Framing problems, governing practices: A critical scoping review of COVID-19 policy in Canadian post-secondary education
When the World Health Organization declared COVID-19 a pandemic, unprecedented policy responses ensued in higher education, with Canadian post-secondary institutions (PSIs) rapidly adopting radical measures, including campus closures, masking requirements, and vaccine mandates. These policies were widely justified as evidence-based, ethical, and legal. This critical scoping review examined the COVID-19 policy responses at five Ontario PSIs. Using Carol Bacchi’s What is the Problem Represented to Be? approach, we explored how problems were framed, decisions made, and ethical principles invoked. Data included publicly available policy documents, union statements, and legal decisions. PSIs represented the problem as one of a deadly, “equal opportunity” virus, demanding maximum compliance with public health directives, particularly vaccination. This framing dominated governance practices, often sidelining collegial decision-making in favor of executive authority and ad hoc committees. Claims of a scientific consensus were central to policy justification, despite initial and growing evidence—such as low infection fatality rates among young adults, the strength of natural immunity, the failure of vaccines to stop transmission, and reports of vaccine-related adverse events—challenging that framing. Equity, diversity, and inclusivity were frequently invoked to support these policies, yet the same measures often excluded individuals with diverse needs and applied exemptions inconsistently. The COVID-19 response in Canadian PSIs reflected not a true consensus but an illusion of consensus, produced through the foreclosure of debate and suppression of dissent—patterns at odds with the normative values of higher education.
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