have chosen f o r a s i t e f o r t h e

s c h o o l ' ; however, ' i t i s q u i t e p o s s i b l e f o r u s t o purchase more a r e a t o

t h e n o r t h and north-west and a l l o w more room f o r s c h o o l expansion.'

Although t h e r e i s no r e c o r d t h a t t h e meeting t h e board d e s i r e d took

p l a c e on January 25, i t would appear t h a t t h e Department of ~ i g h w a y ' s

 81

p o s i t i o n on t h e Coleman s i t e had been c l e a r e d up through t h e a c t i o n

of t h e s c h o o l s u p e r i n t e n d e n t .

A t i t s meeting of June 1 5 , t h e board was informed t h a t t h e

Department of Highways was n o t prepared t o approve t h e s c h o o l s i t e

because t h e a c c e s s road was going t o b e , according t o t h e p l a n s , con-

n e c t e d t o Highway # 3 . A new p l a n was h u r r i e d l y drawn up and submitted

t o t h e Department of Highways f o r i t s a p p r o v a l . Shortly afterwards,

on J u l y 22, t h e board was informed t h a t b o t h t h e Department of Edu-

c a t i o n and Department of Highways had approved t h e s i t e , and t h a t t h e

Department of Highways had r e c e i v e d a g r a n t t o c o n s t r u c t t h e a c c e s s

road t o t h e s i t e . What i s of s i g n i f i c a n c e h e r e i s t h e f a c t t h a t s e v e r a l

months p r e v i o u s l y , t h e M i n i s t e r of Highways had i n d i c a t e d t o t h e s c h o o l

board t h a t t h e E a s t Coleman s i t e d i d n o t i n t e r f e r e w i t h t h e proposed

l o c a t i o n of t h e r e - r o u t e d highway, and, i n a d d i t i o n , had suggested t h a t

t h e board s e r i o u s l y c o n s i d e r 'an a c c e s s t o t h e s c h o o l from t h e e x i s t i n g

highway'. Apparently, t h e Department of Highways had r e c o n s i d e r e d i t s

o r i g i n a l s u g g e s t i o n and, a s a r e s u l t , f o r c e d t h e s c h o o l board t o change

i t s plans.

During August, 1968, d i f f i c u l t i e s a r o s e a g a i n concerning t h e

a c c e s s r o a d t o t h e proposed h i g h school. The board was informed t h a t

t h e o p t i o n on t q e Coleman E a s t s i t e had been extended t h r e e months;

however, t h e b o a r d ' s lawyer had informed t h e s u p e r i n t e n d e n t t h a t i n

o r d e r t o o b t a i n t i t l e t o t h e s i t e , h e had t o have t h e l e g a l d e s c r i p t i o n

of t h e b o u n d a r i e s , and t h i s he was u n a b l e t o g e t because ' t h e Oldman

River Regional Planning Commission i s h o l d i n g him up a s t h e y want t h e

a c c e s s r o a d t o come o f f Highway # 3 ' . A f t e r b e i n g made aware of t h i s

 82

p a r t i c u l a r development, t h e board i n s t r u c t e d t h e s e c r e t a r y t o phone t h e

I

Department of Highways and determine t h e d i s p o s i t i o n of t h e Planning

Commission's p r o p o s a l . On September 1 6 , t h e s c h o o l board was advised

t h a t t h e Chief Planning Engineer f o r t h e Department of Highways had r e -

confirmed t h e d e c i s i o n t h a t t h e a c c e s s road should n o t l e a d onto

Highway # 3 .

An i n d i v i d u a l who had been involved w i t h t h e s i t e s e l e c t i o n

q u e s t i o n e x p l a i n e d t o t h i s w r i t e r , w i t h r e f e r e n c e t o t h e Planning

Commission's r e q u e s t , t h a t had t h e board a g r e e d , 'we wouldn't have a

s c h o o l today'. He added, ' A s a m a t t e r of f a c t I a m n o t s y m p a t h e t i c t o

t h e p l a n n i n g group a t a l l because we d i d n ' t g e t any co-operation, and

t h e r e a r e l o t s of i n s t a n c e s where communications would come t o a town

council but not t o the board'.

E s s e n t i a l l y , t h e Planning Commission r e p r e s e n t a t i v e was con-

cerned t h a t t h e l o c a t i o n of t h e new h i g h s c h o o l would conform t o t h e

o v e r a l l p l a n f o r t h e 'Pass a r e a which would e v o l v e from t h e s u b r e g i o n a l

study. I n o t h e r words, i f t h e board proceeded t o choose a s i t e b e f o r e

t h e s t u d y had been completed, t h e r e was a p o s s i b i l i t y t h a t t h e v a l u e of

t h e s u b r e g i o n a l p l a n , which w a s i n t e n d e d t o f u l f i l l requirements f o r

urban renewal a s s i s t a n c e from t h e f e d e r a l government, would be p a r t i a l l y

negated. N e v e r t h e l e s s , t h e r e p r e s e n t a t i v e d i d f e e l t h a t i t was h i s
I
r e s p o n s i b i l i t y t o make 'comments and recommendations on t h e l i m i t e d

i n f o r m a t i o n p r e s e n t l y a v a i l a b l e ' , and, as h a s been p o i n t e d o u t , eventu-

a l l y prepared a r e p o r t . Although t h e r e p r e s e n t a t i v e d i d n o t a c t u a l l y

make a recommendation, h e d i d emphasize t h e s u i t a b i l i t y of t h e Coleman

East s i t e . However, a s f a r a s he was concerned, t h i s s i t e was i n t h e

 83

way of t h e proposed highway. S i n c e t h e s c h o o l board had a l r e a d y r e -

,
ceived a l e t t e r from t h e M i n i s t e r of Highways i n d i c a t i n g t h a t t h i s par-

t i c u l a r s i t e would n o t i n t e r f e r e w i t h t h e proposed r o u t e , i t would

appear t h a t t h e Commission r e p r e s e n t a t i v e was l a c k i n g c e r t a i n i n f o r -

mation a t t h e time he wrote h i s r e p o r t . On t h e o t h e r hand, t h e r e p r e -

s e n t a t i v e may have been t r y i n g t o slow down t h e s e l e c t i o n p r o c e s s . His

p o s i t i o n was s u c h t h a t h e could n o t promote a s i t e w i t h o u t r i s k i n g t h e

p o s s i b i l i t y t h a t i t would, a t some l a t e r d a t e , n e g a t e a l a r g e p o r t i o n

of t h e s u b r e g i o n a l s t u d y . A t t h e same time, however, he was r e s p o n s i b l e

f o r g i v i n g a s s i s t a n c e t o t h e s c h o o l board. The s u g g e s t i o n i s t h a t by

r e f e r r i n g t o t h e proposed highway r o u t e t h e Commission r e p r e s e n t a t i v e

a t t e m p t e d t o undermine h i s recommendation and t h u s s t a l l t h e a c t i v i t i e s

of t h e board.

S i n c e t h e board was under c o n t i n u a l p r e s s u r e by t h e Department

of Education t o choose a s i t e , i t became i n c r e a s i n g l y d i s s a t i s f i e d w i t h

t h e a c t i v i t i e s of t h e Commission's r e p r e s e n t a t i v e . I n addition, the

Commission r e p r e s e n t a t i v e ' s r e q u e s t s f o r d e l a y gave t h e communities of

B e l l e v u e and Blairmore f u r t h e r ammunition f o r t h e i r f i g h t w i t h t h e

s c h o o l board. Following t h e d e c i s i o n t o purchase t h e Coleman E a s t s i t e ,

t h e d e b a t e i n c r e a s e d i n tempo and t h e Blairmore c o u n c i l s e n t t h e f o l -

lowing l e t t e r t o t h e s c h o o l board:
/
"The c o u n c i l f e e l s t h a t t h i s c o n s t r u c t i o n should
b e postponed u n t i l such time a s t h e Planning
C o m i s s i o n p r e s e n t s t h e i r p l a n s and l o c a t i o n f o r
t h i s p a r t i c u l a r s c h o o l , s i n c e i t has been recom-
mended by t h e Planning Commission i n t h e i r temporary
p l a n s t h a t c o n s t r u c t i o n b e delayed....
Council a l s o f e e l s t h a t i f your board does go
ahead w i t h t h e p r e s e n t p l a n t o c o n s t r u c t t h e new
 84

s c h o o l immediately, they w i l l b e working a g a i n s t

t h e g e n e r a l p l a n of th'e a r e a , and i n t h i s way b e
d e v a l u a t i n g t h e s t u d y t h a t i s t o b e made."

Apparently t h e Blairmore c o u n c i l had t a k e n n o t e of t h e f a c t t h a t t h e

P l a n n i n g Commission r e p r e s e n t a t i v e had s t a t e d i n h i s r e p o r t t h a t t h e

s c h o o l board 'would b e well-advised t o await t h e completion of t h e

survey s t a g e of t h e s u b r e g i o n a l p l a n b e f o r e making a f i n a l d e c i s i o n on

t h e c h o i c e of a s i t e f o r t h e s c h o o l ' , and had decided t o u s e t h i s t o

a t t e m p t t o d i s c o u r a g e t h e board from p e r s i s t i n g w i t h i t s s i t e d e c i s i o n .

To a l l i n t e n t s and purposes i t would appear t h a t t h e Blairmore c o u n c i l

had decided t h a t t o s u p p o r t t h e Planning Commission's recommendation

would be t h e r e s p o n s i b l e t h i n g t o do; however, t h i s c o u n c i l ' s p r i o r

r e l a t i o n s h i p w i t h t h e Commission would s u g g e s t t h a t t h e c o u n c i l o n l y

s u p p o r t e d t h o s e Commission recommendations which would prove t o b e of

some b e n e f i t t o i t . I n o t h e r words, i t i s b e i n g s u g g e s t e d t h a t t h e

Blairmore c o u n c i l was n o t a c t i n g i n d e f e r e n c e t o t h e Planning Commission

b u t viewing t h e recommendation a s a means of impeding t h e p r o g r e s s of

t h e s c h o o l board. On J u l y 2 2 , 1968, t h e Bellevue c o u n c i l w r o t e t o t h e

s c h o o l board and a l s o i n d i c a t e d i t s f e e l i n g t h a t t h e choosing of a

s c h o o l s i t e should be h e l d i n abeyance u n t i l t h e Planning Commission

had handed down i t s f i n a l recommendation, and added t h a t a r e f u s a l t o

concur w i t h t h i s o p i n i o n would e f f e c t i v e l y d e s t r o y t h e u s e f u l n e s s of t h e
/
s u b r e g i o n a l s t u d y which a l l t h e m u n i c i p a l i t i e s of t h e Crowsnest P a s s

a r e a had agreed t o and p a r t i a l l y funded. There i s no evidence t o sug-

g e s t t h a t t h e two c o u n c i l s , however, had been made aware of t h e p r e s s u r e

being a p p l i e d by t h e Department of Education on t h e s c h o o l board w i t h

respect t o i t s p r i o r i t i e s regarding school construction.

 S e v e r a l s c h o o l board members g a i n e d t h e impression t h a t t h e
I

Planning Comission was i n c o l l u s i o n w i t h t h e s e two c o u n c i l s and

t h e r e f o r e c o m p l i c i t i n an a t t e m p t t o s u b v e r t t h e b o a r d ' s d e c i s i o n .

This may v e r y wed1 have been t h e c a s e ; however, t h e r e i s no r e a l e v i -

dence t o s u p p o r t such a n o t i o n . With r e f e r e n c e t o t h e a c c e s s road

q u e s t i o n , t h e s c h o o l board wrote a l e t t e r i n J u l y , 1968 t o t h e Planning

Commission which s t a t e d t h a t :

"At a r e g u l a r meeting of t h e Board of T r u s t e e s

h e l d y e s t e r d a y , t h e m a t t e r of b e t t e r communi-
c a t i o n between t h e Board of T r u s t e e s of t h e
Crowsnest P a s s School D i v i s i o n #63 and t h e Old-
man R i v e r Regional P l a n n i n g Commission was
discussed.

Our Board h a s r e c e i v e d i n f o r m a t i o n from o t h e r

s o u r c e s t h a t you have approached t h e Department
of Highways r e q u e s t i n g t h a t t h e a c c e s s road i n t o
t h e new s c h o o l be o f f Highway # 3 i n s t e a d of t h e
Kananaskis Road.

We would a p p r e c i a t e r e c e i v i n g i n f o r m a t i o n of
your d e c i s i o n s on m a t t e r s i n v o l v i n g t h e Crows-
n e s t P a s s School D i v i s i o n #63."

T h i s l e t t e r i n d i c a t e d t h a t t h e s c h o o l board was becoming i n c r e a s i n g l y

annoyed w i t h t h e Planning Commission. Over t h e months, t h e Commission

had o f f e r e d v e r y l i t t l e i n t h e way of a s s i s t a n c e t o t h e board, p a r t i c u -

l a r l y on t h e q u e s t i o n of s e l e c t i n g a s u i t a b l e s i t e f o r t h e new s c h o o l ,

and now i t seemed t h a t t h e Commission was involved i n c e r t a i n c o v e r t

a c t i v i t i e s which would have an a f f e c t on t h e development and p l a n n i n g of

t h e new s c h o o l . I n a d d i t i o n , w h i l e t h e board was s t i l l p r i m a r i l y con-

cerned w i t h t h e a t t r i b u t e s of t h e f i r s t t h r e e s i t e s s u b m i t t e d , i t had

been encouraged, by t h i s t i m e , t o c o n s i d e r a l l t h e s i t e s submitted t o i t .

Presumably t h i s was an a t t e m p t t o appease t h e f e e l i n g s of t h e v a r i o u s

 86

communities and i n t e r e s t groups, and t o e n s u r e t h a t s u i t a b l e s i t e s ,

I

a l t h o u g h submitted l a t e , were n o t overlooked. So f a r a s t h e Commission

r e p r e s e n t a t i v e was concerned, t h e most important g o a l was t h e prepara-

t i o n of a document which would a c t a s a g u i d e f o r f u t u r e development

and growth, and would, a s a r e s u l t , p l a c e t h e i n d i v i d u a l 'Pass com-

m u n i t i e s i n a b e t t e r p o s i t i o n t o a t t r a c t p r i v a t e investment.

While i t h a s been n o t e d t h a t c e r t a i n i n d i v i d u a l s a s s o c i a t e d

w i t h t h e s c h o o l board d u r i n g t h e months f o l l o w i n g t h e formation of a

d i v i s i o n were, and i n some c a s e s s t i l l a r e , h i g h l y c r i t i c a l of t h e

Planning Commission's e f f o r t s , i t should n o t be assumed t h a t a l l t h e s e

i n d i v i d u a l s were p a r t i c u l a r l y i n t e r e s t e d i n r e c e i v i n g a recommendation

from t h e Commission. For t h o s e h o l d i n g e l e c t e d p o s i t i o n s on t h e board,

a recommendation was viewed w i t h some enthusiasm f o r i t would have had

t h e e f f e c t of l i f t i n g some of t h e c r i t i c i s m and p r e s s u r e b e i n g a p p l i e d

on them by t h e i n d i v i d u a l communities; a recommendation would have

provided a means of s h i f t i n g r e s p o n s i b i l i t y f o r t h e c h o i c e of a par-

t i c u l a r site. But i n t h e c a s e of s c h o o l d i v i s i o n employees, who had

been a s c r i t i c a l of t h e Planning Commission a s any o t h e r group, t h e r e

i s now a tendency t o a r g u e t h a t a recommendation from t h e Commission

was of r e l a t i v e l y l i t t l e importance, and, f u r t h e r m o r e , t o s u g g e s t t h a t

i f one had been made, i t could have caused f u r t h e r c o m p l i c a t i o n s . One

I
individual said t o t h i s writer, 'I h a d n ' t p u t too much thought i n t o what

they were going t o d e c i d e , and a s f a r a s I a m concerned, t h e r e a r e t o o

many people making d e c i s i o n s about e d u c a t i o n a l problems t h a t they d o n ' t

know a n y t h i n g a b o u t ' . T h i s comment r e c e i v e d f u r t h e r s u p p o r t from

a n o t h e r i n d i v i d u a l who d e s c r i b e d t h e proposed Planning Commission

 87

recommendation a s a ' r e d h e r r i n g ' p u t forward by someone t o m i s d i r e c t

t h e board. Both i n d i v i d u a l s a g r e e d , however, t h a t For a w h i l e c e r t a i n

board members h e l d t h e o p i n i o n t h a t such a recommendation would a c t a s

a 'scapegoat'. But t h e q u e s t i o n s and problems a s s o c i a t e d w i t h l o c a t i n g

a s c h o o l were b e t t e r d e a l t w i t h , t h e y contended, by t h o s e i n t i m a t e l y

involved i n t h e e d u c a t i o n system. T h i s i s n o t t o s a y t h a t t h e pro-

f e s s i o n a l employees of p l a n n i n g commissions l a c k s i n c e r i t y o r a b i l i t y ,

b u t r a t h e r t h a t t h e y do n o t u n d e r s t a n d , n o r have they t h e knowledge

t o d e a l w i t h , t h e complex f a c t o r s t h a t a r e involved i n e s t a b l i s h i n g a

l o c a t i o n f o r a school.

There a r e now reasons t o b e l i e v e t h a t t h e b o a r d ' s s i t e d e c i s i o n

may prove t o b e an u n s u i t a b l e one i n terms of g e n e r a l , f u t u r e develop-

ment i n t h e Crowsnest P a s s a r e a . Although t h e l a c k of i n t e r e s t , i l l u s -

t r a t e d by c e r t a i n i n d i v i d u a l s i n a recommendation from t h e Planning

Commission, i s u n d e r s t a n d a b l e , t h e f a c t remains t h a t t h e Commission was

proposing t o produce a document which would o f f e r s u b s t a n t i a l a d v i c e

concerning t h e d i r e c t i o n of f u t u r e development and growth i n t h e 'Pass

area. The p r o p o s a l s , i f t h e y were a c c e p t e d , would presumably impose a

new s e t of f a c t o r s which would have t o b e taken i n t o c o n s i d e r a t i o n i n

t h e choosing of a s c h o o l s i t e . The o p i n i o n t h a t i t was important t o

proceed q u i c k l y , however, r e s u l t e d i n t h e P l a n n i n g Commission's r e q u e s t

i
f o r d e l a y b e i n g v i r t u a l l y ignored. T h i s o p i n i o n , a s h a s been p o i n t e d

o u t , was p r i m a r i l y s t i m u l a t e d by p r e s s u r e s from v a r i o u s o u t s i d e i n t e r e s t

groups. I f t h e s e p r e s s u r e s had been ignored and a complete d e l a y agreed

t o , t h e r e i s a p o s s i b i l i t y t h a t t h e f i n a l s i t e c h o i c e would have been

more i n c o n c e r t w i t h f u t u r e development and urban renewal a c t i v i t i e s i n

t h e 'Pass a r e a . I

The Planning omm mission's u l t i m a t e s i t e recommendation, sub-

m i t t e d months a f t e r t h e s c h o o l board had decided t o purchase t h e E a s t

Coleman p r o p e r t y , was t h a t t h e h i g h s c h o o l should be l o c a t e d e a s t of

B e l l e v u e , approximately twenty m i l e s away from t h e s i t e t h a t had a l -

ready been purchased. Although t h i s recommendation was one of many

c o n t a i n e d i n t h e s t u d y p r e p a r e d f o r t h e u r b a n renewal program, and

a l t h o u g h t h i s program was e v e n t u a l l y c a n c e l l e d , i t i s i m p o r t a n t t o n o t e

t h a t t h e Planning Commission b e l i e v e s t h a t t h e s t u d y o f f e r s t h e b e s t

g u i d e f o r planning f u t u r e growth and development i n t h e Crowsnest P a s s '

area. I t can be assumed, t h e r e f o r e , t h a t i f t h e p l a n s o u t l i n e d i n t h e

completed s u b r e g i o n a l s t u d y a r e followed, t h e advantages t h a t o b t a i n t o

t h e p r e s e n t l o c a t i o n of t h e h i g h s c h o o l may v e r y w e l l be negated. If,

on t h e o t h e r hand, t h e p l a n s were a l t e r e d i n a f a s h i o n t o t a k e i n t o

account t h e p r e s e n t l o c a t i o n , t h e n t h e o v e r a l l v a l u e of t h e p l a n s may

v e r y w e l l be d i s s i p a t e d .

Analysis

The s e c r e t a r y of t h e d i v i s i o n and t h e s u p e r i n t e n d e n t s p e n t many

h o u r s examining t h e v a r i o u s s i t e s s u b m i t t e d t o t h e board f o r c o n s i d e r -

a t i o n and t h u s performed, i n t h e i r view, a f i d u c i a r y r e s p o n s i b i l i t y t h a t

o t h e r s , i d c l u d i n g Commission p l a n n e r s , could n o t . The evidence s u g g e s t s ,

however, t h a t w h i l e t h e s e c r e t a r y and s u p e r i n t e n d e n t d i d do a g r e a t d e a l

of work, they were both r a t h e r r e l u c t a n t t o come forward w i t h an o u t -

r i g h t recommendation f o r t h e board t o c o n s i d e r . The s u p e r i n t e n d e n t d i d

p r o v i d e t h e s c h o o l board w i t h comprehensive r e p o r t s of h i s f i n d i n g s from

time t o time, and, a t one p o i n t , p r e p a r e d a c h a r t of t h e r e l a t i v e ad-

v a n t a g e s and d i s a d v a n t a g e s of t h e v a r i o u s s i t e s t h e board was con-
1

s i d e r i n g ; however, a t no time d i d he o v e r t l y recommend any p a r t i c u l a r

s i t e , a l t h o u g h a c a r e f u l s c r u t i n y of h i s c h a r t would have made one

aware of t h e most s u i t a b l e l o c a t i o n from h i s p o i n t of view. The s e c r e -

t a r y , being an employee of t h e d i v i s i o n , was r e l u c t a n t t o e x p r e s s a

d e f i n i t e o p i n i o n on s u c h a v o l a t i l e i s s u e . So w h i l e t h e board was

r e c e i v i n g a g r e a t d e a l of a d v i c e from t h e s e two i n d i v i d u a l s , i t was

s t i l l without a clear-cut ' s c a p e g o a t ' and t h u s could do l i t t l e e l s e b u t

f a c e up t o t h e p r e s s u r e s b e i n g a p p l i e d by t h e v a r i o u s communities.

I n h i s r e p o r t of December, 1967, t h e s u p e r i n t e n d e n t p u t forward

t h e view t h a t t h e board should make e v e r y e f f o r t t o s e l e c t a s i t e and

n o t t o hand t h i s r e s p o n s i b i l i t y over t o t h e Department of Education.

Presumably, t h e s u p e r i n t e n d e n t r e a l i z e d t h a t t h e M i n i s t e r had no d e s i r e

t o i n v o l v e h i s Department i n a l o c a l i s s u e ; p a r t i c u l a r l y an i s s u e of t h e

p o l i t i c a l s i g n i f i c a n c e t h a t e x i s t e d i n t h e 'Pass a r e a . To improve t h e

c r e d i b i l i t y of t h e above s u g g e s t i o n , t h i s w r i t e r w i l l r e f e r t o a p o i n t

t h a t was made d u r i n g c o n v e r s a t i o n s w i t h an a u t h o r i t y i n t h e f i e l d of edu-

cation. T h i s a u t h o r i t y s t a t e d t h a t t h e s u p e r i n t e n d e n t s of t h e p r o v i n c e

had been o r d e r e d by t h e M i n i s t e r ' s o f f i c e n o t t o openly s u p p o r t t h e

c o n s o l i d a t i o n of s c h o o l d i s t r i c t s . To s u p p o r t c o n s o l i d a t i o n and t o t a k e

measures t o f a c i l i t a t e i t s p r o g r e s s might i n v o l v e t h e Department of Edu-

/
c a t i o n i n an awkward p o l i t i c a l s i t u a t i o n . The argument h e r e i s t h a t t h e r e

i s a p o s s i b i l i t y t h a t t h e M i n i s t e r ' s p o s t u r e concerning c o n s o l i d a t i o n

would be s i m i l a r t o t h e one r e g a r d i n g a s u p e r i n t e n d e n t ' s involvements i n

a school s i t e debate. Thus, i t i s p o s s i b l e t o assume, t h e power of t h e

M i n i s t e r n o t w i t h s t a n d i n g , t h a t o f f i c i a l s of t h e Department of Education
 90

were anxious t o avoid involvements i n m a t t e r s of t h i s k i n d , j u s t as

I

t h e y were i n d i s c o u r a g i n g l o c a l s c h o o l board r e l i a n c e on a Planning

Commission recommendation. Hence t h e s e i n t e r e s t e d i n d i v i d u a l s , w h i l e

e x e r t i n g an i n f l u e n c e , were r e l u c t a n t t o u s e t h e a u t h o r i t y t h e y

possessed i n law t o r e s o l v e a l o c a l c o n t e n t i o u s i s s u e .

