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TO the OKANAGAN WATER BASIN STUDY in Partial Fulfillrnent Of AN APPLICATlON OF FOUCAULT'S ANALYTIC OF POU'ER/KNOWLEDGE TO THE OKANAGAN WATER BASIN STUDY PUBLIC INVOLVEMENT PROGRAM by Tarnara Koltermann, B.A. (Hons) A thesis submitted to the Faculty of Graduate Studies and Research in partial fulfillrnent of the requirements for the degree of Master of Arts Department of Geography Carleton University Ottawa, Ontario APRIL, 1998 Copyright 9 1998 Tarnara Koltermann National Library Bibliothèque nationale I*I d Canada du Canada Acquisitions and Acquisitions et Bibliographie Services services bibliographiques 395 WeüiiStreet 395, nie Wellington OttawaûN KIAW OaawaON KIAM CaMda canada The author has granted a non- L'auteur a accordé une licence non exclusive licence dowing the exclusive permettant à la National Libmy of Canada to Bibliothèque nationale du Canada de reproduce, loan, distri-bute or sel1 reproduire, prêter, distribuer ou copies of this thesis in rnicroform, vendre des copies de cette thèse sous paper or electronic formats. la fome de microfiche/fïlm, de reproduction sur papier ou sur format électronique. The author retains ownership of the L'auteur conserve la propriété du copyright in this thesis. Neither the droit d'auteur qui protège cette thése. thesis nor substantial extracts fiom it Ni la thèse ni des extraits substantiels may be printed or otherwise de celle-ci ne doivent être imprimés reproduced without the author's ou autrement reproduits sans son permission. autorisation. ABSTRACT An Application of Foucault's Analytic of PowerlKnowledge to the Okanagan Water Basin Study Public Involvement Program While public involvement has been hailed as pan of the emancipation process of the modem penod (Pieterse, 1 EU), much of the theoretical and applied literature which deals with public involvement has been described as "...prescriptive [and] rhetoric, rest- ing on unanalyzed premises and assumptions" (Wengert, 197624). The purpose of this dissertation is to problematize and challenge the theoretical premises underlying public involvement theory, and to apply the theoretical insights gleaned, to an analysis of the Okanagan Water Basin Study Public Involvement Program. The specific objective is to challenge conventional public participation theory and practice by examining kry issues of power and representation using Foucault's approach to the deconstniction of discursive practices. An extensive lirerature review of public involvement theory, a theoretical discus- sion of the value which Foucault's work has for public involvement theory, intensive interviews, discourse analysis and archiva1 research methods are used to create a histori- cal. contextual narrative which explores the workings of powerhowledge in the Okana- gan Water Basin Study Public Involvement Program from 1969- 1974. This analysis weaves Foucauldian methods and epistemologies together in order to create a work which is simultaneously theoretical and applied. Panicularly relevant in the current age which calls increasingly for public involvement, the insights which this thesis yields have the potrntial to transform the theory and practice of public involvement. TABLE OF CONTENTS Chapter One Introduction Public Participation: A Means to Sustainable Development? Disillusionment: Engaging Public Participation in the "Field" Discovering the Okanagan Water Basin Study hblic Involvement Program Constructing Consent: PoweriKnowledge and the Environment Linkages to TheoreticaYApplied Geography Introduction to Chapters Endnotes Chapter Two Democracy and the Role of Public Involvement The "Golden En" of Public Involvement Theory Growth and Development of Public Involvement Public Involvement as "Social Therapy" Public Involvement as a Mtans to Efficiency and Productivity Public Participation as a Legitimizing Device Power and Public Involvement The Social Construct of Power and the Creation of Knowledge Foucault's Powerffiowledge's Potential for Strategic Resistance Chapter Three Foucault's PowerKnowledge Construct The Futile Quest for "Tmth" The Evolution of the "Apparatus" Foucault's Apparatus: Implications for Strategies of Resistance Discourse Analysis and Power/Knowledge PowerKnowledge: A Useful Tool For Social Transformation? Endnotes Chapter Four The Okanagan's Physical Context Water: A Key to the Okanagan Valley's Development Water Quantity Control: FederallProvincial Co-operation (1 960's) Water Quality Issues in the Okanagan (1 960-1 970) The Federal Role in Water Management Issues of Federal-Provincial Jurisdiction in the CWA PubIic Involvement in the CWA The OKWS: From Conflict to Consent Conception and Evolution of the Public Involvernent Pro-gram The Process to Facilitate "Public Participation" Language to Influence: Imprecision, 'Tornmunity" and Filtering Chapter