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The Strategic Social Plan in Labrador: a Case Study in Collaborative

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The Strategic Social Plan in Labrador: a Case Study in Collaborative The Strategic Social Plan in Labrador: A Case Study in Collaborative Governance By © Allison Catmur A thesis submitted to the School of Graduate Studies in partial fulfillment of the requirements for the degree of Master of Arts Sociology Memorial University May 2008 St. John’s, Newfoundland and Labrador Table of Contents 1. Acknowledgements ....................................................................................................... 6 2. Prologue ......................................................................................................................... 9 3. Introduction................................................................................................................. 18 3.1 Collaborative Governance: A Case Study Analysis ............................................... 18 4. Theoretical Grounding............................................................................................... 30 4.1 Transformations in Governance: A Post-Modern Phenomenon............................. 30 4.2 Civil Society: The Evolution of a Concept............................................................. 35 4.2.1 Classical Conceptions ...................................................................................... 35 4.2.2 The Scottish Enlightenment............................................................................. 38 4.2.3 Where Civil Society and the State Diverge ..................................................... 42 4.2.4 Civil Society as an Instrument of the State...................................................... 45 4.2.4 Civil Society and Democratic Governance...................................................... 47 4.2.4.1 “Civil Society I” ....................................................................................... 48 4.2.4.2 “Civil Society II” ...................................................................................... 53 4.2.4.3 Discourse, Power and Exclusion in the Public Sphere ............................. 55 4.3 Blurring the Boundary between Civil Society and the State: The Rise of the Governance Paradigm................................................................................................... 66 4.3.1 Defining Governance....................................................................................... 67 4.3.2 Governance and Participatory Democracy ...................................................... 69 4.3.3 Understanding Governance and its Practical Implications .............................. 72 4.4 Bringing It All Together ......................................................................................... 83 5. Newfoundland and Labrador: Developments in Governance................................ 88 5.1 The Migratory Fishery: The Rule of the Admirals ................................................. 89 5.2 Reform: “The Era of Naval Government” ............................................................. 90 5.3 Emerging Divisions in Newfoundland Society & The Growth of Social Movements ....................................................................................................................................... 91 5.4 Representative and Responsible Government in Newfoundland............................ 93 5.5 Entering the 20 th century: New Experiments in Governance ................................ 95 5.6 The Commission of Government............................................................................ 96 5.7 Confederation with Canada and the New Provincial Government under Joey Smallwood .................................................................................................................... 98 5.8 The Provincial Government beyond Smallwood.................................................. 103 5.8.1 Frank Moores and Brian Peckford: Economic Development through Local Control .................................................................................................................... 103 5.8.2 Clyde Wells: The Moratorium and a New Approach to Rural Development 105 5.8.3 Brian Tobin: A Different Spin on Wells’ Approach...................................... 107 5.8.4 Roger Grimes: Newfound Nationalism ......................................................... 108 5.8.5 Danny Williams: The Hard Line.................................................................... 109 5.9 Labrador................................................................................................................ 111 5.9.1 Who Owns Labrador?.................................................................................... 112 5.9.2 Early European Colonies in Labrador............................................................ 113 5.9.3 The Moravian Missionaries ........................................................................... 114 5.9.4 The Labrador Metis or Settlers ...................................................................... 115 5.9.5 The Labrador Innu ......................................................................................... 115 2 5.9.6 The Grenfell Mission ..................................................................................... 117 5.9.7 Substitute Governors in Labrador.................................................................. 118 5.9.8 The Labrador Boundary Dispute ................................................................... 119 5.9.9 20 th Century Developments in Labrador........................................................ 120 5.9.10 The Impacts of Confederation on Labrador................................................. 123 5.9.11 Labrador-Newfoundland Relations.............................................................. 128 5.9.12 The Awakening of Labrador........................................................................ 132 5.9.13 Aboriginal Labradorians in Recent Years.................................................... 139 5.9.14 New Governance Structures and Processes for Labrador............................ 140 5.9.15 Labrador in the 21 st Century ........................................................................ 145 6. Methodology.............................................................................................................. 149 6.1 Phase One: Values Added CURA Research Assistant ......................................... 149 6.2 Phase Two: Field Research................................................................................... 152 6.3 Phase Three: Analysis & Validation..................................................................... 156 7. Laying the Foundations: Context, Background and Overview of Newfoundland and Labrador’s Strategic Social Plan ......................................................................... 159 7.1 The Changing Role of the VCBS in Canada ........................................................ 160 7.2 The Voluntary Sector Initiative ............................................................................ 164 7.3 A Strategic Social Plan for Newfoundland and Labrador .................................... 168 7.3.1 Internal Forces of Change:............................................................................. 169 7.3.1.1 The Royal Commission on Employment and Unemployment ............... 169 7.3.1.2 The Economic Recovery Commission.................................................... 171 7.3.1.3 Gradual Shift towards a “New Governing Policy Paradigm”................. 173 7.3.2 External Forces of Change:............................................................................ 177 7.3.2.1 The Community Services Council of Newfoundland and Labrador: ..... 177 7.3.2.2 Socio-Economic Context ........................................................................ 178 7.3.3 The Emergence of the SSP ............................................................................ 181 7.3.4 Tobin and a New SSP .................................................................................... 183 7.3.5 The Social Policy Advisory Committee ........................................................ 184 7.3.6 The Launch of the SSP .................................................................................. 187 7.3.7 Understanding People, Partners and Prosperity............................................. 188 7.3.7.1 The SSP Vision and Strategies: .............................................................. 188 7.3.7.2 The Place-Based Approach:.................................................................... 191 7.3.7.3 The Importance of Partnerships:............................................................. 192 7.3.7.4 Evidence-Based Decision Making and a Social Audit: .......................... 194 7.3.7.5 Building on the Social Policy Advisory Committee:.............................. 195 7.3.8 The SSP Structure & Components................................................................. 198 7.3.8.1 The Ministerial Committee and the Committee of Deputy Ministers .... 201 7.3.8.2 The SSP Office ....................................................................................... 201 7.3.8.3 The Premier’s Council on Social Development...................................... 202 7.3.8.4 Regional Steering Committees ............................................................... 202 7.3.8.5 The Community Accounts Database ...................................................... 203 7.3.9 Towards Implementation ............................................................................... 204 8. SSP Implementation: The Case of Labrador........................................................
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