Resource Development and Multilevel Governance: A View from Western Canada Gary N. Wilson Department of Political Science University of Northern British Columbia
Introduction  This paper explores the relationship between resource development and multilevel governance in Canada  It examines the roles that various governmental and non-governmental actors play in resource politics, with a particular focus on the controversial development of the Enbridge Northern Gateway Pipeline in western Canada
Resource Development in Canada The Canadian “staples economy” Furs, timber and gold
Hydrocarbon and mineral development Canada as an “energy superpower”
Federalism, Multilevel Governance and Resource Development
Constitutional jurisdictions and intergovernmental conflict National Energy Program (NEP)
Multilevel governance Vertical dimension Horizontal dimension
Enbridge Northern Gateway Pipeline
The Enbridge Northern Gateway Pipeline is a 1,177 km pipeline that will connect central Alberta with the Pacific coast in British Columbia The pipeline was approved for construction by the federal government in June 2014 Prior to approval, a federally mandated Joint Review Panel conducted a public review process which involved consultation and public hearings with a variety of local stakeholders
Controversial Development
The Enbridge pipeline is viewed as controversial for a number of reasons First, it depends on and supports the development of the Athabasca oil sands, one of the world’s biggest oil fields, in northern Alberta By facilitating the development of the Oil Sands, the pipeline also contributes to global dependency on hydrocarbons
Controversial Development
 Second, because Alberta is a land-locked province, the pipeline must travel through another province (British Columbia) in order for the oil to be exported to markets in Asia  British Columbia is demanding a greater share of resource revenues from Alberta in return for pipeline access
Controversial Development Third, much of the pipeline route crosses the traditional territories of British Columbia’s indigenous peoples (First Nations) Many First Nations feel that they have not been adequately consulted and are concerned about the environmental risks of the pipeline A pipeline rupture would have a devastating impact on the land and waterways of northern British Columbia
Multilevel Governance: Vertical Dimension Federal Government
 Constitutional authority over the decision to construct the pipeline (powers over inter-provincial trade and commerce, and infrastructure)  The current government is supportive of the pipeline and the Oil Sands development, and approved the construction of the pipeline (with conditions) in June 2014
Multilevel Governance: Vertical Dimension Provincial Governments
 The provinces have constitutional jurisdiction over landbased resource development, but not the transportation of those resources across provincial boundaries  There is strong support for the pipeline from the Government of Alberta. The Government of British Columbia, however, has concerns about the environmental risks and wants a greater share of revenues generated by the resources that will flow through the pipeline
Multilevel Governance: Vertical Dimension Municipal Governments
In Canada, municipal governments fall under the constitutional jurisdiction of the provincial governments. As such they exercise very little political or economic autonomy In British Columbia, several municipal governments along the pipeline route have passed “symbolic” resolutions against the pipeline development
Multilevel Governance: Vertical Dimension First Nations Governments  Many First Nations in British Columbia are currently negotiating land claims and self-government agreements with the provincial and federal governments. As a result, there is a lack of certainty, both politically and in terms of territory, especially along the pipeline route
Multilevel Governance: Vertical Dimension First Nations Governments  Although some First Nations support the pipeline because they feel it will bring much-needed economic benefits to their communities, many are vehemently opposed to the pipeline because they are concerned about the environmental impacts that the pipeline could have in their traditional territories and on their traditional ways of life (hunting and other traditional practices on the land)
Multilevel Governance: Horizontal Dimension Environmental organizations domestic and international organizations
Business organizations Support within the resource industry “competing” pipelines
Societal and community-based organizations Issues around “social licence”
Conclusions  The Enbridge pipeline project illustrates the complicated inter-jurisdictional conflicts that underlie resource development and resource projects in a federal state such as Canada
 It also reveals the emergence of a complex multilevel governance structure, involving both vertical (government) and horizontal (non-governmental) governance actors
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