Canadian Refugee Policy Paradigm Change in the 1990s: Understanding the power of international social influence by (Sandy) James Alexander Irvine A thesis submitted in conformity with the requirements for the degree of Doctorate of Philosophy Graduate Department of Political Science University of Toronto © Copyright by James A. Irvine (2011) Abstract Canadian Refugee Policy Paradigm Change in the 1990s: Understanding the power of international social influence. PHD. 2011. James (Sandy) Alexander Irvine. Department of Political Science. University of Toronto This dissertation explores the factors which contributed to a change in the paradigm that framed Canadian refugee policy over the course of the 1990s. This change is characterized in the dissertation as a shift from a refugee protection paradigm that dominated policy-makers’ thinking in the 1970s and 1980s, to a security-control paradigm by at the end of the 1990s. This change is puzzling because it occurred prior to the events of 9/11 rather than in response to them and because domestic motivations for change do not provide a complete explanation of the shift. The dissertation argues that although factors in the domestic and international environments may have enabled paradigm change, a more complete explanation of shift needs to consider the process through which Canadian policy-makers were socialized into a developing international norm. This process of international socialization occurred through bureaucrats’ international interaction in bilateral and Regional Consultative Processes akin to Anne-Marie Slaughter’s global government networks. Using data generated from primary document analysis and a series of interviews of key policy-makers this dissertation maps paradigm change over the two periods. This data is then used to provide evidence of the importance of bureaucratic socialization through a global government network for migration in explaining this change. ii Acknowledgments I am very grateful to my supervisor and committee for their advice and encouragement. Nancy Bertoldi, my supervisor, and Grace Skogstad have provided such important practical and professional guidance throughout this process that I am sure I would not have finished without their help. Much of the strength of this research is a result of their hard work. They have been great teachers. I hope to model my own style of teaching after them. I have also greatly appreciated the advice of Phil Triadafilopoulos and Linda White who have helped sharpen my thinking as well as improve the presentation of this material. Finally, I am grateful to Myer Siemiatycki, who with my committee, has helped me see how I might push my research in new directions One of my greatest debts of gratitude is to those who agreed to be interviewed and gave their valuable time for this research. Without question, the participation of those interviewees greatly increased the quality of my research and the pleasure of conducting it. These individuals were very approachable, willing to engage and committed to contributing to the study of Canadian refugee policy. Amongst all interviewees there was a very real concern and commitment to the issue of international migration and refugee policy in Canada. International migration and refugee policy is without a doubt one of the most complicated and difficult problems facing states. Creating policy, practices and thinking that contributes sound solutions to very real and multifaceted problems with few clear cut answers, was and continues to be, a difficult task for this group of individuals. All of the interviewees demonstrate a genuine concern and commitment to their work. They represent a committed group of individuals seeking solutions to a set of tough problems. I am also indebted to the people at the CIC library who help locate important documents for this research. Several other colleagues have - in a variety of ways - supported my work and have helped me produce better research. Thanks to Emanuel, Nicole, Lilach, Markus, Kim, Mark, Tina, Nisha, Allona, Ruben, Brian, Kim, Debora, Derek, Barry, Dejan, Patti, Yasmine, Sherry and the people who have commented on my work at various conferences and workshops. Three friends – Vandna, Joel and Chris - have provided immense personal and professional support. They have greatly increased my enjoyment of academic life and have encouraged me to be persistent in my work. My research has been greatly improved by the time that I have spent with these three and through their efforts. They provided a place to test ideas that have allowed me to work through many of my decision about those steps that should be taken and others that should be avoided. They have also been a tremendous source of information. Most importantly they have become