G. Bruce Doern - Keeping Canada Running: Infrastructure and the Future of Governance in a Pandemic World

KEEPIN G CANADA RUNNING

McGill-Queens/Brian Mulroney Institute of Government Studies
in Leadership, Public Policy, and Governance

Series editor: Donald E. Abelson

Titles in this series address critical issues facing Canada at home and abroad and the efforts policymakers at all levels of government have made to address a host of complex and multifaceted policy concerns. Books in this series receive financial support from the Brian Mulroney Institute of Government at St Francis Xavier University; in keeping with the institutes mandate, these studies explore how leaders involved in key policy initiatives arrived at their decisions and what lessons can be learned. Combining rigorous academic analysis with thoughtful recommendations, this series compels readers to think more critically about how and why elected officials make certain policy choices, and how, in concert with other stakeholders, they
can better navigate an increasingly complicated and crowded marketplace of ideas.

1Braver Canada
Shaping Our Destiny in a Precarious World
Derek H. Burney and Fen Osler Hampson

2The Canadian Federal Election of 2019
Edited by Jon H. Pammett and Christopher Dornan

3Keeping Canada Running
Infrastructure and the Future of Governance in a Pandemic World
G. Bruce Doern, Christopher Stoney, and Robert Hilton

Keeping Canada Running

Infrastructure and the Future of
Governance in a Pandemic World

G. BRUCE DOERN, CHRISTOPHER STONEY,
AND ROBERT HILTON

McGill-Queens University Press
Montreal & Kingston London Chicago

Copyright

McGill-Queens University Press 2021

ISBN 978-0-2280-0656-5 (cloth)
ISBN 978-0-2280-0657-2 (paper)
ISBN 978-0-2280-0724-1 (e PDF )
ISBN 978-0-2280-0725-8 (e PUB )

Legal deposit third quarter 2021
Bibliothque nationale du Qubec

Printed in Canada on acid-free paper that is 100% ancient forest free
(100% post-consumer recycled), processed chlorine free

We acknowledge the support of the Canada Council for the Arts.

Nous remercions le Conseil des arts du Canada de son soutien.

Library and Archives Canada Cataloguing in Publication

Title: Keeping Canada running: infrastructure and the future of governance in a pandemic world / G. Bruce Doern, Christopher Stoney, and Robert Hilton.

Names: Doern, G. Bruce, author. | Stoney, Christopher, author. | Hilton, Robert (Lecturer in public policy), author.

Series: McGill-Queens/Brian Mulroney Institute of Government studies in leadership, public policy, and governance; 3.

Description: Series statement: McGill-Queens/Brian Mulroney Institute of Government studies in leadership, public policy, and governance; 3 | Includes bibliographical references and index.

Identifiers: Canadiana (print) 20210214333 | Canadiana (ebook) 20210214465 | ISBN 9780228006565 (cloth) | ISBN 9780228006572 (paper) | ISBN 9780228007241 (e PDF ) | ISBN 9780228007258 (e PUB )

Subjects: LCSH : Infrastructure (Economics)Government policyCanada.

Classification: LCC HC C D 64 2021 | DDC 363.0971dc23

This book was typeset by Marquis Interscript.

Contents

Figures and Tables

FIGURES

2.1 Share of core public infrastructure stock by level of government, 2013. 68

5.1 Regulatory regime for Canadian P3s. Canadian Council for Public Private Partnerships, 2011. 175

TABLES

0.1 Analyzing Canadian infrastructure policy. 9

0.2 Infrastructure policy and governance histories in the
six regimes. 13

2.1 Public infrastructure stock. 66

2.2 Building Canada Plan program and funds. 89

4.1 The business infrastructure policy regime and the three analytical elements: highlights. 1503

5.1 Eight projects in which the CIB is participating. 183

5.2 The infrastructure financing regime and the three analytical elements: highlights. 18692

6.1 Pan-Canadian city network features, 2013. 225

6.2 The transport infrastructure policy regime and the three analytical elements: highlights. 2338

7.1 The housing infrastructure regime and the three analytical elements: highlights. 2703

8.1 The energy-environment-resources pipelines infrastructure regime and the three analytical elements: highlights. 30812

9.1 The STI infrastructure regime and the three analytical elements: highlights. 33941

Preface

This book is the product of the authors work on infrastructure policy and governance in Canada and internationally over the last five decades. During this extensive period of teaching, reading, discussion, research, and interviews, we owe numerous debts of thanks, gratitude, and learning to many individuals and to many agencies and institutions involved directly and indirectly with the story of Canadian infrastructure policy, governance, and democracy.

We are also grateful to many infrastructure policy academics and practitioners from across Canada and internationally. We have drawn on their scholarly research which we cite and debate throughout the book. In particular, we would like to thank colleagues such as Michael Prince and John Coleman, whose research, ideas, or comments on drafts of the book manuscript chapters have informed and strengthened this book. We also thank the two scholars who were the peer reviewers asked by McGill-Queens University Press to review our research.

A continuing intellectual and personal set of thanks are owed to colleagues and staff at our home academic and research institutions, the School of Public Policy and Administration at Carleton University in Ottawa and the Politics Department, University of Exeter in the UK . We also owe a debt of special thanks to Joan Doern for her computer and editing expertise.

G. Bruce Doern, Christopher Stoney,
and Robert Hilton

Abbreviations

ACOA Atlantic Canada Opportunities Agency

ACST Advisory Council on Science and Technology

AECL Atomic Energy of Canada Ltd

AER Alberta Energy Regulator

AEUB Alberta Energy and Utilities Board

AFP alternative financing and procurement

AG Auditor General

AHSTF Alberta Heritage Savings Trust Fund

BCF Building Canada Fund

BDC Business Development Canada

BIRS Banff International Research Station

BRT Bus Rapid Transit

CANARIE Canadian Network for the Advancement
of Research, Industry and Education

CANCEA Canadian Centre for Economic Analysis

CC Compute Canada

CCA Canadian Construction Association

CCGS Canadian Coast Guard ship

CCOHS Canadian Centre for Occupational Health and Safety

CCPPP Canadian Council for Public-Private Partnerships

CCS carbon capture and storage

CDL Creative Destruction Lab

CDP Community Development Partnership

CEI critical energy infrastructure

CEPA Canadian Energy Pipeline Association

CER Canada Energy Regulator

CESD Commissioner of the Environment and Sustainable Development

CETA Canada- EU Trade Agreement

CFI Canada Foundation for Innovation

CFIB Canadian Federation of Independent Business

CFM Canadian Federation of Municipalities

CFMM Canadian Federation of Mayors and Municipalities

CIB Canada Infrastructure Bank

CIHR Canadian Institutes of Health Research

CIRC Canadian Infrastructure Report Card