There was o n l y a remote p o s s i b i l i t y t h a t t h e s c h o o l board

would t a k e such d e l a y i n g a c t i o n as would permit t h e Planning Commission

t o come forward w i t h i t s d e c i s i o n . I t i s p o p u l a r l y thought among

s c h o o l a d m i n i s t r a t o r s t h a t by t a k i n g temporary measures, such a s t h e

i n t r o d u c t i o n of p o r t a b l e classrooms t o r e l i e v e immediate problems, they

p r o v i d e t h e Department of Education w i t h t h e n e c e s s a r y r a t i o n a l e f o r n o t

a l l o c a t i n g f u n d s f o r t h e b u i l d i n g of permanent s t r u c t u r e s . The Crows-

n e s t P a s s s c h o o l board, being cognizant of t h e f a c t t h a t s e v e r a l o t h e r

d i s t r i c t s and d i v i s i o n s were r e q u e s t i n g funds f o r new s c h o o l s t r u c t u r e s ,

was t h e r e f o r e r e l u c t a n t t o i n t r o d u c e temporary f a c i l i t i e s i n t o t h e

Crowsnest P a s s . There was, c e r t a i n i n d i v i d u a l s f e l t , a p o s s i b i l i t y t h a t

t h e s c h o o l board, by making such arrangements a s would accommodate t h e

Planning Commission and n o t cause inconvenience f o r t h e d i v i s i o n , would

compromise t h e c a s e f o r a new h i g h s c h o o l .

I n s o f a r a s t h e Department of Education was concerned, t h e r e

seemed t o be no i n c l i n a t i o n t o co-operate w i t h t h e Planning Commission.

/
Too, t h e Department's c o n t i n u a l p r e s s u r e on t h e board o b v i a t e d any

i n c l i n a t i o n on t h a t g r o u p ' s p a r t t o co-operate w i t h t h e Commission.

E s s e n t i a l l y , t h e Department, having promised t o a l l o c a t e a sum of money

f o r t h e b u i l d i n g of t h e new s c h o o l , wanted t o avoid being embarrassed

( p o l i t i c a l l y ) by o t h e r d i v i s i o n s who were ' c r y i n g f o r a s s i s t a n c e ' . And,

 91
,
a s h a s been mentioned, t h e r e was t h e o p i n i o n , which probably i n f l u e n c e d

t h e board r e p r e s e n t a t i v e s , t h a t t h e approach of t h e Planning Commission

was a 'Chamber of Commerce o n e f , i . e . , one of promotion r a t h e r t h a n

i n t e r e s t o r understanding. However, a c c o r d i n g t o one i n d i v i d u a l , who

was p r e s e n t a t t h e time of t h e s i t e v o t e , t h e Coleman r e p r e s e n t a t i v e s

a l l v o t e d i n f a v o u r of t h e E a s t Coleman s i t e , and t h e o t h e r s , w i t h one

e x c e p t i o n , v o t e d f o r t h e Blairmore s i t e . This would s u g g e s t t h a t , i n

t h e f i n a l a n a l y s i s , t h e board r e p r e s e n t a t i v e s were r e a l l y n o t a l l t h a t

i n t e r e s t e d i n o u t s i d e o p i n i o n s e x c e p t from t h e p o i n t of view of having

a 'scapegoat'. They were, r a t h e r , more concerned w i t h v o t i n g f o r t h e

s i t e l o c a t e d i n t h e s u b d i v i s i o n which they each ' r e p r e s e n t e d 1 . This

c o n s i d e r a t i o n f a r outweighed t h e impact of a recommendation which would

b e forthcoming from a s u b r e g i o n a l s t u d y o r t h e ' o p i n i o n s ' provided by

educational administrators.

Although t h e s c h o o l board was empowered by t h e M i n i s t e r of

Education t o choose a s i t e , a number of d i f f i c u l t i e s a r o s e . The s c h o o l

board had t h e normative r e s p o n s i b i l i t y of having t o p r o v i d e s u i t a b l e

e d u c a t i o n a l f a c i l i t i e s f o r t h e s t u d e n t s of t h e a r e a and t h e pragmatic

problem of f a c i l i t a t i n g such p r o v i s i o n w i t h o u t engendering a n uncom-

f o r t a b l e p o s i t i o n f o r i t s e l f i n t h e 'Pass area. Far from o b t a i n i n g

1
a s s i s t a n c e from o u t s i d e a u t h o r i t i e s , t h e board was confronted w i t h a

panoply of i n t e r e s t groups whose numbers i n c r e a s e d as time went on.

And, i n a d d i t i o n , t h e p r e s e n c e of d i v e r s e i n t e r e s t s on t h e s c h o o l

board i t s e l f f u r t h e r e x a c e r b a t e d t h e o v e r a l l problem of meeting a

public obligation.

The Planning Commission r e p o r t f i n a l l y provided t h e much

 92

d e s i r e d 'scapegoat'. Although t h e Commission r e p r e s e n t a t i v e viewed t h e

I

r e p o r t a s a p r a g n a t i c way of meeting h i s o b l i g a t i o n t o t h e s c h o o l board

w i t h o u t undermining h i s commitment t o t h e s u b r e g i o n a l s t u d y , t h e s c h o o l

board and o t h e r i n t e r e s t groups immediately used i t t o make t h e i r own

positions 'publicly acceptable'. While t h e comments i n t h e r e p o r t d i d

n o t p o s t u r e a s 'recommendations', i t must be remembered t h a t t h e y d i d

p o i n t t o t h e Coleman E a s t s i t e a s b e i n g t h e most s u i t a b l e s i t e of t h o s e

b e i n g d i s c u s s e d by t h e board.

The Commission r e p o r t s p l u s t h e a p p e a l from t h e D i r e c t o r of

F i e l d A d m i n i s t r a t i o n enabled t h e Coleman r e p r e s e n t a t i v e on t h e s c h o o l

board t o a r g u e t h a t t h e i r s i t e d e c i s i o n s were a product of b o t h t h e

comments c o n t a i n e d i n t h e r e p o r t and t h e n e c e s s i t y t o meet t h e demands

of t h e Department of Education. Once t h e d e c i s i o n was made, t h e board

as a whole was a b l e t o argue t h e same p o i n t s and t h e r e b y p r o t e c t i t s e l f

from a d v e r s e p u b l i c i t y .

S h o r t l y a•’t e r t h e Coleman s i t e d e c i s i o n was made, t h e Blairmore

c o u n c i l decided t o pursue i t s g r i e v a n c e s , n o t w i t h t h e s c h o o l b o a r d ,

b u t i n correspondence w i t h t h e M i n i s t e r of Education, presumably w i t h

t h e hope t h a t t h e M i n i s t e r would o v e r r u l e t h e s c h o o l b o a r d ' s d e c i s i o n .

The f a c t t h a t r e p r e s e n t a t i o n on t h e s c h o o l board was weighed i n

Coleman's f a v o u r may have d i s s u a d e d t h e c o u n c i l from pursuing t h e m a t t e r

i
a t that level. I n r e p l y t o t h e c o u n c i l ' s l e t t e r of February 21, 1968,

t h e M i n i s t e r observed t h a t t h e s c h o o l board had s p e n t many months t a k i n g

s t e p s t o e n s u r e t h a t i t s f i n a l c h o i c e f o r t h e l o c a t i o n of t h e new s c h o o l

would be a s u i t a b l e one. Furthermore, h e p o i n t e d o u t t h a t t h e board had

' e n l i s t e d t h e s e r v i c e s of t h e Regional Planning C o m i s s i o n t o survey a l l

 93

possible s i t e s ....' Having i n d i c a t e d h i s s a t i s f a c t i o n t h a t t h e board

1

had t a k e n a p p r o p r i a t e measures t o determine t h e most s u i t a b l e s i t e f o r

t h e new s c h o o l and ' t o make t h e b e s t d e c i s i o n b e a r i n g i n mind t h e

u n u s u a l c o n d i t i o n s e x i s t i n g i n t h e ' P a s s ' t h e M i n i s t e r concluded by

p o i n t i n g o u t t h a t 'your p r e s e n t a t i o n s should b e made t o t h e s c h o o l

board where a u t h o r i t y t o d e a l w i t h t h i s m a t t e r r e s i d e s ' . To s e c u r e h i s

p o s i t i o n , t h e M i n i s t e r wrote t o t h e s c h o o l board s e c r e t a r y on March 4 ,

and informed him of b o t h t h e f a c t t h a t h e had r e c e i v e d a l e t t e r from t h e

Blairmore c o u n c i l and t h e n a t u r e of h i s r e p l y t o t h a t l e t t e r . Thus it

would appear t h a t t h e M i n i s t e r of Education managed t o remain, o v e r t l y

a t l e a s t , absolved of any c o m p l i c i t y i n t h e s i t u a t i o n t h a t had developed

i n t h e Crowsnest P a s s . Indeed, t h e Commission r e p o r t provided him w i t h

t h e n e c e s s a r y argument t o j u s t i f y b o t h h i s p o s i t i o n and t h e b o a r d ' s

decision. S i g n i f i c a n t l y , h e r e f e r r e d t o t h e Commission's a s s i s t a n c e a s

one of t h e r e a s o n s f o r h i s b e l i e f t h a t t h e s c h o o l board had t a k e n e v e r y

p o s s i b l e a c t i o n t o s e c u r e a d v i c e concerning t h e s u i t a b i l i t y of each s i t e

under i t s c o n s i d e r a t i o n . I n f a c t , a s h a s been p o i n t e d o u t , t h e Com-

m i s s i o n had g i v e n v e r y l i t t l e a s s i s t a n c e and, f o r one r e a s o n o r a n o t h e r ,

had been u n a b l e t o make a c o n c r e t e recommendation.

Assuming t h a t t h e Commission r e p o r t r e f l e c t e d a change of mind

on t h e p a r t of t h e Department of Highways concerning t h e E a s t Coleman

s i t e , t h e s c h o o l board attempted t o convince t h e Department t o s t a n d by

its original decision. I n correspondence w i t h t h e Department t h e s c h o o l

board n o t o n l y p o i n t e d o u t t h a t 'The board h a s agreed upon a s i t e , and

i t i s a d v i s a b l e t h a t a c t i o n on t h i s l o c a t i o n be t a k e n immediately' b u t

a t t e m p t e d t o s e c u r e i t s p o s i t i o n by a r g u i n g t h a t t h e Planning Commission
r e p o r t 'shows c l e a r l y t h a t t h e Coleman s i t e would be t h e c h o i c e of t h e
1

Planning Commission. T h i s l o c a t i o n w a s chosen by an independent Planning

Commission a f t e r t h e i r i n t e n s i v e and i m p a r t i a l survey of t h e a r e a ' .

Although t h e r e i s no evidence t o s u g g e s t t h a t t h e Department of Highways

had changed i t s mind, i t i s i n t e r e s t i n g t o n o t e t h a t t h e board decided

t o u s e t h e Commission r e p o r t t o s e c u r e i t s own p o s i t i o n and encourage

t h e Department of Highways t o s u p p o r t t h e s i t e d e c i s i o n .

While t h e s c h o o l board attempted t o persuade t h e Department of

Highways t o make a v a i l a b l e t h e E a s t Coleman s i t e , t h e Town of Blairmore

and V i l l a g e of Bellevue d e c i d e d , a s h a s been p o i n t e d o u t , t o s t e p up

t h e i r campaigns t o s t o p t h e board from p e r s i s t i n g w i t h i t s d e c i s i o n .

Having f a i l e d t o o b t a i n s u p p o r t from t h e M i n i s t e r of Education, t h e s e

two communities proceeded t o argue t h a t t h e board should w a i t f o r t h e

completion of t h e s u b r e g i o n a l s t u d y . Among t h e p o i n t s made by t h e

s c h o o l board i n r e p l y t o t h e B e l l e v u e and Blairmore correspondence, t h e

board noted t h a t t h e i r d e c i s i o n had been based on t h e Planning Com-

m i s s i o n r e p o r t and t h a t :

"The Department of Education h a s a l l o t t e d t h e s c h o o l

board money f o r t h i s y e a r ' s c o n s t r u c t i o n program
and t h e b a l a n c e of monies allowed f o r t h e b u i l d i n g
w i l l b e forthcoming i n 1969. I f t h e s c h o o l board
delayed c o n s t r u c t i o n now, we would l o s e our s c h o o l
b u i l d i n g and o u r s t a t e m e n t of need would n o t be
recognized f o r a t l e a s t t h r e e y e a r s , s i n c e funds
/ f o r s c h o o l b u i l d i n g s a r e a t a premium."

Responding t o t h i s l e t t e r t h e B e l l e v u e c o u n c i l informed t h e s c h o o l

board t h a t t h e M.L.A. had e x p l a i n e d t o t h e c o u n c i l t h a t t h e money f o r

t h e new s c h o o l would be a v a i l a b l e d u r i n g t h e f i v e ensuing y e a r s , and

t h e r e f o r e t h e b o a r d ' s argument had no v a l i d i t y . Thus t h e board found

i t s e l f i n a n o t h e r d i f f i c u l t p o s i t i o n , i t s primary argument f o r pushing

 95
I

ahead w i t h t h e b u i l d i n g of a s c h o o l on t h e E a s t Coleman s i t e having been

undermined by a government M.L.A. To r e s o l v e t h e m a t t e r , t h e board

decided t o h o l d a s p e c i a l meeting on August 23, 1968, and t o i n v i t e t h e

M.L.A. t o attend. A t t h e meeting t h e s c h o o l board i n d i c a t e d t o t h e

M.L.A. t h a t i t was v e r y concerned about t h e l e t t e r which i t had re-

c e i v e d from t h e V i l l a g e of B e l l e v u e s i n c e i t had been t h e b o a r d ' s

u n d e r s t a n d i n g t h a t i t would have t o a c t w i t h h a s t e i f i t were t o r e c e i v e

f u l l co-operation from t h e Department of Education i n t h e b u i l d i n g of a

new h i g h s c h o o l f o r t h e Crowsnest P a s s a r e a . I n r e p l y , t h e M.L.A.

e x p l a i n e d t h a t h e had been i n communication w i t h t h e Deputy M i n i s t e r of

Education and t h a t f o l l o w i n g h i s d i s c u s s i o n s w i t h t h i s i n d i v i d u a l , h e

had informed t h e c o u n c i l of t h e V i l l a g e of B e l l e v u e t h a t monies would

be a v a i l a b l e f o r school construction during t h e next f i v e y e a r s ;

however, t h e p r i o r i t y f a c t o r had n o t been mentioned. The s c h o o l board

minutes r e g a r d i n g t h i s meeting r e c o r d t h a t ' a f t e r c o n s i d e r a b l e d i s -

c u s s i o n on t h e m e r i t s of a new h i g h s c h o o l f o r t h e ' P a s s , t h e M.L.A.

i n d i c a t e d h e would o f f e r h i s f u l l s u p p o r t t o o u r e f f o r t s ' . I t would

appear t h a t t h e c o u n c i l of Bellevue, r e a l i z i n g t h a t i t had f a i l e d t o

c o e r c e t h e s c h o o l board t o change i t s mind by imposing on t h e g a t h e r i n g

what presumably w a s i t s own i n t e r p r e t a t i o n of t h e M.L.A.'s position,

proceCded t o a t t a c k from a d i f f e r e n t d i r e c t i o n by i n i t i a t i n g d e b a t e on

' t h e m e r i t s ' of t h e new school. But a p p a r e n t l y t h i s f a i l e d a s w e l l .

 Notes t o Chapter I11
I

According t o t h e Act r e s p e c t i n g p u b l i c and s e p a r a t e s c h o o l t h e

M i n i s t e r of Education h a s t h e a u t h o r i t y t o e s t a b l i s h a
d i v i s i o n c o n s i s t i n g of any number of p u b l i c s c h o o l d i s -
t r i c t s . The i m p l i c a t i o n i s t h a t i f t h e m i n i s t e r deems
t h a t such a c o u r s e of a c t i o n i s n e c e s s a r y h e w i l l a c t
a c c o r d i n g l y and t h e s c h o o l b o a r d s , t h o s e which had f o r -
merly d i r e c t e d t h e a f f a i r s i n each d i s t r i c t , a r e d i s -
s o l v e d . With t h e e s t a b l i s h m e n t of a d i v i s i o n a l l t h e
a s s e t s and l i a b i l i t i e s of t h e board of t h e p u b l i c s c h o o l
d i s t r i c t become t h e employees of t h e board of t h e
d i v i s i o n . The importance of t h i s s e c t i o n which p e r m i t s
t h e m i n i s t e r t o d i s s o l v e any d i v i s i o n o r d i s t r i c t and
a s a r e s u l t b r i n g t o c e s s a t i o n i t s r i g h t s and p r i v i l e g e s
w i l l become more a p p a r e n t i n l a t e r d i s c u s s i o n .

2) Improvement D i s t r i c t #10 was l a t e r changed t o Improvement D i s t r i c t

115.

3 ) Funds being r e f e r r e d t o were t h o s e provided through t h e 'Technical

and V o c a t i o n a l T r a i n i n g A s s i s t a n c e Act, December, 1960.

4) P u r s u a n t t o S e c t i o n 33 (1) (h) of t h e N a t i o n a l Housing Act, 1954,

The C e n t r a l Mortgage and Housing C o r p o r a t i o n , The
A l b e r t a Housing and Urban Renewal Corporation and t h e
Municipal C o r p o r a t i o n s of t h e Towns of Blairmore and
Coleman, t h e V i l l a g e s of B e l l e v u e and Frank, t h e
Municipal D i s t r i c t of P i n c h e r Creek, No. 9 and Improve-
ment D i s t r i c t No. 1 0 , e n t e r e d i n t o agreements t o f i n a n c e
a Sub-Regional Study i n c l u d i n g t h e p r e p a r a t i o n of an
Urban Renewal Program f o r t h e Crowsnest P a s s Area of
A l b e r t a and f o r t h e Study t o b e undertaken by t h e Old-
man R i v e r Regional P l a n n i n g Commission.
 cmmm IY
=ATE 'ENTERPRISE--- A CONFEDERACY

T h i s w r i t e r h a s examined t h e c i r c u m s t a n c e s of a number of

companies which were induced t o l o c a t e i n t h e Crowsnest Pass a r e a

by t h e 1963 'Tax Concession and D e p r e c i a t i o n scheme' and subse-

quent f e d e r a l government i n c e n t i v e programs. For t h i s presentation

two companies, t h a t b e s t i l l u s t r a t e t h e conduct and e x p e r i e n c e of

t h o s e companies which were a f f o r d e d f i n a n c i a l a s s i s t a n c e through t h e

1963 f e d e r a l program, have been s e l e c t e d f o r d e t a i l e d c a s e a n a l y s i s - -

P h i l l i p s Cables Limited, and Becker D r i l l s Limited. The n a t u r e of

t h e i n q u i r y , however, r e q u i r e s t h a t B a i l e y ' s t h e o r e t i c a l concept

of normative and pragmatic ' r u l e s ' b e superceded by one of

normative and p r a g m a t i c ' o b l i g a t i o n s ' and ' e x p e c t a t i o n s . '

Once a govermnent makes a v a i l a b l e , through l e g i s l a t i o n , a

p r o v i s i o n f o r p r i v a t e companies which can b e t a k e n up a t a company's

own d i s c r e t i o n , t h e d i s p o s i t i o n of t h e e n s u i n g r e l a t i o n s h i p i s b e s t

understood i n terms of ' o b l i g a t i o n s ' and ' e x p e c t a t i o n s , ' r a t h e r than

'rules.' The formal c o n t r a c t s i g n e d between a company and an a g e n t

of government, under such l e g i s l a t i o n , o b l i g e s t h e p a r t i e s t o perform

i n accord w i t h t h e r e q u i r e m e n t s c o n t a i n e d i n t h e c o n t r a c t . However,

t h e s p e c i a l q u a l i t y a s s o c i a t e d w i t h a campany's d e c i s i o n t o a c t under

i n c e n t i v e s l e g i s l a t i o n p l a c e s t h e company i n an e x c e p t i o n a l o r e x t r a -

o r d i n a r y r e l a t i o n b o t h t o government, and t o i t s c o m p e t i t i v e p e e r s .

The normative and pragmatic q u a l i t y i d e n t i f i e d w i t h company b e h a v i o r

w i t h i n such an e x t r a o r d i n a r y r e l a t i,o n s h i p i s n o t t h a t of games among

p e e r s , b u t of ' p l a y i n g t h e game' t h a t i s a consequence of i t s newly

a c q u i r e d , and e x t r a o r d i n a r y s t a t u s . This s i t u a t i o n is b e s t t r e a t e d

i n terms of t h e concept of ' o b l i g a t i o n ' and ' e x p e c t a t i o n ' .

The broader i m p l i c a t i o n s of t h e concept of 'obligation'

and ' e x p e c t a t i o n ' , i n s o f a r a s t h e y r e l a t e t o t h e a u t h o r i t y of t h a t

government p r o v i d i n g t h e i n c e n t i v e and t h e economic advantages

and o p p o r t u n i t y provided t o p r i v a t e companies, w i l l n o t be t a k e n

up i n t h i s t h e s i s . I t should be n o t e d , however, t h a t t h e i m -

p l i c a t i o n of t h e f e d e r a l government's i n c e n t i v e program i s t o

g e n e r a t e two a d d i t i o n a l s e t s of c o m p e t i t i v e s i t u a t i o n s . One s e t i s

g e n e r a t e d among t h e governments t h a t a r e n o t themselves p a r t y t o t h e

p a r t i c u l a r i n c e n t i v e l e g i s l a t i o n , b u t w i t h i n whose j u r i s d i c t i o n

p r i v a t e companies may wish t o l o c a t e under t h e p r o v i s i o n s of t h e

legislation. The second s e t of c o m p e t i t i v e s i t u a t i o n s i s t h e

one which develops among t h e companies themselves.

A s t h e i n d i v i d u a l company h a s t h e c h o i c e of whether o r

n o t t o u t i l i z e t h e i n c e n t i v e s l e g i s l a t i o n , a company i s o b l i g e d t o

c o n s i d e r t h e i n c e n t i v e i n terms of t h e r e l a t i v e c o m p e t i t i v e advantages

i t o f f e r s b o t h t o t h e company i t s e l f , and t o i t s p e e r s . A t t h e same time

companies a r e aware t h a t t h e i n c e n t i v e program c o n t a i n s c e r t a i n i m p l i c i t

/
' o b l i g a t i o n s ' and ' e x p e c t a t i o n s ' . Although t h e i r ' o b l i g a t i o n s ' a t t h i s

l e v e l remain s i m i l a r t o t h o s e expected of any company, t h o s e companies

which u t i l i z e t h e i n c e n t i v e s program a r e aware t h a t t h e f e d e r a l govern-

ment h a s i n i t i a t e d i t i n o r d e r t o s t i m u l a t e l o c a l employment and economic

 99

development. Theref o r e , the companies which accept i n c e n t i v e s a x e

l e f t with an o b l i g a t t o n t o f u l f i l l c e r t a i n government expectations,

though t h e terms of t h e formal c o n t r a c t w i t h t h e i n i t i a t i n g

government a r e t h e only l e g a l requirement they have. The con-

cept of ' o b l i g a t i o n ' and 'expectation' i s t h e r e f o r e used t o

d e s c r i b e t h i s s i t u a t i o n of companies i n s o f a r a s i t a f f e c t s the

choices a v a i l a b l e t o t h e i r managements.
 100

T L f e d e r a l government i n t r o d u c e d the 'Tax Concession and

D e p r e c i a t i o n Scheme' i n 1963, t o s t i m u l a t e p r i v a t e investment in

c e r t a i n d e s i g n a t e d a r e a s of Canada. On June 13, 1963, M r . Gordon,

M i n i s t e r of Finance, e x p l a i n e d t o t h e House of C m o n s t h a t :

11
I n o r d e r t o encourage employment by
reviving p r i v a t e c a p i t a l expenditures,
which have lagged s o conspicuously f o r
t h e p a s t six y e a r s , I s h a l l propose
i m p o r t a n t new t a x concessions. Effec-
t i v e on t h e d a t e of enactment newman-
u f a c t u r i n g and p r o c e s s i n g e n t e r p r i s e s
l o c a t e d i n d e s i g n a t e d a r e a s of slower
growth w i l l b e g i v e n a n exemption
from income t a x e s f o r t h r e e y e a r s from
t h e i r i n c e p t i o n . I s h a l l a l s o propose
t h a t such e n t e r p r i s e s be e n t i t l e d t o
w r i t e o f f new machinery and equipment
which would o t h e r w i s e f a l l i n c l a s s 8
i n a s l i t t l e a s two y e a r s t h e r e a f t e r .
And I s h a l l propose t h a t any t a x p a y e r
be e n t i t l e d a l s o t o w r i t e off t h e cost
of new b u i l d i n g s l o c a t e d i n d e s i g n a t e d
a r e a s of slower growth a t t h e r a t e of
20 p e r c e n t p e r annum s t r a i g h t l i n e , o r
i n a s l i t t l e a s f i v e years. I f these
p r o p o s a l s do n o t s t i m u l a t e v e r y marked
a c t i v i t y i n t h e A t l a n t i c p r o v i n c e s and
i n o t h e r a r e a s o f slowed economic pro-
g r e s s , I do n o t know what w i l l . These
a r e major i n c e n t i v e s t o new i n d u s t r y
l o c a t i n g i n t h o s e a r e a s .'I 1

The above q u o t a t i o n i s a c l e a r p r e s e n t a t i o n of t h e 1963 f e d e r a l

government i n c e n t i v e program. It must b e n o t e d , however,that t h e

d i d n o t e s t a b l i s h c r i t e r i a which would d e l i n e a t e t h e

r e s p o n s i b i l i t i e s of an i n d u s t r y t o a d e s i g n a t e d a r e a once i t had

r e c e i v e d f i n a n c i a l a s s i s t a n c e through t h e f e d e r a l program. The normative

e x p e c t a t i o n on t h e p a r t of t h e p r i v a t e e n t e r p r i s e s e c t o r was t h a t
 101

the government would n o t a t t e m p t t o impose o b l i g a t i o n s on i n d u s t r y

I

which could b e c o n s t r u e d a s being c o n t r a r y t o t h o s e r i g h t s i n d u s t r y

i s assumed t o have i n a f r e e e n t e r p r i s e system. On t h e o t h e r hand,

t h e i n c e n t i v e scheme was a d e l i b e r a t e a t t e m p t t o r e j u v e n a t e depressed

and remote u r b a n a r e a s b y inducing i n d u s t r y t o l o c a t e i n t h o s e a r e a s .

