Clearing the air: the stories of municipal smoking-control bylaws in British Columbia
Date
2018-03-28
Authors
Brigden, Linda Waverley
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Abstract
The development and implementation of municipal smoking-control bylaws in British Columbia during the 1990s was characterized by polarity and confrontation. Health sector professionals, members of the hospitality industry, community activists, and municipal politicians disagreed over the need for bylaws, types of establishments that should be regulated, and the degree of restriction.
This research used narrative policy analysis to understand the factors that influenced the development of these bylaws in order to delineate a less confrontational process and ensure a more stable resolution. Narratives were collected from representatives of the main policy sectors in four communities throughout British Columbia. Victoria and Vancouver represented urban communities that were updating existing bylaws. Professional staff headed their top-down bylaw processes. In the rural communities of Squamish and Kimberley community volunteers attempted to introduce new bylaws through a bottom-up process. The narratives proved to be a rich source of information that would have been difficult to capture in any other manner. They offer a novel and fruitful means of engaging in policy analysis.
The provincial government's tobacco-control strategy served as a backdrop for all policy processes, although it was experienced unequally in the four communities. Urban centres were more aware of provincial tobacco-control initiatives and accessed provincial resources to a greater extent than did Kimberley and Squamish. Each policy sector was led by champions, but the nature of these groups and individuals greatly influenced their success. Those who were credible, persistent, and had access to decision makers were most likely to influence the policy-making process. The antagonism that distinguished the bylaw process was itself a determinant. In all communities, the discord reached a level where it precluded a fair and inclusive process.
The bylaw debate was framed and reframed by different sectors. The ability of champions to reach policy makers and frame the debate in a way that was compelling played a significant role in the outcome.
Finally, the narratives indicate that each community's “readiness” for policy change is a factor that must be considered. Community readiness was seen to comprise seven main components: (1) each policy sector's belief that a policy is worth adopting and their ability to successfully influence the public and policy makers; (2) the nature of a community—its size, demographics, and social norms; (3) the politicians involved and the ability of champions to understand the political process and reach policy makers; (4) the type of policy under consideration and its relationship to both previous statutes and social norms; (5) the ability of media to reflect sectoral interests and influence public knowledge and attitudes; (6) the temporal context in which the policy change was considered; and (7) a process that fits the needs and resources of the community.
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Keywords
Smoking, Law and legislation, Government policy, British Columbia