NOTE TO USERS This reproduction is the best copy available. THE SOCiAL WELf ARE POLICY CHANGE PROCESS: cmsomn ACTORS AND THE ROLE OF KNOWLEDGE Toba Bryant A thesis submined in conforni- with the requirements for the degee of Doctor of Philosophy Facuhy of Social Work University of Toronto 8 Copyright by Toba Bvanr 2001 Bibliothèaue nationaie Acquisilions and Acquisitions et Bibliographie Services services bibliographiques 395 WMiqton Sueet 39s. nie weliingbn WONKlAON) ûlfawa ON K1A ON4 Canada CaMda The author has granted a non- L'auteur a accordé une licence non exclusive Licence aüowing the exclusive permettant a la National Library of Canada to Bibliothèque nationale du Canada de reproduce, loan, distnie or seii reproduire, prêter, distribuer ou copies of this thesis in microform, vendre des copies de cette thèse sous paper or electronic formats. la forme de micro fi ch el^ de reproduction sur papier ou sur format électronique. The author retains ownership of the L'auteur conserve la propriét5 du copyright in this thesis. Neither the droit d'auteur qui protège cette thèse. thesis nor substantial extracts fiom it Ni la thèse ni des extraits substantiels may be printed or otherwise de celle-ci ne doivent être imprimés reproduced without the author' s ou autrement reproduits sans son permission. autorisation. The Sociai WeLfare Policy Change Proces: Civil SocieQ Acton and the Rofe OfKnowledge Toba Bryant Doctor of Philosophy, 200 I Faculty of Social Work, University of Toronto A bstract This thesis examines how civil society actors in social and heaith policy use knowledge to influence policy change. This was done tfirough the carrying out of two case studies concerned with social welfare policy in Ontario. The first case considers the knowledge activities used by those advocating on behalfof tenants to oppose provisions of the Tenant Protection Act during public hearings in 1997. ïhe second case examines the use of knowledge by supponers of Wornen's College Hospital as it fought closure in 1996 during the hospital testructuring process. The study also considers the extent ro which participants collaborate with citizens to build a case for a particular policy perspective and policy outcome. A new conceptual hework of policy change was developed that builds upon Sabatier's and Hall's learning approaches to policy change. The new framework also incorporates Foucault's powerknowledge and Habermas' typology of instrumental. interactive and critical knowledge. Interviews and document review were the prime research methods used. in the first case study, seven individuals employed in housing and non-housing fields who acted to oppose provisions of the Tenants Protection Act were interviewed. In the second case study, strategists of Women's CoIlege Hospital and others associated with WeIlesIe> Hospital - ten in totaI - were interviewed about the hospitat's fight to oppose closure. Fidings illusnated how civil society actors use a diverse range of knowledge CO influence the policy change process. Participants in both cases - professional policy analysts such as lawyers, physicians and others with profsional credentials - used le& public relations, personal stories and political-sûategic approaches CO convey their knowledge about an issue. nie cases differed in the degree to which citizens defined the policy issues and how these issues were addressed in public activities. The results also show that the political identity (i.e. social clas. sexual orientation, ethnwacial characteristics, etc.) of civil society actors affects the extent to which they are able to influence the policy change process. While potiticd ideology played a role in government receptivirj to advocates' arguments in both cases, its importance depended upon the policy area being addressed. Acknowledgements I am gralefiil for the advice and encouragement provided by thesis committee members Professors Ron Manzer, Sheila Neysmith, and Irv Rootrnan. ïheir insights fiom their respective disciplines significantly strengthened the interpretations and conclusions of this research. Specid thanks to David Hulchanski, my supervisor, who encouraged me to devise my own conceptual hework and cary out a different type of policy exploration. 1 also value the contribution to this work of Mr. Ierry Richmond of the Legislarive Library. Mr. Richmond provided documents and helpfiil advice related to the hisfory of rent regdation in Ontario. This assistuice was of immense importance to me as 1 traced the twenty-year history of social policy in Ontario. Mr. Viktor Kaczkowski and his Matthe Commiîtee Branch of the Ontario Guvernment's Office of the Clerk were always helpful in my interactions with them. The Friends of Wornen's College Hospital were supportive of the research and very helpful in providing information on rhe history of the Hospital and its recent carnpaigns against closure. Hospital archivist Miss Margaret Robbin provided important information and documentation that assisted this research. 1 also thank the participants in the two case studies for their willingness to share their experiences and insights concerning the policy proces in Ontario. The findings of the thesis and my attempt to interpret the events that transpired were richly supported tbrough heir cooperation. However. al1 conclusions concerning these two cases studies of policy change in Ontario are my own. 1 also appreciate the support of my husband Demis Raphael, and fiiends Alina Gildiner, Leanne McCormack, and Cath! Worthington. Al1 of them sewe as worthy models of academic inquiry and scholarship. This research was supported by a Social Sciences and Humanhies Research doctoral fellowship. My first year of study was supponed by the awarding of a University of Tomnto Open Scholanhip administered through the Faculty of Social Work, University of Tomnto. iii Table of Contents Abstract ........................................................................... ...ii Acknowledgements .................................................................. 111 Table of Contents .................................................................... iv List of Figures and Tables ............................................................ vii... List of Appendices .................................................................. vru Chapter I: Introduction ............................................................... 1 I .1 The ProbIem .................................................................... 1 1.2 CivilSocicty .................................................................... 1 1.3 Knowledge Activities of Professional Policy Analysts and Citizens .......................... 3 1.4 Substantive Focus of Thesis ........................................................ 5 1-5 Key Questions of the Study ......................................................... 7 I .6 Structure of the Study ............................................................. 7 Chapter2 LiteratureReview .......................................................... 8 2.1 Epistemology and Knowledge Creation .............................................. 8 2.1 -1 PositivistfRationalist Paradigm .............................................. 9 2-12 Post-Positivism in Policy AnaIysis .......................................... I0 2.1 Overview of Policy Change Models ................................................. 13 2.3 Learning Approaches to Policy Change .............................................. 14 2.3.1 Advocacy Coalitions and Knowledge ........................................ 15 2.3.2 Epistemological and Political Assumptions of the Advocacy Codition Framework ..... 16 2.3.3 Policy Paradigms. Experts, and the State ..................................... 17 2.3.4 Epistemological and Political Assumptions of Policy Paradigms ................... 19 2.4 The Concept of Power in the Social Welfare Literature .................................. 22 2.5 Deconstruction and Critique Perspectives on Knowledge and Power ........................ 23 2.5.1 Foucault's Power/Knowledge Perspective .................................... 23 2.5.2 Habemas' Theory of Critical Knowledge ..................................... 25 2.6 Democratization of POIicy Expertise ................................................. 27 Chapter 3: Conceptual Framework ..................................................... 30 Chapter 4: Research Approach and Methodology .......................................... 37 4.1 Epistemological Stance ...................................................... 37 4.2 Research Design ................................................................ 38 4.3 Purposive Sampling .............................................................. 38 4.4 Data Collection Methods .......................................................... 40 4.4.1 Document Review ....................................................... 40 4.42 Indepth Interviews ...................................................... 41 4.43 Categories of Data ....................................................... 42 4.5 Data Analysis .................................................................. 42 4.6 CredibilityNalidity in Qualimtive Research ........................................... 44 4.7 Ethical Considerations ............................................................ 45 Chapter 5: History of Housing Policy in Ontario. 1975 to 1997 and the Case of The Tenant Protection Act .................................................................... 46 5.1 Anti-Mlation Measures and the Introduction