C o n c u r r e n t l y t h e program was aimed a t r e c t i f y i n g t h e unemployment

s i t u a t i o n i n c e r t a i n a r e a s of Canada. Thus t h e f e d e r a l government

i n i t i a t e d a program which i t hoped would n o t o n l y r e v i v e ' p r i v a t e

2
c a p i t a l expenditures-in d e s i g n a t e d a r e a s of slower growth' ,,but

would a l s o n o t c o n f l i c t t o o r a d i c a l l y w i t h t h e normative e x p e c t a t i o n s

of t h e p r i v a t e e n t e r p r i s e s e c t o r by f a v o u r i n g one i n d u s t r y over

another. The f i n a l f o r m u l a t i o n of t h e program, which c a n b e viewed

a s a pragmatic s o l u t i o n t o a r a t h e r s e n s i t i v e s i t u a t i o n , m a i n t a i n e d

t h e normative r u l e of f a i r and e q u a l o p p o r t u n i t y by p e r m i t t i n g p r i v a t e

e n t e r p r i s e t h e r i g h t of d e c i s i o n concerning l o c a t i o n , once t h e t a x

i n c e n t i v e had been o f f e r e d . I n o t h e r words, t h e government took

t h e chance of r e c o g n i z i n g t h e i n h e r e n t r i g h t of an i n d u s t r y t o move

away from i t s l o c a t i o n a t t h e end of t h e ' t a x h o l i d a y ' . From a

'pragmatic' p o i n t of view, t h e government had l i t t l e c h o i c e , s i n c e

t h e r i g h t of d e c i s i o n r e g a r d i n g l o c a t i o n is a s i g n i f i c a n t p a r t of

those r i g h t s ascribed t o p r i v a t e e n t e r p r i s e . To have compromised

t h i s r i g h t would have p l a c e d the i n c e n t i v e program and t h e g o a l s i t

was t o a c h i e v e i n jeopardy. The government, i t c a n b e assumed,

expected i n d u s t r i e s , which had r e c e i v e d f i n a n c i a l a s s i s t a n c e through

 102

the program, t o meet their normative o b l i g a t i o n s t o t h e a r e a s con-

cerned.

P h i l l i p s Cables Limited i s a wholly owned Canadian s u b s i -

d i a r y w i t h a head o f f i c e l o c a t e d a t B r o c k v i l l e , O n t a r i o . British

I n s u l a t e d C a l l e n d e r ' s Cables Limited, a United Kingdom c a b l e manu-

f a c t u r i n g concern, owns f i f t y - o n e p e r c e n t of t h e company; General

Cable C o r p o r a t i o n , l o c a t e d i n the U n i t e d S t a t e s , owns twenty-five

p e r c e n t ; and t h e r e s t i s owned t h r o u g h common s h a r e s . The Board

of D i r e c t o r s c o n s i s t s of one Englishman, one Scotchman, one American

and seven Canadians.

During t h e e a r l y y e a r s of t h e 1 9 6 0 1 s , i t became c l e a r t o

t h e Board of D i r e c t o r s of P h i l l i p s Cables t h a t i t would b e e f f i c a c i o u s ,

from a n economic, l o g i s t i c a l p o i n t of view, t o e s t a b l i s h a c a b l e manu-

f a c t u r i n g plant i n Alberta. A f t e r c o n s i d e r a b l e d i s c u s s i o n and d e b a t e ,

t h e Board decided t o b u i l d such a p l a n t a t S e n t i n e l , an a r e a of l a n d

l o c a t e d i n Improvement D i s t r i c t #5, and a s h o r t d i s t a n c e from t h e

Town of Coleman. The Board chose t h i s l o c a t i o n because i t was a p a r t

of t h e Blairmore N a t i o n a l Employment S e r v i c e D i s t r i c t . This d i s t r i c t

had been d e s i g n a t e d a s a n a r e a of s t a t i c growth by t h e f e d e r a l

government i n i t s 1963 'Income Tax and D e p r e c i a t i o n Concession Scheme'.

It s h o u l d a l s o b e noted t h a t t h i s d i s t r i c t , which i n c l u d e d t h e Crowsnest

P a s s a r e a , t h e Municipal D i s t r i c t of P i n c h e r Creek 119, and t h e south-

w e s t e r n p o r t i o n of B r i t i s h Columbia, was t h e o n l y a r e a s o d e s i g n a t e d i n

w e s t e r n Canada by t h e f e d e r a l government. Although t h e f e d e r a l program

 103

provided a t t r a c t i v e f i n a n c i a l allowances f o r i n d u s t r i a l and manu-

f a c t u r i n g concerns prepared t o l o c a t e i n t h i s a r e a , a number of o t h e r

f a c t o r s , such a s f r e i g h t r a t e s , i n v e n t o r y requirements e t c . , were

a l s o t a k e n i n t o c o n s i d e r a t i o n by t h e Board. It must be understood

t h a t w h i l e i n c e n t i v e programs may encourage i n d u s t r i e s t o l o c a t e i n

c e r t a i n s p e c i f i e d a r e a s , an i n c e n t i v e i t s e l f does n o t p r o t e c t a

concern from t h e problems t h a t a r e involved w i t h c o m p e t i t i o n i n

world markets o r , f o r t h a t m a t t e r , from c o m p e t i t i v e t r e n d s i n

domestic markets. Understandably, t h e r e f o r e , a b u s i n e s s concern

must, b e f o r e l o c a t i n g i n a d e s i g n a t e d a r e a , view t h i s a r e a i n terms

of i t s r e l a t i v e advantages and d i s a d v a n t a g e s v i s h v i s t h e competi-

t i v e market. E s s e n t i a l l y , t h e p o i n t i s t h a t b e f o r e committing p r i v a t e

c a p i t a l t o an a r e a , even one which h a s been d e s i g n a t e d under an

i n c e n t i v e s program, i n v e s t o r s w i l l d e v o t e c o n s i d e r a b l e time and

a t t e n t i o n t o t h o s e f a c t o r s which determine economic f e a s i b i l i t y and

potential. I n o t h e r words, a l a r g e b u s i n e s s concern w i l l n o t expand

i t s o p e r a t i o n i n t o an o u t l y i n g a r e a u n l e s s t h e o v e r a l l economic p i c t u r e

is favourable. I t may b e assumed t h a t i n c a s e s where l o c a t i o n i s of

import v i s v i s t h o s e s o p h i s t i c a t e d s e r v i c e s and f a c i l i t i e s u s u a l l y

found i n a l a r g e r c e n t r e , t h e i n c e n t i v e program w i l l n o t a c t a s an

inducement. Although t h e S e n t i n e l a r e a had some d i s t i n c t d i s -

I
advantages, t h e e v i d e n c e s u g g e s t s t h a t t h e Board of D i r e c t o r s f o r

P h i l l i p s Cables came t o t h e c o n c l u s i o n t h a t t h e i n c e n t i v e was l a r g e

enough t o o f f s e t much of t h e r i s k involved w i t h l o c a t i n g a p l a n t t h e r e .

A p p a r e n t l y t h e Board judged t h a t the i n c e n t i v e would b e s u b s t a n t i a l
I

enough t o c o v e r a l a r g e p o r t i o n of t h e f i n a n c i a l l o s s t h a t a f a i l u r e

would e n t a i l . S u c c e s s , on t h e o t h e r hand, would permit t h e p l a n t t o

e n j o y a 'tax h o l i d a y ' f o r a p e r i o d of t h r e e y e a r s . Presumably, i f

s u c h an i n c e n t i v e had n o t been a v a i l a b l e , one of t h e l a r g e r A l b e r t a

c e n t r e s would have been chosen a s t h e l o c a t i o n f o r t h e p l a n t .

I n h i s 1965 annual r e p o r t , t h e P r e s i d e n t of P h i l l i p s Cables

Limited s t a t e d :

"Our new wholly-owned s u b s i d i a r y - - P h i l l i p s

Cables (Western) Limited-at Sentinel,
A l b e r t a , s t a r t e d commercial p r o d u c t i o n
i n t h e f i r s t q u a r t e r of 1966, approxi-
m a t e l y t h r e e months behind s c h e d u l e .
C o n s t r u c t i o n problems, slow d e l i v e r i e s
of equipment and a longer-than-anticipated
t r a i n i n g s c h e d u l e combined t o d e l a y s t a r t -
up o p e r a t i o n s . The p l a n t i s now i n f u l l
p r o d u c t i o n and w i l l make an i m p o r t a n t
c o n t r i b u t i o n t o t h e p r o d u c t i o n of
c m u n i c a t i o n c a b l e s , which a r e i n a
v e r y heavy demand."

A s t h e above q u o t a t i o n r e v e a l s , t h e t a s k of b r i n g i n g t h e new p l a n t

t o a p o i n t where i t could s t a r t commercial p r o d u c t i o n had n o t been an

e a s y one. However, even a f t e r commercial p r o d u c t i o n was i n i t i a t e d ,

problems had t o b e overcome. Chief among t h e s e was a s h o r t a g e of

s k i l l e d labour. T h i s s h o r t a g e , a c h r o n i c problem i n most of t h e out-

l y i n g a r e a s of A l b e r t a , encouraged t h e management t o u r g e t h e i r employees

t o make u s e of p r o v i n c i a l t r a i n e e and a p p r e n t i c e s h i p schemes. Several

employees were p e r m i t t e d t o t a k e time o f f from t h e i r j o b s s o t h a t they

could complete c o u r s e s of one k i n d o r a n o t h e r . The p l a n t management

was s u r p r i s e d and n a t u r a l l y p l e a s e d t o l e a r n t h a t through i t s t r a i n i n g

 105

schemes t h e p r o v i n c i a l government vas p r e p a r e d t o pay a p o r t i o n of t h e

employee's wage. Although t h i s a s s i s t a n c e was n o t s u b s t a n t i a l , i t d i d

h e l p t h e Company t o cover some of t h e c o s t of having i t s employees

trained. The Company a l s o managed t o o b t a i n s i m i l a r a s s i s t a n c e through

a F e d e r a l government scheme. A s a r e s u l t of i t s own e f f o r t s , and

t h e a s s i s t a n c e mentioned above, t h e management was a b l e t o s u c c e s s f u l l y

overcome t h e problem of a s k i l l e d l a b o u r s h o r t a g e . In addition, four

employees o b t a i n e d t h e i r l i c e n s e s i n h i g h l y s k i l l e d t r a d e s ; con-

s e q u e n t l y , today t h e p l a n t h a s a l i c e n s e d m a c h i n i s t , e l e c t r i c i a n , welder

and t e c h n i c i a n . These f o u r i n d i v i d u a l s a r e a l l ' P a s s r e s i d e n t s a s a r e

a l l t h e o t h e r s who completed c o u r s e s .

I n o r d e r t o a i d i n t e r e s t e d employees t o develop management

t e c h n i q u e s and t o p r e p a r e them f o r f u t u r e promotion, t h e p r o d u c t i o n

s u p e r i n t e n d e n t , a t an e a r l y s t a g e i n t h e p l a n t s o p e r a t i o n , i n i t i a t e d

an i n d u s t r i a l management c l u b i n t h e Crowsnest P a s s a r e a . For a time,

a t t h e b e g i n n i n g of t h e p l a n t ' s o p e r a t i o n , a number of non-Pass people

were i n v o l v e d w i t h t h e onerous t a s k of making t h e p l a n t o p e r a t i o n a l .

Today, e x c e p t f o r t h e p l a n t manager, a l l t h e s a l a r i e d p e r s o n n e l

a r e 'pass residents. Most of t h e s e i n d i v i d u a l s have l i t t l e f o r m a l

e d u c a t i o n , t h e m a j o r i t y n o t having completed h i g h s c h o o l . However

t h e 7 have a l l developed e x p e r t i s e i n t h e management f i e l d by a v a i l i n g

themselves of t h e c o u r s e s e t c . provided by t h e management c l u b .

Over the l a s t three y e a r s t h e S e n t i n e l P l a n t h a s employed

between 150 and 165 i n d i v i d u a l s , of which number approximately

 106

s e y e n t e e n a r e on s a l a r y . For t h e ,last f i v e y e a r s , and up u n t i l a few

months ago, t h e r e s p o n s i b i l i t y f o r d e v e l o p i n g t h e p l a n t i n t o a p r o f i t

making concern r e s t e d i n t h e hands of two ' o u t s i d e r s ' : themanager

and t h e p r o d u c t i o n s u p e r i n t e n d e n t . A s h o r t time ago, t h e o r i g i n a l

manager was t r a n s f e r r e d , t h e p r o d u c t i o n s u p e r i n t e n d e n t was promoted

and an employee of t h e p l a n t was made p r o d u c t i o n s u p e r i n t e n d e n t . It i s

i m p o r t a n t t o n o t e t h a t an employee, a ' P a s s r e s i d e n t , was promoted t o

production superintendent. T h i s l a t t e r promotion i s a good example

of t h e k i n d of p o l i c y t h a t has been followed by t h e p l a n t ' s s e n i o r

management. Although t h i s i n t e r n a l promotion p o l i c y i n v o l v e s a v e r y

' d e l i c a t e ' p r o c e s s and o p e r a t e s a c c o r d i n g t o t h e c r i t e r i a of a b i l i t y

r a t h e r t h a n s e n i o r i t y , t h e two s e n i o r members of t h e management s t a f f

had o n l y t h r e e 'bad e x p e r i e n c e s ' o u t of f o u r t e e n promotions. The new

manager e x p l a i n e d t o t h i s w r i t e r t h a t t h e i n t e r n a l promotion p o l i c y

caused a number of i n d i v i d u a l s t o s t r i v e t o improve t h e i r q u a l i f i c a t i o n s

a n d , a s a r e s u l t , a 'good blend h a s come t o t h e s u r f a c e ' . However i t

should b e observed t h a t t h e c r e d i t f o r overcoming t h e s k i l l e d l a b o u r

s h o r t a g e and t h e problem of a t t r a c t i n g p r o f e s s i o n a l management p e r s o n n e l

must b e g i v e n t o t h e two i n d i v i d u a l s who, f o r a p e r i o d of f i v e y e a r s ,

formed t h e s e n i o r management of t h e p l a n t . The new manager, i n a

c o n v e r s a t i o n w i t h t h i s w r i t e r , observed t h a t h i s i n i t i a l r e a c t i o n t o

t h e p l a n t ' s l o c a t i o n and f u t u r e was 'how d i d t h e y p i c k a p l a c e l i k e

t h i s t ; however, from t h e b e g i n n i n g h e t r e a t e d t h e e n t i r e endeavour a s

a challenge. F o r t u n a t e l y h e and h i s p r e d e c e s s o r found t h a t t h e i r

 107

n o t i o n s about what should be d o n e , t o r e s o l v e a number of t h e problems

f a c i n g t h e p l a n t were s i m i l a r . Because of t h e v a r i e t y and cumplexity

of t h e s e problems t h e y devoted many hours d u r i n g t h e f i r s t few

years t o d e v i s i n g v a r i o u s c o u r s e s of a c t i o n , s u c h a s t h e i n t e r n a l

promotion p o l i c y . Often t h e y found i t n e c e s s a r y t o view c e r t a i n

i n i t i a l f i n a n c i a l l o s s e s a s c o n t r i b u t i o n s toward s t e p p i n g up t h e i r

programs. From t i m e t o t h e , t h e y met w i t h t h e employees and attempted

t o make them u n d e r s t a n d t h e i r r e s p o n s i b i l i t y t o t h e p l a n t . A t the

b e g i n n i n g i t was n o t u n u s u a l f o r a n employee t o b e a b s e n t from work

f o r two o r t h r e e days a t a time and t h e n t o r e t u r n t o t h e p l a n t t o

c o n t i n u e on w i t h h i s job. Themanager and t h e p r o d u c t i o n s u p e r i n -

t e n d e n t r e a l i z e d t h a t t h e s e employees viewed such behavior a s b e i n g

q u i t e normal and t h a t t h e y d i d n o t u n d e r s t a n d o r r e a l i z e t h a t t h e

company expected them t o b e a c c o u n t a b l e f o r t h e i r a b s e n c e s . Gradually

such problems were worked o u t and today t h e company e n j o y s t h e advantage

of having a h a r d c o r e of r e s p o n s i b l e and permanent employees. The

o r i g i n a l manager e x p l a i n e d t h a t a l t h o u g h t h e l a b o u r t u r n o v e r i s

' h i g h e r t h a n we would l i k e t o s e e i t ' , t h e r e i s no r e a s o n t o b e l i e v e

t h a t i t would b e c o n s i d e r a b l y lower i f t h e p l a n t was l o c a t e d i n one

of t h e l a r g e r c e n t r e s , such a s Edmonton o r Calgary. He p o i n t e d o u t ,

moreover, t h a t t h e r e a r e a t l e a s t f i f t y p e r s o n s employed a t t h e p l a n t

who have worked t h e r e s i n c e i t s i n c e p t i o n . These people make up a

r e l i a b l e work f o r c e which grows each y e a r a s o t h e r s s e e t h e i r

employment a s b e i n g permanent.
 108

I n s o f a r a s f r e i g h t r a t e s , i n v e n t o r y , market p r o x i m i t y and
I

o t h e r c o n s i d e r a t i o n s a r e concerned, t h e l o c a t i o n of t h e p l a n t h a s n o t

proved t o b e a r e a l handicap. A t f i r s t t h e f r e i g h t r a t e s were f a r

h i g h e r than t h o s e i n l a r g e r c e n t r e s , such a s Calgary o r Edmonton.

However, a s t h e p l a n t g o t i n t o f u l l o p e r a t i o n and began t o s h i p more

f r e i g h t , t h e r a t e s came down a c c o r d i n g l y . S i n c e t h e p l a n t i s now

s h i p p i n g approximately f i f t e e n thousand pounds of goods a y e a r , t h e

r a t e s a r e on p a r w i t h t h o s e i n t h e l a r g e r c e n t r e s . The p l a n t i s

o b l i g e d t o m a i n t a i n an i n v e n t o r y which i s f i f t y p e r c e n t h i g h e r t h a n

t h e i n v e n t o r i e s of s i m i l a r p l a n t s i n l a r g e r c e n t r e s , b u t t h i s h a s n o t

caused s i g n i f i c a n t problems.

I t must be understood t h a t t h e p l a n t a t S e n t i n e l i s one of

a number of such p l a n t s l o c a t e d i n v a r i o u s a r e a s a c r o s s Canada. The

Company i s c a r e f u l t o e n s u r e t h a t each of i t s p l a n t s m a i n t a i n s t h e

h i g h e s t d e g r e e of p r o d u c t i o n p o s s i b l e . When one p l a n t i s u n a b l e t o

meet a p a r t i c u l a r o r d e r because of e x c e s s i v e demand, t h e o r d e r i s

passed on t o a n o t h e r p l a n t . In addition, certain plants a r e responsible

f o r t h e p r o d u c t i o n of a p a r t i c u l a r t y p e of c a b l e . About twenty p e r

c e n t of t h e p r o d u c t s a r e e x p o r t e d ; t h e r e s t a r e marketed a c r o s s Canada

from Vancouver t o Newfoundland. The P r e s i d e n t of P h i l l i p s Cables Limited

r e p o r t e d i n 1966 t h a t ' s u b s t a n t i a l year-end backlogs, t o g e t h e r w i t h

r e c o r d o r d e r s e n t e r e d f o r t h e month of J a n u a r y have occupied new

p l a n t c a p a c i t y a s q u i c k l y a s it was i n s t a l l e d ' . I n 1965, t h e P r e s i d e n t

had r e p o r t e d t h a t :
11
Although t h e f a c t o r i e s a r e now running a t ,
 o r -very c l o s e t o , maximum c a p a c i t y , t h e back-
l o g of u n f i l l e d o r d e r s i s s t i l l i n c r e a s i n g and
d e l i v e r i e s lengthening correspondingly. I n
o r d e r t o meet p r e s e n t and i n d i c a t e d f u t u r e demand,
e a r l y t h i s y e a r your D i r e c t o r s a u t h o r i z e d an ex-
pansion programme t o p r o v i d e a d d i t i o n a l manufacturing
c a p a c i t y a t t h e Vancouver and Dartmouth p l a n t s f o r
t h e p r o d u c t i o n of communication c a b l e s . "

The above q u o t a t i o n s i n d i c a t e t h a t t o m a i n t a i n a c o m p e t i t i v e p o s i t i o n ,

P h i l l i p s Cables Limited must concern i t s e l f n o t o n l y w i t h t h e t y p e

of product b e i n g produced by i t s p l a n t s , t h e c o s t of t h e s e p r o d u c t s ,

e t c . , b u t a l s o with t h e d e l i v e r y time f a c t o r . It was t h i s f a c t o r

which l e d t o t h e d e c i s i o n t o b u i l d a p l a n t i n A l b e r t a . I n 1966,

t h e P r e s i d e n t a l s o observed t h a t :
11
The new wholly-owned s u b s i d i a r y - - P h i l l i p s
Cables (Western) Limited a t S e n t i n e l , Alberta--
s t a r t e d c m e r c i a l p r o d u c t i o n e a r l y i n 1966.
A f t e r mercoming some d i f f i c u l t manufacturing
problems, due t o break-in of new equipment
and t r a i n i n g of new employees, t h e o p e r a t i o n
r a p i d l y gained momentum, and i s now a n im-
p o r t a n t p r o f i t c o n t r i b u t o r . The S e n t i n e l p l a n t
e n j o y s t h e b e n e f i t s of t h e Department of In-
d u s t r y ' s Designated Area Program, and p r o f i t s
from i t s o p e r a t i o n s a r e t a x - f r e e u n t i l Feb-
r u a r y 1969."

With r e g a r d t o t h e q u e s t i o n of market p r o x i m i t y , a manu-

f a c t u r i n g p l a n t of t h i s k i n d can b e l o c a t e d almost anywhere s i n c e

d e l i v e r y time does n o t depend s o much on speed of d e l i v e r y a s on

speed of p r o d u c t i o n . It i s f o r t h i s r e a s o n t h a t t h e q u e s t i o n of

l o c a t i o n i s examined from t h e p o i n t of view o f p r o d u c t i o n , and a s

a consequence s u c h f a c t o r s a s the a v a i l a b i l i t y of s k i l l e d l a b o u r and

managerial personnel gain i n s i g n i f i c a n c e . A s f o r such considerations

a s a ready water supply f o r cooling i t s products, r a i l r o a d E a c i l i t i e s ,

 110

and room f o r expansion, t h e S e n t i n e l p l a n t i s w e l l s i t u a t e d .

,
Approximately n i n e t o t e n y e a r s ago t h e r e was v e r y l i t t l e

c o m p e t i t i o n i n t h e a r e a of c a b l e manufacturing and monopoly c o n d i t i o n s

almost e x i s t e d . Over t h e l a s t few y e a r s t h e market h a s become f a r

more c o m p e t i t i v e and today t h e bidding f o r government c o n t r a c t s , e t c . ,

can be d e s c r i b e d a s being 'cold-b400ded1. Although P h i l l i p s Cables

Limited d i d r e c e i v e f e d e r a l government a s s i s t a n c e , t h e company

maintained i t s c o m p e t i t i v e p o s t u r e and d i d n o t a t t e m p t t o r a d i c a l l y

underbid i t s c o m p e t i t o r s . To have done o t h e r w i s e would have c e r t a i n l y

c r e a t e d d i f f i c u l t i e s f o r c o m p e t i t o r s , b u t a t t h e same time i t would

have s e t a p r e c e d e n t which would have undermined P h i l l i p s ' own

c o m p e t i t i v e p o s i t i o n a t some l a t e r d a t e . I t should b e emphasized

t h a t t h e c a b l e market i s such t h a t manufacturers have found i t more

important i n o r d e r t o m a i n t a i n t h e i r c o m p e t i t i v e p o s i t i o n s , t o

emphasize p r o d u c t i o n and t h e development of new p r o d u c t s t h a n t o

s u b s t a n t i a l l y underbid one a n o t h e r . A good p r o d u c t i v e p l a n t can

work a t t h e same margin of p r o f i t from y e a r t o y e a r and s t i l l be

i n a goad bidding p o s i t i o n . I n 1970, t h e S e n t i n e l p l a n t r e c e i v e d , much

t o i t s s u r p r i s e , a c o n t r a c t from A l b e r t a Government Telephone

f o r 2,500 m i l e s of a new type of c a b l e which, u n t i l t h a t time, had been

s o l d o n l y i n England. The p r e s e n t manager of t h e p l a n t e x p l a i n e d t o

t h i s w r i t e r t h a t A.G.T. i s a forward-looking o r g a n i z a t i o n and t h i s h a s

encouraged t h e development of new p r o d u c t s and t h e i n t r o d u c t i o n of

some which have n o t been marketed i n North America. He f u r t h e r ob-

 111

s e r v e d t h a t A.G.T.'s p o l i c y w i t h r e g a r d t o b i d d i n g i s somewhat d i f f e r e n t

f r m the p o l i c i e s of s 3 n i l a r o r g a n i z a t i o n s i n o t h e r p r o v i n c e s . I n

A l b e r t a c o n t r a c t s a r e awarded s t r i c t l y a c c o r d i n g t o t h e b i d s that

a r e made. I f the b i d s on a p a r t i c u l a r c o n t r a c t a r e t h e same, t h e n

A l b e r t a Government TelepEmne w i l l make arrangements t o d i s t r i b u t e t h e

b u s i n e s s , however, i n a l l o t h e r c a s e s t h e b u s i n e s s does go t o t h e

lowest b i d d e r . Further d i s t r i b u t i o n takes i n t o consideration the

a b i l i t y t o d e l i v e r and t h e development of new p r o d u c t s . For example,

i t i s c l e a r t h a t t h e S e n t i n e l p l a n t could n o t p o s s i b l y meet t h e demands

of t h e e n t i r e A.G.T. program and t h e r e f o r e t h e c o n t r a c t s a r e p o r t i o n e d

o u t i n s u c h a way a s t o e n s u r e t h a t t h i s p l a n t , i f i t i s t h e lowest

b i d d e r on c e r t a i n c o n t r a c t s , r e c e i v e s i t s s h a r e of t h e b u s i n e s s , and

t h e r e s t i s d i v i d e d up among t h e c o m p e t i t o r s a c c o r d i n g t o t h e i r b i d s .

