The view from out West: embeddedness, inter-personal relations and
the development of an indigenous ®lm industry in Vancouver
Neil M. Coe
1
Department of Geography, National University of Singapore, 1 Arts Link, Kent Ridge, 117570, Singapore
Abstract
This paper considers the development of a particular cultural industry, the indigenous ®lm and television production sector, in
a speci®c locality, Vancouver (British Columbia, Canada). VancouverÕs ®lm and television industry exhibits a high level of de-
pendency on the location shooting of US funded productions, a relatively mobile form of foreign investment capital. As such, the
development of locally developed and funded projects is crucial to the long-term sustainability of the industry. The key facilitators
of growth in the indigenous sector are a small group of independent producers that are attempting to develop their own projects
within a whole series of constraints apparently operating at the local, national and international levels. At the international level,
they are situated within a North American cultural industry where the funding, production, distribution and exhibition of projects
is dominated by US multinationals. At the national level, both government funding schemes and broadcaster purchasing patterns
favour the larger production companies of central Canada. At the local level, producers have to compete with the demands of US
productions for crew, locations and equipment. I frame my analysis within notions of the embeddedness or embodiment of social
and economic relations, and suggest that the material realities of processes operating at the three inter-linked scales, are eectively
embodied in a small group of individual producers and their inter-personal networks. Ó 2000 Elsevier Science Ltd. All rights
reserved.
Keywords: Flim and television production; Cultural industries; Embeddedness; Canada; Socio-spatial networks
1. Context
The Ôcultural turnÕ in geography has provoked a
growing concern with the dialectical relations between
cultural and economic systems (Crang, 1997). There is
increasing recognition that the two spheres are not au-
tonomous and independent, and equally, that there is no
deterministic relationship between the two. Instead,
culture and economy are mutually constitutive, with
ÔeconomicÕ processes such as production, consumption
and regulation being perhaps best seen as part of a cir-
cuit of culture that also includes the ÔculturalÕ arenas of
identity and representation (du Gay et al., 1997). Such a
balanced approach avoids the dangers of suggesting that
economic logics have become subordinated to culture
(Sayer, 1997), or that culture is completely dominated
by the economic domain (Harvey, 1990). A growing
number of commentators now talk about the notion of a
Ôcultural economyÕ or a Ôcultural mode of productionÕ
(see for example, Zukin, 1995; du Gay, 1997; Scott,
1997).
Such terms can be seen to have several levels of
meaning. They recognise the growing aesthetisation of
many goods and services as they are ascribed with
meanings and associations (Molotch, 1996). They re¯ect
the growing interest in the role of organisational cul-
tures in the contemporary economy (Saxenian, 1994;
Salaman, 1997; Schoenberger, 1997). Perhaps most ob-
viously, though, they connote how the production of
culture itself has become of huge importance, with en-
tertainment conglomerates such as Sony, Time Warner
and Disney emerging as some of the most powerful
economic actors globally. The study of cultural indus-
tries is most concerned with this latter facet of the cul-
tural economy, and it is to this growing body of work
(see for example, Shapiro et al., 1992; Lash and Urry,
1994; Scott, 1996; Pratt, 1997) that this paper seeks to
contribute, through a case study of a particular cultural
sector, namely the indigenous ®lm industry, in a speci®c
Geoforum 31 (2000) 391±407
www.elsevier.com/locate/geoforum
1
Current address: School of Geography, University of Manchester,
Mans®eld Cooper Building, Oxford Road, Manchester M13 9PL, UK.
E-mail address: geoneilc@nus.edu.sg (N.M. Coe).
0016-7185/00/$ - see front matter Ó 2000 Elsevier Science Ltd. All rights reserved.
PII: S 0 0 1 6 - 7 1 8 5 ( 0 0 ) 0 0 0 0 5 - 1
place, the city of Vancouver in western Canada.
2
My
aim in this paper is to integrate this cultural industry
case study with conceptual concerns surrounding the
embeddedness and indeed, embodiment, of processes
operating ÔacrossÕ a variety of geographic scales.
VancouverÕs ®lm industry
3
has expanded phenome-
nally over the last 20 years, with some CDN$631m of
spending being recorded in 1997 (BCFC, 1998). The
sector now provides an estimated 8500 full-time jobs,
and part-time work for a further 17 000 employees in
British Columbia. The central dynamic of growth has
been the attractiveness of the city for the location
shooting of Hollywood-®nanced ®lm and television
productions, which have consistently accounted for over
80% of revenues since the industry started to emerge in
the late 1970s. Since the post-war break-up of the Hol-
lywood studio system, US producers have increasingly
turned to locations outside of southern California, and
indeed the USA, as a means of controlling production
costs (Christopherson and Storper, 1986; Storper and
Christopherson, 1987). Through a cumulative combi-
nation of economic, institutional, infrastructural and
locational attributes (see Table 1 for details), Vancouver
has grown to be the largest centre for Hollywood loca-
tion shooting in Canada, and overall, one of the top
four ®lm and television production centres in North
America.
4
While this investment is seen as desirable by most
local interest groups due to the well-paid, skilled, tech-
nology-based, ÔcleanÕ jobs that it provides, the level of
dependency on foreign ®nancing is disturbing because of
the potential mobility of this form of capital (Aksoy and
Robins, 1992). Due to the short-term project nature of
®lm production systems (Enright, 1995), Hollywood
companies are able to move rapidly between dierent
production locations, depending on a number of factors
such as exchange rate ¯uctuations, labour costs and
stability, and the availability of tax incentives (Gasher,
1995; Coe, 2000). The ¯uctuating fortunes of production
centres such as New York and Toronto illustrate the
vulnerability of places dependent on location shooting.
Hence, there is a growing awareness in the Vancouver
®lm community that the development of a viable in-
digenous sector is crucial to providing a long-term basis
for employment in the industry.
In these terms, the Vancouver ®lm industry as a
whole can be seen as a contemporary example of the
traditional Canadian ÔstaplesÕ economy, structurally
weakened and potentially vulnerable due to its depen-
dence on foreign capital and expertise (Watkins, 1963;
Drache and Gertler, 1991; Barnes, 1996). Such long-
debated concerns with dependency extend beyond the
economic realm in the case of the ®lm industry, with
many Canadian commentators expressing disquiet
about the cultural dependency that accompanies high
levels of US involvement in the Canadian ®lm and
television sector (Berton, 1975; Knelman, 1987; Pend-
akur, 1990; Magder 1993). There is, then, a double ar-
gument for encouraging the growth of an indigenous
®lm industry in British Columbia: ®rstly, to mitigate
against shifting patterns of US investment, and sec-
ondly, to contribute to the broader project of developing
ÔCanadianÕ ®lms and programmes for consumption both
at home and abroad.
While isolated, critically acclaimed ®lms have been
developed and produced in Vancouver, such as Mina
ShumÕs Double Happiness and Lynn StopkewichÕs Kis-
sed, in general the Ôhome grownÕ industry is small scale
and under-capitalised in terms of both ®lm and televi-
sion, with project budgets being miniscule in compari-
son to typical US shows (see Table 2). Although the BC
provincial government introduced a tax incentive for
local productions in April 1998 to support the CDN$4m
it invests annually through its agency BC Film, and the
Vancouver labour unions are generally supportive of
such projects, the main eorts to alter the orientation of
the industry are emanating from certain leading pro-
duction companies, and in many cases, individual pro-
ducers. Producers play a crucial co-ordinating role in the
®lm industry, negotiating contracts for, and bringing
together, the diverse coalition of directors, actors, crews,
contractors and subcontractors that is necessary for an
individual production.
