A Case Study of the Healthy Child Manitoba Policy Strategy
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An Analysis of a Horizontal Public Policy Approach Involving Education: A Case Study of the Healthy Child Manitoba Policy Strategy by Jean-Vianney Auclair A Thesis submitted to the Faculty of Graduate Studies of the University of Manitoba in partial fulfillment of the requirement for the degree of DOCTOR OF PHILOSOPHY Faculty of Education University of Manitoba Winnipeg Copyright © 2018 by Jean-Vianney Auclair AN ANALYSIS OF THE HEALTHY CHILD MANITOBA POLICY STRATEGY i Abstract Governmental institutions are now called to address social problems that have an increased level of complexity. For this reason, innovative collaborative policy approaches are being implemented to find better ways of identifying policy solutions. Insights from the scholarly literature in the field of public administration indicate that horizontal policy approaches involving the participation of multiple policy actors, in the form of networks, represent a promising approach for addressing wicked problems. The Government of Manitoba implemented in year 2000 a horizontal policy strategy, referred to as Healthy Child Manitoba, reflecting the holistic development of children. This cross-departmental policy strategy was designed to address several factors located inside and outside of schools that not only have an influence on the broad development of children but and also on their success in schools. Its main purpose was to improve the well-being of children. This research study concerns itself with the analysis of the Healthy Child Manitoba Policy Strategy from an educational perspective. The central question being examined in this study was to determine how the policy strategy evolved over time as an intersectoral policy strategy and what were its benefits and challenges perceived by key policy actors as it relates to the field of education. The data collection conducted for the study was based on a documentation analysis as well as on semi-structured interviews conducted with elected and non-elected public policy actors as well as with non-public policy actors. The findings of the study indicate that the policy strategy came about as a result of non-partisan actions, activities, and events that included the participation of the education system. With a well delineated government apparatus, the policy strategy provides a number of opportunities, some more effective than others, to influence policy decisions. While the policy strategy may not be fully achieving its ambitions, the findings of this study indicates that Healthy Child is well AN ANALYSIS OF THE HEALTHY CHILD MANITOBA POLICY STRATEGY ii positioned for improving and extending the effectiveness of the more conventional development and implementation of educational policies led by the Department of Education. Keywords: poverty, wicked problems, policy networks, horizontal policymaking AN ANALYSIS OF THE HEALTHY CHILD MANITOBA POLICY STRATEGY iii Acknowledgements The completion of this research project was possible because of the culminating effect of significant contributions made by a number of individuals. I would like to start by expressing my most sincere gratitude to each one of the twenty- four informants who have generously accepted to participate in this study. No matter the role they played, either as educators or as members of the public service, the information and insights they shared during the interview process was priceless and critical to the quality of the analysis conducted. Without the detailed responses they provided, completing this research would simply not have been possible. I would like to thank Leanne Boyd in particular for having literally allowed me to access her archived treasures located in the Healthy Child Manitoba Office. I also want to thank the members of my advisory committee starting with Dr. Jon Young, the main adviser for this research project. Thank you very much Jon for your promptness and sustained support during this project. Your wise counsel throughout this ambitious task has been tremendously important to me and very much appreciated. Your comments were insightful and always informed by academic rigour. Your attention to details and constant feedback and encouragements were critical ingredients were that encouraged me to persevere. I have the highest respect for you, both as a scholar but also, perhaps more importantly, as a wonderful and caring person. Your thoughtful input made the whole process much easier to navigate. You have been a tremendous mentor. I also want to thank the other members of the committee, Dr. Raymond Hébert, Mr. Paul Vogt, as well as Dr. John Wiens. Your critical examination of my work, your questions, and AN ANALYSIS OF THE HEALTHY CHILD MANITOBA POLICY STRATEGY iv your constructive feedback, primarily in the last writing stages of the dissertation were highly appreciated. There is no doubt in my mind that you have incited me to go beyond the ordinary. Finally, the completion of this project has only been possible because of the inequivalent support of my family and primarily because of the support of the love of my life, Monique. Merci Monique. Merci de ta patience, de ton appui et de ton encouragement tout au long de cette aventure. Je te serai pour toujours redevable et plus que reconnaissant pour tous les sacrifices qui t’ont été imposés du début jusqu`à la fin de cette folle course contre la montre. Alexie, Adelle, Augustin, Éloise, Élianne, Dominique, Alexandre, Yvan, Stacey, Noël, mais surtout toi Monique, je suis désolé de mes trop longues et trop fréquentes absences. Je vous remercie de votre confiance, de votre affection mais surtout de votre amour. AN ANALYSIS OF THE HEALTHY CHILD MANITOBA POLICY STRATEGY v Dedication Pour toi maman, qui a su susciter en moi le désir d’apprendre et de me dépasser. Je t’en serai toujours très reconnaissant. AN ANALYSIS OF THE HEALTHY CHILD MANITOBA POLICY STRATEGY vi Table of Contents Abstract ........................................................................................................................................... i Acknowledgements ...................................................................................................................... iii Dedication .......................................................................................................................................v Table of Contents ......................................................................................................................... vi List of Tables ................................................................................................................................ xi List of Figures .............................................................................................................................. xii Chapter One Introduction Healthy Child Manitoba: The Context .............................................................................................2 Historical Perspective ......................................................................................................................6 Statement of the Problem ...............................................................................................................11 An Education Policy Problem ............................................................................................12 Public Administration’s Response .....................................................................................16 Poverty: A Significant Wicked Problem in the Shadow of Healthy Child Manitoba ..................................................................................................................19 Thesis Statement ............................................................................................................................23 Research Questions ........................................................................................................................23 Overview of the Methodology .......................................................................................................25 Definitions......................................................................................................................................26 Limitations .....................................................................................................................................29 Significance of the Study ...............................................................................................................31 Overview of the Dissertation .........................................................................................................32 Chapter Two Literature Review and Theoretical Framework Introduction ....................................................................................................................................34 Horizontal Policymaking: The Perspective of the Public Policy Actors .......................................34 The Ambitions of Horizontal Policymaking ......................................................................35 The Challenges of Horizontal Policymaking .....................................................................37 Policy Networks .............................................................................................................................45 Criteria for Inclusion and Exclusion of Literature .............................................................45 Policy Networks–Interest Intermediation ..........................................................................50