I n 1970, t h e S e n t i n e l p l a n t r e c e i v e d approximately one h a l f of t h e

A.G.T. c o n t r a c t , and t h i s y e a r i t r e c e i v e d one t h i r d . It should b e

noted t h a t i n o t h e r p r o v i n c e s arrangements a r e made t o d i v i d e c o n t r a c t s

up e q u a l l y among c o m p e t i t o r s .

I n s o f a r a s union a c t i v i t y i s concerned, t h e new p l a n t h a s n o t

e x p e r i e n c e d untoward d i f f i c u l t i e s because of t h e p l a n t ' s l o c a t i o n . Al-

though t h e r e j u v e n a t i o n of mining a c t i v i t y i n t h a t a r e a h a s i n f l u e n c e d

wage demands i n Southwestern A l b e r t a , wage r a t e s a t t h e S e n t i n e l p l a n t

a r e determined b y u n i o n a c t i v i t y on t h e West Coast. T h i s i n f l u e n c e , of

c o u r s e , would b e f e l t no m a t t e r where t h e p l a n t was l o c a t e d i n A l b e r t a .

The q u e s t i o n of whether o r n o t t h e r e i s an advantage i n having t h e

p l a n t l o c a t e d i n an k p r o v e m e n t D i s t r i c t h a s n o t been determined,

however. Presumably t h e p r e s e n t s i t e was chosen f o r t h e r e a s o n t h a t

 112

the o n l y o t h e r a c c e p t a b l e site wss, p r i v a t e l y owned and would,thexe-

f o r e , have been m u c h m o r e e x p e n s i v e t o p w c h a s e .

Although the o r i g i n a l m a n a g e r of t h e S e n t i n e l p l a n t d i d spend

a few y e a r s i n t h e ' p a s s a r e a , d u r i n g t h e s e t t i n g up of t h e o p e r a t i o n ,

h e d i d n o t f i n d t h i s a r e a a s u i t a b l e p l a c e in which t o l i v e . He

e x p l a i n e d t o t h i s w r i t e r that t h e area does n o t have much i n t h e way

of s o c i a l a m e n i t i e s , o r , f o r that m a t t e r , customary f a c i l i t i e s . He

f u r t h e r n o t e d t h a t t h e ' P a s s i s a r a t h e r remote a r e a , q u i t e d i s t a n t

•’ram c e n t r e s such as Calgary and Edmonton. But on t h e o t h e r hand

he a l s o observed t h a t t h e area does have c e r t a i n advantages, i . e . i t

i s r e a s o n a b l y c l o s e t o L e t h b r i d g e , i t i s q u i e t and c l e a n , and f o r t h e

young p e o p l e t h e a r e a does o f f e r a v a r i e t y of s p o r t i n g a c t i v i t i e s .

Having t a k e n e v e r y t h i n g i n t o c o n s i d e r a t i o n , however, h e concluded

t h a t i t was n e c e s s a r y f o r him t o r e t u r n t o a l a r g e r c e n t r e where

o p p o r t u n i t i e s f o r h i s c h i l d r e n , b o t h i n terms of employment and

e d u c a t i o n , would b e b e t t e r .

The p r o d u c t i o n s u p e r i n t e n d e n t , a t f i r s t , found i t v e r y

d i f f i c u l t t o become accustomed t o t h e Crowsnest P a s s a r e a and, a t

one p o i n t , s e r i o u s l y considered a c c e p t i n g a job o f f e r i n t h e United

S t a t e s and moving t o t h a t c o u n t r y . The most d i f f i c u l t p e r i o d , h e

e x p l a i n e d t o t h i s w r i t e r , was t h e f i r s t e i g h t e e n months, d u r i n g which

time h e and h i s w i f e debated whether o r n o t t h e y could a c c e p t a way

of l i f e t h a t was s o much d i f f e r e n t fram that: which t h e y had ex-

p e r i e n c e d i n Montreal. G r a d u a l l y t h e y came t o a p p r e c i a t e t h a t t h e

' p a s s a r e a h a s d i s t i n c t advantages of i t s own, and today t h e new manager

 113

finds it ' one of t h e n i c e s t p l a c e s , i n Canada t o l i v e . ' A t t h e beginning

i t was t h e c h a l l e n g e of s t a r t i n g a new o p e r a t i o n and t h e tremendous amount

of work a s s o c i a t e d w i t h s u c h a n endeavour t h a t p r e v e n t e d t h e p r o d u c t i o n

s u p e r i n t e n d e n t from making a p r e c i p i t o u s d e c i s i o n about t h e Crowsnest

Pass. T h e o p p o r t u n i t y , a f t e r s e v e n t e e n y e a r s of b e i n g s t r i c t l y an ' o f f i c e

man', t o became involved with t h e ' o p e r a t i o n s 1 s i d e of c a b l e manufacturing

enabled t h e p r o d u c t i o n s u p e r i n t e n d e n t t o 'convince' himself t h a t h e

could a d j u s t t o t h e Crowsnest P a s s way of l i f e . It w a s n ' t u n t i l

months l a t e r t h a t h e r e a l i z e d t h a t g i v e n t h e c h o i c e of l i v i n g i n t h e

' P a s s a r e a and l i v i n g a g a i n i n a l a r g e r c e n t r e h e would t a k e t h e

former. Indeed, on his l a s t two v i s i t s t o M o n t r e a l , t h e new manager

h a s found t h e environment of t h i s l a r g e c i t y q u i t e unbearable.

From time t o time d u r i n g t h e l a s t few y e a r s a t t e m p t s have

been made t o a t t r a c t management p e r s o n n e l t o t h e S e n t i n e l p l a n t , b u t

without success. On a t l e a s t two d i f f e r e n t o c c a s i o n s i n d i v i d u a l s ,

w i t h management e x p e r i e n c e , l e f t t h e i r j o b s w i t h t h e p l a n t s h o r t l y

a f t e r a r r i v i n g and took up job o f f e r s elsewhere i n l a r g e r c e n t r e s .

F e e l i n g t h a t i n b o t h c a s e s t h e i n d i v i d u a l s concerned should make

up t h e i r own minds, t h e s u p e r i n t e n d e n t d i d n o t a t t e m p t t o persuade

them t o remain by e x p l a i n i n g h i s own e x p e r i e n c e and t h e f a c t t h a t

h e too had been d i s c o u r a g e d a t one p o i n t . However i t i s important

t o n o t e t h a t i t was t h e d i f f i c u l t y of a t t r a c t i n g and r e t a i n i n g q u a l i f i e d

management p e r s o n n e l t h a t encouraged t h e manager and t h e s u p e r i n t e n d e n t

t o develop t h e p o t e n t i a l t h a t e x i s t e d i n t h e ' P a s s a r e a .

Even though i t may b e p o s s i b l e t o l o c a t e a c a b l e m a n u f a c t u r i n g

p l a n t almost anywhere, t h i s is n o t ' n e c e s s a r i l y t h e c a s e f o x a l l

m a n u f a c t u r i n g concerns. It can b e assumed t h a t a n i n c e n t i v e

program w i l l n o t persuade c e r t a i n i n d u s t r i e s , ones which because

of economic r e a s o n s b e t o b e l o c a t e d i n o r near l a r g e r c e n t r e s , t o

undertake t o l o c a t e i n an outlying o r designated a r e a . However t h e r e

a r e examples of i n d u s t r i e s which have u t i l i z e d f e d e r a l i n c e n t i v e

programs and l a t e r m a v e d from t h e d e s i g n a t e d a r e a s t o l a r g e r c e n t r e s .

For example, Becker D r i l l s Limited, a d r i l l manufacturing concern

which was purchased by Union Carbide Canada Limited i n 1965, r e c e i v e d ,

when i t s t a r t e d o p e r a t i o n i n Blairmore, c e r t a i n t a x c o n c e s s i o n s and

d e p r e c i a t i o n a l l o w a n c e s under t h e 1963 f e d e r a l i n c e n t i v e program.

During t h e f a l l of 1970, t h e p l a n t was moved t o Calgary. This w r i t e r

was informed by t h e campany's management p e r s o n n e l t h a t f o r t h r e e

y e a r s t h e t a x concession made i t f e a s i b l e f o r Becker D r i l l s t o

o p e r a t e a p l a n t i n Blairmore; however, a f t e r t h e end of t h e 'tax

h o l i d a y ' i t became c l e a r t h a t i t would be p r o f i t a b l e t o move t h e

p l a n t t o Calgary. I n t h e view of t h e management, t h e d i s a d v a n t a g e s of

o p e r a t i n g t h e Blairmore p l a n t f a r outweighed t h e advantages. Some of

t h e d i s a d v a n t a g e s o u t l i n e d t o t h i s w r i t e r were:

1. Amenities - S k i l l e d l a b o u r e r s and a d m i n i s t r a t i v e p e r s o n n e l ,

l i v i n g i n t h e ' p a s s a r e a , missed t h e conveniences t h a t a l a r g e r c e n t r e

offers. Although i t i s cheaper t o l i v e i n t h e ' p a s s a r e a t h a n i n a

l a r g e r c e n t r e , t h e o v e r a l l s t a n d a r d s of l i v i n g a r e much lower. This

 115

r e s u l t e d i n a tremendous t u r n o v e r ,of s k i l l e d p e r s o n n e l , i . e . thirty-six

employees d u r i n g t h e l a s t twelve luonths of t h e p l a n t ' s o p e r a t i o n .

2. Housing - The l a c k of adequate housing f o r employees was

viewed a s a g r a v e problem. Although t h e Company d i d l o o k i n t o t h e

p o s s i b i l i t y of p r o v i d i n g t r a i l e r s , i t s i n v e s t i g a t i o n i n d i c a t e d t h a t

such an endeavour would b e t o o c o s t l y .

3. S k i l l e d Labour - One of t h e most d i f f i c u l t problems t h a t

c o n f r o n t e d t h e Blairmore p l a n t d u r i n g i t s s t a y i n t h e ' P a s s a r e a was

a c o n t i n u a l s h o r t a g e of dependable, s k i l l e d employees. Since t h e a r e a

was o n l y a b l e t o p r o v i d e t h e odd s e m i - s k i l l e d m a c h i n i s t o r welder, t h e

management had t o r e l y almost e n t i r e l y on t h e s e r v i c e s of non-Pass

people. However, i t proved t o b e v i r t u a l l y i m p o s s i b l e t o r e t a i n

married men, and t h e s i n g l e men e x h i b i t e d a p r o p e n s i t y t o move a s

soon a s a b e t t e r job was o f f e r e d elsewhere.

4. Staff - The Company was n o t a b l e t o f i n d a competent

a c c o u n t a n t i n t h e ' P a s s a r e a and w a s f o r c e d t o move one of i t s

a c c o u n t a n t s from Calgary t o Blairmore. The same procedure had t o b e

followed i n t h e c a s e of draftsmen. A s i n t h e c a s e s of t h e s k i l l e d

l a b o u r e r s , t h e s t a f f members found t h e remoteness of t h e 'Pass a r e a

and l a c k of a m e n i t i e s d i s c o m f o r t i n g .

5. Administration - The f a c t t h a t Becker Drills Limited had

a shop i n Calgary and a p l a n t i n Blairmore made a d m i n i s t r a t i o n

difficult. S i n c e t h e shop handled r e p a i r s and a c e r t a i n amount of

r e b u i l d i n g , and t h e p l a n t c o n c e n t r a t e d on manufacturing and r e b u i l d i n g ,

 116

i t was c o n s i d e r e d t o h e f a r eas$ex, fram an a d m i n i s t x a t i y e p o i n t of

view, t o h e t h e p l a n t l o c a t e d i n Calgary.

6. Wages -When Becker D r i l l s f i r s t opened i t s p l a n t in

Blairmore, h o u r l y wage r a t e s were samewhat lower t h a n t h o s e t o b e found

i n larger centres. However i t soon became n e c e s s a r y t o e q u a l i z e r a t e s

w i t h Calgary i n o r d e r t o persuade p e o p l e t o a c c e p t j o b s i n Blairmore.

During t i m e s of p r e s s u r e t h e employment s i t u a t i o n t h r e a t e n e d t o c r e a t e

a b o t t l e n e c k i n p r o d u c t i o n and t h e Company was f o r c e d t o o f f e r i t s

employees a d d i t i o n a l wages i . e . 'spike pay'. I n a d d i t i o n t h e resurgence

of mining a c t i v i t y r e s u l t e d i n h e a v i e r u n i o n a c t i v i t y and, a l t h o u g h t h e

Becker employees were n o t u n i o n i z e d , t h e Company was soon f o r c e d t o

i n c r e a s e wages o r l o s e employees.

7. Logistics - The d i s t a n c e between t h e Blairmore p l a n t

and t h e Company's o p e r a t i o n i n Calgary c r e a t e d many inconveniences.

During t h e y e a r s t h e r e was a c o n t i n u a l f l o w of p e r s o n n e l and equipment

back and f o r t h between Calgary and Blairmore. On o c c a s i o n a

p a r t i c u l a r problem i n t h e p l a n t would have t o b e i g n o r e d f o r days u n t i l

i t became convenient f o r someone t o t r a v e l t o Blairmore. Because of

t h e time f a c t o r i n v o l v e d i t was o f t e n n e c e s s a r y t o do some major work

i n Calgary t h a t should have been done i n Blairmore. There were a l s o

problems concerning t h e p u r c h a s i n g and s h i p p i n g of component p a r t s .

Time was a l s o a f a c t o r h e r e , e s p e c i a l l y when components were found

t o b e f a u l t y and had t o b e r e p l a c e d .

8. Sales - The l o c a t i o n of t h e p l a n t was a l s o i n c o n v e n i e n t

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from a s a l e s p o i n t of view. A t the, heginning when t h e Company was

pri'marily concerned w i t h m a n u f a c t u r i n g d r i l l i n g r i g s f o r c o n t r a c t

o p e r a t i o n s , l o c a t i o n was n o t a n important f a c t o r . However when Becker

D r i l l s became involved with l e a s i n g and s e l l i n g equipment, i t was o f t e n

d i f f i c u l t t o a r r a n g e f o r a p r o s p e c t i v e customer t o t a k e a day o f f t o

t r a v e l t o Blairmore t o l o o k a t a p i e c e of equipment.

9. Space and S t o r a g e - A s f a r a s s p a c e r e q u i r e m e n t s were

concerned i t was d i s c o v e r e d that more s p a c e would b e needed t h a n was

a t f i r s t visualized. Although t h e p l a n t a r e a had been doubled, t h e r e

was s t i l l a l a c k o f space. I n 1969, t h e demand f o r d r i l l i n g r i g s

was s o g r e a t t h a t t h e Company had t o 'farm o u t ' many o r d e r s t o l o c a l

o u t f i t s i n Calgary; one such o u t f i t b u i l t a n e n t i r e r i g f o r Becker

Drills. S t o r a g e was a major problem. Scrap, which could e a s i l y b e

s o l d i n Calgary was t a k i n g up v a l u a b l e warehouse and y a r d s p a c e ;

a t one p o i n t t h e r e was i n e x c e s s of 100 t o n s of s c r a p , worth between

$2,500. and $3,000. p i l e d up u s e l e s s l y . The i n v e n t o r y , because of

t h e p l a n t ' s l o c a t i o n , was 50% l a r g e r than i t would b e i n Calgary.

10. Image - It was thought t h a t from an image p o i n t of view,

i t would b e an advantage t o have t h e p l a n t l o c a t e d i n Calgary w i t h

other industries.

The g e n e r a l manager o f Becker Drills Limited informed t h i s

writer of t h e f a c t t h a t t h e Blairmore p l a n t had been a p r o f i t a b l e

operation. ( I n r e s p o n s e t o a q u e s t i o n concerning t h e m a t t e r of p r o f i t s

a n o t h e r member of the Becker lnanagement informed this m i t e r t h a t , 'we

have well.') He f u r t h e r n o t e d t h a t i f t h e management of t h e
 118

Company had been a b l e t o f o r e s e e t,he tremendous growth t h a t had

taken p l a c e i t would n o t have l o c a t e d a p l a n t i n Blairmore. When

i t was p o i n t e d o u t t h a t P h i l l i p s Cables had found i t s a t i s f a c t o r y t o

c o n t i n u e i t s o p e r a t i o n a t S e n t i n e l , t h e g e n e r a l manager observed t h a t

t h e two i n d u s t r i e s , Becker D r i l l s and P h i l l i p s Cables, a r e q u i t e

d i f f e r e n t and, t h e r e f o r e , s o a r e t h e i r c i r c u m s t a n c e s ; ' o u r s i s a

p a r t i c u l a r set of c i r c u m s t a n c e s ' . With r e f e r e n c e t o t h e d e c i s i o n t o

move, h e made i t c l e a r t h a t t h e e f f e c t t h a t t h i s d e c i s i o n would have on

t h e Town of Blairmore had been t a k e n i n t o account. He s t a t e d t h a t 'Union

Carbide p l a c e s a g r e a t d e a l of p r i d e i n i t s c o r p o r a t e image' and t h e

d e c i s i o n t o move, a f t e r having r e c e i v e d a three-year t a x concession,

does ' c a s t a b i t of a shadow'. 'A g r e a t d e a l of s o u l s e a r c h i n g was

done b e f o r e t h e d e c i s i o n was made'. However, he f u r t h e r e x p l a i n e d ,

i t must b e understood t h a t w h i l e t h e Company had had 'second t h o u g h t s

about s w i t c h i n g h o r s e s ' , i t was hoped t h a t Calgary would p r o v i d e men

who were b o t h s k i l l e d and s t a b l e .

Thus f o r t h r e e y e a r s t h e f e d e r a l i n c e n t i v e made i t f e a s i b l e

f o r Becker Drills t o o p e r a t e a p l a n t i n t h e Town of Blairmore. After

March 3 1 , 1969, t h e end of t h e ' t a x h o l i d a y ' , i t became c l e a r t o

t h e Becker management t h a t i t would b e more p r o f i t a b l e t o move t h e

p l a n t t o Calgary. A t t h e s t a r t of i t s o p e r a t i o n t h e Becker

management viewed t h e p l a n t a s being a r e l a t i v e l y s m a l l and s t a b l e

o p e r a t i o n c a p a b l e of meeting t h e f u t u r e demands of t h e Becker c o n t r a c t

fleet. During t h e f o l l o w i n g y e a r s , however, t h e demand f o r Becker's

p r o d u c t s and s e r v i c e s i n c r e a s e d s u b s t a n t i a l l y . For t h i s r e a s o n t h e

g e n e r a l manager r e a s s e s s e d t h e a d v i s a b i l i t y of m a i n t a i n i n g a p l a n t

i n Blairmore. H e came t o t h e c o n c l u s i o n , a f t e r having t a k e n a

number of f a c t o r s i n t o c o n s i d e r a t i o n , t h a t t h e p l a n t s h o h l d b e moved

from Blairmore t o Calgary and recommended such a move i n a b r i e f t o

t h e Becker s e n i o r management.

Analysis

A s h a s been p o i n t e d o u t i t was t h e f e d e r a l government's

e x p e c t a t i o n t h a t i n d u s t r i e s , which were accommodated under t h e 1963

i n c e n t i v e program, would meet t h e i r normative o b l i g a t i o n s t o t h e

areas i n which t h e y l o c a t e d . I n t h e c a s e of P h i l l i p s Cables Limited

t h i s o b l i g a t i o n was i n l a r g e p a r t f u l f i l l e d . However, i n c o n t r a -

d i s t i n c t i o n , Becker D r i l l s Limited decided t h a t i t s Blairmore p l a n t

was a fundamentally i n c o n v e n i e n t o p e r a t i o n d e s p i t e t h e p r o f i t f a c t o r .

Even though t h e g e n e r a l manager acknowledged i n remarks t o t h i s

w r i t e r t h a t Union Carbide ' p l a c e s a g r e a t d e a l of p r i d e i n i t s

c o r p o r a t e image' t h e company came t o t h e c o n c l u s i o n t h a t t o r e l o c a t e

i t s Blairmore p l a n t t o Calgary was more i m p o r t a n t t h a n any normative

o b l i g a t i o n i t might have t o t h e Crowsnest P a s s a r e a . It can b e

i n t e r p r e t e d t h a t t h e Blairmore l o c a t i o n was imposing a normative

o b l i g a t i o n on t h e company, namely t h a t i t must b e concerned about t h e

w e l f a r e of i t s employees. P r a g m a t i c a l l y t h i s h a s n o t been t h e n a t u r e

of a company's r e l a t i o n s h i p w i t h i t s employees; t h e company's con-

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t r a c t u r a l arrangement w i t h i t s employees i n c l u d e s no n e c e s s a r y o b l i -

g a t i o n t o b e concerned w i t h t h e i r w e l f a r e i n moving t h e p l a n t t o

Calgary, t h e Company was r e a s s e r t i n g t h e pragmatic n a t u r e of t h e

r e l a t i o n s h i p between i t s e l f and i t s employees by t a k i n g advantage

of t h e l a b o u r p o o l e x t a n t i n t h e major c e n t r e .

The popular view t h a t o u t l y i n g a r e a s o r small urban

c e n t r e s a r e , f o r one r e a s o n o r a n o t h e r , g e n e r a l l y u n s u i t a b l e f o r

p r i v a t e investment p r o v i d e s a n i n d u s t r i a l concern, such a s Becker

D r i l l s Limited, with a ' p u b l i c l y acceptable' r a t i o n a l e f o r r e l o c a t i n g

an o p e r a t i o n i n t o a l a r g e r c e n t r e . The e v i d e n c e s u g g e s t s , however,

t h a t t h e prime r e a s o n f o r r e l o c a t i o n i s t h a t t h e l a r g e r c e n t r e s

p r o v i d e t h o s e a m e n i t i e s which a l l o w f o r p r o f i t s a t l e s s e f f o r t . The

c a s e i n p o i n t h e r e was t h e d e c i s i o n t o move t h e Becker D r i l l s p l a n t

from t h e Crowsnest P a s s t o Calgary. Although t h e g e n e r a l manager

i n s i s t e d t h a t t h e ' c i r c u m s t a n c e s ' o f t h e Becker D r i l l p l a n t were

q u i t e d i f f e r e n t from t h o s e of t h e P h i l l i p s Cables o p e r a t i o n , i t i s

i m p o r t a n t t o n o t e t h a t i n t h e l a t t e r c a s e t h e management overcame, i n

a s h o r t p e r i o d of t i m e , many of t h e problems r e f e r r e d t o by t h e

g e n e r a l manager. A member of t h e S e n t i n e l p l a n t management ex-

p r e s s e d , t o t h i s w r i t e r , some v e r y d e f i n i t e o p i n i o n s concerning

t h e Becker p l a n t ' s imminent d e p a r t u r e from Blairmore. He s u g g e s t e d

t h a t f o r t h e amount of money i t was going t o c o s t t o r e l o c a t e t h e

p l a n t , t h e Company could b u i l d a number of houses f o r i t s employees

and, i n a d d i t i o n , s t a r t a t r a i n i n g program f o r u n s k i l l e d employees; t h u s

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t h e Becker management would r e s o l v e two of t h e more important problems

I

t h a t had c o n f r o n t e d t h e p l a n t s i n c e i t had begun o p e r a t i o n . At

t h e same t i m e h e observed t h a t t h e p l a n t ' s o p e r a t i o n had s u f f e r e d

from a l a c k of q u a l i f i e d management personnel--'the foreman was

probably running a l a t h e a few months a g o ' . It was a l s o h i s o p i n i o n

t h a t t h e i n s t i g a t o r behind t h e d e c i s i o n t o r e l o c a t e ' i s an ambitious

young foreman' who ' c a n ' t s e e himself a s a foreman i n t h e 'Pass f o r -

ever'. The s u g g e s t i o n was made t h a t t h e c h i e f accountant may have

been convinced of t h e v a l i d i t y of t h e foreman's a n a l y s i s of t h e s i t u -

a t i o n and, t h e r e f o r e , n o t sought f u r t h e r a d v i c e ; ' A l l i n a l l , a " t a i l

wagging t h e dog1' s i t u a t i o n ' . I t i s a p p a r e n t l y n o t uncommon f o r a

s t r a t e g i c a l l y p l a c e d employee t o a t t e m p t t o i n f l u e n c e h i s company's

d e c i s i o n concerning l o c a t i o n by emphasizing t h e advantages of being

located i n a larger centre. The foreman of t h e Blairmore p l a n t ex-

p l a i n e d t o t h i s w r i t e r t h a t he r e a l i z e d t h a t t h e d e c i s i o n t o r e l o c a t e

t h e p l a n t would prove t o b e damaging t o Blairmore; however, t h e p l a n t

'does have problems t o o ' . A t t h e same time, he observed t h a t i t would

b e i m p o s s i b l e f o r him t o f i n d a job i n t h e Crowsnest P a s s a r e a , s i m i l a r

t o t h e one h e had been o f f e r e d i n Calgary.

