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Université De Montréal the Politics Ofmulticulturaïism Reform In Université de Montréal The Politics ofMulticulturaÏism Reform in Canada: Institutions, Ideas and Public Agendas par Paolo Prosperi Science politique faculté des Arts et des Sciences Thèse présentée à la faculté des études supérieures en vue de l’obtention du grade de Ph.D. en Science politique rt octobre, 2006 © Paolo Prosperi, 2006 n flD Université de Montréal Direction des bibliothèques AVIS L’auteur a autorisé l’Université de Montréal à reproduire et diffuser, en totalité ou en partie, par quelque moyen que ce soit et sur quelque support que ce soit, et exclusivement à des fins non lucratives d’enseignement et de recherche, des copies de ce mémoire ou de cette thèse. L’auteur et les coauteurs le cas échéant conservent la propriété du droit d’auteur et des droits moraux qui protègent ce document. Ni la thèse ou le mémoire, ni des extraits substantiels de ce document, ne doivent être imprimés ou autrement reproduits sans l’autorisation de l’auteur. Afin de se conformer à la Loi canadienne sur la protection des renseignements personnels, quelques formulaires secondaires, coordonnées ou signatures intégrées au texte ont pu être enTevés de ce document. Bien que cela ait pu affecter la pagination, il n’y a aucun contenu manquant. NOTICE The author of this thesis or dissertation has granted a nonexciusive license allowing Université de Montréal to reproduce and publish the document, in part or in whole, and in any format, solely for noncommercial educational and research purposes. The author and co-authors if applicable retain copyright ownership and moral rights in this document. Neither the whole thesis or dissertation, nor substantial extracts from it, may be printed or otherwise reproduced without the author’s permission. In compliance with the Canadian Privacy Act some supporting forms, contact information or signatures may have been removed from the document. While this may affect the document page count, it does flot represent any loss cf content from the document. Université de Montréal Faculté des études supérieures Cette thèse intitulée The Politics of Multiculturalism Reform in Canada: Institutions, Ideas and Public Agendas Présentée par: Paolo Prosperi a été évaluée par un jury composé des personnes suivantes: Robert Dalpé Président-rapporteur Jane Jenson Directrice de recherche Danielle Juteau Membre du jury Leslie A. Pal Examinateur externe Suzanne Lalonde Représentante du doyen de la FES RÉSUMÉ Cette thèse examine la dynamique de la réforme politique au Canada ainsi que la gestion de sa diversité ethnoculturelle. Elle questionne les particularités des changements aux programmes multiculturels fédéraux et comment ceux-ci sont potentiellement perçus durant une période de réforme institutionnelle. Cette thèse offre, en réponse, l’argument que les institutions publiques servent de véhicule pour ajuster les définitions d’intégration et pour diriger notre compréhension de la notion de notre responsabilité sociale en tant que citoyen et citoyenne. Cette perspective s’attarde plus particulièrement sur le rôle des idées comme déterminant important dans la décision politique. Elle souligne, dans cet optique, les deux rôles de la politique canadienne sur le plan institutionnel : celui de médiateur ou facteur d’influence face aux questions d’intérêts politiques et celui d’organisateur d’idées. À partir de ces prémices, au lieu de traiter les idées et les intérêts comme deux notions distinctes, nous explorons comment ces deux notions interagissent dans un contexte institutionnel afin d’expliquer les changements politiques et la continuité. Notre étude identifie trois périodes de changement de régime : les années 70, les années $0 et les années 90. Dans chacune de ces trois décennies, les débats et luttes au sein du gouvernement canadien ont donné lieu à d’importants ajustements et pratiques institutionnels. Ces événements sont analysés comme des cas d’apprentissage politique où l’état génère une nouvelle compréhension des problèmes et des ressources mobilisées pour l’administration. Tout au cours de ces trois périodes, nous voyons une continuité évidente dans le rôle focal des joueurs gouvernementaux dans l’établissement des termes et définitions d’une intégration ethnoculturelle. Cependant, vers le milieu des années $0, 111 le consensus entre plusieurs de ces acteurs s’est dégradé. Plutôt, on posait des questions concernant les demandes potentiellement déstabilisantes envers les droits de représentation et d’ethnoculturalisme dans des sociétés multinationales. Durant les années 90, un certain consensus intellectuel sous la forme d’un néolibéralisme jumelé à un mouvement critique croissant vis-à-vis du multiculturalisme comme conséquence du débat de l’unité nationale, ont incité le