CLAIMS MAKING AND POLICYMAKING IN STATE ANTI-RACISM IN ONTARIO CLAIMS MAKING AND POLICYMAKING IN STATE ANTI-RACISM IN ONTARIO: THE CASE OF THE ONTARIO ANTI-RACISM SECRETARIAT By ERIC G. KEMPTHORNE, C.A., B.Sc., M.A. A Thesis Submitted to the School of Graduate Studies In Partial Fulfillment of the Requirements For the Degree Doctor of Philosophy McMaster University ©copyright by Eric Gordon Kempthorne, July 2013 McMaster University DOCTOR OF PHILOSOPHY (2013) Hamilton, Ontario (Sociology) TITLE: Claims Making and Policymaking in State Anti-Racism in Ontario: The Case of the Ontario Anti-Racism Secretariat AUTHOR: Eric Gordon Kempthorne C.A., B.Sc., M.A (Saskatchewan) SUPERVISOR: Professor Victor Satzewich NUMBER OF PAGES: xviii, 241 ii Abstract This dissertation offers a critical analysis of State Anti-Racism in Ontario, Canada, from 1990 - 1995. Particular attention is paid to the politics surrounding the emergence and operation of a dedicated provincial agency - the Ontario Anti- Racism Secretariat (OARS). The study highlights the central role of social problems work and claims making in the determination of anti-racism policy. The emergence of state anti-racism is accounted for in terms of the relationship between the state and ethno-racial community groups, strategic events associated with the politicization of racial inequality, the ideological orientation of the ruling political party, and changing demographic composition of Ontario. The study demonstrates that social democratic political ideals reflected in government, in conjunction with high-profile strategic events and sustained pressure from ethno- racially based advocacy groups produced the conditions conducive to the emergence and acceleration of state anti-racism initiatives. The nature of state anti-racisms in distinct areas of programming is accounted for in terms of the claims making activities of the parties involved in the policy-making process. I argue that stakeholders’ influence on the nature of anti-racism initiatives varied depending on the particular realm of policy or programming under examination. State agents determined the nature of anti- racisms in some areas, while community stakeholders held sway in other areas. The research draws on a variety of theoretical and methodological approaches to the study of the state and racial inequality from sociology, political iii science, and policy studies. Qualitative methods including open-ended interviews and content analysis of archival materials are used to account for different dimensions of state anti-racism. Empirical evidence for this study comes from accounts provided by key players involved with anti-racism in Ontario including representatives from community groups, the Ontario Public Service (OPS), academia, media, and the Ontario New Democratic Party (ONDP). Materials housed at the Canadian Jewish Archives and the Provincial Archives of Ontario were also used. iv Acknowledgements I would like to thank the following people for their involvement in this research: Bob Andersen, Micheal Atkinson, Neil McLlaughlin, Billy Shaffir, and Harley Dickinson. Thanks also to Olga Cannon and Corinne Jehle who gently guided me through the bureaucracy. I would like to thank my interviewees. I would especially like to thank those who were OARS staff members, and Anne-Marie Stewart in particular for an invaluable perspective into the workings of the OARS. I would also like to thank my examining committee. Alastair Bonnett and Bonny Ibhawoh provided challenging observations of the final work. Jeff Denis served as a committee member for the final year. Dorothy Pawluch served on the committee for the duration of the research and provided both personal support and essential guidance into social constructionism. Vic Satzewich served as the thesis supervisor and was patient, wise, and firm when needed. I feel very fortunate to have worked with him on this research. Of course, I would like to thank my family. My extended family were consistently supportive. My parents, Eldon and Doris Kempthorne, can not be thanked enough. The support of my immediate family was essential and unwavering. Erika, Katrin, Monica, Patrick, and Natalia…thanks for your patience, strength, and encouragement. v Table of Contents Abstract ............................................................................................................................... iii Acknowledgements .............................................................................................................. v List of Abbreviations ............................................................................................................ x Introduction: ........................................................................................................................ xi CHAPTER ONE: LITERATURE REVIEW AND RESEARCH QUESTIONS: ............... 1 1.1 Introduction: ............................................................................................................. 1 1.1.1 Theorizing The State and State Power I: Pluralist Approaches: ....................... 3 1.1.2 Theorizing the State and State Power II: neo-Marxist and post-Marxist Approaches: ................................................................................................................ 7 1.1.3 Theories of Social Policy and the Policymaking Process: .............................. 11 1.1.4 Theorizing the Role of Community and Advocacy Groups in the Policy- making Process: ........................................................................................................ 21 1.1.5 Theorizing ‘Racial’ Knowledge, Discourses, and Hegemony: ....................... 23 1.1.6 Contextual Constructionism: ........................................................................... 30 1.1.7 Discourse Theory: ........................................................................................... 32 1.2 Conclusions: ........................................................................................................... 37 1.3 Research Problem and Research Questions: .......................................................... 38 CHAPTER TWO: RESEARCH METHODS AND SOURCES OF DATA: .................... 41 2.1 Introduction: ........................................................................................................... 41 2.2 General Analytical Strategy: .................................................................................. 42 2.3 Interviews: .............................................................................................................. 47 2.4 Government Documents: ........................................................................................ 51 2.5 Printed News Media: .............................................................................................. 54 2.6 Other Sources of Data: ........................................................................................... 55 vi 2.7 Whiteness, Voice, and Studying the ‘Other’: The Investigator’s Subject Position: ........................................................................................................................ 56 2.8 Ethics and Ethics Approval: ................................................................................... 60 2.9 Conclusions: ........................................................................................................... 60 CHAPTER THREE: THE EMERGENCE AND ACCELERATION OF STATE ANTI-RACISM IN ONTARIO: ........................................................................................ 62 3.1 Introduction: ........................................................................................................... 62 3.2 A Confluence of Anti-Racism Forces: Setting the Stage for State Anti-Racism in Ontario: ..................................................................................................................... 64 3.3 The Anti-Racism Aspirations of the NDP: ............................................................. 68 3.4 The 1990 NDP Victory and Aftermath: Hope and Optimism: ............................... 73 3.5 The Establishment of the Ontario Anti-Racism Secretariat: .................................. 80 3.6 Organizational Tensions and Anti-Racism Claims-Making by the OARS Leadership: ................................................................................................................... 86 3.7 The 1992 Yonge Street Riot: .................................................................................. 92 3.8 Conclusions: ........................................................................................................... 98 CHAPTER FOUR: THE STEPHEN LEWIS INQUIRY AND REPORT: CATALOGUING PROBLEMS AND RESPONSES: ..................................................... 100 4.1 Introduction: ......................................................................................................... 100 4.2 The General Context and Process of the Lewis Inquiry and Report: ................... 103 4.3 The ‘Anti-Black Racism’ Focus of the Lewis Inquiry and Report: ..................... 104 4.4 Framing Racism in the Lewis Inquiry and Report: .............................................. 107 4.4.1 Criminal Justice: ............................................................................................ 108 4.4.2 Education: ...................................................................................................... 115 4.4.3 Government and the Ontario Public Service: ...............................................