My objective in this paper is to consider how certain
producers in the Vancouver industry operate within
(and in many ways are constrained by) processes ap-
parently operating at dierent scales, namely interna-
tionally, nationally and locally, in their eorts to make
Canadian-themed and funded projects to oset the de-
pendency on mobile US-funded location shooting. At
the international level, producers are operating in a
North American, and more speci®cally Canadian, ®lm
and television market that is dominated by US-based
producers, distributors, exhibitors and broadcasters. At
the national level, producers must contend with broad-
caster purchasing and government incentive structures
that have historically, and continue to favour large
2
There has been very little work on the geography of ®lm industry
hitherto: what work there has been has tended to focus on the spatial
agglomeration of the elements necessary for ®lm production (for
example, Christopherson and Storper, 1986; Storper and Christoph-
erson, 1987), rather than on longer distance networks between the all-
powerful ®nanciers (based in Hollywood) and producers in important
production centres (based, in this case, in Vancouver).
3
For the purposes of this paper, the term Ô®lmÕ industry will be used
to refer not just to feature ®lms, but any audio-visual production
produced for television (in all forms - network, pay-TV, cable), video
or theatrical release. The terms ÔVancouverÕ and ÔBritish ColumbiaÕ ®lm
industry will be used interchangeably: although some shooting does
occur outside the broadly de®ned Vancouver metropolitan area, the
city dominates production in the province to a huge extent.
4
Along with Los Angeles, the clear leader, New York, and Toronto.
392
N.M. Coe / Geoforum 31 (2000) 391±407
Table 1
VancouverÕs attractiveness for location shooting
a
Details
Economic factors
CDN$-US$ exchange rate
The single most important factor. Gives US producers an immediate 30% saving on
costs incurred in Vancouver
Lower basic costs
Further savings are gained from the fact that certain inputs, notably labour, would
arguably still be cheaper in Vancouver if the dollars were at parity
b
Federal Tax Credit for non-Canadian content
productions
Announced in November 1997, this amounts to a potential 11% tax rebate on labour
costs incurred in Canada. Estimated average saving on total budget of 5.5% of costs
Provincial Tax Credit
Unveiled in October 1997, primarily for indigenous producers, but foreign ®nanced
productions can bene®t from a 20% labour costs rebate if they meet strict Canadian
content requirements. All foreign productions are eligible for 12.5% labour rebate if
shot outside Vancouver, a further 3% if provide on-the-job training
Institutional factors
British Columbian Film Commission
Highly successful and widely respected Film Commission
Proactive ®lm unions
Unions have played a major role in shaping the Vancouver industry, in particular
through organising, training, expanding and regulating the workforce. More recently
have signed a series of master agreements with US producers providing long-term
labour stability
Key personalities
Industry has bene®ted from the input of a number of key highly successful ®gures,
including ®lm commissioners Greene and Neufeld, and US producer Cannell
Eective LA-Vancouver inter-personal networks
Dicult to quantify, but key ®gures in Vancouver have been very successful at forging
relationships with decision-makers and producers in Hollywood. Frequent contact and
shuttling of personnel between the two centres
Locational attributes
Close to Los Angeles
Only a two and a half-hour ¯ight
Same time zone
Allows easy co-ordination of activities between Vancouver and Los Angeles. A
surprisingly important consideration according to many ®gures in the industry
No language or cultural barriers
English-speaking, intimately linked (and similar) national cultures
Shared Ôwest coastÕ lifestyle
A quality of life attractive to many people, especially relatively mobile, creative
elements of the workforce
Climate
Generally mild. Lack of snow on ground in winter allows all year round ®lming.
Ambient light less intense than in California
Locations
Large range of ÔscenicÕ locations within a one or two hour drive from central
Vancouver: urban, suburban, rural, coastal, mountain, forest, semi-arid
Infrastructural
Studio space
Although studio space is often in short supply, the available amount of space has
continually increased in an eort to meet burgeoning demand
Support companies
A large network of support/service ®rms has developed to provide the wide range of
services necessary for ®lm production, for example, camera rental, grip and electrical
equipment, vehicle rental, catering, and post-production companies
a
Source: AuthorÕs research.
b
Savings are reduced slightly by some extra costs incurred in Vancouver, most importantly ¯ights and hotels for American actors/creative personnel.
Table 2
Breakdown of ®lm and television spending in BC in 1997
a
Genre
Canadian
(CDN$m)
No.
Foreign
(CDN$m)
No.
Total
(CDN$m)
No.
Features
14.24
16
107.91
8
122.15
24
TV movies/pilots
15.05
11
104.96
42
120.01
53
TV series/mini-series
141.81
11
211.66
9
353.47
20
Animation
19.43
9
±
±
19.43
9
Documentaries/broadcast singles
15.53
61
±
±
15.53
61
Totals
206.06
108
424.53
59
630.59
167
a
Source: BCFC (1998).
N.M. Coe / Geoforum 31 (2000) 391±407
393
production companies in central Canada, i.e. Ontario
and Quebec. At the local or provincial level, these pro-
ducers must compete with the insatiable (and in¯ation-
ary) needs of the Hollywood productions for crews,
equipment and studio space. The ability of producers
and production companies to succeed in this environ-
ment appears to depend heavily on the eectiveness of
their personal relationships with key decision makers.
2. Conceptual concerns: the embodiment of multi-scalar
economic processes
My analysis in this article is framed by two con-
ceptual debates, the ®rst surrounding the embedded-
ness and embodiment of economic processes in
networks of inter-personal relations, and the second
focusing on the social construction and ÔnestednessÕ of
scale. The concept of ÔembeddednessÕ, which has re-
ceived increasing attention from economic geographers
since a seminal paper by Granovetter 1985; (see also
Granovetter, 1992), is central to my argument. This
notion suggests that economic action, instead of rep-
resenting some kind of free-¯oating logic or rationality,
is embedded in networks and institutions that are so-
cially constructed and culturally de®ned, and therefore
is in¯uenced by aspects such as mutuality, trust and co-
operation (Smelser and Swedberg, 1994; Misztal, 1996).
In other words, economic action is inseparable from
the social relations through which it is enacted. Bour-
dieu (1984) uses the term ÔembodimentÕ to refer to
similar processes at the organisational level, but I wish
to argue in this article that economic processes are
embedded in key social actors and their networks (in
this case in certain producers), and in that sense rep-
resent embodiment at the level of the individual
(McDowell, 1997). By contrast, economic geography
research has thus far tended to focus on how organi-
sations and institutions are embedded in socio-spatial
networks (see for example, Cooke and Morgan, 1993;
Grabher, 1993; Harrison, 1994; Dicken et al., 1994;
Yeung, 1994; although see Saxenian, 1990; Yeung,
1997, for exceptions).
Such a standpoint can be integrated into debates
surrounding reworked notions of geographic ÔscaleÕ. It
is increasingly recognised that scales are not simply
rigid, pre-set categories, but instead are socially con-
structed and mobilised for political purposes. In a series
of works, Smith (1992a,b, 1993, 1996) has explored
notions surrounding the production and politics of
scale. He suggests that the scaling of everyday life op-
erates on numerous levels, such as the body, commu-
nity, urban, regional, national, supernational and
global. These scales, and the relations between them,
are not ®xed, but instead are ¯uid, contested and per-
petually being transgressed (see also Swyngedouw,
1997). As Kelly (1997b) relates, these ÔconstructedÕ
scales can be used to metaphorically contain certain
events (e.g. an Ôinner cityÕ problem) or to defer expla-
nations of events from one scale to another (e.g.
changes at the local level put down to ÔglobalisationÕ).
Furthermore, there may be ways to develop strategies
of resistance using the politics of scale. For example,
using a case study of the US east coast longshore in-
dustry, Herod (1991, 1997a,b) has shown how unions
expanded negotiations with employers from the local to
the national scale.