Five The "Public" in the Public Involvement Program "Structure": The Boundaries of Public involvement The Public Information Program: Shifting Boundaries Chapter Six Summary Identity, Community and Powerffiowledge Implications of Power/Knowledge for Public Involvement Implications of Powerffiowledge for Resistance Methodological Issues Afterword The Evolving Research Process Subjective Research: The Pnvate and the Political Rsalms Merge Challenging Assumptions: The Development of the Thesis Figures Arnstein's Ladder of Citizen Participation The Okanagan Water Basin as Geographically Presented in the Okanagan Water Basin Study Public Involvement Program Bibliography CHAPTER ONE: Introduction mile public participation has been hailed as a process which is integral to democ- racy itself, this thesis demonstrates that public involvernent processes can be deconstnictcd to reveal cornplen, refractive relationships between power and knowledge creation. To do this, this thesis draws extensively from Foucault's writings on "powerl knowledge" (a constmct which he formed to indicate that power and knowledge are so inextricably interrelated that they cannot be considered in isolation). Whereas much of the èxisting literature on public involvement focuses on evaluating programs in order to determine 'àuccess factors", this thesis suggests that univenalistic definitions of "suc- cess" or "failure" are not useful for scholars who wish to understand these compiex relationships invoked by power/knowledge. Decontextualized evaluations of "success factors" or "failed public involvement efforts" neglect to ask critical questions involving powerknowledge. If one wishes to ask whether a public involvement prograrn was "successful". it is necrssary to add "for whom?". Public involvement silences as much as it provides oppor- tunities for inclusion. This thesis demonstrates how the category "public" can be strategi- cally re/constructed in order to legitimize some discourses, while simultaneously marjinalizing others. In addition, it problematizes the process of the public involvement itsclf by unravelling questions of power/knowIedge which are central to understanding public involvement processes. In order to do this, this study reviews existing literature on public involvement, applies Foucault's theoretical gains, with specific reference to his anal ytic of poweriknowledge and finail y examines the Okanagan Water Basin Study Public Involvement Pro-gram using Foucault's theoretical and methodological tools. This chapter will show how this study evolved fkom an intuitive investigation which relied on unexarnined assumptions about the value of public involvement in envi- ronmental decision-making to a more sober analysis of how the discounes of public involvement are articulated with power/knowledge. Additionally, it will provide a context to begin the study of the analytics of poweriknowledge in the Okanagan Water Basin Study Public Involvement Program (1969- 1974). In 1994, when 1 was designing my research project, there appeared to be a growing controversy around Kelowna's development strategy and the contentious issue of water scarcity seemed to be at the crux of the issue. Fresh from resource management courses. the challenges of managing aspects of both the quality and quantity of a "common prop- rrty resource" was appealing; and so 1 began to snidy the issues as they were presented in the Local newspapers. From the 1994 newspaper reports, the positions of the main actors appeared to bc ciear. One major proponent of securing "adequate" water for orchardists was the Curator of the Orchard Indusuy Museum, Wayne Wilson. Mr. Wilson argued that the residents of Kelowna needed to recognize that it was "...those early farmers who turned the Okanagan from brow to green and made it into the parkland that it is today" and for that reason. he urged Kelowna residents not to "...short agriculture of water, no matter what happens."'. While advocates for the conservation of agriculniral lands argued that farmers should have first rights to the water resources, Kelowna's politicians' decisions appeared to have been predicated upon a growth ethic which equated increases in urban development with increases in economic secunty. On April 1, 1994, a reporter in the Kelowna Capital News criticized a decision by the Mayor and Council (which overrode recommendations by the City's own Planning Department and Advisory Planning Commission and opposition from local residents) to rezone a large axa of the hills of Southeast Kelowna which was orchard and pine forest. The then Mayor, Jim Stuart, was quoted as responding, "There are times when you have to run a city like a business ....If you want nobody else to corne here. you have to be willing to give up your job, because there won? be
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