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New Pathways in Resource Extraction Policy Processes

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New Pathways in Resource Extraction Policy Processes Centring Community: New Pathways in Resource Extraction Policy Processes by Susan M. Manning Submitted in partial fulfilment of the requirements for the degree of Doctor of Philosophy at Dalhousie University Halifax, Nova Scotia April 2021 © Copyright by Susan M. Manning, 2021 Table of Contents List of Tables ............................................................................................................ vii List of Figures ........................................................................................................... viii Abstract .................................................................................................................... ix List of Abbreviations Used .......................................................................................... x Glossary ....................................................................................................................xii Acknowledgements .................................................................................................. xvi Chapter 1: Introduction .............................................................................................. 1 Research Context .................................................................................................... 2 Conceptual and Methodological Approach .............................................................. 8 Argument ............................................................................................................. 10 Significance of Research ....................................................................................... 13 Chapter Outline .................................................................................................... 14 Chapter 2: Situating Resource Extraction in Canada’s North ...................................... 17 Theorizing the North ............................................................................................. 18 The Canadian Resource Curse ............................................................................... 24 Explanations of the Resource Curse ......................................................................... 25 Dutch Disease........................................................................................................ 26 Conflict .................................................................................................................. 27 Institutions and Democratic Malfunction ............................................................. 28 Profit and Power – Extractivism, Capitalism, Imperialism, Colonialism, Racism .. 30 Exacerbating Inequalities ...................................................................................... 34 Resources and Canadian Political Economy ......................................................... 36 The Case for the Canadian Resource Curse .............................................................. 38 Multilevel Politics and Resource Governance ........................................................ 42 ii Relations of Multilevel Politics .................................................................................. 42 Multilevel Politics and Marginalized Groups ............................................................ 46 Gaps in Multilevel Politics ......................................................................................... 52 Resource Extraction as Multilevel Politics ................................................................ 53 Intersectionality and Power in Policymaking ......................................................... 54 Resource Extraction and Justice ............................................................................ 60 Conclusion ............................................................................................................ 66 Chapter 3: Methodology and Methods...................................................................... 68 Interpretivism in Political Science ......................................................................... 68 Feminist Critical Policy Studies .............................................................................. 70 Impact Assessments as Spaces of Power ............................................................... 72 Methods ............................................................................................................... 74 Policy Scan ................................................................................................................. 74 Interviews .................................................................................................................. 76 Case Studies .............................................................................................................. 81 Analysis ................................................................................................................ 85 Some Reflections on Challenges and Lessons Learned ........................................... 88 Chapter 4: Institutional Dynamics and Processes of Power in IA ................................ 93 Overview of Canadian IA Processes ....................................................................... 95 Processes of Power in IA ....................................................................................... 98 Definition ........................................................................................................... 100 Impacts .................................................................................................................... 100 Benefits ................................................................................................................... 105 Indigenous Rights .................................................................................................... 107 Boundary Construction ....................................................................................... 109 iii Spatial and Temporal Boundaries ........................................................................... 110 Boundaries and Hierarchies of Impacts .................................................................. 113 Negotiation ........................................................................................................ 116 Accountability .................................................................................................... 118 Accountability Through IA Legislation .................................................................... 119 Accountability in Impact-Benefit Agreements (IBAs) ............................................. 122 Underutilized Mechanisms of Accountability ......................................................... 125 Gender and Diversity Analysis (GDA) .................................................................. 125 Disability Policy ................................................................................................... 130 Human Rights ...................................................................................................... 133 Decision-Making ................................................................................................. 136 Conclusion .......................................................................................................... 146 Chapter 5: Processes of Power and Inclusion in Impact Assessment ......................... 149 Representation ................................................................................................... 150 In Decision-Making and Advisory Structures .......................................................... 152 Representation in Public Participation Opportunities ............................................ 157 Recognition ........................................................................................................ 159 Recognition of Marginalized Groups ...................................................................... 161 Recognition of Marginalized Knowledges .............................................................. 164 Participation ....................................................................................................... 168 Participation of Individuals in IA ............................................................................. 169 Participation of Other Community Actors .............................................................. 178 Consultation ....................................................................................................... 183 Conclusion .......................................................................................................... 190 Chapter 6: Limiting Space in IA: Procedural and Recognition Injustice ..................... 193 Case Study Contexts ........................................................................................... 195 iv Voisey’s Bay Nickel Mine ........................................................................................ 195 Red Chris Porphyry Copper-Gold Mine ................................................................... 201 Keeyask Generation Project .................................................................................... 206 Site C Clean Energy Project ..................................................................................... 210 Examining Procedural Justice .............................................................................. 215 Public Participation Opportunities .......................................................................... 216 Funding
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