Contaminated sites are a common problem across municipalities in the Greater Vancouver Regional District. These problems are complicated and multi-dimensional, and raise fundamental concerns about the risks to human and environmental health. This thesis shows however, that there are no easy answers to how much risk is "acceptable", and no one right way to decide. How the acceptable risk problem is structured is important, because fact and value issues, a source of controversy and dispute, are variously interpreted depending on how the problem is cast. The literature generically categorizes acceptable risk as either a technical, social or decision problem, and each of these have implications for the types of decision-making approaches and solutions that are considered appropriate in resolving acceptable risk. This thesis investigated how acceptable risk in contaminated site problems is handled in British Columbia by reviewing the provincial decision-making framework, and by surveying municipalities in the Greater Vancouver Regional District for their views on contaminated site problems and acceptable risk decision-making. The underlying goal of the thesis is to question the use of the current approach, the Pacific Place site criteria, as a model for acceptable risk decision-making in the province, and to explore the implications for urban communities. The Ministry of Environment is the central authority for contaminated sites in British Columbia and has generally taken a scientific and technical approach to the problem. Although the municipal survey suggests that the Pacific Place site criteria has a broad base of support in the GVRD, the technical emphasis has implications for urban communities. The approach is expert-oriented and largely excludes local and public involvement in the acceptable risk debate. The major concern is that important social value issues have been neglected, relative to the engineering and technical aspects of the problem. The research also finds however, that the majority of individuals in the municipal survey are willing to explore other methods of determining acceptable risk, and support in principle, local government and public involvement in deciding what these methods should be. This thesis suggests that British Columbia can benefit from a more comprehensive view of acceptable risk in contaminated site problems. Resource limitations at the provincial and local level, and the high stakes in contaminated site problems for urban communities point to the growing importance of incorporating a broad range of value issues and understanding the trade-offs in acceptable risk decisions. The Ministry of Environment can improve the current decision-making approach by: incorporating structured value assessments that elicit stakeholder values and address trade-offs; involving a wider range of stakeholders in standard setting and risk assessment, including the forthcoming review of the Pacific Place site criteria; creating forums to explore other decision-making approaches; and by encouraging private sector involvement in risk assessment and risk management. The province can also encourage and support community-based institutional networks, both at the municipal and regional level. / Applied Science, Faculty of / Community and Regional Planning (SCARP), School of / Graduate

This paper uses the case of Polychlorinated Biphenyls (PCBs) to examine the dynamics of the public policy cycle in Canada. A process approach is applied to examine the principal stages of the cycle: problem identification, agenda-setting, decision-making, and implementation. In examining these stages, the factors that drive the policy cycle and those that impede its progress are identified. The regulatory history of PCBs is traced to demonstrate some of the complexities of the policy cycle. As one of the better known hazardous wastes in Canada, PCBs have been the catalyst for the introduction of new toxic chemical regulations throughout the 1970s and 1980s. Since the late 1970s, regulatory policies have been developed and implemented for PCB use and handling. After major PCB accidents occurred during the second half of the 1980s, regulations were introduced for their transport, storage and disposal. This case study provides seven major conclusions: (1) before the right policy solution is found and implemented, several stages in the cycle may need to be repeated; (2) public perception is a key determinant of the policy problem; (3) focusing events are a critical factor in setting the agenda; (4) decision-making often takes an incremental approach due to incomplete information and divided policy jurisdictions; (5) successful implementation, particularly in divided jurisdictions, requires sympathetic officials who are supportive of the enabling legislation; (6) constituency group support is a necessary condition for policy implementation; and (7) to deal with public concerns which may impede the implementation process, officials need political and managerial skills. / Arts, Faculty of / Political Science, Department of / Graduate

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No description available.

