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The Limits of Compassion and Risk Management in Toronto School Safety from 1999-2007

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The Limits of Compassion and Risk Management in Toronto School Safety from 1999-2007 ‘Don’t Under React’: The Limits of Compassion and Risk Management in Toronto School Safety from 1999-2007 by Zachary P. Levinsky A thesis submitted in conformity with the requirements for the degree of Doctor of Philosophy Centre for Criminology & Sociolegal Studies University of Toronto © Copyright by Zachary P. Levinsky 2020 ‘Don’t Under React: The Limits of Compassion and Risk Management in Toronto Schools Safety 1999-2007 Zachary P. Levinsky Doctor of Philosophy Centre for Criminology & Sociolegal Studies University of Toronto 2020 Abstract The purpose of this dissertation is to situate school safety policies within the emergence of organizational risk management. I argue that the turn to a risk management of everything re-shapes safety and discipline in the school system. Concomitantly, the compassionate and pastoral aspects of schooling re-shapes risk management. This is important because risk management and school discipline practices are often described as cold exclusionary turns whereas my research shows that the inclusionary pull and dream of mandatory education, if never fully realized, impacts how risk management is achieved in the school system. The main question addressed by this dissertation is how does the Toronto District School Board (TDSB) manage risk to students, educators and its reputation by looking at three distinct areas: 1) the disappearance of zero-tolerance policies; 2) the role of the centralized Safe Schools Office in handling student discipline; and 3) the organizational responses to school shooters via lockdown and threat assessments. As part of this turn to risk management, institutions are becoming insular to external research so I had to rely on creativity to collect data. I attended training seminars and received resources normally reserved for school principals and conducted by senior ii administrators in the TDSB. I augmented the data from the training materials with TDSB policy and procedural memoranda; debates by politicians (School Board Trustees and Members of Provincial Parliament) and the work that emerged from two TDSB led task forces on discipline and safety. The research provides greater nuance to the literature by focusing on how inclusivity and compassion have implications for risk management strategies. The research also suggests how to approach and stifle purely exclusionary policies. iii Acknowledgments A journey of this nature, and this length, means that I have a great deal many people to thank. I was a benefactor of many conversations at the Centre for Criminology and Socio-Legal Studies. These interactions, long or short, helped shape my ideas, thoughts and life. Thank you for letting me grow at the Centre. Thank you to my supervisor Kelly Hannah-Moffat who let me learn to trust my capabilities and the spaces to make mistakes and learn from them. You are a fine role model to have with your tireless work ethic, your sharp intellect but also with your little gestures and words. I appreciate all the time you have spent helping me reach this point. I hope to carry on the lessons learned to future students. Thank you to my committee members, Mariana Valverde and Kathleen Gallagher. I know I can be a trying student sometimes who peculiarly marches to his own beat while not being very communicative so thank you for all your time, patience and work that you have done for me. Because I am not as expressive as I could be in person, you are probably not aware of how impactful your expertise and knowledge has been on my work. I hope this little thanks to you conveys the inspiration your work continues to be. I also want to thank all the Professors at the Centre – every one of you played a major role in my education through classes to informal chats. I wish every developing scholar could be so lucky to have the same experiences but I know that is not the case. We are lucky because of the work you do to cultivate the Centre. I want to particularly acknowledge the funding I received through the John Beattie Research Fund since this dissertation would not have been possible without that support. To Rashmee Singh, Sarah Turnbull, Vanessa Iafolla, Dena Demos, Anita Lam, Amy Spendik, Kerry Sanford and Tara Marie Watson – thank you for allowing me to go on each of your individual journeys. Words cannot express how lucky I am to have shared time with you. To Akwasi Owusu-Bempah, Nicole Myers, Natasha Madon and Holly Pelvin – your enthusiasm always helped re-invigorate and re-stimulate me during times of doubt. To the late David Sealy, thank you for talking with me about anything and listening (and then maybe talking some more). I miss the authenticity of thought you embodied. Monica Bristol, Lori Wells and Jessica Chlebowski – just thanks for everything and keeping me honest (or at least, trying to). iv I was also lucky (cursed?) to teach during my time in graduate school and I would like to thank all the students who put up with my attempts to work though my ideas and chapters in class. I particularly want to thank everyone at UTM for giving me a home during my thesis. To my friends beyond the throes of academia, but not beyond influencing my intellectual development, I thank you. Gary, Kim, Doug, Michael, Mike, Don, Kevin, Bryan, Bec, Nadine, Gordon, Nhi, Alem, Debbie, John, Don, Claire, Andrew, Alexis – I benefitted greatly from the spaces of conversations you all created, not always related to my work, to keep me grounded and engaged. I could not have finished without my family, developing at the same time as the chapters. My mantra, borrowed from the Simpsons, grew from ‘do it for her’ into ‘do it for them’ and often kept me going. Tatum, your relentless (may I say stubborn?) pursuit of whatever idea enters your mind and your quest for answers keeps me resolute. Camden, your remarkable resiliency and expressions of pure joy keep me filled with awe. Thank you for teaching me in a different way. Jodie, thank you for going on this adventure with me and thank you for putting up with me and encouraging me – even though there were times I didn't want to hear it. To quote a song: “All my troubles and all my fears dissolve in your affection.” To all the students, parents and educators who may happen upon this little dissertation: I have tried to provide a slice of developments in the realm of safety in schools. These are your lived and shared experiences and I am not sure if you will find the stories within these pages comforting or terrifying. The life-long student in me knows it is important to create safe spaces so children can have the chance to grow but he also wonders who benefits from that safety and who is hindered in this rise of risk and insecurity. The parent in me knows how integral teachers are to raising our children but he also wonders what impacts the language of choice and the routinizing lockdowns will have on my two young children. The educator in me knows the responsibility to perform such a vital role can be as rewarding as it is stressful but he wonders how these shifts will make teaching more stressful and less rewarding. I do not pretend to have these answers but such questions will be with me for the rest of my life. Finally, I owe a lot more than I was willing to admit to my mother who passed away before I could finish. She was an educator who worked with students other teachers could not handle. She played important roles in the Women’s Federation of v Teachers, the Toronto Teachers’ Federation and was given the trust to develop a new program for teaching so-called behavioural students. What amazes me is that in her 30 plus years as a teacher, she never stopped learning how to become a better educator. My mother, even when she was close to retirement, could never sleep before the first day of school (known as Labour Day in Canada). She could never fully explain this inability but we knew it had to be some combination of stress and excitement for a new school year. It was poetic that she passed away on Labour Day – finally able to rest. This is for her. vi Table of Contents Chapter 1: Introduction .......................................................................................................... 1 Risk Management in Institutions .................................................................................................. 5 Methodology ...................................................................................................................................... 11 History of the Present and the Genealogical Method ................................................................... 11 Data Sources .................................................................................................................................................. 15 The School as a Site of Research ........................................................................................................... 19 Chapter 2: A Genealogy of Zero-Tolerance in Ontario Student Discipline ........ 26 Introduction ...................................................................................................................................... 26 Zero-Tolerance: The History of an Idea ................................................................................... 28 The Educational Context in Ontario: From Mike Harris to the First SSA ..................... 31 Origins of the SSA : Implicit Zero-Tolerance and Risk Management .............................. 35 Zero-Tolerance at the Provincial Level: (Not) Becoming the United States ............... 42 Zero-Tolerance in the TDSB:
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