Viewing scale in these terms has implications for
how we conceptualise social processes. Essentially, if
scale is viewed as relative and constructed, then events
do not occur exclusively at one particular scale, but
instead at all scales simultaneously. For example, Kelly
(1997a,b) recounts how global economic logics, often
portrayed as being impersonal and disembodied, are in
reality more embedded in local social relations than
many accounts recognise. This localisation, he suggests,
occurs simultaneously at multiple scales ranging from
the national to the individual. Swyngedouw (1997) uses
the terms Ônested scalesÕ in this regard, and describes
how this overlapping makes it impossible to give causal
priority to one scale over the others. Nested scales,
though, should not be seen in a hierarchical or deter-
ministic sense, whereby ÔlargerÕ spatial scales constrain
events at ÔsmallerÕ scales. Instead, in¯uences can run in
both directions, or to use the language of Smith, it is
possible to Ôjump scalesÕ in both directions (see also
Cox, 1998). Such an outlook starts to come to terms
with the salient theoretical issue identi®ed by Beaure-
gard (1995, p. 240), which is that ``actors simulta-
neously have interests at multiple spatial scales; that is,
their activities spread out over dierent geographical
®elds''.
My aim here is to use evidence pertaining to inter-
personal networks to illustrate the nestedness and si-
multaneity of dierent scales. Thus, I want to suggest
that Vancouver producers striving to develop projects
are simultaneously embedded, through their networks of
social relations, in processes operating across the local,
national and international scales. Each project co-ordi-
nated by the Vancouver producer is incontrovertibly
British Columbian, Canadian and North American at
the same time, or, to put it another way, the producers
embody the economic (and social, cultural and political)
realities of making ®lms in contemporary Canada. It is
worth noting that it is the producers themselves who
create the scales of analysis I will be using through their
networks of relationships, for as Beauregard (1995, p.
243) suggests ``actors create social scale and without
actors scale does not exist''.
Although in practice it is often extremely dicult to
untangle the relationships between social processes and
economic activities (Malecki, 1993), tracing through
394
N.M. Coe / Geoforum 31 (2000) 391±407
inter-personal networks
5
can assist in identifying the
threads that both link and create dierent ÔscalesÕ of
activity. As Murdoch (1995, p. 750) suggests, ``the
construction of networks, and the ability they give cer-
tain participants to Ôact at a distanceÕ, is what ties the
ÔlocalÕ to the ÔglobalÕ... we must trace continuities from
the ÔlocalÕ to the ÔglobalÕ, or, more strictly speaking, from
one locale to the next and to the next and so on''. In this
sense, it is the social networks within which the actors
are embedded that construct the dierent spatial scales
of interaction. This particular case study will illustrate
how Vancouver producers are active in networks not
only within the city, but also with other centres within
Canada (mainly Toronto and Montreal), and key
funding centres outside the country (largely Los Ange-
les, but also New York, London, Paris etc.) which rep-
resent the connected ÔlocalesÕ identi®ed by Murdoch. As
Cornish (1997) suggests, distance is not necessarily a
barrier to eective inter-personal networks, which are a
social rather than spatial phenomena, rather it is the
presence or absence of social capital in the relations
(Coleman, 1988) that is important.
6
However, as Amin and Hausner (1997, p. 10) point
out, it is not enough to merely recognise the presence of
networks, it is also important to distinguish between
their types and qualities. They suggest at least four im-
portant aspects of networks that should be considered:
behavioural rationality, contextuality, the strength of
ties, and power relations. The ®rst aspect alludes to the
fact that the rationale behind the creation of the net-
work will determine its scope and arrangement (see also
Orillard, 1997). Powell and Smith-Doerr (1994) identify
three main arenas in which informal social networks are
especially important: employment and recruitment, the
diusion of ideas and policies, and the mobilisation of
resources. The latter is extremely important in the ®lm
industry, where ®nanciers and distributors control the
balance of power (Aksoy and Robins, 1992), and the
success of producers in Vancouver appears to depend
heavily on their ability to generate funding from their
networks. Formal contracts for ®lm productions then
emerge on a project-by-project basis from the informal
web of relations, for as Cornish (1997, p. 453) suggests,
``an informal relationship of some sort, with a speci®c
duration and strength, underlies every formal transac-
tion and agreement'' (see also Freeman, 1991).
The second aspect highlighted by Amin and Hausner
describes how networks are a re¯ection of their broader
social, cultural, institutional, geographical and histori-
cal contexts (see also Powell, 1990; Powell and Smith-
Doerr, 1994). As Amin and Hausner (p. 11) suggest,
``each network form is the product of forces that have
matured in the course of time and of relationships that
are peculiar to particular contextual circumstances''.
Thus this paper will show how the informal networks
formed by Vancouver producers are re¯ective of wider
economic and policy realities. The third aspect recog-
nises that networks vary in the strength of their ties of
association (Grabher, 1993). For example, Amin and
Hausner suggest that while a network characterised by
strong ties may be able to secure a unity of purpose and
rapid action, over time it may foster relations of de-
pendency and become unable to adapt. By contrast, a
network of loose alliances may be more dicult to
mobilise, but may oer a broader range of alternative
actions (see also Grabher and Stark, 1997 on this point).
This case study will highlight how Vancouver producers
are embedded in networks that have relatively strong
ties both locally and to Los Angeles, but weaker within
Canada. The ®nal aspect draws attention to the fact
that there are dierent forms of power relations inherent
within networks, which need not necessarily be highly
egalitarian and reciprocal (see also van Tulder and
Ruigrok, 1997). Dierent social actors have dierent
potential for action, within what Massey (1993) de-
scribes as the Ôpower-geometryÕ of (increasingly global-
ized) social relations. Thus I will emphasise how
Vancouver producers are variously constrained (and
enabled) by the power relations inherent in their inter-
personal networks.
The remainder of the paper will consider in turn the
three ÔscalesÕ or arenas of processes which in my opinion
the producers are inevitably both embedded in and
constitutive of; the international, the national and the
local.
7
The analysis presented here is drawn from a
wider research project investigating the nature and dy-
namics of the Vancouver ®lm industry, for which 36
unstructured interviews were undertaken with a variety
of agency ocials, union representatives, casting direc-
tors, studio managers, and local and US producers in
the second half of 1997. Where possible, I attempt to let
the individuals producers ÔspeakÕ for themselves through
the use of quotations, hopefully re¯ecting the multi-
vocal spirit of the so-called Ônew economic geographyÕ,
which sees economic landscapes as contested and open
to a variety of interpretations and meanings (Martin,
1994; Thrift and Olds, 1996).
5
Such analysis should not (necessarily) be con¯ated with a wholesale
shift to network modes of production, put forward by some as the new
dominant mode of industrial organisation (Cooke and Morgan, 1993).
6
Social capital can be seen as an intangible, informational asset that
can be accessed by all parties involved in its formation to their mutual
bene®t. While the term is often used to describe the attributes of
individual actors, the notion of social capital must not be divorced
from the relational networks that create it. See Sedaitis (1997).
7
As I have just argued that these three scales are simultaneous, the
splitting of the analysis into three sections is for the purpose of clarity.
N.M. Coe / Geoforum 31 (2000) 391±407
395
3. The international level: US dominance of Canadian ®lm
and television culture
At the broadest level, Vancouver producers must
®rstly be situated within a North American ®lm, tele-
vision and media market that is dominated by US cor-
porations.
8
Canada is uniquely dependent on, or
receptive to (depending on your viewpoint) US cultural
products. This dependency is at its most apparent in
terms of feature ®lms. In 1996, only 3% of box oce
revenues were derived from domestic ®lms, considerably
lower than in other leading markets. A 1994 report
suggested that a massive 96% of box oce revenues in
English-speaking Canada came from US productions,
again a higher level than in other markets, and even in
Quebec the level was 83% (Groupe Secor, 1994). In the
home video market (sales and rental), now worth over
four times as much as box-oce receipts, around 50% of
revenues are controlled by US companies (Magder,
1996). The low representation of Canadian ®lms is in
part due to the stranglehold foreign-owned distribution
and exhibition companies have on the market.
