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Policy Windows and Changing Arrangements: an Analysis of the Policy Process Leading to the Colleges of Applied Arts and Technology Act, 2002

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POLICY WINDOWS AND CHANGING ARRANGEMENTS: AN ANALYSIS OF THE POLICY PROCESS LEADING TO THE COLLEGES OF APPLIED ARTS AND TECHNOLOGY ACT, 2002 by Anne Caroline Charles A thesis submitted in conformity with the requirements for the degree of Doctor of Philosophy Graduate Department of Theory and Policy Studies in Education Ontario Institute for Studies in Education of the University of Toronto © Copyright by Anne Caroline Charles (2011) ABSTRACT Policy Windows and Changing Arrangements: An analysis of the policy process leading to the Colleges of Applied Arts and Technology Act, 2002. Doctor of Philosophy 2011 Anne Caroline Charles Department of Theory and Policy Studies in Education University of Toronto This case study focuses on Ontario higher education policy and the Colleges of Applied Arts and Technology (CAATs). A sequence of policy shifts occurred during the last decade of the twentieth century and the early years of the new millennium. By 2002, the Government of Ontario had reviewed its position with regard to baccalaureate degree credentials being the exclusive domain of publicly supported universities. Governance arrangements for the CAATs had also changed. The new policy framework was set with two pieces of legislation, the Postsecondary Education Choice and Excellence Act, 2000, and the Ontario Colleges of Applied Arts and Technology Act, 2002. The purpose of this case study is to explain why these policy changes occurred. To facilitate inquiry, John W. Kingdon‘s Multiple Streams Model was used as a platform and lens to guide data collection and organize the findings.1 For Kingdon, policy is the outcome of a complex pre-decision process that requires the ‗coupling‘ of the problem, policy, and political streams at the time of an open policy window. A qualitative approach was adopted, and primary and secondary documents covering the period 1990 to 2002 were collected. In addition, in-depth semi-structured interviews were conducted with key policy actors and policy entrepreneurs. 1 John W. Kingdon, Agendas, Alternatives, and Public Policies (Boston: Little, Brown, 1984). John W. Kingdon, Agendas, Alternatives, and Public Policies, Second Edition with a new foreword by James A. Thurber (New York: Longmann Classics, 2003). ii The study found evidence to support the Multiple Streams Model‘s contention of streams of processes. However, with respect to this study, two types of policy problems were found flowing in the problem stream: macro-structural policy problems shaped conditions and the scope of options available with respect to policy goals and policy solutions; and micro-specific policy problems were localized, actor identified, constructed, and linked to specific interests. The study also found that historical institutional structures, and intermediate institutions, had a significant impact on policy development. The policy changes occurred as the result of two open policy windows, and in both instances, policy entrepreneurs were able to couple the policy streams to effect change. In view of the findings, a Structured Dynamics Model of Policy Development is offered as an explanation of the policy changes and for consideration in future inquiry. iii ACKNOWLEDGEMENTS My journey as a doctoral student has been a long one. Balancing a busy full-time postsecondary teaching schedule and graduate studies, at times has been difficult. Many evenings, weekends, and summers for the past eight years have been devoted towards this project. I would like to thank my family for their incredible understanding. I would like to acknowledge and thank Professor Daniel Lang of OISE/UT, and Dr. Michael Hatton of Humber CITAL, for serving on my thesis committee. They read through drafts of this thesis, and provided excellent advice and constructive feedback. I would also like to thank Professor Katharine Janzen of OISE/UT, and Professor Hans Schuetze of the University of British Columbia. A huge thank you to Robert Macaulay of George Brown College Archives for the invaluable help and assistance navigating the archival records, and to the policy actors and policy entrepreneurs who participated in the interviews. Particular thanks to my supervisor Professor Glen A. Jones for his steady, unwavering support. I am convinced that Glen is in possession of a sixth sense; he knew just when to challenge, encourage, and reassure. Thank you for your patience, mentorship, and for being my guide. Finally, thank you Jon Charles, my husband, for sharing this journey with me. iv LIST OF ABBREVIATIONS ACAATO Association of Colleges of Applied Arts and Technology of Ontario (now Colleges Ontario) ACCC Association of Canadian Community Colleges ASC