I t can b e argued t h a t w h i l e t h e 1963 i n c e n t i v e program d i d

encourage a c e r t a i n amount of economic a c t i v i t y i n slow growth a r e a s ,

i t s s u c c e s s depended v e r y l a r g e l y upon a number of f a c t o r s which e x i s t e d

q u i t e o u t s i d e t h e scheme i t s e l f . Chief among t h e s e f a c t o r s was t h e

a t t i t u d e of management. The two s e n i o r managers of t h e S e n t i n e l op-

e r a t i o n were determined t o u t i l i z e t h e r e s o u r c e s and p o t e n t i a l of t h e

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Crowsnest P a s s a r e a . The Becker D r i l l s management, on t h e o t h e r hand,

1

d i d n o t i l l u s t r a t e any r e a l i n t e r e s t i n t h e a r e a and adopted a d i s t i n c t -

l y n e g a t i v e p e r s p e c t i v e , p a r t i c u l a r l y toward t h e end of t h e ' t a x h o l i -

day'. Thus, i t would appear t h a t t h e i n d i v i d u a l manager p l a y s an ex-

tremely important r o l e w i t h r e s p e c t t o i n d u s t r y ' s o b l i g a t i o n t o com-

munities. He can, i f he wishes t o , make e v e r y a t t e m p t t o r e s o l v e prob-

lems t h a t may e x i s t i n an o u t l y i n g a r e a , and i n doing s o r e c e i v e s u p p o r t

from l o c a l a u t h o r i t i e s . So, what must b e emphasized i s t h a t , w h i l e

f e d e r a l government i n c e n t i v e programs do encourage c e r t a i n i n d u s t r i e s

and b u s i n e s s e s t o l o c a t e i n d e s i g n a t e d a r e a s , t h e s u c c e s s of t h e s e

o p e r a t i o n s , b o t h w i t h r e g a r d t o economic v i a b i l i t y and i n terms of

i n d u s t r y ' s o b l i g a t i o n t o connnunities, remains c o n t i n g e n t on s e v e r a l

f a c t o r s , t h e most important of which a r e t h e a t t i t u d e and competency

of t h e managers i n v o l v e d .

A s h a s been p o i n t e d o u t t h e S e n t i n e l p l a n t management l a i d

g r e a t s t r e s s on t r a i n i n g t h e l o c a l l a b o u r s u p p l y , encouraging o n l y a

minimum number of t r a n s f e r s , and b u i l d i n g a s t r o n g management s t a f f

through a r a t h e r unorthodox b u t s u c c e s s f u l i n t e r n a l promotion p o l i c y .

Of s i g n i f i c a n c e i s t h e f a c t t h a t t h e management was a b l e , through i t s

t r a i n i n g program and i n t e r n a l promotion p o l i c y , t o develop over a

p e r i o d of l e s s t h a n f i v e y e a r s a h a r d c o r e of s k i l l e d employees and a

competent management s t a f f . While perhaps i t i s n o t s u r p r i s i n g t h a t

a t t e m p t s t o a t t r a c t management p e r s o n n e l proved t o b e u n s u c c e s s f u l ,

t h e implementation of t h e promotion p o l i c y made t h i s d i f f i c u l t y , i n

t h e end, r a t h e r immaterial. Although t h e i n i t i a l expense of having

 123

i t s employees t r a i n e d would probably n o t have been i n c u r r e d by

P h i l l i p s Cables had t h e p l a n t been l o c a t e d i n a l a r g e r c e n t r e , t h e

p l a n t today does have a s t r o n g and permanent l a b o u r f o r c e , i f f o r

no o t h e r r e a s o n t h a n t h e f a c t t h a t t h e employees a r e r e s i d e n t s of t h e

'Pass a r e a . Thus, t h e p l a n t management does n o t have t o b e concerned

about a s e r i o u s t r a n s i e n t l a b o u r problem. I n a d d i t i o n , i t should a l s o

be noted t h a t by a d o p t i n g p o l i c i e s a p p r o p r i a t e t o t h e l o c a l s i t u a t i o n ,

t h e problem of making s u i t a b l e arrangements f o r h o u s i n g company

p e r s o n n e l was removed. T h i s i s n o t t o s a y t h a t t h e Crowsnest Pass

communities d i d n o t have t o expand t h e i r s e r v i c e s . Although t h e

p l a n t was and i s l o c a t e d i n t h e Improvement D i s t r i c t , t h e v a r i o u s towns

and v i l l a g e s had t o c o n s i d e r some expansion of c e r t a i n s e r v i c e s i n

o r d e r t o accommodate t h e new i n d u s t r y . However t h e S e n t i n e l p l a n t

management's w i l l i n g n e s s t o a d a p t t o c o n d i t i o n s i n t h e Crowsnest

P a s s precluded t h e communities from having t o commit themselves t o

l a r g e e x p e n d i t u r e s f o r t h e expansion of s e r v i c e s . Of a d d i t i o n a l

i n t e r e s t i s t h e f a c t t h a t a t l e a s t t h r e e employees of t h e p l a n t ,

w h i l e n o t having ' p a p e r s ' a r e a s s k i l l e d i n t h e i r work a s those with

licenses. I n o t h e r words, i t would b e wrong t o assume t h a t o u t l y i n g

a r e a s a r e completely v o i d of ' s k i l l e d ' people. It would appear t h a t

a l t h o u g h ' d e s i g n a t e d ' a r e a s a r e a r e a s of heavy unemployment and

s t a t i c growth, such a r e a s a r e n o t n e c e s s a r i l y l a c k i n g i n human and

other potential. By u t i l i z i n g t h i s p o t e n t i a l t h e S e n t i n e l p l a n t

management n o t o n l y f u l f i l l e d i t s pragmatic ' o b l i g a t i o n ' t o t h e

Company, b u t a l s o met t h e ' e x p e c t a t i o n f of t h e f e d e r a l government by

f u l f i l l i n g a normative ' o b l i g a t i o n ' t o t h e ' P a s s a r e a .

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I n comparison t o P h i l l i p s Cables, Becker D r i l l s placed i t s e l f

I

i n an i n f l e x i b l e p o s i t i o n w i t h regard t o c o n d i t i o n s i n t h e ' P a s s , and

i t s normative o b l i g a t i o n t o t h a t a r e a . I n August, 1970, t h e r e were

o n l y t e n 'Pass r e s i d e n t s on t h e Becker p a y r o l l of twenty-eight em-

ployees. A member of t h e management s t a f f e x p l a i n e d t o t h i s w r i t e r

t h a t , s i n c e t h e p l a n t ' s p a y r o l l was s o s m a l l , t h e Company had d e c i d e d ,

a t t h e beginning of t h e p l a n t ' s o p e r a t i o n , t h a t i t would n o t be f e a s i b l e

o r n e c e s s a r y t o i n i t i a t e a t r a i n i n g program. T h i s d e c i s i o n , i t can be

suggested, f o r c e d t h e p l a n t management t o r e l y on s k i l l e d l a b o u r from

o u t s i d e t h e 'Pass a r e a . I n t u r n , t h i s r e l i a n c e , t h e evidence i n d i c a t e s ,

brought t o t h e f o r e such problems a s t h e d i f f i c u l t y of a c q u i r i n g s k i l l e d

and p r o f e s s i o n a l p e o p l e , and t h e s h o r t a g e of housing accommodation i n

t h e 'Pass area. With r e g a r d t o t h e q u e s t i o n of housing, t h e p l a n t

foreman informed t h i s w r i t e r t h a t t h e Blairmore c o u n c i l had known t h a t

Becker D r i l l s was contemplating t h e n o t i o n of r e l o c a t i n g i t s p l a n t l o n g

b e f o r e t h e d e c i s i o n was a c t u a l l y made, and t h a t t h e s h o r t a g e , u n l e s s

r e c t i f i e d , would b e one of t h e major r e a s o n s g i v e n f o r r e l o c a t i n g t h e

plant. F u r t h e r t o t h i s , he e x p l a i n e d t h a t , s i n c e Uniop Carbide does

n o t p r o v i d e housing f a c i l i t i e s f o r i t s employees, t h e r e s p o n s i b i l i t y

f o r r e s o l v i n g t h e problem l a y i n t h e hands of t h e Blairmore c o u n c i l .

However, h e observed, t h e c o u n c i l i l l u s t r a t e d no r e a l concern f o r t h e

problem u n t i l a f t e r t h e d e c i s i o n t o r e l o c a t e had been made, and even

t h e n t h e r e was o n l y a ' l i t t l e t a l k ' .

Speaking t o t h e q u e s t i o n of housing, t h e c u r r e n t manager of t h e

S e n t i n e l p l a n t e x p l a i n e d t o t h i s w r i t e r t h a t , a l t h o u g h t h e r e was no

d i f f i c u l t y i n t h i s a r e a when t h e S e n t i n e l and Blairmore p l a n t s f i r s t

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became o p e r a t i o n a l , a t a l a t e r d a t e a d i s t i n c t housing s h o r t a g e d i d
,
develop i n t h e ' P a s s a r e a . Although t h i s s h o r t a g e would b e a d i s t i n c t

problem f o r any l a r g e i n d u s t r y s t a r t i n g up o p e r a t i o n i n t h e ' P a s s , t h e

manager observed t h a t a s m a l l e r , growing i n d u s t r y might n o t f a c e an

overwhelming d i f f i c u l t y i n t h i s r e g a r d , s i n c e i t s g r a d u a l growth would

perhaps b e more i n accord w i t h t h e m a t e r i a l i z a t i o n of housing accom-

modation.

The e s t a b l i s h m e n t of t h e S e n t i n e l p l a n t opened up o p p o r t u n i t i e s

f o r new manufacturing concerns t o s t a r t o p e r a t i o n i n t h e ' P a s s a r e a .

One Crowsnest P a s s r e s i d e n t t o o k t h e i n i t i a t i v e and launched a manu-

f a c t u r i n g e n t e r p r i s e f o r t h e p r o d u c t i o n of c a b l e r e e l s . For some

months p r i o r t o e s t a b l i s h i n g h i s o p e r a t i o n , t h i s i n d i v i d u a l c u t ' l a g s '

f o r t h e S e n t i n e l p l a n t d u r i n g h i s s p a r e hours. I t was d u r i n g t h i s

p e r i o d t h a t he became informed of t h e p o s s i b i l i t y of manufacturing

reels f o r the Sentinel plant. Impressed w i t h t h e i d e a , he approached

t h e p l a n t management and s h o r t l y a f t e r w a r d s r e c e i v e d a c o n t r a c t t o

manufacture t h i r t y - s i x r e e l s . Although t h e S e n t i n e l management w a s

u n a b l e t o g u a r a n t e e a f u t u r e market, t h e new c a b l e manufacturer d i d ,

by purchasing a b u i l d i n g and equipment, commit himself t o a r a t h e r

l a r g e c a p i t a l investment. Recognizing t h a t t h e r e was a need t o develop

a broader market, he began t o approach a number of o t h e r c a b l e manu-

f a c t u r e r s and, a s a r e s u l t of t h i s a c t i v i t y , developed h i s sales po-

tential. A s t h e demand f o r h i s product i n c r e a s e d and h i s o p e r a t i o n

became l a r g e r , t h e r e e l manufacturer began t o s e e k a d v i c e from i n -

d i v i d u a l s w i t h b u s i n e s s e x p e r i e n c e and e x p e r t i s e . I n t e r e s t i n g l y enough,

t h e c u r r e n t manager of t h e S e n t i n e l p l a n t took t h e time t o o f f e r a g r e a t

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d e a l of a d v i c e and a s s i s t a n c e . Sq, n o t o n l y had t h e S e n t i n e l p l a n t

provided t h e opening f o r a new manufacturing concern t o begin o p e r a t i o n ,

b u t a s soon a s one became o p e r a t i o n a l t h e management took a p e r s o n a l

i n t e r e s t i n i t s , f u t u r e and provided t h a t a d v i c e which would make i t a

p r o f i t a b l e venture. Thus, i n s o f a r a s i t s o b l i g a t i o n t o s t i m u l a t e

economic a c t i v i t y i n t h e Crowsnest P a s s was concerned, i t can be sug-

g e s t e d t h a t t h e S e n t i n e l p l a n t f u l f i l l e d t h e e x p e c t a t i o n s of t h e

f e d e r a l government.

I n t h e c a s e of t h e S e n t i n e l p l a n t management, i t i s important

t o n o t e t h a t t h e two s e n i o r managers f e l t a s e n s e of p e r s o n a l o b l i g a t i o n

t o t h e Crowsnest P a s s a r e a . T h i s a t t i t u d e was p a r t i c u l a r l y r e f l e c t e d

i n t h e o r i g i n a l manager's remarks concerning t h e Becker D r i l l s ' d e c i s i o n

t o r e l o c a t e t h e Blairmore p l a n t . He noted t h a t t h e d e c i s i o n would do

' l i t t l e t o encourage t h e community t o p i c k up i t s f e e t ' . I n addition,

he observed t h a t t h e r e l o c a t i o n of t h e p l a n t would n o t o n l y e x a c e r b a t e

t h e unemployment problem i n t h e ' P a s s a r e a , b u t would a l s o p l a c e t h o s e

i n d i v i d u a l s who p r o v i d e e s s e n t i a l s e r v i c e i n a more d i f f i c u l t f i n a n c i a l

s i t u a t i o n s i n c e c e r t a i n of t h e i r s e r v i c e s would no l o n g e r b e r e q u i r e d .

Of g r e a t i n t e r e s t was t h e p e r s o n a l a t t i t u d e of t h e two managers

toward o t h e r developments i n t h e Crowsnest P a s s a r e a . The o r i g i n a l

manager e x p l a i n e d t o t h i s w r i t e r t h a t he f e l t t h a t t h e r i v a l r y between

t h e ' P a s s communities ' i s bloody nonsense' and t h a t ' i t i s h i g h time

t h a t t h e p r o v i n c i a l government took a f i r m g r i p on t h e s i t u a t i o n ' .

Notably, t h e Company decided n o t t o d o n a t e monies t o s p e c i f i c town en-

deavours and t o c o n t r i b u t e o n l y t o t h o s e p r o j e c t s which could b e con-

s i d e r e d of 'Pass-wide significance.
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Considering t h e f a c t t h a t , t h e p r o v i n c i a l government h a s

s u p p o r t e d , f o r many y e a r s , t h e n o t i o n of amalgamating t h e v a r i o u s ' P a s s

communities under one government, i t i s s i g n i f i c a n t t h a t t h e S e n t i n e l

p l a n t management h a s probably done more t o encourage t h e v a r i o u s com-

m u n i t i e s t o s e r i o u s l y c o n s i d e r t h i s p r o p o s a l t h a n t h e government i t s e l f .

T h i s i s an i l l u s t r a t i o n of e x a c t l y how p r i v a t e e n t e r p r i s e can become

i n f l u e n t i a l i n d e t e r m i n i n g t h e c h a r a c t e r and d i r e c t i o n of development

i n a particular area. Of c o u r s e , i t must be acknowledged t h a t i n t h e

S e n t i n e l p l a n t c a s e t h e management h a s n o t been unduly hampered by

numerous p o l i t i c a l c o n s i d e r a t i o n s . The management i s , i n a manner,

t a k i n g t h e i n i t i a t i v e w h i l e t h e government s t a n d s back, seemingly i n -

c a p a c i t a t e d by p o l i t i c a l c o n s t r a i n t s . A s can be e x p e c t e d , t h i s s i t u -

a t i o n h a s n o t been without d i f f i c u l t i e s f o r t h e management. For ex-

ample, t h e c u r r e n t manager convinced h i s head o f f i c e t o permit a sub-

s t a n t i a l c o n t r i b u t i o n t o t h e swimming pool fund and now f i n d s himself

i n t h e awkward p o s i t i o n of n o t being a b l e t o r e p o r t t o h i s s u p e r i o r s

t h e e x a c t s t a t u s of t h e p o o l p r o p o s a l . A s h a s been p o i n t e d o u t i n a

p r e v i o u s c h a p t e r , a g r e a t d e a l of t h e r e s p o n s i b i l i t y f o r t h e d e l a y and

confusion embracing t h e p r o p o s a l can be a t t a c h e d t o p r e s e n t p r o v i n c i a l

government p o l i c y which p r e v e n t s , a p p a r e n t l y , t h e government from

d i r e c t i n g , o r a s s i s t i n g w i t h , a p r o j e c t of a r e g i o n a l n a t u r e . Instead

of a t t e m p t i n g t o f a c i l i t a t e m a t t e r s i n t h e Crowsnest P a s s a r e a and t o

c o i o r d i n a t e t h e e f f o r t s of v a r i o u s i n t e r e s t groups, i n c l u d i n g t h e

a s s i s t a n c e o f f e r e d by t h e companies l o c a t e d t h e r e , t h e p r o v i n c i a l

government remains d i s t a n t . T h i s a t t i t u d e o r p o s i t i o n on t h e p a r t of

t h e p r o v i n c i a l government c e r t a i n l y does n o t encourage f u r t h e r involve-

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ment o r f i n a n c i a l commitments from t h e companies which a r e i n t e r e s t e d

I

i n a i d i n g a 'Pass-wide endeavour. I t should b e n o t e d h e r e t h a t

P h i l l i p s Cable i s one among s e v e r a l i n d u s t r i e s which have c o n t r i b u t e d

monies towards t h e c o n s t r u c t i o n of t h e swimming p o o l , and have, i n t h e

p a s t , made c o n t r i b u t i o n s t o o t h e r p r o j e c t s . A t t h i s point i t is i n t e r -

e s t i n g t o n o t e , w i t h r e f e r e n c e t o c o n t r i b u t i o n s from p r i v a t e companies,

t h a t t h e a c c o u n t a n t f o r t h e Becker p l a n t informed t h i s w r i t e r t h a t ,

d u r i n g t h e y e a r s t h a t t h e p l a n t had o p e r a t e d i n Blairmore, t h e Company

had n o t 'sponsored anything a s s u c h ' . However, t h e foreman e x p l a i n e d

t h a t t h e Becker D r i l l s o p e r a t i o n had helped t o ' p u l l t h e ' P a s s a r e a up

from a depressed a r e a t o maybe a d e s i g n a t e d a r e a ' .

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Notes t,o Chapter I V

1) Hansard. Volume 11, J u n e , 1963. p. 1004.

2) i b i d . , p . 1004.
 CW'RTER Y

CONCLYT SI O N

1. Philosophy 03 ' F a i r n e s s t

The p r o v i n c i a l government, wishing t o camply w i t h i t s own

philosophy of what i s ' f a i r ' , pursues a ' f a i r ' policy f o r t h e dis-

t r i b u t i o n of p r o v i n c i a l revenues and t h e p r o v i s i o n of l o a n s t o

municipalities. By b a s i n g i t s p o l i c y on t h e c r i t e r i a of p o p u l a t i o n

s i z e and e q u a l i z e d a s s e s s m e n t , t h e government i s a b l e t o m a i n t a i n a

'fair' posture with regard t o f i n a n c i a l a s s i s t a n c e t o municipalities

and concomitantly t o p r o t e c t i t s e l f from any p u b l i c c r i t i c i s m t h a t

might prove t o b e p o l i t i c a l l y d i s c o m f o r t i n g . However, s o long as

government p o l i c y i s based on t h e above c r i t e r i a , c o m p e t i t i o n among

communities, such a s t h e ones t h a t a r e l o c a t e d i n t h e Crowsnest Pass

a r e a , can b e expected t o c o n t i n u e .

The Municipal Financing C o r p o r a t i o n , u s i n g a f i f t y d o l l a r

p e r c a p i t a g u i d e l i n e , makes l o a n s t o i t s s h a r e h o l d h g m u n i c i p a l i t i e s

i n accord w i t h recommendations handed down by t h e Local A u t h o r i t i e s

Board. Small communities i n o u t l y i n g a r e a s , however, a r e some-

times n o t i n a f i n a n c i a l l y s e c u r e enough p o s i t i o n t o persuade t h e

L.A.B. t o make t h o s e recommendations t h a t would permit t h e Municipal

F i n a n c i n g Corporation t o extend s u f f i c i e n t l y l a r g e enough l o a n s t o

f i n a n c e expensive p r o j e c t s . Bellevue, f o r example, i s deeply i n d e b t

and i s t h u s unable t o o b t a i n l o a n s of any s i z a b l e n a t u r e . Other

communities, such a s Blairmore and Coleman, which a r e n o t s o b a d l y

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o f f f i n a n c i a l l y , a r e i n a b e t t e r borrowing p o s i t i o n . But, i n o r d e r

f o r t h e s e l a t t e r communities t o b e a b l e t o o b t a i n a l a r g e l o a n , they

must be a b l e t o amass a c e r t a i n amount of s e c u r i t y i . e . a community must

have t h e ' l i k e l y ' c a p a c i t y of being a b l e t o repay a l o a n through i t s

own r a t e p a y e r s . For a community l i k e Blairmore, a major e x p e n d i t u r e

a s s o c i a t e d w i t h , f o r i n s t a n c e , t h e i n s t a l l a t i o n of a sewerage system

i s n o t an overwhelming f i n a n c i a l burden. An i n c r e a s e i n t h e m i l l r a t e ,

i n i t i a t i o n o f , o r an i n c r e a s e i n , a b u s i n e s s t a x , s p e c i a l assessments

e t c . , would p r o v i d e t h e n e c e s s a r y s e c u r i t y f o r a l a r g e l o a n . Even

s o , t h e r a t e p a y e r s a r e seldom prepared t o e n d o r s e measures which

w i l l i n c r e a s e t h e i r t a x burden. I n a d d i t i o n , a community w i l l o f t e n

d i s c o v e r t h a t by u t i l i z i n g c e r t a i n t a x i n g powers g i v e n t o i t by

p r o v i n c i a l l e g i s l a t i o n i t has placed i t s e l f i n an unfavorable p o s i t i o n

i n terms of a t t r a c t i n g p r i v a t e investment.

When i t p e r c e i v e s a p o s s i b i l i t y of r a t i o n a l i z i n g ' s p e c i a l

a s s i s t a n c e ' f o r a p a r t i c u l a r p r o j e c t , t h e p r o v i n c i a l government i s

p r e p a r e d t o do s o i f i t views t h e p r o j e c t a s a worthwhile undertaking.

But i t must be emphasized t h a t t h e p o s s i b i l i t y of r e c e i v i n g ' s p e c i a l

a s s i s t a n c e ' depends on t h e government being a b l e t o d i r e c t a t t e n t i o n

t o t h e p a r t i c u l a r and s p e c i a l c i r c u m s t a n c e s of a p r o j e c t . Those

p r o j e c t s which might be viewed a s being of a g e n e r a l n a t u r e i n terms

of t h e p r o v i n c e r e c e i v e v e r y l i t t l e a p p a r e n t a t t e n t i o n . The govern-

ment, i n o t h e r words, i s c a r e f u l t o e n s u r e t h a t any s p e c i a l a s s i s t a n c e

g i v e n t o a community does n o t commit t h e government t o a precedent

which might have wide a p p l i c a t i o n throughout t h e province. Since

 132

i n d i v i d u a l communities, by and l a q e , a r e o n l y i n t e r e s t e d i n t h e i r

own advancement, i t would appear t h a t t h e r e would be l i t t l e s u p p o r t

f o r t h e n o t i o n t h a t t h e p r o v i n c i a l government should s e l e c t

p a r t i c u l a r communities f o r s p e c i a l a s s i s t a n c e .

From y e a r t o y e a r , t h e r e f o r e , t h e Crowsnest P a s s communities

r e l y mainly on municipal a s s i s t a n c e from t h e p r o v i n c i a l government

and moderate l o a n s from t h e Municipal F i n a n c i n g C o r p o r a t i o n . It is

f o r t h i s r e a s o n t h a t when an o p p o r t u n i t y a r i s e s t o a c q u i r e a n amenity

o r s e r v i c e of 'Pass-wide s i g n i f i c a n c e , t h e y w i l l compete w i t h one

another. Because of t h e l i m i t e d r e s o u r c e s a v a i l a b l e t o t h e Crows-

n e s t P a s s communities, t h e s e ' e j r t r a s ' a r e of p a r t i c u l a r importance

and can a c t u a l l y b e a determining f a c t o r i n a community's growth

and development. The s t a t e of a f f a i r s i s such t h a t a l t h o u g h an ad-

d i t i o n a l s e r v i c e o r amenity may a t t r a c t p r i v a t e investment t o a

community, t h a t community's r e s u l t a n t growth may cause h a r d s h i p f o r

i t s 'neighbors' and may even sound t h e d e a t h k n e l l f o r some of them. In

o t h e r words, development i n one l o c a t i o n of a p a r t i c u l a r a r e a , i n s t e a d

of being b e n e f i c i a l t o o t h e r l o c a t i o n s i n t h a t a r e a , may v e r y w e l l cause

widespread economic d e g e n e r a t i o n . The l o s s of p o p u l a t i o n t o a community

which i s e n j o y i n g growth h a s g r a v e i m p l i c a t i o n s f o r communities which

r e c e i v e l o a n s and f i n a n c i a l a s s i s t a n c e on t h e b a s i s of p o p u l a t i o n and

e q u a l i z e d assessment c r i t e r i a . I t can be i n t e r p r e t e d t h a t t h e compe-

t i t i o n among t h e Crowsnest P a s s communities f o r t h e new composite

h i g h s c h o o l was e s s e n t i a l l y based on such c o n s i d e r a t i o n s . Research

i n d i c a t e s t h a t t h e l o c a t i o n of a composite s c h o o l may r e s u l t n o t
o n l y i n t h e g r a d u a l d r i f t i n g awaybof c h i l d r e n fram t h e i r home

communities o r a r e a s , b u t a l s o in t h e movement of e n t i r e f a m i l i e s

t o the area i n which t h e s c h o o l i s l o c a t e d . These phenomena

c a n h a v e a d i s t i n c t impact on a community's growth and development.