The rapid 1980's development of the salmon farming industry in British Columbia has been called "a poorly defined experiment in a poorly understood coastal environment", and the main impetus behind it described as "the chaotic, bottom-line orientation" not only of the industry itself but also of relevant government policy. The purpose of this thesis is to elaborate on these themes by identifying and delineating the most significant reasoning models underlying government development policy; and to offer an evaluation of the policy's 'rationality'. Throughout the development of the industry, but particularly in the early stages, two major areas of uncertainty have been prevalent. First, detailed government policy towards salmon farming has been far from clear - an inarticulation that is characteristic of the philosophy of laissez faire, which was particularly influential in Canadian government policy in the early 1980's. Secondly, a variety of possible ecological impacts have been suspected from the outset. A heuristic approach, both for the basic method employed in the thesis and for the normative model set up to evaluate government policy, is advanced for addressing these different uncertainties. In order to identify relevant policy, it is hypothesized that systems of ideas expressed formally in 'core' models of neoconservative and neoclassical economics were particularly important policy influences. It is argued that the core concept of neoconservative theory (as defined) is the adaptive efficiency of the autonomous market. The theory's fundamental adaptive ideas - economic information 'discovery' by competitive trial-and-error selection, and consumer 'regulation' via the price system - are to be found in representative federal and provincial economic policy documents from the early 1980's, as well as in the occasional government elucidations of B.C. salmon farming policy (scattered in heterogeneous historical sources). An examination of (inferred) specific decisions relevant to ecological aspects of salmon farming reveals the influence of trial-and-error - deliberate omission of government planning - on early salmon farm siting policy; and the influence of the presumption of consumer 'sovereignty', which was assumed to obviate the need for government ecological regulation. The relevant core concept of neoclassical economics (as defined) is the rational model derived from the conception of homo economicus. The model and its derivations are visible in the same early 1980's economic policy documents, which outline public sector 'restraint' criteria, as well as in salmon farming policy elucidations. It is argued that the maximizing 'solution' prescribed by the model is without operational significance in complex, uncertain situations, where ostensible use of the formal technique may be to legitimate decisions taken on other grounds. The normative model set up to evaluate government policy is drawn from three sources: Friedrich Hayek's rationalization of the adaptive market process, C.S. Holling's prescriptions for "adaptive environmental assessment and management", and Herbert Simon's development of "procedural rationality". These models support the conclusion that acquisition of information by the agency that mediates actions and goals - which, in the case of ecological regulation, must be government - has major value as the basis of more rational decisions. But acquiring conclusive evidence by trial-and-error learning involves risk of serious error, particularly irreversible ecological harm, and it is rational to utilize the inconclusive evidence that is always available for making general predictions, in order to guide search and select lesser risks. Incorporating the important constraint of search costs - particularly significant in the economic recession of the early 1980's - the requirements for rational adaptation become minimal, procedural ones of 'reasonableness': lack of bias towards any class of information relevant to social welfare; lack of denial of uncertainties, and thus of development risks, in the complex and little-known salmon farming environment; and timely response to uncertainties subsequently, adequately resolved by experience. It is suggested that all three requirements were infringed by government policy towards salmon farming development. / Science, Faculty of / Resources, Environment and Sustainability (IRES), Institute for / Graduate

Local Government Heritage Planning Legislation in British Columbia investigates and critiques the community planning policies of the provincial government white paper Toward Heritage Legislation. This investigation is undertaken from the perspectives of the experience of other jurisdictions and the views of professional heritage planners in British Columbia. The primary objectives of this thesis are: i) to illustrate by examining the history of heritage conservation legislation in other jurisdictions that there is a common pattern to the evolution of conservation legislation and that the proposals of Toward Heritage Legislation are consistent with this pattern ii) to examine the views of professional heritage planners regarding the proposed policies and iii) to argue that the proposed policies demonstrate both strengths and weaknesses and that a strong implementation framework will be required if the policies are to be implemented effectively. These objectives are achieved by the use of two methods. First, the history of heritage conservation is traced through a review of the relevant historical literature on the legislation of other jurisdictions. Second, fifteen professional heritage planners from across British Columbia are interviewed regarding their views on the proposed policies. The first conclusion of the thesis is that there is a pattern to the development of heritage legislation in other jurisdictions. This pattern illustrates that early heritage legislation focuses largely on the conservation of individual sites and monuments and that over time the legislation evolves and ultimately demonstrates three characteristics: one, the recognition of the context of individual sites including grouping of individual sites to form historic areas and districts, two, the integration of heritage planning into the day to day planning processes of local government and three, the devolution of responsibility for heritage conservation from senior to local governments. The data collected from the consultations with professional planners indicates that there is broad support for the conceptual basis of the proposed policies but that there are significant weaknesses in the details of the proposals. The planners indicate that in particular there are weaknesses in the ability to implement the policies within existing local government administrative practices. The thesis also concludes that the community planning proposals of Toward Heritage Legislation are consistent with the policies of other jurisdictions and in fact represent the logical next step in the development of heritage legislation in British Columbia. However, the planners interviewed clearly cautioned that the details of the policies must be reviewed, clarified and modified if they are to be successfully implemented. Their concerns focused on three general areas: the planners indicated in some cases that they did not support individual policies as proposed, secondly they requested clarification and detailing of the implementation of individual policies and thirdly, they advised that additional resources will be required to successfully implement the policies. The final conclusion of the thesis concerns the importance of training personnel to implement new heritage legislation. The consultations with the planners highlighted the current weaknesses of training for heritage planners and emphasized the importance of this shortcoming for the future of heritage conservation in British Columbia. / Applied Science, Faculty of / Community and Regional Planning (SCARP), School of / Graduate