Distributors perform a crucial role in the ®lm in-
dustry (Aksoy and Robins, 1992), not only acting as
brokers between producers and exhibitors, but also
functioning as producers and investors as well in many
cases. Control of distribution can provide a measure of
long-term stability in an unpredictable industry, with
pro®ts from box oce successes being used to balance
out losses from less successful projects (Magder, 1996).
While foreign distributors represent just 15% of the total
number of ®lm distributors operating in Canada, since
the mid-1980s, they have consistently controlled around
85% of the revenues from ®lm distribution (Department
of Canadian Heritage, 1998). These foreign-owned dis-
tributors show little interest in distributing Canadian
®lms, which accounted for just 0.4% of their revenues
between 1986 and 1994.
On the other hand, although Canadian distributors
now gain approximately half their revenues from Cana-
dian ®lms, they are struggling to break even on their in-
vestments. The Canadian market is just too small to
generate signi®cant pro®ts. In 1995, members of the Ca-
nadian Association of Film Distributors and Exporters
(CAFDE) earned just CDN$22m domestically and
CDN$66m abroad from Canadian ®lms, having invested
a little over CDN$100m (Department of Canadian Her-
itage, 1998). As a result, only limited funds are committed
to the marketing of Canadian ®lms. Over the period
1989±95, over two-thirds of the ®lms made with Tele®lm
9
assistance had marketing budgets of less than
CDN$150 000, a paltry sum compared to the tens of
millions of dollars invested by the Hollywood studios in
the promotion of their ®lms. Another restraint on Ca-
nadian distributors is that North America continues to be
treated as one market in terms of the distribution rights of
independent ®lms, and Canadian companies can seldom
aord to buy the rights for the whole of North America.
As a result of the structure of the distribution sector, the
majority of the distribution revenues from Canada ¯ow
south to the US.
The nature of the exhibition sector also constrains the
indigenous industry. The Canadian cinema market is
dominated by two chains, Cineplex Odeon and Famous
Players, that together receive some two-thirds of Cana-
dian revenues. Famous Players was historically con-
trolled by the Paramount studio, and is now controlled
by the US-based entertainment ®rm Viacom. Originally
a wholly Canadian company, Cineplex Odeon has
grown to become one of the largest chains in North
America, and in 1987 US entertainment company MCA
(parent of Universal Pictures) purchased a 50% equity
stake in the organisation. Both chains maintain ongoing
supplier arrangements with the Hollywood studios,
having exclusive deals with some studios (e.g. Cineplex
Odeon with Columbia and Universal, Famous Players
with MGM, Paramount and Warner Bros.) and sharing
the rights for features from the others. While these ar-
rangements reduce uncertainty for the theatrical chains,
they also all but guarantee the best available screen time
for feature ®lms distributed by the US majors (Magder,
1996). Canadian ®lms, almost exclusively distributed by
non-majors, have extremely restricted access to high-
pro®le theatres and attractive play dates such as
Christmas or the summer. Globerman and Vining (1987)
argue, however, that US dominance of the distribution
and exhibition of ®lms in Canada is not a major con-
straint on the Canadian ®lm industry, rather it is the
lack of well-funded ®lms with mass appeal that can
succeed in the market-place on their own merits.
As several commentators have pointed out (see, for
example, Berton, 1975; Knelman, 1987; Pendakur, 1990;
Magder, 1993, 1996) this pattern of US dominance has
deep historical roots, and re¯ects HollywoodÕs involve-
ment in the Canadian industry since the beginning of the
century. The excellent analyses of Pendakur (1990) and
Magder (1993) illustrate how in¯uential Canadian en-
trepreneurs in both the distribution and exhibition sec-
tors have consistently courted US corporations and
have pro®ted handsomely from Ôdancing with Holly-
woodÕ, thus providing a useful corrective to the as-
sumption that US dominance is a result of aggressive
and unfettered cultural/economic imperialism. Attempts
by the Canadian government to introduce quotas for a
minimum level of Canadian ®lms have had to back
down in the face of vociferous lobbying from US
8
Of the three levels or scales considered in this paper, this is the level
that has (understandably) received the most attention from Canadian
communications and cultural commentators.
9
The Federal ®lm and television production funding agency.
396
N.M. Coe / Geoforum 31 (2000) 391±407
industry groups and government and, as a result, gov-
ernment policy has largely focused on subsidising and
stimulating Canadian productions (a topic that will be
considered in the next section). Despite these schemes,
while per capita production levels are comparable with
other countries, the average production budget of
CDN$3m falls well below the average investment in
France (CDN$7m), Australia (CDN$8m), the UK
(CDN$12m) and the US (CDN$56m) (Michel Houle, in
Department of Canadian Heritage, 1998).
The picture in the television industry is not quite so
bleak. Broadcasters have to conform to basic levels of
Canadian content programming (60% of daily schedule,
50% of evening schedule) and are also required to fund
underdeveloped programme genres such as drama and
childrenÕs shows. However, foreign products still domi-
nate actual viewing levels in Canada. Data for 1993
suggest that Anglophone Canadians spend three quar-
ters of their viewing time watching foreign produc-
tions,
10
with foreign dramas and comedies alone
accounting for 45% of total viewing time. As Jerey
(1996, p. 207) describes:
It is, and always has been, cheaper and less-risky
for Canadian broadcasters ± with a market one-
tenth the size of the US, two ocial languages
and easy cross-border reception of US stations by
most of the Canadian population ± to import US
dramatic programs and bene®t from American
stars and promotional eorts.
As another example, viewer ratings for the top 20 shows
in British Columbia for the period 2±8th February 1998
were dominated by US-made dramas, comedies and
games shows, with local news and ice hockey being the
only Canadian programmes represented (Strachan,
1998a).
3.1. The strategies of Vancouver producers
What then are the prospects for Vancouver producers
looking to develop their own projects within this struc-
tural context of US dominance of access to both capital
and markets? Success for independent producers in the
®lm industry depends to a large extent on their ability to
gain ®nancial backing and distribution contracts for
their projects. Although the ®lm industry appears to be
driven by the logics of transnational capital on an ag-
gregate scale, on a project by project basis, the nature of
the ®lm production process is very much determined by
inter-personal relations.
11
The key relationships are be-
tween producers, executive producers, talent agents,
entertainment lawyers and business aairs executives
(from the large studios), who between them negotiate
the multitude of deals that are necessary to initiate each
project (Enright, 1995). One Vancouver producer de-
scribed the importance of these relationships thus:
Yeh. I think it is very much . . . relationship driven.
Price is not always the bottom line and dierent stu-
dios have dierent priorities. Some are very much
price driven, some are very quality driven, but for
us we do business with the same people over and
over again, thatÕs really been our pattern. And be-
cause in a lot of circumstances you sit down and
discuss a deal, you make an arrangement . . . itÕs ba-
sically a handshake and thereÕs millions of dollars
¯owing and the contracts often donÕt get done until
after the production is complete. Those relation-
ships are crucial.
Many Vancouver producers who have historically
serviced US business (i.e. performed the role of a
production service company) are now making sustained
attempts to ®nance and produce their own projects.
Three leading production companies in Vancouver,
Paci®c Motion Pictures (formed 1989, 25 permanent
employees, 3 partners), Crescent Entertainment (1989,
5, 5) and New City Productions (1993, 6, 1), are all
pursuing a similar strategy, which is to develop their
own projects using pro®ts from servicing US produc-
tions. This approach develops existing inter-personal
networks with US studios and production companies,
but alters the power balance in the relationship, with
the local producers having more creative and ®nancial
control of projects. As the founder of New City
describes:
What weÕre going to do with this company, and you
can count on the ®ngers on one hand the number of
people in town that are doing this, is weÕre trying to
become the people we work for. We want to be
them. We want to be their partners and their com-
petitors, but not their employees.