F o r t h o s e communities which p o s s e s s , w i t h i n t h e i r b o r d e r s , a com-

p o s i t e s c h o o l , t h e r e i s t h e p o s s i b i l i t y of g r e a t e r economic develop-

ment and p o p u l a t i o n growth. For communities w i t h o u t such a f a c i l i t y ,

growth a p p e a r s t o b e l e s s l i k e l y .

&en i f a community does n o t a t t r a c t a d d i t i o n a l p r i v a t e

i n v e s t m e n t as a r e s u l t of having o b t a i n e d an e x t r a amenity, t h e

a m e n i t y may v e r y w e l l cause concern f o r businessmen i n neighboring

communities. For example, i n August, 1970, t h e Coleman h o t e l owner

e x p l a i n e d t o t h i s w r i t e r t h a t t h e ' m a j o r i t y ' of r e s i d e n t s were opposed

t o t h e p o o l p r o p o s a l because i t was going t o b e l o c a t e d i n Blairmore.

He s a i d , 'Blairmore won't l e t u s have a n y t h i n g ' . In addition, he

p o i n t e d o u t t h a t a swimming p o o l i n Blairmore would a t t r a c t b u s i n e s s

t o t h a t community and, a s a r e s u l t , b u s i n e s s e s i n Coleman would s u f f e r .

Presumably t h i s c o u n c i l l o r was v e r y much concerned about t h e e f f e c t a

swimming p o o l i n Blairmore would have on h i s own h o t e l t r a d e .

Thus i t can b e assumed t h a t communities compete w i t h one

a n o t h e r f o r l i m i t e d p r o v i n c i a l a i d and t o s e c u r e what p r i v a t e

i n v e s t m e n t t h e y may have a c q u i r e d . Since f i n a n c i a l a s s i s t a n c e has

o n l y b e e n forthcoming fram t h e p r o v i n c i a l government on t h e b a s i s of

p o p u l a t i o n s i z e and e q u a l i z e d assessment c r i t e r i a , except f o r t h a t

 134

a i d which t h e government i s a b l e t o , r a t i o n a l i z e under t h e a u s p i c e s of

a s p e c i a l p r o j e c t , t h e Crowsnest P a s s communities have been dissuaded

from being c o - o p e r a t i v e w i t h one a n o t h e r .

2. P r a c t i c e of Manipulation

Because of t h e v o l u n t a r y c h a r a c t e r of t h e Crowsnest P a s s Re-

g i o n a l R e c r e a t i o n Board c e r t a i n Crowsnest P a s s communities were a b l e t o

o b s t r u c t t h e p r o g r e s s of t h e pool p r o p o s a l . Unlike t h e School Act,

which i s f o r m u l a t e d i n such a way a s t o p r e v e n t one community from

o v e r r u l i n g t h e wishes of o t h e r communities i n a r e g i o n , t h e Recrea-

t i o n Act p r o v i d e s e a c h community w i t h t h e r i g h t t o d e c i d e , i n d i v i d u a l l y ,

i t s own f i n a n c i a l commitment t o a r e c r e a t i o n p r o j e c t . The c a s e s t u d y

of t h e p o o l p r o p o s a l p r o v i d e s a r e a s o n a b l y c l e a r o u t l i n e of t h e s t r a t e g y

developed by t h e c o u n c i l s of B e l l e v u e and Coleman t o d i s s u a d e t h e r a t e -

p a y e r s i n each community from s u p p o r t i n g t h e pool p r o p o s a l . It also

p r o v i d e s an i l l u s t r a t i o n of how c e r t a i n i n d i v i d u a l s attempted t o

manipulate a l o c a l s e r v i c e , p a r t i a l l y sponsored by t h e p r o v i n c i a l

government, i . e . t h e R e c r e a t i o n Board, and government departments and

legislation.

Conversations w i t h i n d i v i d u a l s a s s o c i a t e d w i t h t h e Local

A u t h o r i t i e s Board and t h e Department of Municipal A f f a i r s provided

evidence t o s u p p o r t t h e p r o p o s i t i o n t h a t , f o r t h e most p a r t , government

departments r e l y on l o c a l a u t h o r i t i e s t o make t h e i r own d e c i s i o n s and,

having made them, t o proceed i n accord w i t h government l e g i s l a t i o n .

Under normal c i r c u m s t a n c e s , i . e . one l o c a l a u t h o r i t y d e c i d i n g t o embark

 ,
on a p a r t i c u l a r p r o j e c t , this p o s t u r e concerning l o c a l d e c i s i o n -

making seldom i n v i t e s problems. Howwer, t h e a n a l y s i s of the swimming

p o o l p r o p o s a l s u g g e s t s t h a t developments a t t h e r e g i o n a l l e v e l ,

i n v o l v i n g more than one l o c a l a u t h o r i t y i n a r e c r e a t i o n p r o j e c t ,

cannot b e d e a l t w i t h e f f e c t i v e l y under p r e s e n t government l e g i s l a t i o n

and a d m i n i s t r a t i o n . The s o l i c i t o r and D i r e c t o r of F i e l d S e r v i c e were

c l e a r l y uninformed about t h e s i t u a t i o n which had developed i n t h e

Crowsnest Pass and t h e d e c i s i o n s t h a t had been concluded by t h e

community c o u n c i l s . The f a c t t h a t t h e s o l i c i t o r had f a i l e d ,

i n i t i a l l y , t o r e c o g n i z e t h e i n c o n s i s t e n c y between t h e f i r s t two j o i n t

agreements may v e r y w e l l have been a r e s u l t of t h i s l a c k of knowledge.

Both t h e s o l i c i t o r and D i r e c t o r of F i e l d S e r v i c e , however, assumed

t h a t t h e l o c a l a u t h o r i t i e s would 'do what i s p r o p e r ' . The s o l i c i t o r

e x p l a i n e d t h a t ' t h e y can r e a d t h e a c t a s w e l l a s anybody e l s e ' and '

' t h e y s h o u l d have t h e i r own s o l i c i t o r g u i d i n g them, I a m n o t p r e p a r e d

t o t e l l them what t o d o 1 . With r e g a r d t o t h e r o l e of t h e D i r e c t o r of

F i e l d S e r v i c e , t h e s o l i c i t o r observed t h a t 'I d o n ' t t h i n k i t i s t h e

D i r e c t o r ' s d u t y t o p o i n t o u t f u n c t i o n s of town c o u n c i l s ' . The D i r e c t o r

a d m i t t e d t h a t perhaps h e s h o u l d have o f f e r e d more a d v i c e however. 'I

d o n ' t propose t o t e l l town c o u n c i l s how t o o p e r a t e . I d o n ' t have t h e

knowledge and i t i s o u t of my p r o v i n c e . '

I n s o f a r as t h e a c t i v i t i e s of t h e R e c r e a t i o n Board were con-

c e r n e d , i t must b e observed t h a t t h e l i m i t e d r e s o u r c e s of t h i s organiza-

t i o n p r e v e n t e d i t from r e t a i n i n g t h e s e r v i c e s of a s o l i c i t o r . From
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the b e g i n n i n g the R e c r e a t i o n ~ i r e d t o rdepended on a s s i s t a n c e

from v a r i o u s government departments, i n c l u d i n g t h e Local A u t h o r i t i e s

Board and t h e A t t o r n e y Generals Department, f o r a d v i c e concerning

t h e f o r m u l a t i o n of j o i n t agreements e t c . It would probably b e c o r r e c t

t o assume t h a t t h e D i r e c t o r sought a d v i c e from t h e s e v a r i o u s departments

because h e r e a l i z e d t h a t t h e s e v e r y departments, i n t h e f i n a l a n a l y s i s ,

would d e c i d e whether o r n o t t h e agreements were s a t i s f a c t o r y i n form

and c o n t e n t . The departments, on t h e o t h e r hand, came t o r e l y on i n -

f o r m a t i o n and a d v i c e fram t h e c o n s u l t i n g e n g i n e e r s concerning t h e

p r o g r e s s of t h e p o o l p r o p o s a l . Thus t h e e n g i n e e r , o r i g i n a l l y em-

ployed by the R e c r e a t i o n Board, took on a d u a l c a p a c i t y i . e . to offer

a s s i s t a n c e t o t h e R e c r e a t i o n Board and t o p r o v i d e i n f o r m a t i o n t o

v a r i o u s government departments. The e v i d e n c e r e v e a l s , however, t h a t

t h e e n g i n e e r s found i t d i f f i c u l t t o keep up w i t h e v e n t s i n t h e Crowsnest

Pass. The v a g a r i o u s a c t i v i t i e s of t h e l o c a l a u t h o r i t i e s involved con-

founded t h e s i t u a t i o n t o such an e x t e n t t h a t t h e e n g i n e e r ' s r o l e a s

a d v i s o r and i n t e r m e d i a r y became somewhat undermined. Unquestionably

t h e e n g i n e e r found i t extremely d i f f i c u l t t o a s s i s t t h e v a r i o u s l o c a l

a u t h o r i t i e s t o a g r e e t o a c o u r s e of a c t i o n which would n o t o n l y i n t e -

g r a t e t h e i r s e p a r a t e i n t e r e s t s , b u t would a l s o meet t h e r e g u l a t i o n s

as l a i d down i n government l e g i s l a t i o n . And, s i n c e t h e e n g i n e e r was

n o t always, probably n e v e r , i n a p o s i t i o n of having a l l t h e f a c t s a t

hand, t h e o v e r a l l s i t u a t i o n became f u r t h e r confused i n t h e minds of

c e r t a i n c i v i l servants. As a r e s u l t , those associated with the

Department of M u n i c i p a l A f f a i r s and t h e Local A u t h o r i t i e s Board found

i t e x t r e m e l y d i f f i c u l t t o o r g a n i z e and co-ordinate their efforts.

 137

For example, a t o n e p o i n t , a r e p x e s e n t a t i v e of the Local A u t h o r i t i e s

Board r e q u e s t e d c o p i e s of t h e two j o i n t agreements and s u g g e s t e d t o

t h e c o n s u l t i n g e n g i n e e r that i f signed c o p i e s were n o t a v a i l a b l e ,

b l a n k o n e s would do. Howwer, s h o r t l y a f t e r t h e b l a n k ones were

provided, t h e s o l i c i t o r i n d i c a t e d t h a t he required t h e signed

agreements. Meanwhile, i n t h e Department of Municipal A f f a i r s a

new employee was a t t e m p t i n g t o t r a c e t h e l o c a t i o n of t h e two s i g n e d

agreements through t h e Blairmore s e c r e t a r y - t r e a s u r e r and a p p a r e n t l y

d i d n o t r e a l i z e t h a t h i s c o l l e a g u e s i n t h e Local A u t h o r i t i e s Board

were making s i m i l a r a t t e m p t s through t h e c o n s u l t i n g e n g i n e e r . It

was t h i s t y p e of uncouordinated a c t i v i t y t h a t encouraged t h e R e c r e a t i o n

D i r e c t o r , on s e v e r a l o c c a s i o n s , t o communicate d i r e c t l y w i t h m i n i s t e r s

and deputy m i n i s t e r s concerning problems t h a t were p r o v i n g t o b e t o o

d i f f i c u l t t o r e s o l v e through normal channels. So, i n a d d i t i o n t o

t h e complex l i n e s of communications, which have a l r e a d y been d i s -

c u s s e d , t h e r e w a s a l s o communication between t h e d i r e c t o r and t h e

aforementioned i n d i v i d u a l s .

It can b e i n t e r p r e t e d t h a t i t was t h e v o l u n t a r y c h a r a c t e r of

t h e R e g i o n a l R e c r e a t i o n Board t h a t caused t h e swimming p o o l t o become

immersed i n a maze of a d m i n i s t r a t i v e and l e g a l entanglements. The

Board, because of t h e l e g i s l a t i o n p e r t a i n i n g t o i t , was n o r m a t i v e l y

o b l i g e d t o open up t h e whole p r o c e s s t o t h e i n t r i g u e s and m a n i p u l a t i o n s

of t h e v a r i o u s i n t e r e s t groups concerned. The d i f f i c u l t y t h e n of

bringing a r e g i o n a l r e c r e a t i o n p r o j e c t t o f r u i t i o n involves n o t only

t h e f a c t that t h e i n t e r e s t s of v a r i o u s l o c a l a u t h o r i t i e s a r e n o t e a s i l y

c o - o r d i n a t e d , b u t a l s o t h a t t h e R e c r e a t i o n Act p e r m i t s each l o c a l
 138

a u t h o r i t y t o m a n i p u l a t e government s e r v i c e s . Thus, t h e fundamental

I

s t r a t e g y of the c o m p e t i t i o n between communities i s expressed i n t h e

m a n i p u l a t i o n of government s e r v i c e s . And a s long a s i t a p p e a r s

t h a t one community's development w i l l cause h a r d s h i p f o r i t s n e i g h b o r s ,

i t can b e expected t h a t t h e ' n e i g h b o r s ' w i l l make e v e r y e f f o r t t o

m a n i p u l a t e government s e r v i c e s t o p r e v e n t t h a t community from a c q u i r i n g

t h o s e ' e x t r a s ' which might enhance i t s f u t u r e development and growth.

The r e s u l t of t h i s m a n i p u l a t i o n i s an extreme waste of time and money

which c r e a t e s h a r d s h i p f o r a l l concerned and may p r e v e n t even one

l o c a t i o n i n a p a r t i c u l a r area from developing. I n t h e long r u n ,

a l t h o u g h t h e v a r i o u s communities presumably ' s t a y a l i v e ' , g e n e r a l

growth and development may remain ' s t a t i c ' o r go i n t o a p r o c e s s of

slow d e g e n e r a t i o n .

3. Philosophy of Local Autonomy

The c a s e s t u d y concerning t h e f o r m a t i o n of t h e s c h o o l d i v i s i o n

and t h e s i t e s e l e c t i o n i s s u e i l l u s t r a t e s t h e importance t h a t l o c a l

a u t h o r i t i e s a t t a c h t o t h e i r autonomy and t h e p r o v i n c i a l government's

response t o t h a t attachment.

By and l a r g e , i t would appear t h a t t h e people of A l b e r t a g i v e

s u p p o r t t o t h e p r i n c i p l e of l o c a l autonomy and view a s t r o n g p r o v i n c i a l

government a s a t h r e a t t o t h a t autonomy. It a l s o a p p e a r s t h a t many

l o c a l a u t h o r i t i e s , r e f l e c t i n g t h e g e n e r a l a t t i t u d e of t h e c i t i z e n r y ,

a c c e p t t h a t a government which emphasizes t h e importance of l o c a l

autonomy and i s r e l u c t a n t t o co-ordinate i t s s e r v i c e s and t o u s e i t s

 139

l e g a l a u t h o r i t y , enhances t h e autonomous p o s i t i o n s of l o c a l
I

authorities. The p r i n c i p l e of l o c a l autonomy, t h e r e f o r e , a p p e a r s

t o depend t o a g r e a t e x t e n t on t h e premise t h a t l o c a l a u t h o r i t i e s ,

such a s community c o u n c i l s , have t h e r i g h t , extended t o them by

p r o v i n c i a l l e g i s l a t i o n , t o co-ordinate and t o u t i l i z e t h o s e s e r v i c e s

made a v a i l a b l e by t h e p r o v i n c i a l government. The assumption i n -

h e r e n t i n t h i s view of l o c a l a u t h o r i t y i s t h a t : one, l o c a l a u t h o r -

i t i e s a r e aware of t h e p r o v i n c i a l government s e r v i c e s a v a i l a b l e t o them;

two, p r o v i n c i a l government s e r v i c e s can b e co-ordinated; three, local

a u t h o r i t i e s a r e i n a p o s i t i o n t o co-ordinate and t o u t i l i z e p r o v i n c i a l

government s e r v i c e s .

S i n c e t h e community c o u n c i l s and o t h e r l o c a l a u t h o r i t i e s

of t h e Crowsnest P a s s a r e a v a l u e t h e i r autonomous p o s i t i o n s , i t

s t a n d s t o r e a s o n t h a t t h e p r o v i n c i a l government would t a k e g r e a t

p a i n s t o avoid appearing t o b e u n n e c e s s a r i l y i n t e r f e r i n g i n t h e i r

affairs. The p r o v i n c i a l government, t h e r e f o r e , meets i t s normative

o b l i g a t i o n t o t h e s e and l o c a l a u t h o r i t i e s throughout t h e province

by governing i n such a way a s t o make i t appear t h a t i t i s prepared t o

a c c e p t t h e s a c r o s a n c t i t y of l o c a l autonomy. On t h e o t h e r hand, t h e

government, i n a d d i t i o n , has t h e normative o b l i g a t i o n t o a d m i n i s t e r

t h e p r o v i n c e i n such a way a s t o p r o v i d e f o r i t s s o c i a l , c u l t u r a l and

economic v i a b i l i t y v i s a v i s t h e r e s t of t h e Dominion. From time t o

time t h e s e d u a l o b l i g a t i o n s c o n f l i c t and, a s a r e s u l t , t h e p r o v i n c i a l

government f i n d s i t e f f i c a c i o u s t o i n d i r e c t l y i n t e r v e n e i n t h e a f f a i r s

of l o c a l a u t h o r i t i e s through t h e c o n t r o l given t o i t by government.

 140

l e g i s l a t i o n and hy t h e power i t k s ovex the r e s o u r c e s of t h e p r o v i n c e .

A s a consequence, tlie p r o ~ i n c i a lgovernment can b e s e e n , on o c c a s i o n ,

t o b e i n t h e r a t h e r c o n t r a d i c t o r y p o s i t i o n of having t o a r g u e ,

on t h e one hand, s u p p o r t f o r l o c a l autonomy and, on t h e o t h e r , t o

a d m i n i s t e r c e r t a i n of t h e p r o v i n c e s a f f a i r s i n such a way a s t o

c i r c u m s c r i b e t h a t autonomy. I n t h e c a s e of t h e f o r m a t i o n of t h e

Crowsnest P a s s School D i v i s i o n , i t was c l e a r t o t h e government, a s

e a r l y a s 1956, t h a t t h e r e was a need t o c o n s o l i d a t e t h e s c h o o l

d i s t r i c t s and t o b u i l d a composite h i g h s c h o o l . For pragmatic

r e a s o n s , i t i s s u g g e s t e d h e r e , t h e M i n i s t e r chose n o t t o u s e t h e

a u t h o r i t y g i v e n t o him by law and, i n s t e a d , d e c i d e d t o w a i t u n t i l

t h e s c h o o l f a c i l i t i e s i n Coleman had degenerated t o such a p o i n t

t h a t t h e l o c a l s c h o o l board would 'choose' t o j o i n a school division.

Although t h e p r o v i n c i a l govermnent achieved t h e g o a l i t d e s i r e d ,

i t s c o n t r o l o v e r t h e s i t u a t i o n depended l a r g e l y on t h e g r a d u a l

d e g e n e r a t i o n of a c m u n i t y ' s circumstances. It was n o t u n t i l t h e

s c h o o l f a c i l i t i e s had reached a c e r t a i n s t a t e o f d e t e r i o r a t i o n t h a t

t h e Department of Education was a b l e t o produce t h e ' i n c e n t i v e '

t h a t would encourage t h e Coleman s c h o o l board t o ' d e c i d e ' t o co-

o p e r a t e w i t h t h e n o t i o n of forming a d i v i s i o n i n t h e Crowsnest Pass.

It can b e argued t h a t this p r o c e s s o f i n d i r e c t c o n t r o l i s n o t o n l y

t o t a l l y unsound from a development v i e w p o i n t , b u t a l s o l e a d s t o

an e x c e s s i v e wastage of p u b l i c r e s o u r c e s ; i t d o e s , however, p e r m i t

t h e p r o v i n c i a l government t o have a c e r t a i n degree of p o l i t i c a l

flexibility.
 141

In t h e c a s e 0% the new s c h o l h o a r d , t h e x i g h t t o s e l e c t

a s i t e f o r the new s c h o o l was r e t a i n e d ; however, t h e n a t u r e of

t h e government p o l i c y which provided t h i s p r i v i l e g e a l s o l e f t

t h e s c h o o l board open t o the i n t r i g u e s and m a n i p u l a t i o n s of v a r i o u s

i n t e r e s t groups and l o c a l a u t h o r i t i e s . Although t h e s c h o o l board

could b e viewed a s a l o c a l a u t h o r i t y , t h e e l e v a t e d r e g i o n a l

r e s p o n s i b i l i t y and t h e r e f o r e s t a t u s g i v e n t o i t by p r o v i n c i a l

government p o l i c y caused o t h e r l o c a l a u t h o r i t i e s t o a t t e m p t t o

m a n i p u l a t e i t i n m u c h t h e same way a s t h e y would a t t e m p t t o

m a n i p u l a t e a s e n i o r government agency, under s i m i l a r circumstances.

While i t c a n b e argued t h a t had t h e r e been co-ordination

among t h e v a r i o u s i n t e r e s t groups and o r g a n i z a t i o n s involved w i t h

t h e s i t e d e c i s i o n , t h e p o s i t i o n of t h e s c h o o l board would have been

an e a s i e r one, t h e e v i d e n c e s u g g e s t s t h a t o t h e r l o c a l a u t h o r i t i e s

would have viewed this a s a n encroachment on t h e i r autonomy. It

i s a r g u e d , i t must b e r e i t e r a t e d , t h a t f o r t h e p r o v i n c i a l government

t o a t t e m p t t o r e s o l v e c e r t a i n l o c a l problems i s d i r e c t i n t e r f e r e n c e

w i t h , and p l a c e s i n jeopardy, t h e autonomy of l o c a l a u t h o r i t i e s .

A s a r e s u l t , t h e s c h o o l board found i t s e l f having t o f u l f i l l t h e

p r o v i n c i a l government's normative o b l i g a t i o n v i s v i s l o c a l autonomy

i.e. i t was i n t h e p o s i t i o n of having t o accommodate t h e d e s i r e s

e x p r e s s e d by t h e l o c a l a u t h o r i t i e s . F o r example, w h i l e t h e s c h o o l

board was p r t m a r i l y concerned w i t h t h e a t t r i b u t e s of t h e f i r s t t h r e e

sites i t had s e l e c t e d f o r a n a l y s i s , i t found i t n e c e s s a r y t o con-

s i d e r a l l t h e s i t e s s u b m i t t e d t o i t i n o r d e r t o appease t h e f e e l i n g s

of t h e v a r i o u s communities, even t h o s e which were submitted l a t e .

 142
ILswevex i t is c l e a r t h a t the schogl board was p r e p a r e d , ifthe s i t e

d e c i s i o n became i m p o s s i b l e , t o hand t h e r e s p o n s i b i l i t y a v e r t o t h e

minister. But, a s has been p o i n t e d o u t , t h e m i n i s t e r showed no

w i l l i n g n e s s t o o f f e r his s e r v i c e s ~ o l u n t a r i l yand c e r t a i n r e p r e s e n t a -

tives o f t h e Department of Education i n s i s t e d t h a t t h e s c h o o l board

should make t h e d e c i s i o n .

The a n a l y s i s of t h e s i t e s e l e c t i o n i s s u e p r o v i d e s s u p p o r t

f o r t h e c o n t e n t i o n t h a t c i v i l s e r v a n t s a r e i n a p o s i t i o n , from time

t o time, t o i n h i b i t o r t o encourage l o c a l endeavors. This i s n o t

t o s u g g e s t t h a t t h e s e i n d i v i d u a l s perform t h e i r j o b s i n a c a p r i c i o u s

manner, o r t h a t t h e i r judgments on p a r t i c u l a r m a t t e r s l a c k f o r e -

s i g h t o r thought. The evidence s u g g e s t s , r a t h e r , t h a t c i v i l s e r v a n t s

b a s e t h e i r judgments on, and f u l f i l l t h e i r r e s p o n s i b i l i t i e s i n

terms of i d e n t i f i a b l e c r i t e r i a of what i s ' f a i r ' . Civil servants,

by and l a r g e , a r e aware of t h e f a c t t h a t most communities throughout

t h e p r o v i n c e w i l l make e v e r y e f f o r t t o 'milk' a s much a s they can

from t h e p r o v i n c i a l government c o f f e r s . A s a r e s u l t , these indivi-

d u a l s f i n d i t n e c e s s a r y t o be d i s c r i m i n a t o r y i n t h e a l l o c a t i o n of

t h o s e r e s o u r c e s f o r which t h e y a r e r e s p o n s i b l e . Research i n d i c a t e s

t h a t t h e c r i t e r i a which guide t h e c i v i l s e r v a n t i s a product of

b o t h e x p e r i e n c e and government p o l i c y . The l a t t e r i s probably t h e

more i m p o r t a n t of t h e two. The experienced c i v i l s e r v a n t makes

d e c i s i o n s w i t h i n t h e o v e r a l l p o l i c y c r e a t e d by t h e governing p a r t y .