Administrative Service Committee (ACAATO) ATOP Access to Opportunities Program CAATs Colleges of Applied Arts & Technology CAP Canada Assistance Plan CBT Community-based Training CCBD Community College Baccalaureate Degrees CEO Chief Executive Officer CHST Canada Health and Social Transfer CJS Canada Jobs Strategy COG Council of Governors (ACAATO) COP Council of Presidents/Committee of Presidents (ACAATO) COPEX Executive Committee of the Council of Presidents (ACAATO) COR Ontario Council of Regents COU Council of Ontario Universities CSAC College Standards and Accreditation Council CUCC College-University Consortium Council EI Employment Insurance EPF Established Programs Financing FTA Free Trade Agreement GA General Assembly (ACAATO) GNP Gross National Product GPC Governors Planning Committee (ACAATO) GST Goods and Services Tax GTA Greater Toronto Area HRDSC Human Resources Skills Development Canada ICLR Income Contingent Loan Repayment ICRP Income Contingent Repayment Plan ICLRP Income Contingent Loan Repayment Programs IPCC Instruction/Programs Co-ordinating Committee (ACAATO) ISC Interim Steering Committee (ACAATO) ISTF Investing in Students Taskforce ITAL Institute of Technology and Advanced Learning KPI Key Performance Indicator LMDA Labour Market Development Agreement MCU Ministry of College and Universities v MET Ministry of Education and Training MP Member of Parliament MPP Member of Provincial Parliament MTCU Ministry of Training, Colleges and Universities NAFTA North American Free Trade Agreement NDP New Democratic Party NUPSIs Non-university Postsecondary Institutions OCAAT Act, 2002 Ontario Colleges of Applied Arts and Technology Act, 2002 OCAS Ontario College Application Service OCUFA Ontario Confederation of University Faculty Associations OFL Ontario Federation of Labour OJIB Ontario Jobs and Investment Board OPS Ontario Public Service OPSEU Ontario Public Service Employees Union OSAP Ontario Student Assistance Plan OTAB Ontario Training and Adjustment Board O.Reg 34/03 Ontario Regulation 34/03 OUAC Ontario University Application Service OUSA Ontario Undergraduate Student Alliance PACs Program Advisory Committees PANEL Advisory Panel on Future Directions for Postsecondary Education PEQAB Postsecondary Education Quality Assessment Board PLA Prior Learning Assessment PMA Partisan Mutual Adjustment (see Incrementalism) PSE Postsecondary Education QAB Quality Assessment Board RRSP Registered Retirement Savings Plan SPC Strategic Planning Committee SWF Standard Workload Formula UI Unemployment Insurance UOIT University of Ontario Institute of Technology vi GLOSSARY Advocacy Support or argument for a cause, interest(s) or policy. Agency Action by an individual or group with the object of advancing a position or interest. Baccalaureate The first or lowest degree awarded by colleges and universities. Also known as a bachelor degree. Awarded for successful completion of an undergraduate program of study in either a theoretical or applied area. Coupling The joining of policy streams. Interest A subject or issue in which one has a concern. Interest Group An organized group that engages in political activities with the purpose of advancing an interest(s). Lobbying An activity aimed at influencing decision-makers. Pluralism The idea that power is dispersed in society and that individuals and interest groups compete for it. Policy Actor A person playing a role in the development of a policy. Policy Development The activity of developing policy. Policy Entrepreneur Persistent and politically connected policy actors who seek to connect the policy streams at opportune times to effect change. Policy Instruments The tools used by governments to achieve their objectives. Public Policy A plan, course or principle(s) of action taken by government. Policy Window An opportunity for policy change. Schedule I Crown A non-commercial policy and planning agency of the government. Agency Schedule III Crown A non-commercial agency of government which is social and/or cultural Agency in nature; funded in whole or part from the Consolidated Revenue Fund; and is subject to management principles and regulations of government. Self Interest The pursuit of interest(s) for advantage or gain. Stakeholders Persons or groups having an interest or concern. Transfer Payment A transfer of money by government to an individual or group. Transfer Partner Service delivery agent of government. vii TABLE OF CONTENTS Abstract ........................................................................................................................................... ii Acknowledgements ........................................................................................................................ iv List of Abbreviations .....................................................................................................................
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