In the long term, owning the creative rights and subse-
quently the distribution rights to a project are of crucial
importance to the success of the strategy. She continues:
I discovered about ®ve years ago, that . . . I was able
to participate as a partner rather than being high-
priced help. In doing so, this allowed me to gener-
ate my own stories for production, rather than just
working on other peoples, which is the ultimate
aim, both from a business perspective, because
ownership of a project is valuable, but for me per-
sonally creatively and philosophically I was very
10
In Francophone Quebec, the ®gure is much lower, at 35% in 1993.
11
The supposedly intense nature of these relationships has itself been
explored in ®lm satires such as The Player and Swimming with Sharks.
N.M. Coe / Geoforum 31 (2000) 391±407
397
keen on in¯uencing the choice of material in the
market-place today.
Developing projects through buying story rights,
employing writers and searching for production partners
is, however, an expensive and time-consuming business.
A founder at Crescent estimated that the company had
spent some CDN$250 000 on project development since
its formation. The company is fully committed to
changing its orientation, choosing to focus explicitly on
developing its slate of some 12 projects in 1997:
About a year ago we . . . decided that we would stop
service production actively this year, and concen-
trate purely on what weÕve developed and weÕve
done a little over a year of pitching and attempting
to ®nance.
Some remain sceptical about the potential of these
growth strategies. Even when Canadian funds are in-
volved, producers often have to turn to US broadcasters
or distributors for some ®nancing to make projects vi-
able. In this sense, as the head of a Vancouver TV sta-
tion describes:
Nobody should fool themselves that this has any-
thing to do with infrastructure. For that, we have
to control the pro®table exploitation of the prod-
uct. We need to own the back end and that back
end requires de®cit ®nancing (quoted in Edwards
1997a, p. 25).
By selling the distribution rights, he contends, producers
forfeit the capital required to build the large integrated
®lm companies found in Toronto and Montreal such as
Alliance Atlantis Communications
12
and Cinar. Unless
producers control a project from start to ®nish, includ-
ing distribution, shows will amount to little more than
service production deals. Thus, in many projects, al-
though the power balance in the relations with US
companies is changing slightly, there is still an element
of dependence. To use the language of van Tulder and
Ruigrok (1997), there is a shift from relations of de-
pendence with in¯uence from the core ®rm, resulting in
direct control, to relations of dependence without part-
ner in¯uence, resulting in structural control.
With many projects needing access to an element of
US-®nancing to make them economically feasible, this
necessarily impacts on the extent to which a distinctly
Canadian product can be developed. However, one way
to circumvent the dependence on the US market and US
®nancing is to develop international co-productions
with countries other than the US, an important part of
the Canadian ®lm industry in general since the mid-
1960s (Pendakur, 1990). One producer describes the
attractiveness of international co-productions:
IÕm very keen on international co-productions . . .
the value of co-productions is that the product then
becomes national product. In this case in the UK it
is eligible for ®nancing incentives there and also the
enhanced license fees of being a British product.
And because of the EU relationships it becomes na-
tional product of the EU . . . So, its a great deal if
you can make it work, because you can get your
stu in front of audiences, especially in the EU, that
you wouldnÕt be able to if you were just an American
producer. So what IÕm saying is weÕre working new
angles, that make us competitive with the US ma-
chine that of course has predominance world-wide.
Canada has over 30 co-production treaties with other
countries, each of which has regulations regarding the
minimum contribution of each countryÕs representa-
tives. Due to obvious colonial connections, France and
the UK are key markets for Canadian co-productions.
A producer at Crescent describes how:
Much of what weÕve developed, particularly in
terms of feature work strikes us as being particular-
ly attractive to UK-Canadian co-productions . . .
just from the nature of the history of the country.
So I went over just recently, weÕve gone to four or
®ve trade forums, festivals and so forth in the last
year, pitching projects. IÕve just spent about two
and a half weeks in England, France, and Scotland,
attempting to put partners to projects . . .
Such projects often involve the establishment of new
inter-personal relationships, which as this quotation
suggests, requires a considerable amount of travelling
and self-marketing.
Even securing a non-US international partner may
not be enough to ensure a project gets made. One pro-
ducer recounts the diculty in assembling a CDN$10m
budget thus:
If youÕre trying to raise CDN$10m, and the most
you know youÕre going to raise in Canada is
CDN$3m or CDN$3.5m, then you have to go
and ®nd someone else who can put up another
CDN$3.5m and through a joint venture create
something big enough that you can then try and at-
tract American distribution or promotion interests
. . . if you can get a package together where youÕve
got two thirds to three quarters of your ®nancing
arranged from Canada and the UK, its not so hard
12
Alliance Communications and Atlantis Communications merged
in late 1998 to form a huge entertainment conglomerate with annual
revenues of over C$750m.
398
N.M. Coe / Geoforum 31 (2000) 391±407
then to put some level of star casting into it, and go
to an American mini-major, or through one of the
Canadian distributors, try and make contact and
get your last piece as a pre-sale or an advance.
Such ®nancing arrangements can have the added ad-
vantage that the advertising campaign can be Ôpiggy-
backedÕ onto the promotional eorts of the generally
well funded US partner. Hence, one strategy is to try
and pull together a substantial amount of ®nancing
from a variety of sources for a project that has general
appeal, most importantly in the US market.
Another strategy advocated by some producers is to
focus more explicitly on the television market, which
may oer better potential for stable growth:
WeÕve speci®cally focused on television, because
television was something in Canada that we con-
trolled, while we never controlled the feature ®lm
industry in terms of the screens and stu like that
. . . I think that if youÕre going to be a creatively
driven producer, and want to own your own
projects, you need to look at all the mediums.
Television projects generally have lower budgets than
feature ®lms and, while dicult, it is possible to fund a
programme or series completely from Canadian sources.
The 1997 Vancouver-based drama series Cold Squad, for
example, was funded by a license fee from Baton
Broadcasting (which was compelled to ®nance a local
drama series as part of its license agreement for a new
Vancouver TV station, VTV), the selling of foreign
distribution rights to (the then) Atlantis Communica-
tions, and a contribution from the Federal agency
Tele®lm.
On one level then, Vancouver producers seeking to
develop their own projects are involved in a constant
struggle to pull together the requisite funds. The paucity
of Canadian funds means they often have to attract US
capital in exchange for broadcasting or distribution
rights, thereby becoming caught in a vicious circle that
reinforces the dominance of a US-controlled industry.
International inter-personal networks (to America and
elsewhere) are crucial for the raising of this capital. As
one producer succinctly phrases it:
I have tried to translate my relationships as a ser-
vice provider into ``would you look at my projects'',
``would you be my partner''. ``You already trust me
and know I can make the things, now will you trust
my taste and business acumen''. ItÕs a building of
personal relationships that enables that kind of
progress.
Producers in Vancouver can also bene®t from the tight
inter-personal networks that exist between many of the
key decision-makers in Los Angeles, which allow their
reputations to spread by word of mouth. Furthermore,
with ®lm executives being extremely mobile between
companies, Vancouver producers can gain access to new
companies and studios as their key contacts move
around. However, there are still barriers to developing
relationships. As one producer describes:
There are some old established relationships that I
canÕt touch. For example, Disney have shot up here
a lot, and they have their guys, that they have 15
year histories with, so I canÕt touch that business,
I havenÕt been able to in®ltrate.
The historical development of the Vancouver ®lm
industry as a US production centre has meant that there
are strong connections between producers and key de-
cision-makers in Los Angeles. While is it very dicult to
measure or even characterise these connections, the
following quote from a respondent in the research hints
at the levels of interaction:
A guy was telling me that on some ¯ights, I think its
the early morning ¯ight out of LA, and the late
night one out of Vancouver or something like that,
its like 40% is ®lm business. So thatÕs a lot of Cana-
dians going down there trying to prospect for work,
and thatÕs a lot of AmericanÕs coming up here.
