OF SPECIAL POLICY AGENCES for ABORIGINAL and by Doctor Of

BETWEEN COLLIDING WORLDS: TEEINHERENT AMBIGUITY OF SPECIAL POLICY AGENCES FOR ABORIGINAL AND WOMEN'S ISSUES IN CANADA ,AND AUSTRALIA by Jonathan Peter Malloy A thesis submitted in confomwith the requirements for the degree of Doctor of Philosophy Graduate Department of Political Science University of Toronto O Copyright by Jonathan Peter MaLloy 2000 National Library Bibliothèque nationale 1*1 of Canada du Canada Acquisitions and Acquisitions et Bibliographie Services services bibliographiques 395 Wellington Street 395, rue Wellington Ottawa ON K1A ON4 Otiawa ON KIA ON4 Canada Canada The author has granted a non- L'auteur a accordé une licence non exclusive licence allowing the exclusive permettant à la National Library of Canada to Bibliothèque nationale du Canada de reproduce, loan, distribute or sell reproduire, prêter, distribuer ou copies of this thesis in microfom, vendre des copies de cette thèse sous paper or electronic formats. la forme de microfiche/nlm, 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 thèse. thesis nor substantial extracts f?om 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 Between Coliïding Worlds: The Inherent Ambiguity of Special Policy Agencies for Aboriginal and Women's Issues in Canada and Australia Doctor of Philosophy, 2000 Jonathan Peter MaIIoy Graduate Department of Political Science University of Toronto This dissertation explores the inherent contradictions surrounding institutiond Mages between governments and social movements, by focussing on Canadian and Austraiian government units for women's and aboriginal policy, such as the Ontario Women's Directorate and the Western AustraLian Department of Aboriginal Affairs. These units are referred to as "special policy agencies." 1argue that these agencies interact with two distinct extemal envkonments or 'îvorlds" -- the world of public administration and the permanent bureaucracy, and the world of social movements and activists -- and that the values, characteristics and expectations of these two worlds differ sharply fiom one another. These merences create contraclictory pressures on special policy agencies, leading to inherently ambiguous identities. This arnbiguity creates conflicts and misunderstandings, but also allows agencies to play boundary-spanning roles between the two worlds, linking tightly-organized public administration with fluid movements, to a greater degree than other state structures. The dissertation examines these boundary-spanning roIes through several case studies of agencies. In tum, the case studies are organized around three variables affecting agencies' roles -- political change, relations with other public servants, and the "new public management." 1 argue that special policy agencies are not just one of many interchangeable battlegrounds between social movements and the state, nor simply attempts by governing authorities to neutralize or dominate social movements. Instead, special policy agencies are best understood as shifting and ever-changing terrains of struggle, which provide valuable ground for studying the cornplex and evolving relationships betwee~social movements and public administrators. Acknowledgements Conventional wisdom is that no one ever reads aclmowledgements, but 1 suspect that nearly al1 academics secretly do check them out. And while it's unlikely many people will ever peruse this particula. dissertation, this section is important to me, and 1 want to do my best to recognize those who contributed to this study. The idea for this dissertation came fkom David R. Cameron, who was givïng me a ride down University Avenue one day in July 1995. 1 told him that I was interested in looking at the Ontario Native Main Secretariat as an organkation, but that his recent RCAP study seemed to have already covered much of this ground. He noted that agencies similar to ONAS could be found in a variety of policy fields, and suggested they might be worthy of study. From this I went to Evert Lindquist, who jurnped at the idea and suggested a flood of relevant sources and starting points. Evert urged me to turn to organization theory to understand these agencies, and oversaw the development of my research plan and preliminary inquiries. When he departed to the University of Victoria, he arrmged a seamless transition of supervision responsibilities to Graham White, under whose direction the chapters took shape and the entire study came into increasingly clear focus. Throughout the project, Sylvia Bashevkin and David Rayside played invaluable advisory roles, giving me support when 1needed it but never letting up on their inconvenient habit of pointing out flaws and suggesting remedies in my research and writing. Nelson Wiseman and Peter Silcox served ably as the intemal examiners of the dissertation. Much of this research was presented at annual meetings of the Canadian Political Science Association, and 1thank Ken Rasmussen, Robert J. Williams and Greg Poeizer for their valuable comments. Tone Careless gave important feedback on an early version of Chapter Five. Other political scientists and academics, particularly in British Columbia and Australia, also gave valuable advice as 1 went about my research. The insights of Peter Aucoin have been particularly helpful, as he both commented on a~ early dr& of the research proposa1 in 1996, and served as the external examiner of the entire dissertation in 2000. This research and my doctoral studies could not have proceeded without the financial support of the University of Toronto and its Department of Political Science (including the C.B. Macpherson Dissertation Fellowship), the Ontario Graduate Scholarships, and Massey College's Catherall Dissertation Fellowship. 1thank thern all. My Ph.D. years have benefited trernendously fiom both professional and persona1 relationships with administrative staff, Particular thanks are due to Hyla Levy, Marion Reed, Margaret Hepbuni and Mary-Nice Bailey in the main office; Joan Kallis and, earlier, Shelley MacLarty in the Graduate Office; and particularly Carolynn Branton, who like me arrived at the Department in 1994 and has been promoted twice since then, aliowing me to fhstrate her in a wide variety of ways. Massey College and its Master, John Fraser, officers and many senior and junior fellows have provided a warm comrnunity throughout my Ph.D. Special thanks to Master Fraser for providing fiee coffee in the Common Room since 1996. Pat Kennedy deserves particdar thanks for all sorts of help including sending dozens of faxes, and Anna Luengo for much help and wann conversation. A special greeting to my good pal Maurice. Apparently some people struggle through their Ph.D.s without a lot of fiends to support them; I'm glad 1 didn't. The number of fellow doctoral students who made my We special over the 1st six years is immense, and 1 can only list a few. They inchde: Darin Bmey, Cheryl Collier, Gina Cosentino, Mirella Eberts, Catherine Frost, Ellen Guttennaq Lawrence Hanson, Sylvia Kissin, Tim Lewis, Jeff Loucks, ELizab eth Moore, Julie Simmons, Andrew Staples, Neil Thomlinson, and Lisa Young. Special mention is due to Jenna Sindle for being such a good fiend and her valuable advice on things Australian, and to Marci Wallace and Ted Glenn for many years of fiiendship. Most of dl, Troy Goodfellow stuck with me fiom our beginnings of the program in September 1994 right up until his own defense six weeks before mine, always being my sounding board and happy companion in the Common Room of Massey College. Mmy other fiends and relatives outside academia also played a vital role. While they are too many to name, their support and prayers were always with me. My parents, Stu and Reta Malloy, have always supported my academic wanderings in every way possible, financial and othenvise. 1have been blessed with wonderfid parents. Like so many doctoral dissertations, this one would never have gone anywhere without the support of a long-suffe~gspouse. Ruth is everything to me, and it is because of her presence and spirit and love that 1managed, after so much time and so many seenhg dead ends, to complete my research and the PhD. While it's not much to give in rem, this is her dissertation too. CHAPTER ONE: THE COLLlDlNG WORLDS OF PUBLIC ADMINISTRATION AND SOCIAL MOVEMENTS .................... .... ................................................... 1 Introduction .............................................. ................................................................................................. 1 Agencies as Links Between State and Society ............................... ... ....................................................... 5 Agencies as Boundary-Spanners ................................................................................................................ 9 Agencies Under Different Pressures ........................................................................................................ 16 Contribution and Significance of this Study .............................. .... ......................................................... 18 Research Methods .................................................................................................................................... 20 Outline ....................................................................................................................................................

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