S i n c e p r e s e n t p o l i c y promotes, perhaps i n a d v e r t e n t l y , continued

c o m p e t i t i o n among c ~ m m u n i t i e s , t h e c i v i l s e r v a n t must do h i s b e s t

t o e n s u r e t h a t one l o c a l a u t h o r i t y does n o t g a i n ' u n f a i r ' advantage

over a n o t h e r l o c a l a u t h o r i t y . For t h e c i v i l s e r v a n t t o do o t h e r -

wise would p r o b a b l y make i t i m p o s s i b l e f o r him t o do h i s j o b and

would p r o b a b l y , i n t h e long r u n , c r e a t e problems f o r t h e p a r t y

i n power. A t t h e same t i m e , however, t h e c i v i l s e r v a n t h a s , i n

h i s view, c e r t a i n fiduciary r e s p o n s i b i l i t i e s . For example, t h e

Planning C o m i s i o n r e p r e s e n t a t i v e f e l t t h a t i t was h i s r e s p o n s i -

b i l i t y t o e n s u r e t h a t t h e s i t e s e l e c t i o n f o r t h e new composite h i g h

s c h o o l would b e i n accord w i t h recommendations t h a t were t o b e f o r t h -

coming from a proposed s u b r e g i o n a l s t u d y . C e r t a i n Department of

Education r e p r e s e n t a t i v e s , however, f e l t i t t h e i r r e s p o n s i b i l i t y t o

p r e s s u r e t h e s c h o o l board t o make a d e c i s i o n a s q u i c k l y a s p o s s i b l e .

I n s o f a r a s c i v i l s e r v a n t s a r e concerned, t h e r e f o r e , t h e f i d u c i a r y

n a t u r e of t h e i r a c t i v i t i e s and d e c i s i o n s v a r y from department t o

department and even w i t h i n d e p a r t m e n t s , and i s e x p r e s s e d i n t h e l a c k

of c o - o r d i n a t i o n t h a t r e i n f o r c e s and encourages t h e c o m p e t i t i v e s t a t e

of a f f a i r s produced by government p o l i c y . The l a c k of c o - o r d i n a t i o n

of government s e r v i c e s p e r m i t t e d and prompted a v a r i e t y of i n t e r e s t

groups and l o c a l a u t h o r i t i e s t o a t t e m p t t o m a n i p u l a t e t h e s c h o o l

board on t h e s c h o o l s i t e q u e s t i o n . The d i f f i c u l t y t h e n of b r i n g i n g

a r e g i o n a l p r o j e c t t o f r u i t i o n i n v o l v e s n o t only t h e f a c t t h a t gener-

ally speaking government s e r v i c e s , by t h e i r v e r y n a t u r e , a r e n o t e a s i l y

co-ordinated, but a l s o t h a t t h i s s i t u a t i o n permits l o c a l a u t h o r i t i e s

t o manipulate government s e r u i c e s .

Although, a s i n d i c a t e d e a r l i e r , t h e p r o v i n c i a l government

propounds a philosophy which emphasizes t h e importance of ' p e r m i t t i n g '

communities under c e r t a i n c o n d i t i o n s t o m a i n t a i n autonomy, i t may v e r y

w e l l b e asked whether p r e s e n t p r o v i n c i a l government l e g i s l a t i o n and

p o l i c y e i t h e r a l l o w s f o r o r encourages such autonomy. The p r o v i n c i a l

government's concept of l o c a l autonomy i s based on t h e i m p l i c i t

assumption t h a t communities a r e i n a p o s i t i o n of b e i n g a b l e t o ' h e l p

themselves' i . e . i n a p o s i t i o n t o u t i l i z e o r t o co-ordinate government

services. A s has been p o i n t e d o u t t h e evidence i n d i c a t e s t h a t many

communities, i n c l u d i n g t h o s e i n t h e Crowsnest Pass a r e a , l a c k t h e

n e c e s s a r y r e s o u r c e s t o ' h e l p themselves'. Even a c a s u a l a n a l y s i s

s u g g e s t s t h a t t h e s o - c a l l e d autonomous communities of t h e ' P a s s

a r e a c o n f r o n t problems which they a r e u n a b l e t o overcome; f o r example,

i t would b e erroneous t o assume t h a t t h e V i l l a g e of Bellevue i s i n a

p o s i t i o n t o make f u l l u s e of p r o v i n c i a l government s e r v i c e s and assis-

tance. An a p p r e c i a t i o n of t h e s e r v i c e s rendered by t h e Municipal

Financing C o r p o r a t i o n w i l l n o t a s s i s t a community such a s B e l l e v u e ,

whose a b i l i t y t o borrow funds has almost been c u r t a i l e d because of

i t s financial position. For one reason o r a n o t h e r , t h e o t h e r Crows-

n e s t Pass communities a r e s i m i l a r l y unable o r r e l u c t a n t t o a c t . Thus

i t can be argued t h a t a l t h o u g h t h e p r o v i n c i a l government a d m i n i s t e r s

t h e p r o v i n c e in such a way a s t o make i t appear t h a t l o c a l a u t h o r i t i e s

a r e i n a p o s i t i o n t o u t i l i z e o r t o c o - o r d i n a t e government s e r v i c e s ,

p r o v i n c i a l government p r a c t i c e n e i t h e r a l l o w s f o r nor encourages such

independence of a c t i o n under t h e s i t u a t i o n e x i s t i n g i n t h e Crowsnest

Pass. I t should be n o t e d t h a t t h e problems which f a c e l o c a l a u t h o r i -

t i e s cannot n e c e s s a r i l y be r e s o l v e d through t h e c o - o r d i n a t i o n of

p r o v i n c i a l government s e r v i c e s , f o r i t i s t h e i n h e r e n t c r i t e r i a i . e .

p o p u l a t i o n and e q u a l i z e d a s s e s s m e n t , of t h e l e g i s l a t i o n p e r t a i n i n g

t o t h e s e s e r v i c e s t h a t o f t e n c r e a t e s t h e problems i n t h e f i r s t p l a c e .

I t i s t h e s e c r i t e r i a which cause l o c a l a u t h o r i t i e s t o be r e l u c t a n t

t o e n d o r s e a s u g g e s t i o n which would e f f e c t i v e l y p r e c l u d e t h e p o s s i b i l -

i t y of t h e i r m a n i p u l a t i n g t h e s e r v i c e s t h a t a r e a v a i l a b l e t o them.

Local autonomy a s i t i s viewed by l o c a l a u t h o r i t i e s , t h e r e f o r e , can

b e d e f i n e d a s t h e r i g h t of a l o c a l a u t h o r i t y t o m a n i p u l a t e p r o v i n c i a l

government s e r v i c e s r a t h e r t h a n , a s i s assumed t o b e t h e c a s e , by t h e

p r o v i n c i a l government, t o c o - o r d i n a t e t h o s e s e r v i c e s .

The evidence s u g g e s t s t h a t t h e p r o v i n c i a l government i s

a b l e t o r a t i o n a l i z e i t s l a c k of t i m e l y commitment t o communities

i n t h e Crowsnest P a s s by working on t h e a v e r a g e community's

i n f a t u a t i o n w i t h l o c a l autonomy and s u g g e s t i n g t h a t f u r t h e r a c t i v i t y

would r e s u l t i n a n encroachment on such autonomy. It must be

remembered t h a t government a s s i s t a n c e , o r t h e c o - o r d i n a t i o n of

s e r v i c e s a t t h e p r o v i n c i a l government l e v e l , s u g g e s t t o many l o c a l

a u t h o r i t i e s t h e p r o s p e c t of government i n t e r f e r e n c e and con-

c o m i t a n t l y a d i m i n u t i o n of l o c a l autonomy. The a v e r a g e community,

f a c i n g f i n a n c i a l d i f f i c u l t i e s e t c . , does n o t u s u a l l y d e s i r e t o en-

courage t h e type of p r o v i n c i a l government involvement t h a t might l e a d

t o f u r t h e r c o m p l i c a t i o n s and l a c k of autonomy. The government, on

t h e o t h e r hand, a p p e a r s t o u t i l i z e t h e 'mytht t h a t l o c a l autonomy

e x i s t s t o make i t s l a c k of a c t i v i t y ' p u b l i c l y a c c e p t a b l e ' . In other

words, t h e g w e r m e n t e x p r e s s e s s e n t i m e n t f o r a decision-making

arrangement which l o c a l a u t h o r i t i e s v a l u e and do n o t view a s b e i n g

withcut scbstance o r - k p r a c t i c a l . From t h e p o i n t of view of l o c a l

a u t h o r i t i e s t h e p r o v i n c i a l government's p o l i c y r e g a r d i n g l o c a l

autonomy does p e r m i t t h e m a n i p u l a t i o n of government s e r v i c e s . For

t h e p r o v i n c i a l government t h e p e r p e t u a t i o n of t h e myth does p e r m i t

i t t o a t t e m p t t o c o n t r o l and r e s t r i c t t h e a c t i v i t i e s of l o c a l

a u t h o r i t i e s and a t t h e same time a b s o l v e i t s e l f of any r e s p o n s i -

b i l i t y f o r t h e d i f f i c u l t i e s t h a t l o c a l a u t h o r i t i e s , such a s t h e

Crowsnest Pass community c o u n c i l s , have c o n f r o n t e d and c o n t i n u e t o

confront.

Although t h e p r o v i n c i a l government f i n d s i t n e c e s s a r y t o

avoid a p p e a r i n g t o be i n t e r f e r i n g i n t h e a f f a i r s o f l o c a l a u t h o r i t i e s ,

i t cannot a f f o r d t o appear t o b e d i s i n t e r e s t e d i n t h e problems t h a t

occur a t t h e l o c a l l e v e l . A t t h e same t i m e , f o r p o l i t i c a l r e a s o n s ,

t h e government must a v o i d t a k i n g t h e r e s p o n s i b i l i t y f o r t h e e x i s t e n c e

of such problems. A s a consequence, t h e p r o v i n c i a l government h a s

o p t e d f o r t h e p o l i c y of ' h e l p i n g communities t o h e l p themseLves1 .

While t h i s p o l i c y h a s , because of t h e c r i t e r i a p e r t a i n i n g t o o r

i n h e r e n t i n government l e g i s l a t i o n , proved t o b e of l i t t l e a i d

t o t h e l o c a l a u t h o r i t i e s of t h e Crowsnest P a s s a r e a and e l s e w h e r e ,

i t h a s a c t e d t o m i t i g a t e c e r t a i n c r i t i c i s m of t h e s e n i o r government.
 S i n c e t h e government must, i n d i c a t e same i n t e r e s t in, and

concern f o r cammunities f a c i n g d i f f i c u l t i e s , it h a s i n t r o d u c e d

v a r i o u s a s s i s t a n c e programs based on a d v i s o r y f a c i l i t i e s and t h e

philosophy of ' s e l f - h e l p ' . Communities, many of which have experienced

d i f f i c u l t i e s with r e g a r d t o gwermnent l e g i s l a t i o n and p o l i c y , s u p p o r t ,

b y and l a r g e , t h e government's philosophy i n this a r e a and t h e c r i t e r i a

used t o d i s t r i b u t e p u b l i c r e s o u r c e s . The r e a s o n f o r t h i s s u p p o r t i s

t h e i r a p p a r e n t ambivalence a v e r t h e r i s k of l o s i n g independence of

a c t i o n on r e c e i p t of p r o v i n c i a l a s s i s t a n c e and t h e i r f e a r t h a t a

change i n t h e ' r u l e s ' t h a t r e g u l a t e r e l a t i o n s between l c c a l and pro-

v i n c i a l a u t h o r i t i e s m i g h t b e n e f i t o t h e r l o c a l a u t h o r i t i e s much more

t h a n themselves.

Although neny c m n l t i e s , iccTuding t h o s e l o c a t e d i n t h e Crcws-

n e s t Pass a r e a , may n o t b e i n a p o s i t i o n t o r e a p much b e n e f i t from ' s e l f -

h e l p ' p r o g r a m , even though t h o s e i n charge w i l l attenipt t o i n p r e s s

t h m o t h e r w i s e , t h e programs do n c t i n t e r f e r e w i t h t h e i r l o c a l autonomy.

It might a l s o b e s u g g e s t e d t h a t t h e s e programs p r i m a r i l y f u n c t i o n t o

c f f e r c r e d i b i l i t y f o r a 'myth1 concerting l o c a l autonomy which t h e

p r o v i n c i a l government p e r p e t u a t e s t o i t s own p o l i t i c a l advantage.

The evidence would s u g g e s t t h a t ' s e l f - h e l p ' program a r e , generally

s p e a k i n g a n d ucdcr c e r t a i n c c n d i t i o n s , i n e f f e c t i v e and t h a t t h e r e a s o n s

f o r t h e government's p e r s i s t e n c e i n c o n t i n u i n g them i n t h e i r p r e s e n t

form a r e l a r g e l y p o l i t i c a l and p h i l o s o p h i c a l i n n a t u r e .
 148

P r o v i n c i a l government p o l i q y w i t h r e g a r d t o ' s e l f - h e l p '

programs g i v e s added impetus t o , and f u r t h e r j u s t i f i c a t i o n f o r ,

t h e c o m p e t i t i o n t h a t p r e s e n t l y e x i s t s among t h e Crowsnest P a s s

communities, i . e . t h e p o l i c y of ' s e l f - h e l p ' does n o t a l l e v i a t e t h e

c o n d i t i o n s t h a t b r i n g about competition. The s u g g e s t i o n h e r e i s t h a t

t h e p r o v i n c i a l government i m p l i e s t h a t through i t s ' s e l f - h e l p '

programs communities can, i f they a r e w i l l i n g and e n t h u s i a s t i c , p l a c e

themselves i n a more f a v o u r a b l e p o s i t i o n w i t h r e g a r d t o development.

Such development, i t i s assumed, would a s s i s t t o a l l e v i a t e unem-

ployment and a l s o improve t h e t a x b a s e of a community. I t can a l s o

be suggested t h a t e x t e n s i v e development may cause an a p p r e c i a b l e

growth i n p o p u l a t i o n which would concomitantly p e r m i t t h e p r o v i n c i a l

government t o a l l o c a t e a l a r g e r s h a r e of p u b l i c r e s o u r c e s t o a

community. However, s i n c e many of t h e problems t h a t c o n f r o n t

s m a l l urban and r u r a l communities a r e engendered by government p o l i c y ,

i t i s perhaps n o t s u r p r i s i n g t h a t ' s e l f - h e l p ' programs have n o t been

an e f f e c t i v e i n s t r u m e n t f o r g e n e r a t i n g economic improvement i n

t h e Crowsnest P a s s a r e a . I n t h e c a s e of c e r t a i n c i t i e s i n A l b e r t a ,

such a s Calgary, Edmonton, Red Deer, L e t h b r i d g e , and Medicine Hat,

growth and development have been pronounced because of i n h e r e n t ,

advantageous economic c o n d i t i o n s . Since p r o v i n c i a l g r a n t s a r e dis-

t r i b u t e d according t o a p e r c a p i t a f o r m u l a , s t e a d i l y i n c r e a s i n g popu-

l a t i o n s e n a b l e t h e s e l a r g e r c e n t r e s t o more r e a d i l y p l a n and con-

s t r u c t t h o s e p u b l i c s e r v i c e s and a m e n i t i e s which i n t u r n s t i m u l a t e

t h e s y m b i o t i c r e l a t i o n of p r i v a t e investment t o p u b l i c investment.

Under t h e s e c o n d i t i o n s ' s e l f - h e l p ' programs have been a c l e a r advantage.

 149

4. Symbiotic R e l a t i o n of P r i v a t e 1,nvestment t o P u b l i c Investment

Local a u t h o r i t i e s , i n t e r e s t e d i n economic growth, o f t e n f i n d

i t e x p e d i e n t t o d e v i s e s t i m u l a n t s t o provoke t h e i n t e r e s t of p r i v a t e

investors. A s w e l l a s t a k i n g a p p r o p r i a t e measures t o accommodate

i n d u s t r y , such as p r o v i d i n g cheap l a n d and b u i l d i n g s , t h e r e i s

evidence t o s u g g e s t t h a t many communities have o r g a n i z a t i o n s which

a t t e m p t t o promote i n t e r e s t i n t h e i r a r e a s . One such o r g a n i z a t i o n

f u n c t i o n s i n t h e Crowsnest P a s s a r e a ; however, d u r i n g t h e l a s t few

y e a r s , because of i n s u f f i c i e n t r e s o u r c e s i n t h e a r e a r e l a t i v e t o

q u a l i f i e d p e r s o n n e l and c a p i t a l , i t h a s become q u i t e i n e f f e c t i v e ,

and a t t e m p t s t o r e j u v e n a t e i t have m e t w i t h l i t t l e s u c c e s s . Despite

t h i s , t h e v a r i o u s communities do endeavour t o o f f e r , when an

i n d u s t r i a l concern d i s p l a y s an i n t e r e s t , c e r t a i n inducements. For

example, t h e V i l l a g e of B e l l e v u e provided one p a r t i c u l a r i n d u s t r y

w i t h l a n d and a b u i l d i n g a t a v e r y low p r i c e . Similarly, Blair-

more made every e f f o r t t o accommodate t h e Becker D r i l l ' s o p e r a t i o n .

I n a d d i t i o n t o s t i m u l a n t s of t h i s k i n d t h e communities have found i t

s e n s i b l e n o t t o u t i l i z e , t o any g r e a t e x t e n t , t h a t municipal l e g i s -

l a t i o n which p e r m i t s them t o i n t r o d u c e b u s i n e s s t a x e s and s p e c i a l

assessments. Although t h i s p o s t u r e concerning t a x e s and a s s e s s -

ments may be a s e n s i b l e one from t h e p o i n t of view of a t t r a c t i n g

p r i v a t e i n v e s t m e n t , communities can l o s e , through such arrangements,

much of t h e v a l u e of having an i n d u s t r i a l concern l o c a t e d w i t h i n

t h e i r borders. I n f a c t , a community may f i n d i t s e l f i n a more d i f f i c u l t

f i n a n c i a l p o s i t i o n a f t e r having e n t i c e d an i n d u s t r y t o l o c a t e . In-

d u s t r i a l development b r i n g s w i t h i t t h e need t o expand c e r t a i n p u b l i c

 150

s e r v i c e s and t h e acclmrulative f i n a n c i a l burden which t k u s e n s u e s ,

I

in many c a s e s , f a l l s on t h e s h o u l d e r s o f t h e l o c a l taxpayer via

the m i l l rate. But t h e taxpayer i n t h e s m a l l connuunity v i e w s , because

the m i l l r a t e is usually already quite high, m i l l r a t e increases with

a g r e a t d e a l of d i s f a v o u r . S i g n i f i c a n t l y , i t i s u s u a l l y t h e tax-

p a y e r ' s u n w i l l i n g n e s s t o a c c e p t tax i n c r e a s e s t h a t h i n d e r s a c m u n -

i t y from p r o v i d i n g t h e s e s e r v i c e s which w i l l a t t r a c t i n d u s t r y i n t h e

f i r s t place. However, even i f a community does manage t o a t t r a c t a n

i n d u s t r y , problems can develop. The community may b e u n a b l e t o

r a i s e t h e m i l l r a t e s u f f i c i e n t l y t o cover t h e c o s t of a d d i t i o n a l

s e r v i c e s , as r a t e p a y e r s may d i s a l l o w t h e e x p e n d i t u r e . The community

i s t h u s l e f t i n a n ambivalent p o s i t i o n : o n t h e one hand, i f i t

a t t e m p t s t o t a x t h e i n d u s t r y up t o a p o i n t where i t i s s h a r i n g t h e

c o s t of t h e expansion of s e r v i c e s , t h e i n d u s t r y w i l l t h r e a t e n t o

r e l o c a t e ; i f , on t h e o t h e r hand, t h e community i s u n a b l e t o p r o v i d e

s e r v i c e s , because t h e t a x p a y e r s a r e n o t p r e p a r e d t o s u p p o r t an i n c r e a s e

i n the m i l l r a t e , the industry w i l l again threaten t o relocate. With

r e g a r d t o t h e Becker D r i l l s housing problem, t h e Blairmore town c o u n c i l

made e v e r y a t t e m p t t o work w i t h t h e Becker management t o remedy t h e

housing s h o r t a g e , b u t w i t h o u t s u c c e s s . While t h e f e d e r a l government's

normative r u l e s were l i m i t e d t o ' t a x h o l i d a y s ' , t h e pragmatic implica-

t i o n of t h e i n c e n t i v e program, i n t h e Becker c a s e , was t h e i n a b i l i t y

of t h e l o c a l a u t h o r i t y t o meet t h e s o c i a l and r e s i d e n t i a l needs of

t h e work f o r c e . S i n c e t h e Town of Blairmore h a d , w i t h i n i t s own

l i m i t e d f i n a n c i a l c a p a c i t y , provided a d d i t i o n a l f a c i l i t i e s and
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I

s m e n i t i e s , t h e d e c i s i o n t o r e l o c a t e t h e p l a n t was viewed w i t h

j u s t i f i e d concern. Not o n l y d i d t h e d e c i s i o n mean t h a t t h e r e

would be no s u b s t a n t i a l r e t u r n t o t h e taxpayer f o r having

accommodated t h i s i n d u s t r y , b u t a l s o t h a t r e l a t e d ' s e r v i c e ' indus-

t r i e s would be a d v e r s e l y a f f e c t e d and t h a t t h e unemployment problem

would b e f u r t h e r e x a c e r b a t e d . Thus i t would appear t h a t c e r t a i n

i n d u s t r i a l developments, though c e r t a i n l y a d d i t i o n s t o A l b e r t a ' s

g e n e r a l i n d u s t r i a l growth may a g g r a v a t e r a t h e r t h a n a l l e v i a t e

c e r t a i n economic problems c o n f r o n t i n g s m a l l communities. Failure

t o a p p r e c i a t e a wide v a r i e t y of c o n s i d e r a t i o n s , s e p a r a t e from t h o s e

p e r t i n e n t t o a company's economic v i a b i l i t y , may, i n s t e a d of

f a c i l i t a t i n g t h e development of a p a r t i c u l a r a r e a toward i n c r e a s e d

a f f l u e n c e and p r o s p e r i t y , do q u i t e t h e r e v e r s e .

The p o i n t b e i n g p r e s e n t e d h e r e i s t h a t t h e p o t e n t i a l v a l u e of

a p a r t i c u l a r development f o r t h e t a x p a y e r i n t h e s m a l l community

may v e r y w e l l be d i s s i p a t e d through an e x c e s s i v e d i s r e g a r d o r un-

awareness of t h e f a c t t h a t a l o c a l a u t h o r i t y must b e i n a s e c u r e

enough p o s i t i o n f i n a n c i a l l y t o p r o v i d e a s u i t a b l e environment f o r t h e

proposed development. I n s o f a r a s Becker D r i l l s was concerned, how-

e v e r , i t cannot b e assumed t h a t t h i s company was r e a l l y i n t e r e s t e d i n

d e a l i n g w i t h t h e housing s h o r t a g e . I n t e r e s t i n g l y enough, t h i s s h o r t a g e

had n o t e x i s t e d t o any g r e a t e x t e n t when t h e Becker p l a n t t i r s t

s t a r t e d o p e r a t i o n and was, i n p a r t , c o n t r i b u t e d t o by t h e p l a n t ' s

own expansion and t h e r e t u r n t o f u l l o p e r a t i o n o C Coleman C o l l c r i c s .

 152
I t can be i n t e r p r e t e d t h a t , i n f a c t , , t h e company management was

more i n t e r e s t e d i n m a i n t a i n i n g a ' c o r p o r a t e image' by developing

a sound ' i n d u s t r i a l r a t i o n a l e ' which would make i t s d e c i s i o n t o

relocate the plant 'publicly acceptable'.

While i t may be i m p e r a t i v e f o r s m a l l communities t o p r o v i d e

c e r t a i n s e r v i c e s and a m e n i t i e s i n o r d e r t o a t t r a c t p r i v a t e i n v e s t -

ment, such p r o v i s i o n s a r e c o s t l y . A s h a s been p o i n t e d o u t , a

community which endeavours t o s t r e n g t h e n i t s f i n a n c i a l b a s e , by

u t i l i z i n g c e r t a i n p r o v i n c i a l government l e g i s l a t i o n , may f i n d

t h a t i t h a s placed i t s e l f i n an u n f a v o u r a b l e p o s i t i o n i n terms

of f u t u r e development and expansion. O f perhaps e q u a l importance

i s t h e assumption h e l d by t h e p r o v i n c i a l government t h a t communities,

by and l a r g e , have t h e r e s o u r c e s and q u a l i f i e d p e r s o n n e l a v a i l a b l e

whereby t h e y a r e a b l e t o contemplate t h e u s e o f , o r make r e p r e s e n t a t i o n

f o r , available additional financing. There i s , t o o , t h e assumption

t h a t communities, o r t h e r e p r e s e n t a t i v e s of communities, a r e cognizant

of t h e v a r i o u s s e r v i c e s provided by p r o v i n c i a l government departments

and a g e n c i e s . A s f o r t h e l a t t e r p o i n t , i t should be noted t h a t

t h e r e i s evidence t o s u g g e s t t h a t even i f a community h a s a c l e a r

understanding of t h e government s e r v i c e s a v a i l a b l e , i t i s n o t always

i n a f i n a n c i a l p o s i t i o n t o p u r s u e o r t o u t i l i z e such s e r v i c e s ; f i n a n c i a l

p r e s s u r e s and l a c k of r e s o u r c e s of one k i n d o r a n o t h e r have undoubtedly

precluded many communities from e n j o y i n g t h e s e r v i c e s p r o f f e r e d by

t h e Municipal Financing Corporation and o t h e r p r o v i n c i a l government

agencies.
 153

The p r o v i n c i a l government, d e s p i t e t h e above, b e l i e v e s t h a t

i t must f u n c t i o n ' t o h e l p communities h e l p themselves' and ' n o t

1
t o t a k e over and t r y t o r u n t h i n g s ' . Now, from t h e f o r e g o i n g

i t would appear t h a t t h e p r o v i n c i a l government i s p u r s u i n g a p o l i c y

which w i l l have t h e e f f e c t of making i t p o s s i b l e f o r communities

t o d e a l w i t h t h o s e impediments which i n h i b i t growth and development,

w h i l e a t t h e same time a l l o w i n g t h e communities t o r e t a i n t h e i r

autonomy. G e n e r a l l y speaking, most government departments and

a g e n c i e s a c c e p t t h e philosophy t h a t communities should be p e r m i t t e d

t o r e t a i n t h e i r autonomy and t h u s conduct t h e i r a f f a i r s i n accord

w i t h t h e wishes of t h e c i t i z e n r y . This acceptance holds t h e

i m p l i c i t assumption t h a t communities a r e i n a p o s i t i o n of being a b l e

' t o h e l p themselves' i . e . i n t h e p o s i t i o n t o co-ordinate o r t o

u t i l i z e government s e r v i c e s . T h i s s t u d y i n d i c a t e s t h a t t h e Crowsnest

P a s s communities l a c k t h e n e c e s s a r y r e s o u r c e s ' t o h e l p themselves'.