gouvernement à établir un nouveau modèle politique. Mots clés: multiculturalisme; diversité ethnoculturelle; citoyenneté; néolibéralisme; unité nationale; institutionnalisme historique iv ABSTRACT This thesis explores the dynamics ofpolicy reform and the management of etbnocultural diversity in Canada. It asks how changes to the Govemment of Canad&s multiculturalism program can be understood throughout periods of institutional reform and program rationalisation. In offering an answer, this thesis argues that public institutions serve as a vehicle for adjusting the terms of integration as well as contributing to our understanding ofcitizenship. This perspective pays particular attention to the role of ideas as an important determinant in policy making. At the same time, it highuights the institutional setting of Canadian politics that mediates conflicting interests and structures the flow of ideas. As such, rather than treating ideas and interests as separate and unrelated variables, this thesis explores how the two interact within an institutional context to explain both policy change and continuity. Our analysis is primarily policy centred, looking at the relationship between state and society to grasp the historical and organisational factors that shape policy decisions. In our examination of multiculturalism we identify three periods ofpolicy change: the 1970s, the 19$Os, and the 1990s. In each ofthese decades the debates and struggies in the Canadian polity resulted in significant institutional adjustments and practices. These events are analyzed as instances of policy leaming, wherein the state generated new understanding of problems and mobilized resources for administration. Across three decades of change, we find substantial continuity in the central role played by state actors in establishing the terms of ethnocultural integration. However, by the mid 1 9$Os the consensus among many ofthese same state actors had broken down. In its place, questions arose about the potentially destabilizing demands for ethnocultural and V representation rights in multinational societies. We find these concems to have served as vital adjuncts in the wider debate over state support for cultural diversity. By the 1990s, sufficient intellectual consensus in the form of neo-liberalism coupled with the growing criticism towards multiculturalism as a consequence of the national unity debate guided state action towards a new policy model. Keywords: multiculturalism; ethnocultural diversity; citizenship; neo-liberalism; national lmity; historical-institutionalism vi TABLE 0F CONTENTS RÉSUMÉ iii ABSTRACT y ACKNOWLEDGEMENTS ix CHAPTER 1: Managing Diversity: Institutions, Ideas and Public Agendas Introduction 1 1.1 The Argument in Brief 4 1.2 Ethnocultural Diversity and State Intervention: A Framework for Analysis 10 1.3 Organization ofthe Thesis 2$ CHAPTER 2: Citizenship and Multiculturalism: Managing Difference in an Ethnoculturally Diverse State Introduction 30 2.1 Citizenship and Belonging 33 2.2 Citizenship and Identity Politics 42 2.3 Recognising Citizens: Different Strategies for Managing Diversity 50 Creating Citizens by Assimilation 51 $egregation: $eparate — and Often Unequai — Citizenshzps 55 Integration: Out ofliany, One Citizenshz 61 Mutticutturaiism: An Ideal Unmatched by Reaiity? 63 Conclusion 70 CHAPTER 3: Building the Mosaic: The 1960s and 1970s Introduction 74 3.1 Postwar Citizenship and Immigration Policies: Opening the Door to Diversity 76 Changing the Face ofCanada: Immigration Policy 79 3.2 The Royal Commission on Bilingualism and Biculturalism $5 3.3 Ethnocultural Mobilisation to the Royal Commission 90 3.4 Beyond Mobilisation: New Ideas and Public Prescriptions 94 3.5 Making Claims: The Ideas and Identity ofa Third force 97 3.6 The Multiculturalism Agenda Emerges 99 MulticulturaÏism as PoÏicy Making 101 From Recognition to Definition: The Problem Takes $hape 102 From Definition to Implementation: The Policy is FormuÏated 106 From Implementation to Evaluation: Phase One Begins 113 Conclusion 120 vii CHAPTER 4: Consolidating and Contesting Multicuhuralism: The 1 980s Introduction 124 4.1 Embedding Ideas 126 The Charter ofRights and Freedoms 129 The Multiculturalism Act 139 4.2 Contesting Ideas 151 Employment Equity 152 The Meech Lake Accord 165 Conclusion 172 CHAPTER 5: Redefining the Multicultiiral Agenda: The I 990s Introduction 176 5.1 Introducing Ideas: Multiculturalism and the National Mood 179 The Party $ystem 183 Commissions and Constitutional Accords 194 Public Dissenters 207 5.2 Embracing Ideas: Multiculturalism and the New Policy Consensus 214 The New Program Takes Shape 219 Conclusion 226 CONCLUSION: Ethnocultural Diversity and Policy Reform in the Canadian Political System 231 APPENDIX 1: Announcement of Implementation of Policy
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