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Abstract
This article examines Canada’s relative success in restoring ‘economic inclusion’
and ‘inclusive growth’ between the political and economic disruptions of the 1990s
and the mid-2010s. Noting competing views of the concept of ‘inclusion’, it explores
four major factors which contributed to reducing domestic tensions during this period.
These include the intentional accommodation of diverse regional interests through
increased decentralization of Canadian federalism, the use of international trade
policies to facilitate largely complementary regional economic policies, the restoration
of fiscal sustainability in federal economic policies and to varying degrees across
provinces, and the cultivation of cross-partisan consensus on immigration policies
to avoid the social polarization experienced in other industrial countries. It concludes
by noting areas of political vulnerability with the potential to disrupt this consensus.
Abstract. This study addresses the question of how best to ensure that national immigration policies are appropriately adjusted to meet the disparate requirements of different communities. We argue that this is the core objective of multilevel governance, which, however, has become freighted with competing ideological objectives, objectives that are perhaps best expressed in Hooghe and Marks's distinction between type I and type II governance, the former oriented to collective decision making and the latter embodying market-oriented approaches to governance. Our argument is that these competing sets of ideologically driven objectives divert multilevel governance away from its core objective of appropriateness to community circumstances. An accompanying article (Leo and Enns, 2009) explores problems posed by ideologically driven, type II multilevel governance in Vancouver. The current article takes up a contrasting case, that of the Canada-Manitoba Agreement on Immigration and Settlement, focusing especially on Winnipeg. We find that in this case the provincial government chose an approach to multilevel governance that did not hew to either type I or type II governance templates, but drew on both to build an impressively successful system of immigration and settlement, carefully tailored to meet the requirements of disparate Manitoba communities. Success was built not on the application of a preconceived template for good governance but on resourcefulness and flexibility in working out ways of making national policies fit local circumstances. Résumé. La question que pose cette étude est la suivante : comment s'assurer que les politiques nationales concernant l'immigration et l'insertion sociale correspondent parfaitement aux besoins disparates des communautés différentes? Nous prétendons que c'est précisément la raison d'être de la gouvernance multipalier. Or, celle-ci est présentement surchargée de préoccupations idéologiques opposées et contradictoires qui trouvent leur meilleure expression dans la distinction que Hooghe et Marks ont faite entre le type I et le type II de gouvernance; l'un s'oriente vers la méthode collective de décision, l'autre incarne les approches de la gouvernance déterminées par les contraintes du marché. L'essentiel de notre argument est que ces approches idéologiques opposées entravent et contredisent l'objectif principal de la gouvernance multipalier, qui est de rendre les politiques gouvernementales sensibles aux circonstances particulières des communautés. Un article connexe (Leo et Enns, 2009) aborde les difficultés que pose, à Vancouver, la gouvernance multipalier de type II déterminée par des contraintes idéologiques. Le présent article aborde un cas tout à fait contraire, soit celui de l'Entente Canada-Manitoba sur l'immigration et l'insertion, centré sur Winnipeg. Nous constatons que, dans ce cas, le gouvernement provincial a opté pour une approche de la gouvernance multipalier qui ne cadrait pas avec les modèles de gouvernance de type I ou II, mais qui s'est inspirée des deux pour bâtir un modèle d'immigration et d'insertion qui est d'autant plus impressionnant et bien réussi qu'il est méthodiquement conçu en fonction des besoins disparates des communautés manitobaines. Ce succès provient non pas de l'application d'un modèle préconçu de bonne gouvernance, mais d'une quête ingénieuse et flexible des moyens qui permettent de concilier les politiques nationales et les circonstances régionales.
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