Crisis Management and Discursive Legitimacy: A Foucauldian Analysis of the Canadian Government’s COVID-19 Response (2020–2022)

Abstract

Between 2020 and 2022, Canada, like many countries, confronted the COVID-19 pandemic through a series of governmental measures including lockdown policies, social distancing directives, and vaccine mandates. Drawing on Foucauldian discourse theory, this study examines how the Canadian government’s crisis management strategies shaped, and were shaped by, discursive legitimacy. Through a mixed-methods approach—combining critical discourse analysis of government communications, content analysis of media reports, and surveys of public perception—this research investigates the interplay between public health directives, institutional trust, and social cohesion. The findings reveal a complex dynamic: while the Canadian government’s actions initially garnered discursive legitimacy and public compliance, evolving narratives and socio-economic ramifications gradually introduced tensions, skepticism, and resistance. This study contributes to our understanding of crisis governance, highlighting how discourse not only influences policy effectiveness and institutional trust but also bears significant implications for long-term social and political relations. Recommendations for refining communicative strategies and enhancing transparent policymaking are offered, with the aim of informing future emergency responses.

Keywords:
Crisis management, COVID-19, discourse theory, legitimacy, Canadian government, Foucauldian analysis, institutional trust, public health policy

Introduction

The COVID-19 pandemic represented an unprecedented global crisis that tested governments’ capacities to respond rapidly and effectively to a threat marked by scientific uncertainty, evolving epidemiological data, and volatile public sentiments. In Canada, between 2020 and 2022, the federal and provincial governments implemented a series of measures aimed at curbing viral transmission, such as nationwide lockdown policies, rigorous social distancing guidelines, and later, vaccine mandates. These interventions were not enacted within a vacuum; rather, they were embedded in a complex web of discourses shaped by political authorities, health institutions, media outlets, and public opinion. Drawing on Michel Foucault’s conceptualization of power and discourse, this research investigates how the Canadian government’s crisis management strategies sought to establish, maintain, and sometimes renegotiate discursive legitimacy during a period of acute social and institutional strain.

Discursive legitimacy, in this context, refers to the extent to which governmental rhetoric and policies resonate with, and are affirmed by, societal expectations, expert knowledge, and moral considerations. As Foucault posits, power operates not solely through direct coercion, but also through the production and circulation of discourses that normalize certain behaviors, beliefs, and institutional arrangements. By examining governmental press briefings, public health directives, media coverage, and public opinion surveys, this study delves into how the Canadian government’s messaging endeavored to align medical advice with principles of social responsibility, national solidarity, and evidence-based policymaking.

The Canadian context provides a revealing case study. Initially, Canada’s response—characterized by consistent messaging, reliance on scientific expertise, and collaboration among federal, provincial, and territorial authorities—garnered a significant measure of public compliance and trust. Surveys conducted by the Angus Reid Institute and Statistics Canada in 2020 indicated relatively high levels of trust in public health directives. However, as the pandemic persisted into its second and third years, evolving variants, economic pressures, and uneven vaccine uptake challenged the coherence and efficacy of the official narrative. Lockdowns and mandates, once perceived as necessary and legitimate, increasingly faced public fatigue, political criticism, and protests. Disinformation campaigns and politicized media discourses further complicated the government’s communicative landscape, testing its capacity to sustain a unifying and credible narrative.

By adopting a Foucauldian lens, this research contends that the Canadian government’s COVID-19 discourse operated as a form of governance that extended beyond legal directives to influence societal norms, moral imperatives, and collective imaginaries. This study probes whether official messaging and policies consolidated or fragmented institutional trust, how various demographic groups experienced and interpreted public health measures, and what forms of resistance emerged in response to certain narratives.

Ultimately, this research enhances our understanding of how crisis-driven policymaking intersects with the politics of knowledge, public trust, and social solidarity. Identifying both the strengths and shortcomings of Canada’s communicative strategies offers valuable lessons for future emergency responses. In crises yet to come, discourse will remain a critical tool by which governments negotiate legitimacy, persuade publics, and shape collective realities.

Literature Review

Foucauldian Discourse and Crisis Governance

Foucault’s theory situates power within the realm of discourse, wherein policies and communications represent more than legal or administrative acts; they are instruments that shape societal norms (Foucault, 1980). Previous research on crisis governance (Dean, 2010; Jessop, 2015) underscores that legitimacy during emergencies often hinges on how authorities frame risks and responsibilities. Studies on past health crises, such as H1N1 (Dingwall et al., 2013), illustrate how governmental narratives either bolster or erode public trust depending on coherence, transparency, and responsiveness to social values.

