Policy Networks and Paradigm Change in Ontario Forest Policy 1988-2014 By Anne Koven A thesis submitted in conformity with the requirements for the degree of Doctor of Philosophy Faculty of Forestry University of Toronto © Copyright by Anne Koven, 2015 Policy Networks and Paradigm Change in Ontario Forest Policy, 1988-2014 2015 Doctor of Philosophy Anne Koven Faculty of Forestry University of Toronto Abstract This dissertation was developed from documentary research, analyses of public hearing transcripts, and a case study examining 25 years of forest policy change in Ontario from 1988 to 2014. The ideas and actions of the actors in the policy network, and the political, social, and economic structures in which they operated, are investigated using the Dialectical Model of Policy Networks. The relationships among the key policy actors are traced through significant events and legislation: the Timber Management Class Environmental Assessment (1988-1994), the Crown Forest Sustainability Act (1994), the Living Legacy-Ontario Forest Accord (1998), The Endangered Species Act (2007), the Far North Act (2010), and the Ontario Forest Tenure Modernization Act (2011.) The results of the analyses indicate that Ontario’s forest policy evolved over the study period. The policy focus was on timber supply for the forest industry in 1988. This gave way in 1994 to sustainable forest management, which also served environmental and social values. By 2007 the ecological values of forest policy began to predominate. The analyses reveal that as the ENGOs in the forest policy network gained strength, their ideas and their successful political advocacy drove ecological changes. In contrast, the network influence of the Ontario Ministry of Natural Resources was weakened by ongoing budget cuts and confusion about its mandate. The forest industry lost its historical power in the network due to the economic crisis and ii downsizing of the industry and by tactics that caused further estrangement from the government. Professional foresters lost their prominence in the network as decisions about forests became associated with political rather than technical and scientific values. Aboriginal Peoples were unable to break into the network for purposes of furthering their treaty and Aboriginal rights and to obtain economic benefits for their remote communities. Questions are raised about the persistence of the new ecological forest policy network and the acceptance of the network of further reform. The result, however, of these shifts in network dynamics is that Ontario forest policy has experienced a paradigm change. iii Acknowledgements Thank you to all the study participants who were generous with their time and insights. Thank you to my committee members, who inspired me to make this project ambitious and something of value to the cultural and political conversation about forests. My good fortune was to have Tat Smith as my supervisor; he shepherded me through the process, gave me excellent advice about avoiding distractions, which I should have taken, and challenged me. Grace Skogstad introduced me to the new developments in my first field, political science and public administration, and there were many since my master’s program in 1976. Shashi Kant taught me the importance of being consistently engaged. Neera Singh encouraged me to explore beyond the borders of Canada. Ingrid Stefanovic served on my committee while juggling the pressures of a move to become Dean of the Faculty of the Environment at Simon Fraser. Ingrid and Kenn Maly inspired my interest in the study of environmentalism. Many foresters in business, government and non-profit organizations have inspired me, especially my mentors, John Cary, whose friendship and collaboration on many projects is highly valued, Ken Armson, Carla Grant, Ric Monzon, Bob Staley, Rob Keen, Carol Walker, Andy Kenney and the Ontario Professional Foresters Association. David Balsillie first encouraged me to apply to the PhD programme at the Faculty of Forestry, University of Toronto. Michele Devaul and Elie Martel showed me the importance of valuing northern Ontario and advocating for its interests. I am grateful to the Faculty of Forestry staff and professors and fellow students for welcoming me and helping me in many ways. I am grateful to the Ontario Ministry of Natural Resources (and now Forests) for providing statistics on the forest industry and forest management and for their support since the days of the Timber Class EA hearings. Dawn Pollon taught me to use NVivo and other useful things a PhD student needs to know. Thank you to everyone who made it possible for me to study in Haida Gwaii, where I learned about new concepts of Aboriginal governance. Thank you to my friends who encouraged me through course work, oral comprehensive exams and dissertation writing: Cathy Gildiner, Judy Hashmall, Janet Hennick, Betty Anne Jordan, Linda Kahn, Rena Mendelson, Mary Munro, Sharon Sallows, Mona Sherkin and Sally Wright. I am especially grateful to Linda whose knowledge of government was invaluable. To my husband Philip, who makes everything possible, and our sons Peter, who first suggested that I pursue a PhD, and Paul, who reminded me often that I needed to finish and whose Excel skills iv facilitated the process. My PhD journey was enriched by the encouragement of my daughters-in-law Katherine and Natalie, and the arrival of our granddaughter Julia. My dear mother Dorothy began the process with me and my father-in-law Jack, Esterita and Marty, have been with me all along. Thank you to Patty, Katie, Bridget, Maddie and Gracie, who make me happy. So many steps, each informed and inspired, by so many people. I am grateful. v Table of Contents Abstract........................................................................................................................................................ ii Acknowledgements .................................................................................................................................... iv List of Tables .............................................................................................................................................. ix List of Figures .............................................................................................................................................. x List of Appendices ...................................................................................................................................... xi Glossary of Key Terms and Definitions .................................................................................................. xii Acronyms .................................................................................................................................................. xiv Research Motivation ................................................................................................................................ xvi Chapter 1: Introduction ............................................................................................................................. 1 1.1. THE PUZZLE ........................................................................................................................................................ 1 1.2. THE INVESTIGATION ........................................................................................................................................... 3 1.3. RESEARCH QUESTIONS ....................................................................................................................................... 3 1.4. KEY POLICY DECISIONS ...................................................................................................................................... 4 1.5. POLICY NETWORK APPROACH ............................................................................................................................ 4 1.6. THE ARGUMENT ................................................................................................................................................. 6 1.7. OVERVIEW OF CHAPTERS.................................................................................................................................... 6 Chapter 2: Forest Sector Transformation ................................................................................................ 8 2.0. INTRODUCTION ................................................................................................................................................... 8 2.1. ENVIRONMENTALISM AND ECOLOGICAL SUSTAINABILITY ................................................................................. 8 2.1.1 History with forests. .................................................................................................................................... 8 2.1.2. Philosophy and ethics and wilderness preservation. ............................................................................... 10 2.1.3. Public opinion and environmental values. ............................................................................................... 11 2.2. SUSTAINABLE FOREST MANAGEMENT (SFM) .................................................................................................. 13 2.3. FOREST INDUSTRY CRISIS ................................................................................................................................. 15 2.4. REINVENTING THE PROFESSION AND FORESTRY EDUCATION ..........................................................................