THE SOCIAL ORGANIZATION OF 'DIFFERENCE' AE\CD CAPITALIST RESTRUCTWG IN CANADA: The Making of 'Migrant Workers' through the 1973 Non-Immigrant Ernployment Authorization Program (NIEAP) by Nandita Rani Sharma A thesis submitted in conformity with the requirements for the degree of Doctor of Philosophy Department of Sociology and Equity Studies in Education Ontario Institute for Studies in Education of the University of Toronto O Copyright by Nandita Rani Sharma 2000 National Library Bibliothèque nationale I*I of Canada du Canada Acquisitions and Acquisitions et Bibliographic Services services bibliogaphiques 395 Wellington Street 395. rue WeHmgton Ottawa ON K1A ON4 OttawaON KlAON4 Canada canada The author has granted a non- L'auteur a accordé une licence non exclusive licence aliowing the exclusive permettant à la National Library of Canada to Bibliothèque nationale du Canada de reproduce, loan, distribute or seil reproduire, prêter, distribuer ou copies of this thesis in rnicroform, vendre des copies de cette thèse sous paper or electronic formats. la forme de microfiche/nlm, de reproduction sur papier ou sur format électronique. The author retains ownership of the L'auteur conserve la propriété du copyright in this thesis. Neither the droit d'auteur qui protège cette thèse. thesis nor substantial extracts ikom it Ni la thèse ni des extraits substantiels may be printed or otheMise de celle-ci ne doivent être imprimés reproduced without the author's ou autrement reproç;iits sans son permission. autorisation. The Social Organizat ion of 'Difference' and Capital ist Restructuring in Canada: The Making of 'Migrant Workers' through the 1973 Non- Immigrant Employment Authorization Program (NEAP) Nandita Rani Sharma Doctor of Philosophy 2000 Department of Sociology and Equity Studies in Education Ontario Institute for Studies in Education of the University of Toronto ABSTRACT By utilizing the matenalist method of institutional ethnography of Dorothy E. Smith, cornplernented by Michel Foucauh's analysis of 'governmentality', 1 conduct a documentary analysis of Canadian House of Commons debates fiom 1969 to 1973, inclusive, to explore how the 1 973 immigration program of indentured 'migrant worker' recmitment - the Non-Immigrant Employment Authorization Program (NIEAP) - was organized as a feature of 'globalization'. I examine immigration and global ization as social l y organized processes that together produce a space in which people and capital move and meet. Rather than taking a case-study approach to the study of 'migrant workers', 1 investigate the social origanization of our knowledçe of migrant workers and how this category is produced as a social phenomenon. My examination centres on an analysis of social practices and their ideoloçical character to uncover the social relations that make certain state practices - and not others - imaginable and actionable. 1 reveal the importance of racist and nationalist ideological state practices to the material organization of a cornpetitive 'Canadian' labour market within a re-stnictured global capitalism and the resultant re-organization of notions of Canadian nationhood. 1 argue that socially organizing the 'foreign-ness' of a certain racialized group of workers within the nationalized Canadian labour market and neo-liberal policy shifls in trade and investment that allow for greater capital mobility are integrally related state practices. I problematize the legitimacy of the 'migrant worker' category by examining the ideological character of repeated calls for 'order at the border' in the Canadian Parliament. 1 show that parliamentary discursive practices of producing certain people as 'problems' for 'Canadians' results not in the physical exclusion of those constructed as 'foreigners' but in their ideological and material differentiation fiom Canadians once living and working within Canadian society. 1. thus, uncover how national state practices that organize social 'differences' within Canada also shape how the relations of ruting are accomplished during my period of study. 1 show that in the period under study, the racialization of Canadian immigration policy was shified, in part, fiom the more explicit pre-1967 criteria of "preferred races and national ities" to the 1 973 'non-immigrant' category. 1 wish to dedicate this work to the growing numbers of people displaced and refùsed a home by those who mark the borders. It is offered in the spirit of struggle of those who know that life ought to be much more than this. Finally, to those who have given me the great fortune of having nurnerous homes: my Bibi, Maya Devi Sharma, my Mama, Santosh Rani Sharma and my joyful comrades, Allison Christie Campbell and John Henry Moss ACKNOWLEDGEMENTS This study would not have been possible to cany out without the assistance of a very large çroup of people. 