mn u Ottawa L'Universit6 canadienne Canada's university TTTTT FACULTE DES ETUDES SUPERIEURES 1^=1 FACULTY OF GRADUATE AND ET POSTOCTORALES u Ottawa POSDOCTORAL STUDIES L'University canadiennt: Canada's university Gina Sandra Comeau AUTEUR DE LA THESE / AUTHOR OF THESIS Ph.D. (Political Science) GRADE/DEGREE School of Political Studies FACULTE, ECOLE, DEPARTEMENT / FACULTY, SCHOOL, DEPARTMENT The "Illusion of Inclusion"? The Role of Consultation Processes in Canadian Sport-Policy-Making TITRE DE LA THESE / TITLE OF THESIS Caroline Andrew DIRECTEUR (DIRECTRICE) DE LA THESE / THESIS SUPERVISOR Jean Harvey CO-DIRECTEUR (CO-DIRECTRICE) DE LA THESE / THESIS CO-SUPERVISOR EXAMINATEURS (EXAMINATRICES) DE LA THESE/THESIS EXAMINERS David Black (Dalhousie University) Francois-Pierre Gingras Michel Orsini Micheal Robidoux Gajy W. Slater Le Doyen de la Faculte des etudes superieures et postdoctorales / Dean of the Faculty of Graduate and Postdoctoral Studies The "Illusion of Inclusion"? The role of Consultation processes in Canadian Sport Policy-Making By Gina Sandra Comeau Thesis submitted to the Faculty of Graduate and Postdoctoral Studies In partial fulfillment of the requirements For the PhD degree in Political Studies School of Political Studies Faculty of Social Sciences University of Ottawa © Gina Comeau, Ottawa, Canada, 2009 Library and Archives Bibliotheque et 1*1 Canada Archives Canada Published Heritage Direction du Branch Patrimoine de I'edition 395 Wellington Street 395, rue Wellington Ottawa ON K1A 0N4 Ottawa ON K1A 0N4 Canada Canada Your file Votre reference ISBN: 978-0-494-61370-2 Our file Notre reference ISBN: 978-0-494-61370-2 NOTICE: AVIS: The author has granted a non­ L'auteur a accorde une licence non exclusive exclusive license allowing Library and permettant a la Bibliotheque et Archives Archives Canada to reproduce, Canada de reproduire, publier, archiver, publish, archive, preserve, conserve, sauvegarder, conserver, transmettre au public communicate to the public by par telecommunication ou par I'lnternet, preter, telecommunication or on the Internet, distribuer et vendre des theses partout dans le loan, distribute and sell theses monde, a des fins commerciales ou autres, sur worldwide, for commercial or non­ support microforme, papier, electronique et/ou commercial purposes, in microform, autres formats. paper, electronic and/or any other formats. The author retains copyright L'auteur conserve la propriete du droit d'auteur ownership and moral rights in this et des droits moraux qui protege cette these. Ni thesis. Neither the thesis nor la these ni des extraits substantiels de celle-ci substantial extracts from it may be ne doivent etre imprimes ou autrement printed or otherwise reproduced reproduits sans son autorisation. without the author's permission. In compliance with the Canadian Conformement a la loi canadienne sur la Privacy Act some supporting forms protection de la vie privee, quelques may have been removed from this formulaires secondaires ont ete enleves de thesis. cette these. While these forms may be included Bien que ces formulaires aient inclus dans in the document page count, their la pagination, il n'y aura aucun contenu removal does not represent any loss manquant. of content from the thesis. 1+1 Canada Abstract This dissertation addresses the role of broad-based consultation processes in sport policy formulation using a primarily neo-institutional framework. Specifically, I examine the three factors influencing participation: contextual, institutional and structural forces on consultation. The contextual factors encourage the State to develop institutional mechanisms, such as consultation. Despite these pressures to be more inclusive, the State retains control of the structural factors and the institutional factors to a lesser extent. In the case of the formulation of the Canadian sport policy, the role of these factors led to a consultation process that had a real but limited impact. This thesis contributes to the literature on two levels: theoretical and empirical. Theoretically, it develops a framework to determine the role of broad- based consultation. Empirically, it generates new knowledge of these processes and sport policy formulation in general. It demonstrates how the governance framework is useful in explaining the contextual factors encouraging the development of consultation processes. In combination with the neo-institutional literature, it outlines additional factors influencing sport policy formulation (intergovernmental relations, institutionalized relations and ideas). The research argues that these have the capacity to constrain/enable participation. Finally, it also argues that while the State is influenced by the contextual forces and institutional factors