some of my closest friends. Friends and family have provided great personal support – from offering perspective on work-life balance to babysitting. This support has also made my research possible. Thanks to Jonathan, Nicky, Joanne, Joel, Vandna, Chris & Eugenia, Marianne & Peter, Kathryn, Simon, the Posavads, Veldstras, Paynes, Lammels, Binns, Cripps, Guetters, and Schofields. Mum & Dad, Ann & David, and Uncle Everett & Aunt Margaret have provided me with much love and support that have made my pursuit of an academic career possible. Alastair, Hannah and Thomas – you showed up along the way and have provided more love and excitement than I could have imagined possible. I’m sorry this work got in the iii way some days and made me grumpy on other ones. Sarah, it has been a long road (14 yrs and the Atlantic ocean) since I chose a new car over pursuing a PhD. You’ve tolerated a lot of change on my behalf. For the love and support in so many ways, and for so long – thank- you. iv Table of Contents Acknowledgements iii List of Abbreviations viii List of Figures ix Chapter 1. Introduction 1 I. Introduction 1 II. Migratory Pressures in Context: Security, Control and Refugee Protection 3 III. Development of the Argument, Research Design and Methods 7 IV. Contribution of this Research 12 V. Chapter Outline 16 Chapter 2. Literature Review and Theoretical Framework 19 I. Introduction 19 II. Conceptualising Paradigms and Change 23 Policy Paradigm 23 Paradigm Change 27 Who Learns? Elected Officials and Senior Bureaucrats 28 III. Explaining Paradigm Change: Motivation and Processes 31 Rational Learning and Paradigm Change 31 Interaction, Community-Building, and Processes of International Socialisation 37 Global Government Networks and Seminar Diplomacy: Explaining International Processes of Bureaucratic Socialisation and Domestic Paradigm Change 43 IV. Research Framework 47 V. Conclusion 50 Chapter 3. The Protection Paradigm 52 I. Introduction 52 II. Defining Paradigm Change 53 The Protection Paradigm 54 The Security-Control Paradigm 55 III. The Historic Context of Paradigm Change 58 IV. The Protection Paradigm 1975-1989 67 Problem Definition 67 Goals 77 Identity 83 Parameters of Appropriateness 89 V. Conclusion 95 v Chapter 4. The Security-Control Paradigm 96 I. Introduction 96 II. The 1990s: Transition and Paradigm Change 96 III. Mapping Paradigm Change: 1995-2001 99 New Problem Definition 99 New Goals 109 A New Identity 114 New Parameters of Appropriateness 120 Changing Practices and Policies 126 IV. Conclusion 129 Chapter 5. Sources of Canadian Paradigm Change: New Pressures, Environmental Change and Policy Learning 131 I. Introduction 131 II. Changing Contexts: Migration Trends and Specific Events 132 Migration Trends and Shifting Migration Pressures 133 Migration Events 140 Trends, Events and Paradigm Change 147 III. Changing Contexts: A New Political Landscape and Increased Public Pressure 154 The Changing Political Landscape: New Government, the Rise of the Reform Party and the Decline of the New Democratic 155 Party Changing Public Opinion 160 IV. International Pressure: The United States 165 V. Conclusion 167 Chapter 6. Global Government Networks, International Socialisation and Canadian Paradigm Change 169 I. Introduction 169 II. International Norms and Global Government Networks: Canadian Participation and Paradigm Change 170 An International Norm 170 Global Government Networks and New Ideas 172 III. Community Building and the Processes of Socialisation 181 Community-building 182 Social Incentives 184 Processes of Persuasion 188 IV. International into the Domestic: Constructing Fit and Changing Paradigms 193 V. Conclusion 201 vi Chapter 7: Conclusion 204 I. Introduction 204 II. Canadian Paradigm Change: From Refugee Protection to Security and Control 204 III. Explaining Paradigm Change 206 IV Contributions 209 V. Further Research 213 Appendix A. 216 Works Cited 221 vii List of Abbreviations ADM Assistant Deputy Minister CBC Canadian Broadcasting Corporation CCR Canadian Council on Refugees CEIC Canadian Employment and Immigration Commission CIC Citizenship and Immigration Canada, Department of CSIS Canadian Security and Intelligence Services CUSFTA Canada-US Free Trade Agreement DM Deputy Minister DMI Department of Manpower and Immigration EIAC Employment and Immigration Advisory Council EIC Employment and Immigration Canada, Department of HoC House of Commons IAB Immigration Appeal Board IDP Internally Displaced Persons IGC Intergovernmental Consultations on Asylum, Refugees and Migration Policies in Europe, North America and Australia IOM International Organisation for Migration IRB Immigration and Refugee Board IRPA Immigration and Refugee Protection Act (2002) LRAG Legislative Review Advisory Group MP Member