1 wouid like to first acknowledge the tremendous help given to me by my supervisory cornmittee: Dr. Roxana Ng, my senior supervisor, whose wisdom and ciarity allowed me to explore new thoughts; Dr. Kari Dehli whose keen insights offered me exciting challenges; Dr. Sedef kat-Koc whose understanding about the machinations of immigration policy- making were of great help; Dr. Kirin Mirchandani who generously gave me her time and knowledge; and last, but cenainly not least, Dr. Robert Miles to whom 1 owe a great debt. His expertise on al1 aspects of my study helped me to sharpen my work. Of course, 1 alone bear responsibility for the results. 1 would also like to acknowledge Dr. Dorothy Smith whose body of work is a major influence on my own. Courses taken with her during my time at the Ontario Institute for Studies in Education helped me to re-think the importance of asking how the world is actually organized. 1 also am indebted to numerous political activists who provided me a space in which to develop my thouçhts and re-formulate strategies for what needs to be dorle to make home much more than a memory for al1 people displaced by the workings of white, capitalist patriarchies. Sincere gratitude to and solidarity with ail those 1 struggle alongside, in particular, Sunera Thobani, who is tmly a cornrade. Finally 1 want to thank my family who, luckily for me, are a wonderfUl community of intellects, activists, nurturers and friends: my mother, Santosh Rani Sharma, without whom no place would be home; my partner, Allison Christie Campbell who made home feel joyfùl throuçhout the writing up of this study; John Henry Moss, whose caring provides me with a solid foundation; my brother, Paul Sharma, who tries to keep me true to my beiiefs; my father Kesho Ram Sharrna, whose bravery created a new home; and Beulah and Buster whose feline creativity is always a source of comfort. v TABLE OF CONTENTS ABSTRACT DEDICATION ACKNOWLEDGEMENTS CONTENTS LIST OF TABLES Chapter 1. An fisay iti Refrmd: Social Relatiotrs of Ruling and the Constructio~lof 'M;gru~r/Workers ' irr Carrada t ntroduction Organization of the Study Summary Cli~pier2: Co,~cep/~~a/I;iomr work a~dMethodo fogy Introduction Conceptual Framework Scope and Description of Study Methods of Investigation Summary Chaper 3: Trrritories of State: Govertiirtg Globa/izatiort Introduction Restructured State Practices: Loss of Power? The Global Arena of Capitalist and Nation-State Practices National Borders and the Reylation of Labour Social Organization of Difference tnvest igat ing Practices of Governance The tdeology of Civil Society Conclusion Clmpter 4: Markir ig the Roiordaries of Freedom: Nariotr aud Siale BI the Orgat~izatiottof Ulfree Lahorrr Introduction The Importance of Self in the Study of Others: Theories of Unfiee Labour in the Nonh The Interdependency of Freedom and Unfreedom Our Nation; Their Unfreedom Conclusion Chopter 5: Globolizatior~itt the iritercsr of the "Nariori *: nie Parliamentary Prodttcfiort of a New Car ladiarl Rea/ity Introduction Legislating Globalization Organizing a 'New Reality' The Benefits of Membership Canada for Canadian Capitalists Al1 Capitalists are Canadian Compet ition as Foreign Makinç (Common)Sense of the Foreign Menace Conclusion Introduction The H istorical Organization of 'Canadian-ness' The Foreigners Within Immigrants as a Threat to the Security of the Nation Immigrants as a Financial Burden Immigrants as a Criminal Menace 1mmigrant Encroachment on Canadian Ent itlements Immigrants as a Permanent Stain on Our Character Securing Their Retum Passage Conclusion Introduction Materializing the Foreigner Within: The Non-Immigrant Employment Authorization Program Producing the Right Kind of Worker The Perennial Problem of Freedom Liberal Doctrines of Unfieedom Managing Foreigners in the Nation's Labour Market (Re)Naming Racism as a National Right Conclusion LIST OF TABLES / TABLE 7.1 ] 243 1 Chapttr 1: An Essay in Refusal: Social Relations of Ruling and the Construction of 'Migrant Workers' in Canada The t~ecessityof reform musttr't he allowed to become a form of blackmail serving to /hi!, rehce! or haft the exercise of crificism. Urtder no cira~rnstartcesshorrld orle pay attentiort lu those who teif o?le: 'DON'/criticize. s~rrceyou're rtot capable of carrying out a reform. ' Thar's mitriszerial cabir let tafk. Critiqire doesr,'t have to be the premise of a dedrrctiot~which cordudes: this rherr is what tteeds to be dor~e.... Ifs use shoirld be in prwesses of conjiict and cor@or~tatiort, essays itr refi~sc~l.II dasrr't have to lay dowrt the law for the lm- It isrt't a stage in a programmirtg. ft is a cha//ertge directed to what is. Michel Foucault, Qtrestior~sof Method Introduction The international migration of people displays the underlying unity of the supposedly separate political, economic and social spheres of human activity. For most of the 125 million people currently crossing national borders in their ongoing struggle for life, international migration has become necessary due to processes of displacement. Over the last tfiiny years, t hese processes have been f'rther entrenched and there has been a doubling of international migration (United Nations Population Fund. 1993). Whether because of poveny, war, ecological devastation or persecution, people are moving to lave behind some form and level of coercion.