An Analysis of Monopolies of Knowledge, Risk Communication and Potable Water Policy in British Columbia
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WATER TALK: AN ANALYSIS OF MONOPOLIES OF KNOWLEDGE, RISK COMMUNICATION AND POTABLE WATER POLICY IN BRITISH COLUMBIA. Paul L. W. Krueger BA (PolSciEcon), Christendom College, Virginia, USA, 1990 Post Baccalaureate Diploma - Communication, Simon Fraser University, 1997 THESIS SUBMITTED IN PARTIAL FULFILLMENT OF THE REQUIREMENTS FOR THE DEGREE OF MASTER OF ARTS In the School of Communication O Paul L.W. Krueger 2005 SIMON FRASER UNIVERSITY Fall 2005 All rights reserved. This work may not be reproduced in whole or in part, by photocopy or other means, without permission of the author. APPROVAL Name: Paul L.W. KRUEGER Degree: Titles: Water Talk: An Analysis Of Monopolies Of Knowledge, Risk Communication And Potable Water Policy In British Columbia. Examining Committee: Chair: Prof. Bill Richards Prof. Peter Anderson Senior Supervisor Associate Professor, School of Communication Prof. Adam Holbrook Supervisor Adjunct Professor, School of Communication Prof. Roman Onufrijchuk Supervisor Research Associate, School of Communication Prof. Cooper H. Langford Examiner Professor in Chemistry, University of Calgary Date: DECLARATION OF PARTIAL COPYRIGHT LICENCE The author, whose copyright is declared on the title page of this work, has granted to Simon Fraser University the right to lend this thesis, project or extended essay to users of the Simon Fraser University Library, and to make partial or single copies only for such users or in response to a request from the library of any other university, or other educational institution, on its own behalf or for one of its users. The author has further granted permission to Simon Fraser University to keep or make a digital copy for use in its circulating collection, and, without changing the content, to translate the thesislproject or extended essays, if technically possible, to any medium or format for the purpose of preservation of the digital work. The author has further agreed that permission for multiple copying of this work for scholarly purposes may be granted by either the author or the Dean of Graduate Studies. It is understood that copying or publication of this work for financial gain shall not be allowed without the author's written permission. Permission for public performance, or limited permission for private scholarly use, of any multimedia materials forming part of this work, may have been granted by the author. This information may be found on the separately catalogued multimedia material and in the signed Partial Copyright Licence. The original Partial Copyright Licence attesting to these terms, and signed by this author, may be found in the original bound copy of this work, retained in the Simon Fraser University Archive. Simon Fraser University Library Burnaby, BC, Canada 'QJ'SIMON FRASER & uN1w~sldibrary STATEMENT OF ETHICS APPROVAL The author, whose name appears on the title page of this work, has obtained, for the research described in this work, either: (a) Human research ethics approval from the Simon Fraser University Office of Research Ethics, (b) Advance approval of the animal care protocol from the University Animal Care Committee of Simon Fraser University; or has conducted the research (c) as a co-investigator, in a research project approved in advance, (d) as a member of a course approved in advance for minimal risk human research, by the Office of Research Ethics. A copy of the approval letter has been filed at the Theses Office of the University Library at the time of submission of this thesis or project. The original application for approval and letter of approval are filed with the relevant offices, Inquiries may be directed to those authorities. Bennett Library Simon Fraser University Burnaby, BC, Canada Water Talk, Paul L. W. Krueger ABSTRACT Few in Canada were concerned about potable water until the Walkerton tragedy. Authorities at all levels have since pledged to strengthen water protection. British Columbia passed legislation intended to ensure the safety of its supply from "source to tap", and many municipalities have planned upgrades to their systems. Nevertheless, increasing numbers do not drink tap water but use bottled or filtered water instead. Why? Perception of risk depends on how, and by whom, it is communicated. Public practices indicate that drinking water policy and perceptions concerning risk are disconnected. Harold Innis' "monopolies of knowledge" and William Leiss' writings on the domination of nature and risk communication illustrate why this disconnect exists and Marshall McLuhan's "laws of media" are a method for identifying potential reversals of expected outcomes. This thesis addresses risk communication, analyses water policy and legislation, presents the results of a user survey, and makes recommendations for policy formation. Keywords: Water, Bottled Water, Tap Water, Drinking Water Survey, British Columbia, Canada, Monopolies of Knowledge, Laws of Media, Risk Communication, Risk Management, Public Policy, Legislation Water Talk, Paul L. W. Krueger DEDICATION To my ever supportive spouse Wendy King and our children: Jane, Jared, Brandon & Hailey, and to our patient extended family without whom this work is meaningless. In memory of Marilyn A. Krueger, mother, mentor and to my father Erwin Krueger (LL) who taught me to stick with it until job is done. Water Talk, Paul L. W. Krueger ACKNOWLEDGEMENTS I would like to gratefully acknowledge the support of my committee members for their guidance and interest in my work. Professor Peter Anderson for keeping me on track and in the right stream, Professor Adam Holbrook for introducing me to the topic and pressing me to turn my RA work into my thesis, Professor Roman Onufrijchuk for introducing me to the works of Harold Innis and Marshall McLuhan and for calming things down when it I felt like I was heading into troubled waters. I would also like to thank all of the Professors with whom I had either graduate or undergraduate classes in communications at SFU as these were the building blocks of my intellectual house. I would also like to acknowledge the support staff at the Department of Communications at SFU. I also gratefully acknowledge the efforts of the communications 362 class of Fall 2003 and the support of Paul Crawford, President of King Marketing Ltd., for keeping me employed on my version of 'flex time' throughout these three long years, and to his office manager Liz Doell for her willingness to read and proof read this work several times over. Finally, I must also acknowledge the assistance of my good friend and bikinglskiing buddy Rob Mackenizie for helping me do surveys in the Delta Watershed study, listening to my rants and raves, passing on related material he came across and for still being willing to explore unmarked trails with me. Water Talk. Paul L . W . Krueger TABLE OF CONTENTS Approval ......................................................................................................................ii ... Abstract ..................................................................................................................... ill Dedication .....................................................................................................................iv Acknowledgements ............................................................................................................v Table of Contents ............................................................................................................vi List of Figures ...................................................................................................................ix List of Tables ....................................................................................................................ix Chapter 1 Introduction: Water Policy as Communication ....................................... 1 1.1 How Monopolies of Knowledge. the Domination of Nature and Poor Risk Communications Practices Precipitated a Crisis: The Walkerton Tragedy ......1 1.2 Water: A Study Proper to the Field of Communication ....................................5 1.3 Thesis Statement ..............................................................................................11 1.3.1 Thesis Scope .............................................................................................. 15 1.3.2 Literature Review .....................................................................................16 1.3.3 Theoretical Grounding ..............................................................................-17 Chapter 2 Monopolies of Knowledge and How They Affect Canadian Government ...............................................................................................19 2.1 What is a Monopoly of Knowledge? ...............................................................19 2.2 Monopolies of Knowledge and the Domination of Nature ..............................26 2.3 How Monopolies of Knowledge and the Domination of Nature are Related to Risk Communication ......................................................................32 2.4 How Monopolies of Knowledge Affect a Canadian's Governance and Perception of Risk ............................................................................................39 2.4.1 Walkerton and Monopoly of Knowledge: A Brief Case Study .................42 2.5 New Technologies of Communication and Challenges to Monopolies........... 56 Chapter 3 Drinking Water Policy and Legislation in the Canadian Context and the British Columbia Waterscape ...................................................