flowing through policy formation; it retains control of a number of structural factors (such as information, interaction/dialogue, stage in the policy process, and the list of participants) at its disposal enhancing its capacity to influence the process. The research findings indicate that broad-based consultation processes influence sport policy formulation, albeit very incrementally. This led to a real but limited impact. It demonstrates how the federal government was able to use consultation as a tool to obtain buy-in from governmental and non-governmental stakeholders in the sport policy sector. Even though the impact was limited, it was real nonetheless. It also provided a unique opportunity for participants to interact in a setting which included an interesting mix of participants which was quite novel for the sport policy sector. 1 Acknowledgements A doctoral dissertation is a long and lonely journey filled with passion, joy, and wonder on good days and frustration, disappointment, and despair on many others. Thankfully, there are a number of individuals who made this journey manageable. First and foremost, I would like to express my eternal gratitude to Caroline Andrew - thesis supervisor extraordinaire. Throughout the process she has been a mentor and an inspiration. She was always available to answer my endless questions regardless of her many other commitments. Thesis co-supervisor, Jean Harvey, whose knowledge and passion for sport policy, provided me with guidance during this process. His kindness and expertise have helped me on several occasions. I feel truly blessed to have worked with two such amazing supervisors. Committee member Michael Orsini's research and work ethic inspired me from the beginning. His words of encouragement throughout the process provided me with the strength to continue. Member Francois-Pierre Gingras helped simplify the methodological process of dissertation writing through his teaching and more importantly, he taught me the importance of balance in life by adding a human element to his teaching. Members David Black and Michael Robidoux joined my committee at the end of the process, their contribution remains important nonetheless. They along with my supervisors and the other committee members provided me with insightful feedback. My daughter Jordan, the most important person in my life, never ceases to amaze me with her kindness, intelligence, and compassion. She is what I am most proud of in life and has provided me with such inspiration during this process. She has never once complained and has been so understanding of the financial and time constraints of graduate studies and single parenthood. I thank her for helping me realize what is most important in life and for undertaking this long journey by my side. To my family, firstly to my mother who always believed in me and encouraged me throughout this journey. To my father who taught me I can always do better and to Mike, my mother's partner for the last 20 years, who always held a keen interest in my studies and to the other members of my family for their words of encouragement over the years. u A thesis could also very rarely be completed without the support of some great friends, who often hear you complain, cry, or bubble with enthusiasm at your newest breakthrough. They have stood by me during both the highs and lows. First and foremost, Derek Dunnett, who went beyond the call of duty time and time again. He provided me with much support and encouragement over the last 19 years. Words cannot express my gratitude and delight in having him as my best friend and grammar coach. My other link to sanity, Lisa Hadley, whose numerous phone calls helped me keep things in perspective. My friends, Gina Hill and Sophie Lavoie also deserve special mention for their proofreading help and their extreme kindness during this last year. To fellow office mates, David Leech and Junichiro Koji, who along the way also become my close friends and were always there for advice, motivation and commiserating. To all my other wonderful friends and fellow graduate students, you know who you are and your belief in me and your kind words are so appreciated. Last but not least, all of my colleagues at Laurentian University, who believed in me and offered me a position prior to finishing this dissertation. They all provided me with advice and words of encouragement during this last year. Two colleagues deserve special mention: Dr. Mary Powell, chair of the dept., and Allison McCulloch (also in the final stages of her dissertation — a fellow colleague and friend) have been invaluable since 2007. in List of Acronyms AAF Athlete Assistance Program ACF Advocacy coalition framework ASD Alternative Service Delivery BQ Bloc Quebecois CAAWS Canadian Association