The communities have i n i t i a t e d what amount t o l o c a l i n c e n t i v e

schemes and organized a businessman's a s s o c i a t i o n i n an e f f o r t t o

e n s u r e t h a t t h e i r p o t e n t i a l i t i e s have an o p p o r t u n i t y t o be e x p l o i t e d .

Although i n c e r t a i n c a s e s t h e s e s t e p s have produced f a v o u r a b l e r e s u l t s ,

by and l a r g e community a c t i o n of t h i s kind h a s f a i l e d . The r e a s o n f o r

such f a i l u r e i s u s u a l l y a l a c k of c e r t a i n r e s o u r c e s r a t h e r than an

absence of i n t e r e s t and enthusiasm on t h e p a r t of t h e communities

involved.

A s p o i n t e d o u t e a r l i e r , t h e p r o v i n c i a l government propounds

a p o l i c y which emphasizes t h e importance of a l l o w i n g communities, under

the assumption t b t communities a r e in the p o s i t i o n , if t h e y s o

choose, t o u t i l i z e government s e r v i c e s t o promote g e n e r a l growth

and development. However an a n a l y s i s of t h e Crowsnest Pass sit-

u a t i o n s u g g e s t s t h a t communities c o n f r o n t problems which t h e y a r e

u n a b l e t o surmount. I n a d d i t i o n , i t would appear t h a t p r e s e n t

p r o v i n c i a l government l e g i s l a t i o n r e g a r d i n g l o a n arrangements e t c .

does l i t t l e t o a l l e v i a t e t h e s i t u a t i o n . A s a consequence, i t i s

seldom t h a t t h e Crowsnest Pass communities s e e f i t , once t h e y a r e

f o r c e d b y n e c e s s i t y t o embark upon a p r o j e c t such a s a sewerage

system, t o e n s u r e t h a t t h e new f a c i l i t y w i l l accommodate f u t u r e

growth and expansion. Concerned a b o u t keeping t h e m i l l r a t e down

and o t h e r assessments a t a minimum, t h e s e communities a r e n o t

u s u a l l y p r e p a r e d t o v i e w t h e expansion o r development of s e r v i c e s

w i t h a g r e a t d e a l of f o r e s i g h t .

On t h e s u r f a c e , i t would appear t h a t community improvements

of one k i n d o r a n o t h e r w i l l enhance t h e p o s s i b i l i t y of a t t r a c t i n g

p r i v a t e investment. However, c o n c u r r e n t l y such improvement i s n o t

n e c e s s a r i l y a p r e c o n d i t i o n f o r economic growth. No m a t t e r what a

small community o f f e r s i n t h e way of s e r v i c e s and a m e n i t i e s , i t i s

n o t going t o have t h e same kind of o v e r a l l environment t h a t can b e

found i n a l a r g e r c e n t r e . For t h i s r e a s o n , p r i v a t e e n t e r p r i s e

m y f i n d i t d i f f i c u l t , a s h a s been i l l u s t r a t e d i n t h e S e n t i n e l

p l a n t c a s e , t o l u r e q u a l i f i e d p e o p l e away from t h e l a r g e r c e n t r e s .

Conversations w i t h t h e new manager of t h e S e n t i n e l p l a n t provided i n s i g h t

 155

i n t o t h e problem of a t t r a c t i n g qua:ified management p e r s o n n e l t o

t h e o u t l y i n g a r e a s of t h e province. The e v i d e n c e s u g g e s t s t h a t

'community improvements1, w h i l e enhancing t h e chances of a t t r a c t i n g

p r i v a t e investment and i n c r e a s i n g economic a c t i v i t y , w i l l n o t

n e c e s s a r i l y make i t e a s i e r t o a t t r a c t management p e r s o n n e l . For

t h i s r e a s o n , t h e r e f o r e , i t can be argued t h a t even a f t e r con-

s i d e r a b l e p u b l i c investment, t h e s m a l l , o u t l y i n g community w i l l

have t o be accepted on i t s own m e r i t s ; t h e i n d i v i d u a l w i l l have t o

make t h e d e c i s i o n about t h e r e l a t i v e advantages and d i s a d v a n t a g e s

of l i v i n g i n a s m a l l e r community a s compared w i t h l i v i n g i n a l a r g e r

centre. It can be expected t h a t a p r o f e s s i o n a l man w i l l o p t f o r t h e

l a r g e r c e n t r e i f , i n h i s view, t h e s m a l l e r community l a c k s s e r v i e e s and

a m e n i t i e s of an a c c e p t a b l e s t a n d a r d . What i s of i n t e r e s t i s t h e f a c t

t h a t c e r t a i n i n d i v i d u a l s , having been persuaded t o l i v e i n an o u t l y i n g

community f o r a c e r t a i n p e r i o d of time and w h i l e f i n d i n g i t d i f f i c u l t

t o adapt and r a t h e r d i s q u i e t i n g a t f i r s t , end up thoroughly a d j u s t e d

and n o t wishing t o r e t u r n t o a l a r g e r c e n t r e . The c a s e i n p o i n t h e r e

i s t h e c u r r e n t manager of t h e S e n t i n e l p l a n t . T h i s i n d i v i d u a l observed

t h a t i n h i s c a s e , and h e presumes t h a t o t h e r s have had a s i m i l a r ex-

p e r i e n c e , he became a Crowsnest P a s s ' c i t i z e n ' and d i d n o t a t t e m p t t o

f o r c e h i s own v a l u e s and o u t l o o k on t h e a r e a . He a l s o observed t h a t t h e

n a t u r e of t h e problems t h a t may e x i s t i n an o u t l y i n g a r e a may b e

such t h a t t h e a v e r a g e q u a l i f i e d person might n o t be a b l e t o d e a l

w i t h them e f f e c t i v e l y . E s s e n t i a l l y , he was s u g g e s t i n g t h a t t h e
 156

'human f a c t o r ' m u s t b e t a k e n i n t o c o n s i d e r a t i o n if c e r t a i n problems

in o u t l y i n g a r e a s a r e t o b e r e s o l v e d , and t h e approach of an in-

d i v i d u a l who h a s a c q u i r e d most of h i s e x p e r i e n c e i n the c i t y en-

vironment may prove t o b e , under o t h e r c i r c u m s t a n c e s , too remote

and d i s t a n t . It should b e n o t e d a g a i n t h a t t h e two s e n i o r managers

were a b l e t o develop a competent m a n a g e r i a l s t a f f b y u s i n g t h e

human p o t e n t i a l t h a t e x i s t e d i n t h e Crowsnest Pass a r e a ; i n f a c t ,

t h e y were s o s u c c e s s f u l t h a t o n l y one ' o u t s i d e r ' remains w i t h t h e

p l a n t and t h e o r i g i n a l manager h a s r e t u r n e d t o t h e c i t y where h e

f e e l s t h a t t h e s i t u a t i o n i s b e t t e r f o r h i s q u i c k l y maturing family.

Many communities l o c a t e d i n t h e o u t l y i n g a r e a s of A l b e r t a ,

i n c l u d i n g t h o s e i n t h e Crowsnest P a s s , have i n v e s t e d p u b l i c monies

i n s e r v i c e s of one k i n d o r a n o t h e r , and c a n , as a r e s u l t , b e viewed

a s r e a s o n a b l e p l a c e s i n which t o l i v e . However t h e communities i n

t h e ' P a s s a r e a have n o t a t t r a c t e d s i g n i f i c a n t p r i v a t e investment. At

t h e same time i t must b e observed t h a t c e r t a i n o t h e r communities and

a r e a s , which have n o t expended sums of money t o improve t h e i r p o t e n t i a l

f o r p r i v a t e i n v e s t m e n t , have grown and developed because of o t h e r

c o n s i d e r a t i o n s such a s c u r r e n t l y r e q u i r e d n a t u r a l r e s o u r c e s . In the

l a t t e r c a s e s i t would appear t h a t p r i v a t e e n t e r p r i s e manages t o

overcome s u c h problems a s q u a l i f i e d management and s k i l l e d l a b o u r

shortages. And even i n t h e c a s e of t h e S e n t i n e l p l a n t , which does

n o t depend on n a t u r a l r e s o u r c e s , t h e same problems, a f t e r some i n i t i a l

d i f f i c u l t y , were e f f e c t i v e l y d e a l t w i t h . The p o i n t t o b e made h e r e

 157

i s t h a t p r i v a t e e n t e r p x i s e can, t h e x e is a need t o , sunnount

c e r t a i n problems which a r e commonly- a s s o c i a t e d w i t h o u t l y i n g a r e a s

and a r e o f t e n i d e n t i f i e d as t h e r e a s o n s f o r t h e l a c k of p r w a t e

investment i n s u c h a r e a s .

The p r o v i n c i a l government m a i n t a i n s t h e p o s i t i o n t h a t

economic development and growth m u s t come a s a r e s u l t of l o c a l

initiative. A t t h e same time, t h e p r o v i n c i a l government a l s o

m a i n t a i n s , as a p r o v i n c i a l r e s p o n s i b i l i t y , t h e r i g h t t o a t t r a c t

p r i v a t e investment t o t h e province. The l o c a t i o n of t h i s p r i v a t e

investment must t a k e p l a c e w i t h i n t h e c o n f i n e s of one o r o t h e r l o c a l

authority. Communities s h ~ wv a r i o u s d e g r e e s of enthusiasm f o r having

i n d u s t r y l o c a t e w i t h i n t h e i r j u r i s d i c t i o n and a l s o a v a r i e t y of

l e v e l s of p u b l i c s e r v i c e s and a m e n i t i e s t o meet i n d u s t r y ' s needs.

A p r o v i n c i a l p o l i c y of ' h e l p i n g communities t o h e l p themselves'

through ' s e l f - h e l p ' programs h a s , a t f i r s t g l a n c e , much t o commend

i t i n t h e eyes of s m a l l communities s t r u g g l i n g t o encourage i n -

d u s t r i a l growth under d i f f i c u l t c o n d i t i o n s . However, an a p p r a i s a l

of c o n d i t i o n s i n t h e Crowsnest P a s s would s u g g e s t t h a t such a p o l i c y

w i l l do l i t t l e f o r t h e communities i n t h a t a r e a u n l e s s t h e p r o v i n c i a l

government i s c l e a r l y involved and committed t o a s s i s t a n c e t h a t

exceeds f i n a n c e o n l y . J u s t what such a commitment would e n t a i l

would r e q u i r e an a n a l y s i s of e a c h l o c a l i t y and i s beyond t h e scope

of this t h e s i s . However from t h e e v i d e n c e provided by t h i s s t u d y

a l o n e i t would appear t h a t t i m e l y p r o v i n c i a l government s u p p o r t

f o r t h e c o n s o l i d a t i o n of s c h o o l f a c i l i t i e s might have f a c i l i t a t e d
t h e a c q u i s i t i o n ox t e c h n i c a l train'ing f u n d s f o r programs which t h e

' p a s s s o r e l y needed in o r d e r t o accommodate new i n d u s t r y s u c h a s

Becker D r i l l s . S i m i l a r i l y , p r o c r a s t i n a t i o n over t h e swimming

p o o l was unnecessary and p r w i n c i a l government guidance t o r e s o l v e

this problem c o u l d n o t o n l y have had an i n f l u e n c e on t h e a t t i t u d e of

f u t u r e p r i v a t e i n v e s t o r s , b u t a l s o have accommodated t h e c h a r i t a b l e

e f f o r t s of t h e i n d u s t r i e s a l r e a d y l o c a t e d t h e r e .

It would appear that, although t h e f e d e r a l government does

have c e r t a i n e x p e c t a t i o n s of t h e p r i v a t e e n t e r p r i s e s e c t o r w i t h

r e g a r d t o i n c e n t i v e programs, t h e o b l i g a t i o n of t h e p r i v a t e e n t e r -

p r i s e s e c t o r t o d e s i g n a t e d a r e a s may go l a r g e l y u n f u l f i l l e d because of

c o n d i t i o n s a t t h e p r o v i n c i a l and l o c a l government l e v e l s . These con-

d i t i o n s a r e perhaps b e s t expressed by t h e Becker D r i l l s ' d e c i s i o n

t o r e l o c a t e i t s p l a n t and t h e d i f f i c u l t i e s t h a t t h e p r e s e n t manager

of t h e S e n t i n e l p l a n t h a s experienced w i t h r e g a r d t o h i s company's

f i n a n c i a l c o n t r i b u t i o n t o t h e c o n s t r u c t i o n of a r e g i o n a l swimming

pool.

The i r o n y of t h e s i t u a t i o n i s , however, t h a t d e s p i t e t h e

e f f o r t s of l o c a l a u t h o r i t i e s and d e s p i t e t h e e f f o r t s of t h e

p r o v i n c i a l government t o co-ordinate s e r v i c e s , t h e r e remains no

g u a r a n t e e t h a t p r i v a t e investment w i l l occur. The c o n d i t i o n s

which r e g u l a t e t h e l o c a t i o n of p r i v a t e e n t e r p r i s e p r e v a i l w i t h o u t

r e g a r d f o r the e f f o r t s of p u b l i c a u t h o r i t i e s .
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I n c o n c l u s i o n , by and l a r g e, F.G. B a i l e y ' s t h e o r y of ' r u l e s ' h a s

provided a u s e f u l framework f o r a n a l y z i n g t h e d i s c r e e t p o l i t i c a l e v e n t s

t h a t have been d e s c r i b e d i n t h e preceding c h a p t e r s . Insofar a s the

a c t u a l c o m p e t i t i o n among t h e communities was concerned t h e c o m p e t i t o r s ,

b o t h i n d i v i d u a l l y and c o l l e c t i v e l y , attempted t o j u s t i f y t h e i r p o s i t i o n s

publicly. To t h e e x t e n t t h a t t h e i r a c t i v i t i e s , and t h e i r p u b l i c l y

s t a t e d r e a s o n s f o r such a c t i v i t i e s , d i d n o t t o t a l l y d i s r u p t t h e ' c u l -

t u r a l idiom' of t h e Crowsnest P a s s a r e a , i t may b e s a i d t h a t t h e com-

p e t i t o r s kept within t h e ' r u l e s ' t h a t r e g u l a t e p o l i t i c a l competition

i n t h a t area. The t e c h n i q u e s used t o accomplish p a r t i c u l a r g o a l s

v a r i e d from t h e m a n i p u l a t i o n of p r o v i n c i a l government s e r v i c e s and

l e g i s l a t i o n t o t h e u s e of such moral arguments a s a commitment t o

pensioners.

While t h e communities of t h e Crowsnest P a s s a r e a have autonomy

over p a r t i c u l a r m a t t e r s , t h e y a r e ' e n c a p s u l a t e d ' by t h e p o l i c i e s of t h e

two s e n i o r governments. S i n c e t h e B r i t i s h North America Act g i v e s t h e

p r o v i n c i a l government j u r i s d i c t i o n over m u n i c i p a l a u t h o r i t i e s , i t may

b e s u g g e s t e d t h a t t h i s government h a s c o n s i d e r a b l y more c o n t r o l over

l o c a l a f f a i r s than t h e f e d e r a l government. The r o l e of t h e f e d e r a l

government i n l o c a l m a t t e r s i s always q u e s t i o n a b l e . The p o l i c y a p p l i e d

by t h e p r o v i n c i a l government t o l o c a l a u t h o r i t i e s h a s been t o r e s p e c t

l o c a l autonomy. G e n e r a l l y speaking, t h e p r o v i n c i a l government, f o r

p o l i t i c a l and p h i l o s o p h i c a l r e a s o n s , h a s chosen n o t t o i n t e r v e n e t o o

r e a d i l y i n t h e a f f a i r s of l o c a l a u t h o r i t i e s and t o a d m i n i s t e r t h e

p r o v i n c e according t o ' r u l e s ' which p r e s c r i b e what i s ' f a i r ' . It has

been argued t h a t t h e government's p r e s e n t ' f a i r ' c r i t e r i a f o r d i s t r i b -

 160

u t i n g t h e p r o v i n c e ' s revenues f o r m , , i n l a r g e p a r t , t h e r e a s o n f o r t h e

c o m p e t i t i o n t h a t e x i s t s among t h e Crowsnest P a s s communities. I n ad-

d i t i o n , t h e p r o v i n c e ' s u n w i l l i n g n e s s t o i n t e r v e n e i n t h e a f f a i r s of

l o c a l a u t h o r i t i e s h a s r e s u l t e d i n a l a c k of t i m e l y commitment when i t

h a s come t o t h e c o - o r d i n a t i o n of p r o v i n c i a l and f e d e r a l schemes w i t h

l o c a l developments. The 'Income Tax Concession and D e p r e c i a t i o n Scheme'

of 1963 was a f e d e r a l measure t o a s s i s t l o c a l , depressed a r e a s t o

a t t r a c t p r i v a t e investment. One of t h e r e a s o n s g i v e n by Becker D r i l l s

f o r r e l o c a t i n g i t s p l a n t was t h e s h o r t a g e of s k i l l e d l a b o u r i n t h e

Crowsnest P a s s . That t h i s d i f f i c u l t y a c t u a l l y l e d t o t h e Becker

D r i l l ' s d e c i s i o n , i t becomes a p p a r e n t t h a t had t h e p r o v i n c i a l govern-

ment o b l i g e d t h e Coleman s c h o o l board t o co-operate w i t h forming a

d i v i s i o n i n 1956 t h e a d m i n i s t r a t i v e machinery would have been p r e s e n t

f o r t h e p r o v i n c i a l government t o s e e k p a r t i c i p a t i o n w i t h t h e f e d e r a l

t e c h n i c a l scheme i n o r d e r t o r a i s e t h e t e c h n i c a l s t a n d a r d s of t h e

people of t h e Crowsnest P a s s . A s e v e n t s t u r n e d o u t , t h e program was

c o n s i d e r e d a t a p o i n t when t h e f e d e r a l scheme was coming t o an end. The

Coleman p o s i t i o n , which was maintained u n t i l w e l l a f t e r 1963 and t a k e n

w i t h t h e view t o p r o t e c t t h e Town's economic i n t e r e s t s , can be s e e n t o

have had 'unintended consequences' w i t h r e g a r d t o o v e r a l l economic

development i n t h e long term. P r o v i n c i a l government i n t e r v e n t i o n ,

however, might have improved t h e p o s s i b i l i t y t h a t t h e f e d e r a l i n c e n t i v e

program could have been more f u l l y enjoyed by t h e ' P a s s a r e a . I t can

be i n t e r p r e t e d t h a t t h e l a c k of c o - o r d i n a t i o n between p r o v i n c i a l and

f e d e r a l a u t h o r i t i e s n e g a t e s t h e v a l u e of c e r t a i n f e d e r a l and p r o v i n c i a l

programs. C e r t a i n l y , t h i s l a c k d i d n o t h i n g t o improve t h e p o s i t i o n s of
 161

t h e i n d i v i d u a l communities w i t h r e g a r d t o economic growth. Such

growth depended n o t o n l y on t h e f o r m a t i o n of a d i v i s i o n and t h e b u i l d i n g

of a h i g h s c h o o l , b u t a l s o on t h e c o - o r d i n a t i o n of t h e s e a c t i v i t i e s

w i t h t h e a s s i s t a n c e being g i v e n , and work being done, i n o t h e r a r e a s

of concern by v a r i o u s f e d e r a l and p r o v i n c i a l government departments and

agencies.

A s h a s been observed, c i v i l s e r v a n t s do a t t e m p t t o meet c e r t a i n

f i d u c i a r y r e s p o n s i b i l i t i e s by o f f e r i n g a d v i c e t o l o c a l a u t h o r i t i e s .

However, t h e c o n f l i c t of i n d i v i d u a l r e s p o n s i b i l i t i e s among c i v i l s e r -

v a n t s o f t e n has an ' e n c a p s u l a t i n g ' e f f e c t f o r l o c a l a u t h o r i t i e s and

r e s u l t s i n 'unintended consequences' f o r them. I n a d d i t i o n t h e con-

f l i c t p e r m i t s l o c a l a u t h o r i t i e s t o m a n i p u l a t e government s e r v i c e s t o

t h e i r own advantage. While t h e c i v i l s e r v a n t s a r e aware t h a t such

m a n i p u l a t i o n i s t a k i n g p l a c e , government p o l i c y p l a c e s them i n an

impotent p o s i t i o n . It i s important t o n o t e t h a t , w h i l e t h e communities

competed f o r t h e h i g h s c h o o l f o r r e a s o n s t h a t were l a r g e l y economic i n

n a t u r e , t h e Planning Commission's work was d i r e c t e d toward t h e g o a l

of p r o v i d i n g a p l a n t h a t would, i f followed, permit t h e communities t o

b e i n a b e t t e r p o s i t i o n t o a t t r a c t p r i v a t e investment. The i n s i s t e n c e ,

on t h e p a r t of c e r t a i n Department of Education r e p r e s e n t a t i v e s , t h a t a

s i t e should be chosen a s q u i c k l y a s p o s s i b l e r e s u l t e d i n t h e s c h o o l

b o a r d ' s d e c i s i o n t o choose a s i t e w i t h o u t w a i t i n g f o r t h e Planning Com-

m i s s i o n ' s recommendation. The d e c i s i o n t o l o c a t e t h e s c h o o l a t t h e

E a s t Coleman s i t e undermined, t o a s i g n i f i c a n t e x t e n t , t h e Commission's

e f f o r t s t o o f f e r a p l a n which would f a c i l i t a t e economic development i n

t h e 'Pass a r e a . So, a l t h o u g h c e r t a i n i n d i v i d u a l s managed t o accomplish

t h e i r immediate g o a l s , t h e i r a c t i v i t i e s had 'unintended consequences'

 162

f o r t h e f u t u r e economic development,of t h e 'Pass communities.

The manipulation and i n t r i g u e which became a s s o c i a t e d w i t h t h e

r e g i o n a l swimming p o o l was an e x c e l l e n t example of what o c c u r s a s a

consequence of t h e ' e n c a p s u l a t i n g ' p o l i c i e s of t h e p r o v i n c i a l govern-

ment. Each community viewed t h e swimming p o o l a s i t r e l a t e d t o i t s own

p o t e n t i a l t o a t t r a c t p r i v a t e investment, and t o s e c u r e t h e p r i v a t e i n -

vestment t h a t they had a l r e a d y a c q u i r e d , and consequently they each

competed v i g o r o u s l y f o r i t . I t i s probably s u f f i c i e n t t o s a y t h a t

t h e consequences of t h e Coleman r a t e p a y e r ' s v o t e were ' i n t e n d e d ' by

t h r e e Coleman c o u n c i l l o r s .

The r e l a t i o n s h i p of p r i v a t e e n t e r p r i s e t o government and,

concomitantly, t h e r e l a t i o n s h i p of p r i v a t e investment t o t h e a r e a i n

which i t o c c u r s , r e q u i r e d an e l a b o r a t i o n of B a i l e y ' s t h e o r e t i c a l frame-

work. The development of t h e two c a s e s t u d i e s i l l u s t r a t e d t h a t , s i n c e

t h e r e i s no l e g a l requirement o r ' s e t of r u l e s ' which d i c t a t e t h a t

p r i v a t e e n t e r p r i s e should f u l f i l l o r accommodate t h e e x p e c t a t i o n s of

government, t h e n a t u r e of t h e r e l a t i o n s h i p between a company and a

l o c a l a u t h o r i t y depends almost e n t i r e l y upon a company's w i l l i n g n e s s

t o a c c e p t t h a t i t has an o b l i g a t i o n t o t h e a r e a i n which i t l o c a t e s .

I n t h e c a s e of t h e Becker p l a n t management, t h i s o b l i g a t i o n went l a r g e l y

u n f u l f i l l e d , and perhaps p r i m a r i l y f o r t h e r e a s o n t h a t t h e l o c a l a u t h o r -

i t y was u n a b l e t o make t h o s e commitments which would accommodate t h e

operation. The S e n t i n e l p l a n t management, on t h e o t h e r hand, decided t o

a d a p t t o c o n d i t i o n s e x t a n t i n t h e Crowsnest P a s s and, a s a r e s u l t , met

i t s obligation t o the area.

 163
Except f o r t h e need t o p r q p o s e t h e e l a b o r a t i o n mentioned above,

F.G. B a i l e y ' s t h e o r e t i c a l framework, i n t h e v i e w of t h i s w r i t e r , p r o v i d e d

a more t h a n s a t i s f a c t o r y means of a n a l y z i n g and d e s c r i b i n g t h e p o l i t i c a l

events cited i n t h i s thesis.

 164
Notes to Chapter V

1) Insight. Alberta Social Credit League; November, 1970. pp. 5-7.

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