The relative proximity of the two cities allows frequent
visits in both directions, and networks are reinforced by
frequent telephone contact easily enabled by the com-
mon time zone. In addition to the eorts of individual
producers, Vancouver labour unions and the British
Columbia Film Commission (a provincial agency) have
made concerted and sustained eorts to develop new
relationships with contacts in Los Angeles (Murphy,
1997). Hence there is a clear element of path-dependence
in the development of these north±south relationships,
which appear to be of a denser and more eective nature
than links with the main hubs of the Canadian industry.
To summarise this section, Canadian producers in
Vancouver generally have to construct, develop and
activate social networks of international extent in order
to leverage the necessary funds and distribution deals
for their own productions to be viable. The structural
context for these network relationships is a North
American ®lm and television market that is dominated
by US producers, distributors and exhibitors. However,
the dynamics of the indigenous ®lm industry in Van-
couver cannot be understood by solely considering the
network relations of producers at this scale. As the next
section will relate, the same producers are also embed-
ded in networks operating within the national arena,
although these are themselves of course heavily shaped
by the international context described above.
N.M. Coe / Geoforum 31 (2000) 391±407
399
4. The national level: centralist biases in government and
broadcaster funding?
Producers can also look to initiate projects within
their Canadian networks. However, the structure of
Canadian funding schemes seems to work against Van-
couver producers, and this is most visible in terms of
Federal funding. It is important to bear in mind the
broader context here. There have long been concerns
that the Federal Government has been orientated to-
wards the interests of central Canada, and in particular,
the Provinces of Ontario and Quebec, and so the dis-
tribution of ®lm funds can perhaps be seen as the latest
expression of entrenched regional divisions within the
Canadian state. In addition to funding public sector
productions through the Canadian Broadcasting Cor-
poration (CBC) and the National Film Board (NFB),
since the formation of the Canadian Film Development
Corporation (CFDC) in 1968 the Canadian government
has constantly been involved in ®nancing private-sector
®lm production in Canada (Magder, 1996). The CFDC
was renamed Tele®lm Canada in 1983, and with the
establishment of the Canadian Broadcast Program
Fund became an important player in the production of
programming for the television market. A central con-
cern is that independent producers in British Columbia
(and other western provinces) have not received histor-
ically, and still do not today, a Ôfair shareÕ of Federal
funds in population terms.
Since 1968, a wide variety of tax and equity incentives
have been implemented to stimulate production. The
most important contemporary scheme is the Canada
Television and Cable Production Fund (CTCPF), a
public-private sector partnership formed in 1996 to
dispense some CDN$200m of funds on an annual basis:
CDN$100m from the federal government, CDN$50m
from Tele®lm, and CDN$50m from the cable television
industry. Over the year 1995±96, British Columbia, with
some 12% of the national population received 4.9% of
CTCPF funds. In 1996±97, after incentives were intro-
duced to encourage investments outside of Toronto and
Montreal, British Columbia attracted CDN$15m of
funding, or 7.6% of the total. By contrast, 72% of
CTCPF funds went to the important centres in Ontario
and Quebec. For the period 1991±96, the British Co-
lumbia Motion Picture Association estimates suggest
that only 1% of Tele®lm funding went to BC companies
(Edwards, 1996).
The distribution of such Federal funds re¯ects the
structure of the Canadian production industry. While
the sector in Vancouver is characterised by a number of
small, independent production companies, in central
Canada, large, vertically-integrated, companies such as
Alliance Atlantis, Paragon and Cinar have emerged that
attract large amounts of government subsidies due to
their volumes of production and their ability to dis-
tribute their own products. That these companies are
almost exclusively located in Toronto re¯ects the cityÕs
historic position as the control centre of the Canadian
(English-speaking) ®lm and television industry. They
have used co-production and distribution deals with US
studios in combination with steady ¯ows of government
incentives to stabilise and strengthen their market po-
sition. In the early 1990s, many of the leading companies
became publicly listed, and are now capitalised enough
to start to compete on the international stage. The ef-
fective subsidisation of publicly listed corporations by
BC taxpayers is a source of consternation for many in-
volved in the Vancouver industry. One producer stated
that:
The bulk, almost the entirety of public money that
goes into the ®lm and television industry in Canada
for indigenous producers lands in the pockets of
people of Ontario, it does not extend outside the
boundaries of Ontario, and it is blatantly unfair.
There are huge structural problems within those
agencies which need to be completely reviewed,
and politicians need to wake up to the fact that
we have a thriving industry in BC.
Another describes how, ``There is no question that the
®gures show that BC is getting way less than its share of
government money. ThatÕs not going to change. Eastern
companies have a lock on the government money''
(quoted in Edwards 1996, p. 37).
For a long time the building up of these core com-
panies was a stated aim of Tele®lm, with the regions
being given the role of supplying services, locales and a
captive market to these integrated corporations (Mur-
phy, 1997). Some Vancouver producers see a certain
sense to this argument:
For Tele®lm, thereÕs a lot of political issues, ®guring
out how to apparently equitably distribute funds
across the country, and I use the word apparently
as a pretty important quali®er. IÕm of the paranoid
view that the government has always intended to
build the major industry in Toronto and Montreal,
and to me its not just some weird eastern conspira-
cy, it makes a certain amount of sense. When youÕre
in government you have a certain amount of re-
sources to deal with, and you believe that what
youÕre trying to do is build corporations that can
actually compete in an international market-place-
against the mega-corporations that have developed,
principally out of the United States.
Tele®lm policy has been reoriented slightly towards fo-
cusing more on capitalising smaller ®rms outside of
central Canada. Some are still sceptical about the po-
tential success of such initiatives however:
400
N.M. Coe / Geoforum 31 (2000) 391±407
There appears to be yet another move Federally to
decentralise the industry from a production point
of view, and they now want to target mid-sized
companies outside Toronto and Montreal . . . cyni-
cally, I think thatÕs a reaction to the vulnerability to
criticism, you know its somewhere between
CDN$200m and CDN$500m has been routed into
[the then] Alliance by various methods, and thatÕs
a lot of money to go into a publicly traded corpora-
tion.
Another producer recognises the diculty in challenging
the supremacy of the core companies:
Because the bigger companies are still coming and
using those same dollars, I donÕt know how that
balance is ever going to change in Canada. IÕm real-
ly not sure . . . maybe its wrong to think that you
can have an industry in every centre in Canada.
A representative of Tele®lm CanadaÕs western oce
in Vancouver suggests it is wrong to see the distribution
of funds as a regional issue, rather it just re¯ects the
inherent structure of the Canadian industry:
ItÕs perceived as kind of like an East versus West
and its not. ItÕs unfortunate that its seen that way,
you get into a whole bunch of geopolitical bullshit
with respect to that, and it becomes polarised polit-
ically. ItÕs not that at all. You could be in down-
town Toronto and be a block and a half from
several of the large publicly-traded companies up
here and have exactly the same problems as small-
medium sized companies 3000 miles away.
This quotation makes the important point that it is not
simply distance that is isolating Vancouver production
companies from public funding networks, rather it is a
re¯ection of the position of relative power from which
the larger corporations operate. The crucial policy issue
then becomes developing stable production companies
in regional centres, and he suggests that through its re-
gional business plan scheme, Tele®lm, although oper-
ating with limited resources, has recognised this issue:
In the West, those producers are not vertically inte-
grated . . . none of them are publicly traded for ex-
ample, and most of them are fee dependent, just
basically going from one project to another earning
producer fees and corporate overheads in order to
pay the rent. ThereÕs a great risk is staking your fu-
ture on that kind of a business plan, and so compa-
nies that are smart are beginning to see the bene®ts
of preparing a business plan in which they are . . .
establishing a more stable and ongoing base to their
companies.
In addition to being under-represented in terms of
public funding, Vancouver producers also face problems
in developing relationships with the key developers and
purchasers of programming in Canada, in particular
television broadcasters. The distribution of nominations
in the Gemini Awards for Canadian television provides
one indication of the dominance of central Canada in
terms of indigenous television production (Strachan,
1998b). Furthermore, the CBC, still a huge source of
Canadian programming, is scaling down its Vancouver
operations disproportionately in the face of successive
cutbacks (Strachan, 1997). While in 1975 one-third of
CBC drama was being made in BC, made-in-Vancouver
programming has been gradually reduced to very low
levels.
