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Networks Are Not Enough: Urban Governance and Workforce

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Networks Are Not Enough: Urban Governance and Workforce NETWORKS ARE NOT ENOUGH URBAN GOVERNANCE AND WORKFORCE DEVELOPMENT IN THREE ONTARIO CITIES Allison Bramwell A thesis submitted in conformity with the requirements for the degree of Doctor of Philosophy in Political Science Graduate Department of Political Science University of Toronto © Copyright by Allison Bramwell 2010 ii NETWORKS ARE NOT ENOUGH Urban Governance and Workforce Development in Three Ontario Cities Allison F. Bramwell Doctor of Philosophy 2010 Department of Political Science University of Toronto Abstract Cities everywhere are struggling to develop strategic responses to vast and rapid economic changes brought about by globalization while mediating the social impact of economic change. Workforce development is a policy area that straddles the divide between economic development and social welfare imperatives. This thesis examines local networks supporting workforce development activities in three Ontario cities in order to better understand the dynamics of urban governance in Canada. The analysis focuses on the two central questions of whether cities have the political autonomy to develop their own strategic workforce development networks, and if so, do these networks reflect efforts to integrate economic development and social welfare considerations. It engages with three theoretical perspectives that offer different explanations for local governance dynamics: neo- institutionalist theories argue that higher institutional structures shape and constrain local governance efforts; the critique of neo-liberalism argues that local governance dynamics will iii be dominated by the interests of capital for economic development; and theories of urban governance argue that cities have the autonomy to shape their own governance efforts. Theories of urban governance also focus analytical attention on how the patterns of interaction between local state and non-state actors shape local governance dynamics. The study does find evidence of local workforce development networks, and finds that these networks vary according to the patterns of interaction between local state and non-state actors. From a neo-institutionalist perspective, however, the study also finds that macro- institutional policy frameworks shape and constrain these local governance efforts. iv Acknowledgements I am deeply indebted to many people for the great deal I learned throughout my doctoral experience. First and foremost, I would like to thank David Wolfe, scholar, advisor, mentor, and friend. Our long and fruitful collegial relationship has been one of the most cherished aspects of this process for me. The members of my examining committee, Graham White, Neil Bradford, Nelson Wiseman, and Tod Rutherford each challenged me in different ways, pointed out conceptual shortcomings, and provided insightful ways to address them. I am grateful for their expertise and scholarly engagement with my work. The Program on Globalization and Regional Innovation Systems (PROGRIS) at the Munk Centre for International Studies and the Innovation Systems Research Network (ISRN) provided invaluable academic and professional opportunities to interact with scholars from Canada and around the world. Many talented, interesting and committed people graciously gave their time to participate in interviews. Without them, this work would not exist. Whether navigating the vagaries of Word or scoping for a martini after a long day of conferencing, my colleagues, Tijs Creutzberg, Jen Nelles, and Deborah Huntley, have been a constant source of stimulation, encouragement and comradery. Ronnie Beiner will always have my special gratitude for keeping the flame lit when it was in grave danger of going out. Finally, at the end of it all are those who were with me when I began. I would like to thank my Jonathon who still makes everything possible, my Chloe and my Maya who always make everything clear and Max, Achilles, Apple, and Soleil who remind me about patience, loyalty, and keeping my sense of humour. XOX to you all. v Table of Contents Abstract ....................................................................................................................................... ii Acknowledgement .................................................................................................................... iv List of Tables ........................................................................................................................... viii Chapter 1: Cities and Workforce Development ............................................................. 1 Introduction ............................................................................................................................... 1 Active Labour Market Policy and Local Workforce Development ................................... 3 The „New Localism‟ and Its Critics: Questions of Local Autonomy and Social Inclusion ................................................................................................................................... 13 „Top-Down‟ or „Bottom-Up‟?: Three Theoretical Explanations ..................................... 24 Study Approach ....................................................................................................................... 28 Methodology ............................................................................................................................ 34 Structure of the Thesis ............................................................................................................ 40 Chapter 2: The „Top Down‟ Macro-Institutional Context for Local Workforce Development: Labour Market Policy in Canada and Ontario .................................... 42 Introduction ............................................................................................................................. 42 „Top-Down‟ or „Bottom-Up‟?: Comparative Labour Market Institutions and the Collective Action Problem ..................................................................................................... 43 Active Labour Market Policy in Canada and Ontario: „Top-Down‟ Macro-Institutional Constraints to Local Labour Market Planning .................................................................... 49 Local Training Boards in Ontario ......................................................................................... 61 The Conceptual Space For Local Workforce Development Networks .......................... 67 Chapter 3: „Bottom-Up‟ Political Agency: Urban Governance and Workforce Development ................................................................................................................ 72 Introduction ............................................................................................................................. 72 Workforce Development and Urban Governance ............................................................. 73 Theories of Urban Governance ............................................................................................ 78 Measuring Variation in Local Workforce Development Networks: Local Autonomy and Social Inclusion in Workforce Development .............................................................. 90 Capturing Network Capacity ................................................................................................. 94 vi Chapter 4: Hamilton: Overlapping Networks ............................................................ 97 Introduction ............................................................................................................................. 97 A Brief Profile of the City of Hamilton ............................................................................... 98 Mapping the Local Labour Market .................................................................................... 105 “The Usual Suspects”: Key Workforce Intermediaries and Constituent Networks . 111 The “Usual Suspects” at the HR Matters Workforce Development “Table”: Overlapping Constituent Networks in Hamilton ............................................................ 119 Local Autonomy and Social Inclusion In Hamilton ....................................................... 131 Chapter 5: The Waterloo Region: Siloed Networks ................................................... 137 Introduction .......................................................................................................................... 137 A Brief Profile of the Waterloo Region ............................................................................ 139 Mapping the Local Labour Market .................................................................................... 143 Workforce Intermediaries ................................................................................................... 148 Constituent Networks .......................................................................................................... 153 Keeping to Themselves: Siloed Constituent Networks in the Waterloo Region ....... 157 Local Autonomy and Social Inclusion in Waterloo Region ........................................... 165 Chapter 6: Ottawa: Fragmented Networks................................................................ 169 Introduction .......................................................................................................................... 169 A Profile of the City of Ottawa .......................................................................................... 171 Mapping the Local Labour Market ...................................................................................
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