The demise of Keynesianism and the advent of monetarism has had a profound impact on the Canadian 'welfare state'. In British Columbia, as in other provinces, monetarist policies have included a 'down-sizing' of government, and a resurrection of a strategy of privatization in the social service sector. In some instances, privatization has meant abandonment; that is, the government has both shed its responsibility for providing many public sector social services and either reduced or eliminated funds which were directed into the non-profit sector through the system of 'contracting-out'. With the loss of revenue, many non-profit social service agencies have been forced to seek alternative sources of funding. The contents of newspaper stories and other articles indicated that some had turned to gaming in order to raise funds. Therefore, recent developments in the gaming industry in British Columbia were explored in order to provide some insight into their relevance for, and impact on, the non-profit social service sector. In addition, a survey was undertaken in order to determine the impact of these developments on a sample of non-profit social service agencies in the Greater Vancouver area. The results indicate that certain trends are emerging across the non-profit sector. Agencies reported an increased demand for services and, for some, the proceeds from either bingos or casinos have been crucial in both maintaining current levels of services and providing other benefits. The implications of this development are explored; for example, in some agencies, fund-raising has reduced the staff hours spent in direct service while otherwise increasing workloads; some agencies are becoming more 'entrepreneurial' in order to provide necessary social services; and, it may be that certain client groups are paying for their own social service programs. While non-profit social service agencies are turning to gaming in order to provide programs and services which the government will no longer support, the government's public statements regarding the future of the gaming industry, and its actions in this area, have been ambiguous. On the one hand, policy-makers have made public statements to the effect that there will be no extension of legalized gambling beyond that which is provided by non-profit groups. On the other hand, the government is moving to increase its gaming revenues through direct means, such as establishing casinos, and indirect means, such as increasing licence fees levied on non-profit organizations wishing to conduct gaming events. It is contended that neither privatization nor gambling are 'immoral'. However, what is perhaps problematic is the recent marriage of the two phenomena. By reducing direct services, as well as curtailing funding to the non-profit sector, the government has restrained its expenditures. When non-profit organizations turn to gaming, they become a source of revenue for the government while simultaneously providing the vital social services which the government has abandoned. / Arts, Faculty of / Social Work, School of / Graduate

The practice of providing urban parks as an integral part of community development no longer creates public debate about the function or legal authority of local governments to make such purchases. However, the debate continues on the ethics of local government's parkland acquisition practices. These practices have the capability and motivation to influence the land value of sites they wish to acquire. Local governments are responsible for determining land use, which in turn affects land value. The limited financial means of local government to acquire parks makes influencing land value one way of stretching the scarce resources of the community. The ethics practiced in the negotiations to acquire urban parkland where the land has development potential are unique because: 1. Parkland is a public good and not a market commodity; 2. The potential for other higher land uses exists; and 3. Local government plays a dual role: one of a regulator and approving authority for determining land use and providing community stewardship, and the other as the corporate cost controlling agency seeking to acquire land. These qualities create the strong possibility for ethical conflict to occur in the negotiating process. Building upon the Interest-Based approach to negotiations, this paper uses a set of Prescriptive, Intuitive and Evaluative (P.I.E.) criteria that define ethical conduct, and the dimensions of Fact, Social Consensus and Experience that defines the dimensions of interests, to develop a General Model for Ethical Negotiations (GMEN). Conceptually, the GMEN model is a three-sided pyramid within a sphere of negotiations. Negotiations that adhere to the principles defining the parameters of the pyramid would be considered ethical. Negotiations outside the pyramid are considered unethical. Six parkland acquisition cases are discussed using the GMEN model. In this study, the parameters establishing the criteria for passing ethical judgment are the functions of the political economy, the policy statements of the local government, and the legislation that delegates power and authority to local government. The study finds that ethical conflict is inherent in parkland negotiations where the land has development potential because of the multiple roles and dual character of local government. This conflict is not necessarily illegal since prescriptive criteria are only one means of judging ethics. Nor is the outcome necessarily negative to the vendor, since the public may end up with a less attractive park agreement. However, the parameters that would require parkland acquisition negotiations to be ethical sometimes conflict with some of the multiple roles held by local government. Several recommendations are made that would help to reduce ethical conflict and the imbalance in parkland negotiations. / Applied Science, Faculty of / Community and Regional Planning (SCARP), School of / Graduate