13
One research interviewee characterised the
problems as follows:
By virtue of their distance from all of the decision
makers, BC producers have diculty getting larger
projects o the ground. Network headquarters,
CTV, CBC. . . theyÕre all in Toronto or Montreal,
and also all of the large distribution companies
are in Toronto and Montreal, so its dicult for
the BC producers to develop relationships with
these . . . as well the large companies in CanadaÕs
production are also located in Ontario and Que-
bec. Alliance, Atlantis . . . they are the big compa-
nies because they do production, and they do
distribution, which is good, because whatever they
make from distribution goes back into their pro-
duction activity, so they just keep growing. Where-
as in BC, none of the companies have really
reached that stage for a number of reasons, so if
they want distribution money, they have to go to
the companies located out East, so revenues from
BC productions goes out East, instead of coming
back to the BC producers. So theyÕre ®nding it
harder to grow.
Thus, Vancouver producers, ÔdistantÕ from the
broadcaster-production company networks of Toronto
and Montreal are seen to be disadvantaged when it
comes to pitching and promoting projects. However, the
ÔdistanceÕ described here is not purely geographical dis-
tance, rather it refers to a relative exclusion from the
funding networks of central and eastern Canada that
have developed over time amongst broadcasters, dis-
tributors and production companies, and have them-
selves undoubtedly bene®ted to a degree from spatial
proximity. Furthermore, the networks that have built up
13
Only DaVinci's Inquest, a CBC drama series airing in September
1998, seems to oer any cause for hope, being the corporationÕs ®rst
hour-long prime-time drama made on the west coast (Edwards,
1997b).
N.M. Coe / Geoforum 31 (2000) 391±407
401
around the concentration of key cultural institutions in
Toronto and Montreal are arguably more oriented on a
north±south basis to US partners than west towards the
®lm production complex in British Columbia. The ma-
jor diculties for Western producers surround pene-
trating the relatively closed and large-establishment
dominated networks of Toronto and Montreal, a
problem that national policy instruments have yet to
correct. As a result, the most successful of the Van-
couver producers are choosing to focus on actively de-
veloping their relationships with US contacts and
international co-producers.
Again, this evidence suggests that patterns of
inter-personal networks exhibit path-dependence. Geo-
graphical distance alone is not preventing the estab-
lishment of more ties from Vancouver to eastern
Canada, as the cityÕs strong links down to California
show. Neither must the small-®rm nature of the in-
dustry be seen as necessarily being a barrier to gaining
funding. Instead, it re¯ects how far more social capital
has developed in international connections between
Vancouver, and another node in the ®lm industry, Los
Angeles. The gradual growth of Vancouver as a pro-
duction services centre over the last 20 years (initially
for reasons of simple economics) has provided a wealth
of opportunities for symbiotic inter-personal relation-
ships to develop. By contrast, western Canada has
never really been a major centre for Canadian-funded
productions.
In this section, I have endeavoured to show how
Vancouver producers must also be situated within
Canadian funding networks, which are themselves
shaped by the realities of US dominance in this industry.
In many cases, the same individuals that are fostering
relationships with US executives are also striving to
develop ÔnationalÕ networks with decision makers in the
key nodes of the Canadian ®lm and television industry,
namely Montreal, and in particular, Toronto. That they
have generally been more successful in the former sug-
gests something both about the regional politics of
contemporary Canada and the evolution of the Van-
couver ®lm sector as a base for US-funded production.
However, recognising these national and international
connections again presents an incomplete picture. In the
next section, I move on to suggest that the producers
also need to establish eective local networks to mobilise
the physical and human resources to make ®lm and
television productions.
5. The local level: limited resources in a maturing
industry?
Vancouver producers are also embedded in a web of
locally constituted relations, the majority of which are
concerned with securing the necessary services in order
to make a project, rather than funding negotiations,
which are by necessity undertaken on a national or in-
ternational basis. The work of Cox (1998) is useful in
capturing the dierent nature of network relations
within Vancouver. He distinguishes between spaces of
dependence, which represent ``more-or-less localized so-
cial relations . . . for which there are no substitutes
elsewhere; they de®ne place speci®c conditions for . . .
material well being'' (p. 2), and spaces of engagement,
which are networks of associations constructed to fa-
cilitate events within the space of dependence. In these
terms, Vancouver producersÕ relations at the interna-
tional and national level can be seen as spaces of en-
gagement, with relationships being used to obtain funds
and distribution deals. Local relationships within Van-
couver, on the other hand, are generally characteristic of
a space of dependence, and pertain to the requirements
of actually producing the ®lms made possible by funds
leveraged through the broader-scale spaces of engage-
ment.
These local networks have to be seen in the context
of the uniquely high level of US production. Most
respondents were in agreement that the experience
gained by workers on well-®nanced Hollywood pro-
ductions is bene®cial to the development of an indig-
enous industry:
The large number of Hollywood productions that
come to BC are great in the sense that they provide
constant work for people, and, as well, that pro-
vides lots of skills and training because emerging
®lm makers that get continual work can develop
their skills to be able to do their own projects.
However, another commentator hints that the ready
availability of US work in Vancouver may perhaps be
sti¯ing the local industry by absorbing talented indi-
viduals:
The problem is if you have a young producer who is
doing very well working for an American company,
whoÕs making a good salary . . . its very hard to con-
vince them to work in the indigenous industry
which is grossly under funded, which is very centra-
lised within Canada, which really doesnÕt provide
any opportunity for young ®lm makers, which does
not take risks, which does not reward.
A representative of Tele®lm in Vancouver was similarly
concerned about the in¯uence of the service industry:
Its been dicult to build an indigenous ®lm culture
here in Vancouver, simply because the amount of
activity, and the lack of a pro®le, the lack of a cul-
tural centre thatÕs distinct from the industrial cen-
tre, its been dicult to bring together a chemistry
402
N.M. Coe / Geoforum 31 (2000) 391±407
of ideas, a chemistry of people working together
and sharing ideas and bouncing ideas back and
forth. ThatÕs changing now, thereÕs a newer genera-
tion of younger ®lm makers who have found them-
selves . . . and its having an eect in terms of putting
the West on the map.
As VancouverÕs industry continues to expand rapidly,
a number of problems are emerging related to the in-
¯ationary demands for crew, locations, studio space and
props. The dreaded Ôlocation burnoutÕ where the overuse
of popular locations results in resistance from residents
and spiralling demands for reimbursement is becoming a
problem in the city. This creates problems for ®nancially
sensitive indigenous projects. As one local journalist
describes, ``for low-budget producers, ®nding inexpen-
sive locations and props is becoming more dicult be-
cause shows like The X-®les are doling out big bucks to
everyone from restaurateurs to thrift shops to shipyard
owners'' (Van Evra, 1997). A local producer expressed
the same concerns:
The demand for services here has sort of heated the
market up . . . and that has created an increase in
rates and demand on those services that makes it
a little more dicult to do the strictly Canadian
projects that might not have quite as nice a budget
as the American ones.
At the busiest times of the year, when between 20 and 30
productions are being made simultaneously, crews are
being stretched thin and union members are being rap-
idly promoted to keep up with the demand for labour
from US shows. While all the major Vancouver unions
will negotiate concessionary contracts with local pro-
ductions, many of the most skilled personnel are con-
stantly working on big-budget US projects. Labour
costs, both technical and creative, constitute a large
proportion of the average budget, and thus indigenous
productions may need considerable concessions just to
become economically viable. The example of Cold
Squad, a Vancouver-based crime drama series ®lmed in
1997 is a case in point. The Association of Canadian
Film CraftspeopleÕs western branch (ACFC West)
granted the showÕs producers concessions on pension,
administration and health and welfare costs worth some
CDN$225 000 over the course of the series (Edwards,
1997c).
