Understanding Government Decision-Making: Canada’s Disaster-Relief in Haiti and Pakistan Aaida Aziz Mamuji A thesis submitted to the Faculty of Graduate and Postdoctoral Studies in partial fulfillment of the requirements for the Doctorate in Philosophy degree in Public Administration Faculty of Social Sciences School of Political Studies University of Ottawa © Aaida Aziz Mamuji, Ottawa, Canada, 2014 For my Mama and Abu Jaan. Praying that you always remain pleased with me. And to Coach Gavin. Third time lucky. ii Abstract Canada coordinates its responses to natural disasters abroad through implementing its ‘whole-of-government’ policy framework. The two largest natural disasters that struck in 2010 were the January earthquake in Haiti and the flooding in Pakistan seven months later. In contrast to the fast and robust earthquake relief provided to Haiti, Canada’s response to the Pakistan floods was minimal, especially when considering the extent of damage sustained. This dissertation applies a public administration lens to trace factors that led to the Government of Canada’s 2010 disaster-relief decisions. It develops a multi-level theoretical framework to holistically explore the role of problem-definition in shaping decision-making. It applies historical institutionalism at the macro level; recognizes the role of case-specific details and arenas at the meso level; and uses the logic of appropriateness to identify informal institutions affecting individual action at the micro level. Analysis of interviews, government documents and media coverage indicates that bureaucratic actors involved in the whole-of-government approach recognize that their role is ultimately removed from final disaster-relief decisions. There is an informal acceptance that political will, more than needs in the disaster-affected region, shapes implementation decisions. Consequently, technical assessment is inadvertently affected, and recommendations reflect what is deemed most in line with ministerial disposition to assist. The primary motivators for Government of Canada action are found to be the gaining of public support or the need to subdue targeted criticisms. Findings indicate that as a result of its media appeal, there was a strong incentive for the deployment of military assets in response to the earthquake in Haiti, even when doing so was not in the best interest of the affected region. Where Canada could respond only with non-military means, there was less incentive for action. This leads to supply-driven relief rather than a needs-based humanitarian response. With the developed theoretical framework, process-mapping and media analysis methodologies, and the actor-centred approach adopted, the dissertation makes theoretical and empirical contributions to existing public administration literature on decision-making and problem definition. It also presents a hitherto unexplored perspective on donor behaviour for consideration by international relations and development scholars. iii Acknowledgements In the name of God, the Most Gracious, the Most Merciful. All that is, is due to Him. He is the facilitator of everything. God has placed people in my life who have enabled me to successfully complete this doctoral journey. For this blessing, amongst all His blessings, no Praise will suffice. I share a few words with these special people here. My loving parents, from the moment I was born, you have sacrificed so much to give me a life full of opportunity. No words of appreciation can do justice to your unconditional love. I pray for your acceptance into the highest ranks of Paradise. I love you dearly. My brother Aadil, your encouragement and support light me up in ways that you do not know. You are my rock. My amazing sister K, your faith in me empowers me. There is so much that I have learnt from you, and so much about you I wish to emulate. My sister Hayat, since I was a little girl I have had your footsteps to follow. You paved the path, and I pray that we always remain close. My nieces Raiyaan and Iynaara, we are together Team Mombasa. You make me want to be better every single day. Hajera, you are my voice of reason. Having you as my SAM has made me grow closer to God, and for that I am eternally grateful. One day in the summer of 2012 your eyes taught me what it means to truly love. I will never forget that moment, and I will always learn from you. Ghadeer, I am forever indebted to you for the new lenses I gained once I met you. The world became more beautiful, and I always feel most alive when I am in your presence. Thank goodness for your impetus to make vision boards and create escape routes! Memona, with the sense of wonder you bring into my life, and Khalidah, with our shared dissertation highs and lows, you have both been the push I needed during the last leg of the race: with you in my life, I feel truly blessed. Asma, my beautiful companion, you have walked with me with our arms locked, and I cannot imagine this journey having evolved in the way that it has without you. Your support, presence and motivation have been my most vital fuel. Thank you for helping me to discover me…*bow*. My supervisor, Dr. Eric Champagne, I have learnt so much from working with you. I am grateful for your continuous encouragement, and for showing me how to make results happen. Dr. Natalie Burlone, you are an amazing professor, and one that I hope I can one day be like. I appreciate you being there whenever I needed you, and for going out of your way to help me. Dr. Monica Gattinger, your insight has been invaluable. I am honoured to have had you as part of my dissertation committee. Gratitude also to Michael Bonser for answering all my questions and for opening the doors of START-IRH to me, and to Dr. Stephen Baranyi and Dr. Jeanne Marie Col, for your important input. To my coach Gavin, you nurtured my love of boxing and taught me how so much about the sport is a metaphor for life. I am ever grateful for your support, inside and outside the ring. And finally to my special Imane, with whom I’ve shared my most treasured Ottawa memories, and all my MAC Ottawa sisters: thank you for being my family away from home. Sincere gratitude to you all. iv Table of Contents Abstract ............................................................................................................................................ iii Acknowledgements ....................................................................................................................... iv Table of Contents ............................................................................................................................ v List of Tables .................................................................................................................................. vii List of Figures ............................................................................................................................... viii Abbreviations .................................................................................................................................. ix RESEARCH PROBLEM & STRATEGY Chapter 1.0. Introduction ............................................................................................................ 1 1.1. Understanding the Varying Response to the 2010 Natural Disasters ..................................... 5 1.2. Research Questions ..................................................................................................................................... 8 1.3. Theoretical and Empirical Contributions to Knowledge ........................................................... 10 1.4. Summary of Findings and Structure of the Dissertation ........................................................... 14 Chapter 2.0. Literature Review ............................................................................................... 16 2.1. Canada’s Foreign Policy: Review of Contemporary Literature ............................................... 17 2.2. Understanding Government Decision-Making ............................................................................... 25 2.3. Aid Patterns: Theories and Observations ........................................................................................ 31 2.4. Coordination in Disaster Research ..................................................................................................... 38 Chapter 3.0. Theoretical Framework ................................................................................... 46 3.1. Macro-Institutional Analysis ................................................................................................................. 48 3.2. Meso-Contextual Analysis....................................................................................................................... 53 3.3. Micro-Foundational Analysis ................................................................................................................ 58 Chapter 4.0. Research Methodology ...................................................................................... 69 4.1. Epistemological Orientation .................................................................................................................. 69 4.2. Research Design .......................................................................................................................................... 71 4.3. Data Gathering Sources ..........................................................................................................................