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Clear Skies Or Ongoing Turbulence? Canadian Airport Policy Between Airport Operators, Airlines, and the Federal Government

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Clear Skies Or Ongoing Turbulence? Canadian Airport Policy Between Airport Operators, Airlines, and the Federal Government Clear Skies or Ongoing Turbulence? Canadian Airport Policy between Airport Operators, Airlines, and the Federal Government Philippe Villard A Thesis In the Department of Political Science Presented in Partial Fulfillment of the Requirements For the Degree of Doctor of Philosophy (Political Science) at Concordia University Montreal, Quebec, Canada November 2014 © Philippe Villard, 2014 CONCORDIA UNIVERSITY SCHOOL OF GRADUATE STUDIES This is to certify that the thesis prepared By: Philippe Villard Entitled: Clear Skies or Ongoing Turbulence? Canadian Airport Policy between Airport Operators, Airlines, and the Federal Government and submitted in partial fulfillment of the requirements for the degree of Doctor of Philosophy (Political Science) complies with the regulations of the University and meets the accepted standards with respect to originality and quality. Signed by the final Examining Committee: __________________________ Chair Dr. Elena Razlogova __________________________ External Examiner Dr. Éric Champagne __________________________ External to Program Dr. Isabelle Dostaler __________________________ Examiner Dr. James Kelly __________________________ Examiner Dr. Stephanie Paterson __________________________ Thesis Supervisor Dr. Patrik Marier Approved by _____________________________________________ Chair of Department or Graduate Program Director _________ _____________________________________________ Dean of Faculty ABSTRACT Clear Skies or Ongoing Turbulence? Canadian Airport Policy between Airport Operators, Airlines, and the Federal Government Philippe Villard, PhD Concordia University, 2014 Using the case of Canada’s airport policy, this dissertation seeks to give an account of long- lasting conflicts between key actors of a policy sector who otherwise do not challenge the core policies and orientations of their sector and share the same core representations. The argument of this dissertation offers a response to the paradoxical outcome where a long-lasting policy has remained stable over time, despite engendering momentous conflicts and tensions between actors (to the point of threatening the stability of the policy sector) and being attacked by virtually all actors. This objective is sought by analyzing the Canadian airport sector and its four main platforms: Toronto, Montreal, Vancouver and Calgary. The Canadian airport sector is highly puzzling, since long-lasting conflicts over the airport rent, the access to airport infrastructure and the funding and administration of airport screening have polluted the relations between the key stakeholders for years, while none of the key actors involved has challenged the main policy orientations and policy instruments used to regulate the sector. The study of the Canadian airport sector with a refocused and amended cognitive analysis of public policy framework developed by Muller and Jobert is really fruitful: it results in a comprehensive analysis of the conflicts, their nature, the possible ways to solve them, and it also considerably expands the explanatory power of the cognitive analysis of public policy. iii ACKNOWLEDGEMENTS I would like to thank my PhD supervisor, Dr. Patrik Marier, for his continuous support, availability and guidance during the successive stages of the PhD programme. Your supervision has been a critical success factor in my journey at Concordia, and I appreciate that you accepted to oversee my PhD studies. My sincere thanks also go to Dr. Isabelle Petit from Université de Montréal and Prof. Pierre Muller from Sciences Po Paris: your teachings and advices were the starting point of my PhD. Of course, my family played an important role: I would like to thank my parents for having supported my bachelor and master studies as well as for their trust in my abilities. Special thanks go to my life-partner Vincens for his faith in my capacity to complete this project and his support which strengthened my determination to finish the PhD programme. I express all my gratitude to Julian de la Camara, who offered me the best transition between the academia and the professional world of air transport. Your immense knowledge of aviation guided me a lot during my research stages. But most importantly, you have been the best mentor I could have had, and I value that you are always available to give advices and guidance. Finally, Concordia has also offered me my best friends I could have had. The time we spent together meant the world to me, and moving to Switzerland has not been easy. I know that when the time will come I will be able to count on you for drinks around Concordia. I would like to mention without specific order Dennis Molina Tapia, Nika Deslauriers-Paquette, Jeremy Speight, Chris Bourne, Julie Blais, Cherry Marshall, Matthew Flanagan, Renée Saint-Amant, Émilie Marcotte, Marek Brzezinski, Anne-Marie Comeau, Ali Halawi, Kelly Eubank and Christina Mocella. My sincere apologies if I forget someone. iv TABLE OF CONTENT Introduction .................................................................................................................................. 1 A – Setting the Scene: Argument and Contribution of the Dissertation .................................. 1 B –The Empirical Field: a Study of Canada’s Airport Policy and the situation of the Four Largest Canadian Airports ....................................................................................................... 3 1. Background Elements on Airport and Air Transport Liberalization ................................ 4 1.1. Airports in a Business-Oriented Model…. ................................................................ 5 1.2. … Still Governed by States and Governments .......................................................... 7 2. Significance of a Policy Study of the Canadian Airport Sector ..................................... 10 2.1. A Brief Outlook of the Canadian Airport Sector: Four Global and/or Regional Hub Airports ........................................................................................................................... 10 2.2. The Puzzling Situation of Canada’s Four Largest Airports .................................... 11 2.3. Three Cases of Conflicts and Tensions in the Sector .............................................. 14 C –Conclusion: Overview of this Dissertation ....................................................................... 17 Chapter I: The Cognitive Analysis, Airports, and Canada ......................................................... 20 A – Approaches to Public Policy Studies and Limits in their Ability to explain Canada’s Airport Policy ......................................................................................................................... 21 1. Decision-Making and Rationality-Focused Approaches of Public Policy ..................... 21 2. Agenda-Focused Approaches of Public Policy .............................................................. 25 3. Institutions-Focused Approaches of Public Policy ........................................................ 28 B – Analyzing the Cases: Contributions and Limits of Ideas-Focused Public Policy Analysis Theories .................................................................................................................................. 30 1. Ideas-Focused Approaches: Hall and Sabatier ............................................................... 32 1.1. The Paradigm Approach .......................................................................................... 32 1.2. The Advocacy Coalition Approach ......................................................................... 34 2. The Cognitive Analysis of Public Policy: Theory and Concepts ................................... 35 2.1. The Cognitive Analysis of Public Policy: Theory and Core Concepts. .................. 36 2.2. The Cognitive Analysis of Public Policy: Illustrations ........................................... 43 C. Explaining Conflicts between Actors who Share the same Representations, or the Contribution to Knowledge of this Dissertation .................................................................... 45 1. Persistent Conflicts within an Unchallenged Referential: A Challenge ........................ 45 2. Contributing to Knowledge: Explaining Persistent Conflicts within an Unchallenged Referential .......................................................................................................................... 48 3. Cases Selection and Methodology ................................................................................. 52 3.1. Cases Selection ........................................................................................................ 52 3.2. Methodology ........................................................................................................... 54 Chapter II: The Canadian Airport Sector: A Promising Field to Deploy and Improve the Cognitive Analysis of Public Policy .......................................................................................... 59 A –Identifying the Global Referential .................................................................................... 59 1. The Market-Oriented, Global Referential in Theory...................................................... 59 2. A Specific Market-Orientation of Airport and Air Transport Policies Worldwide ....... 60 B –The Global Referential and the Canadian Air Transport Sector....................................... 63 1. Adjusting the Canadian Airport and Air Transport Sector to
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