Many key relationships in the Vancouver ®lm in-
dustry are long-standing, and there was a general con-
sensus among union and equipment supplier companies
interviewed, that if a local producer came to them with a
project and a limited budget, they would ``®nd some way
of helping them''. Relationships developed over many
years of servicing US productions stand producers in
good stead when they need to pull resources together for
their own shows. Although the ®lm industry in Van-
couver is now very large, there is still a relatively small
group of key decision-makers, many of whom have been
around since the industry took o in the 1980s. Key
®gures in these networks, apart from the producers
themselves, include: studio managers (two large studios
and a few minor); equipment company managers (three
or four companies dominate); post-production house
managers (four or ®ve major players); union ocials
(seven or eight labour organisations); casting directors
(20 or so dominate); talent agents (approximately 20
major agencies), and government agency ocials
(BCFC and BC Film most important). As one studio
manager described:
ItÕs a really small business because everybody kinda
knows everybody . . . the decision-makers in Van-
couver all know each other, and they all talk.
Monitoring the local press with respect to the ®lm in-
dustry, where the same small group of people are re-
peatedly used to discuss the health of the Vancouver
industry, provides an indication of how small these
networks actually are. These mutually supportive net-
works between the key drivers of growth in the sector
will be critical if the indigenous sector is to succeed.
While some producers are trying to build stable cor-
porate structures, there is also a clearly discernible
group of creatively driven directors, producers and
writers in Vancouver that are developing ®lms and col-
laborating on an informal, project-by-project basis. The
success of John PozerÕs 1991 ®lm The Grocer's Wife
appears to have been something of a catalyst for a new
generation of ®lmmakers (Van Evra, 1997). Using small
amounts of locally raised ®nancing, this emerging
community has had some notable successes such as
Kissed and Double Happiness, mentioned earlier.
14
The
making of such projects, often driven by artistic senti-
ments rather than a secure end-market, is completely
dependent on local, informal networks. The ability of
the producer or director to create interest and enthusi-
asm for the project is crucial to its completion. Crew and
cast alike often make huge concessions in terms of
wages, deferring payment until after the ®lmÕs release in
some cases. While continued success in this area may
launch individual careers (lead actors, directors etc.) it is
14
While these ®lms have been critically acclaimed, they have
generally only had limited releases across North America, and have
not made huge pro®ts at the box oce, thus re¯ecting the harsh reality
identi®ed by Globerman and Vining (1987, p. 20) that, ``critical
acclaim and commercial success are not necessarily coincident char-
acteristics of feature ®lms''.
N.M. Coe / Geoforum 31 (2000) 391±407
403
hard to see a capitalised infrastructure developing
through this route.
15
In summary, Vancouver-based producers also need to
mobilise networks within the city in order to make ®lm
and television shows. Although these may be related to
funding, generally they are concerned with organising
the necessary resources, in terms of labour, equipment,
studio space, services and locations. Such networks need
to be combined, however, with funding secured through
the national and international networks described
above.
6. Conclusion
In this paper I have endeavoured to show how
Vancouver producers are embedded in qualitatively
dierent networks of inter-personal relations operating
across dierent spatial scales. A key argument is that
the economic processes that surround the material
realities of making indigenous ®lms in British Co-
lumbia are actually embodied in a group of key indi-
viduals and their personal networks. The ability of
Vancouver producers to make indigenous or high
Canadian-content material depends on their ability to
15
As a ®nal footnote to this account, it should be noted that by no
means all Vancouver-based producers are looking to develop their own
material, however; some are happy with the high incomes provided by
Hollywood productions and are less involved in the creative side of
projects. As one observed; ``I donÕt really want to be on a project for
®ve years raising money, I have absolutely no interest in being poor,
and raising money for somebody elseÕs project. If it was my own
project, I might feel dierently about it . . . a lot of my friends are in
development, and theyÕre working four or ®ve years on the same
project to get a movie o the ground, its really tough''.
Table 3
Key characteristics of the inter-personal networks of ÔindigenousÕ Vancouver producers
a
Scale of relations
(constructed)
Rationale
Context
Relative strength
of ties
Power relations
International
(Space of
engagement)
Funding/distribution
International
co-production deals
US domination of
funding, distribution
and exhibition of North
American ®lm and TV
production
Long history of US
production in Vancouver
Fairly strong
Shifting from dependent
relationship with US studios to
more collaborative, joint ventures
US funding crucial in many
cases, so power relations still
not equal
True co-productions emerging
with other countries e.g. UK,
France
National (Space
of engagement)
Funding/distribution
deals
Large involvement of
Canadian government in
funding due to US
dominance of audio-
visual culture
Fairly weak
In weak position compared to
larger corporations in Toronto
and Montreal with own
distribution arms, far greater
resources
True for both public and
private funding
Major proportion of
funds claimed by large
integrated corporations
in central Canada,
although agencies trying
to address this
Dense networks of
broadcasters, producers,
distributors in central
Canada
Historically low levels
of Canadian production
in Vancouver
Local (Space of
dependence)
Mobilisation of
labour/resources to
make project
Local fund raising
High demand for
technical labour,
equipment and premises
from US productions
Very low levels of local
capital available
Strong
Purchase goods and services
through market
May gain concessions however
due to widespread recognition of
importance of local projects
Local fund providers (BC Film,
Tele®lm West) have limited funds
and large numbers of applicants
a
Source: Author's research. The categories used are derived from Amin and Hausner (1997, pp. 7±15) and Cox (1998).
404
N.M. Coe / Geoforum 31 (2000) 391±407
concurrently mobilise their local, national and inter-
national personal networks. In Table 3, I summarise
some of the key characteristics of these network rela-
tions, using the criteria established by Amin and
Hausner (1997).
The central use of these relations is to raise ®nancing
and secure distribution deals for productions, the major
constraints on the indigenous industry everywhere in
Canada. At the international level, Vancouver produc-
ers are situated in a ®lm and television market that is
dominated by US producers, distributors and exhibi-
tors. In some cases, however, producers are able to use
established relationships with US studios and television
networks to generate funds for their own projects.
Vancouver producers are also embedded in, but argu-
ably more peripheral to, both national public and pri-
vate funding networks within Canada that are generally
focused on the larger, integrated production houses of
central Canada. At the local level, producers have to
compete for resources of all kinds with the US pro-
ductions that dominate the Vancouver industry in ag-
gregate terms, but can use long-established relationships
to mobilise resources.
My argument is that these dierent arenas, although
separated here for analytical purposes, are eectively
constructed and linked together by the networks of so-
cial relations of the Vancouver producers. These net-
works exist over dierent spatial extents and may appear
to operate within dierent contexts and structural con-
straints. However, I want to suggest that they are inti-
mately connected and mutually constitutive. For
example, we cannot divorce dynamics within the Van-
couver ®lm sector, or indeed the wider Canadian ®lm
industry, from the structural constraints imposed by
relationships with the US entertainment industry. The
Vancouver sector has only reached its current scale be-
cause of US investment, and the whole nature of gov-
ernment intervention in the wider Canadian industry is
re¯ective of concerns over US dominance. This simul-
taneity of scale is best conceptualised in terms of how
the individual producers use their inter-personal net-
works of diering spatial extents as they strive to de-
velop projects. ÔScalesÕ of activity are thus socially
constructed through these complex and overlapping
webs of personal relations. In this way, the ÔlocalÕ, Ôna-
tionalÕ and ÔinternationalÕ should not be seen as separate
arenas of action, but as mutually constitutive of each
other.
Acknowledgements
This research was carried out with funding from a
Leverhulme Trust postdoctoral scholarship. I would like
to thank Lily Kong, Jenny Robinson and the anony-
mous referees for their insightful comments on earlier
versions of this article.
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