This dissertation examines the multifaceted and pervasive impact of globalisation on the Canadian public policy environment through a detailed analysis of the monopoly marketing of prairie wheat. The study argues that forces associated with globalisation, working through regionally differentiated configurations of farmer opinion and interest groups amidst varying partisan settings, are key to understanding the changing nature of policy-making processes, structures, and outcomes in the wheat marketing arena. The forces associated with globalisation include the increased presence of transnational corporations, the expansion of international trade regimes, increased interaction and cooperation between Canadian provincial governments and US state governments, the international harmonisation of regulations, advances in transportation technology, and heightened levels of education, knowledge, and information. In attempting to understand how globalisation influences the wheat policy arena, the examination uses a comparative analysis focusing on Alberta, Saskatchewan, and Manitoba. The inter-governmental harmony that had prevailed since the 1940s on the matter of Canadian Wheat Board's (CWB's) wheat monopoly was replaced by conflict by the 1990s as the forces of globalisation washed across the Canadian prairies. The dissertation shows that where the absence of these forces once reinforced the CWB's wheat monopoly, the presence of these forces now poses a formidable challenge to its continuation. Farmer opinion data indicates that a trend away from monopoly selling toward open marketing is present throughout the prairies. Like the presence of the forces of globalisation, anti-monopoly opinion is particularly strong in Alberta. The dissertation will also show how the conflict over monopoly wheat marketing was projected into the policy arena through differentiated sets of interest group configurations and partisan environments. In doing so, the examination points out that institutions, while often providing resistance to change, can also serve as conduits facilitating change. The analysis shows that the public policy network involved with the marketing of prairie wheat, as well as actors within this network, have become increasingly internationalised. The examination indicates that domestic governmental regulation and control have been severely undermined in the wheat marketing arena as north-south ties increasingly undermine and replace the east-west unity previously forged by the National Policy. / Arts, Faculty of / Political Science, Department of / Graduate

In the past, the Ministry of Social Services and Housing has placed many native children from the Seabird Island Band, a Salish band in the Sta’lo Nation, in permanent placement or adoption off the reserve. Government agencies imposed a system of child welfare that superseded Seabird Island adoption practices. The Seabird Island Band members would prefer to see these children placed within the band through ‘custom’ adoption. In apprehension and placement court cases, the band social worker has needed documented information defining ‘custom’ adoption, and data regarding the benefits of this Seabird Island process. This thesis investigates and documents the process and results of adoption on the Seabird Island Indian Reserve. This thesis begins with a brief history of Canadian adoption policy as it applies to First Nations people. The thesis is based on detailed taped interviews with Seabird Island Band members who had experienced foster care and/or adoption. This fieldwork was the result of negotiation with the Seabird Island Band to discover the type of research that they needed. The thesis documents four kinds of adoption experience of the Seabird Island members: foster care, closed legal adoption, open adoption, and ‘custom’ adoption. In my analysis of these adoption experiences, three main themes occur: (1) issues of ethnic identity, (2) power and the child welfare system, and (3) the definition and functions of ‘custom’ adoption. The thesis concludes that the imposed system of child welfare based on Euro-western ideas of appropriate child care may have destroyed or seriously damaged some Seabird Island Band members’ sense of ethnic identity. As well, it may be a factor in the break-up of the extended family. ‘Custom’ adoption, as defined by Seabird Island Band members, offers an alternate model for keeping apprehended Seabird Island children within the band. Open adoption, as defined by the pilot project documented, is an alternative for those children who cannot be returned to the band. I have made several recommendations in the conclusion for the Seabird Island Band’s consideration. / Arts, Faculty of / Anthropology, Department of / Graduate