Public Health Messaging and Trust

Literature on public health crises (Rubin et al., 2020; Larson, 2022) emphasizes that effective communication, grounded in scientific evidence and empathy, can enhance compliance and institutional credibility. In Canada, early pandemic surveys (Angus Reid Institute, 2020) reflected substantial trust in public health authorities. However, scholarship on prolonged crises (Dryzek & Pickering, 2019) warns that fatigue, economic hardship, and conflicting expert opinions can undermine discursive legitimacy over time.

COVID-19 Policies in Canada

Several studies analyzing Canada’s COVID-19 response (Wilson & Dubey, 2021; Fafard & Forest, 2021) highlight initial strengths—such as adherence to Public Health Agency of Canada guidance and relatively high vaccine acceptance rates—while noting challenges including jurisdictional fragmentation and economic pressures. Research on vaccine mandates (Smith et al., 2022) reveals that while mandates increased vaccination rates, they also fueled pockets of resistance and contested narratives in media discourse.

Media Framing and Sociopolitical Context

Media outlets play a central role in amplifying or contesting official narratives. Canadian media coverage during COVID-19 (Winters & Haberl, 2021) reflected broad early support for government measures but increasingly focused on controversies, protests, and regional disparities as the pandemic persisted. Studies on media polarization (Guess et al., 2021) suggest that exposure to partisan narratives and misinformation can fracture consensus, challenging governmental discursive legitimacy.

Methodology

This study employs a mixed-methods design to capture both the qualitative nuances of discourse and the quantitative trends in public perception:

1. Critical Discourse Analysis (CDA):
   Governmental press releases, speeches by federal and provincial leaders, and public health bulletins from 2020 to 2022 were collected from official government websites (e.g., canada.ca, provincial health authorities). CDA techniques (Fairclough, 2013) were used to identify recurring themes, rhetorical strategies, and shifts in framing policies over time.

2. Content Analysis of Media Reports:
   A stratified sample of Canadian media outlets, including national newspapers (The Globe and Mail, National Post), television networks (CBC, CTV), and major online platforms, was analyzed. Using coding schemes adapted from Rubin et al. (2020), news articles and opinion pieces were examined to detect dominant narratives, frames of compliance vs. resistance, and the portrayal of government measures.

3. Surveys on Public Perception:
   Drawing on data from Statistics Canada and the Angus Reid Institute, as well as a bespoke online survey conducted in late 2022 (n=1,200), public trust levels, perceptions of policy fairness, and attitudes towards vaccine mandates and lockdowns were assessed. Statistical analysis (chi-square tests, logistic regression) identified correlations between trust in government discourse and demographic variables (age, region, political orientation).

4. Interviews with Policy and Health Experts:
   Semi-structured interviews (n=20) with policymakers, healthcare professionals, and public health communication specialists provided expert insights into the decision-making processes, ethical considerations, and the perceived effectiveness of Canadian crisis messaging.

Results

Establishing Early Legitimacy (2020)

Initial discourse from the Prime Minister’s Office and the Public Health Agency of Canada underscored collective responsibility, scientific guidance, and a “Team Canada” ethos. Survey data from mid-2020 showed that over 70% of respondents trusted government health directives. The CDA revealed narratives emphasizing unity, evidence-based measures, and moral imperatives—e.g., protecting the vulnerable—which resonated strongly in early media coverage.

Emerging Fractures and Fatigue (2021)

As lockdowns persisted, unemployment rates rose (Statistics Canada, 2021), and the economic strain influenced public perception. Content analysis revealed an uptick in critical media coverage questioning the proportionality of restrictions. Surveys from mid-2021 indicated a decline in trust, with about 55% of respondents expressing frustration with prolonged restrictions. Discourses increasingly reflected tension: official messaging still invoked scientific authority and moral duty, but public sentiment revealed growing skepticism and “pandemic fatigue.”

Vaccine Mandates and Resistance (2021–2022)

The introduction of vaccine mandates and passports marked a discursive shift. Government discourse framed mandates as scientifically justified and essential to protect healthcare capacity. However, CDA detected subtle changes: defensive rhetoric emerged, justifying mandates in response to vaccine hesitancy. While a majority (approximately 65%) supported mandates (Angus Reid Institute, 2022), a vocal minority—amplified by certain media outlets—contested these measures as infringements on individual freedoms. Expert interviews noted that although mandates increased vaccination rates, they also crystallized resistance groups, creating discursive polarization.

Institutional Trust and Social Cohesion

By late 2022, surveys indicated a complex picture: trust in federal directives remained moderately high compared to some other countries, yet significantly lower than in early 2020. Approximately 50% of respondents expressed mixed feelings, acknowledging the necessity of measures but criticizing their consistency or proportionality. Experts highlighted that while Canada’s relatively unified messaging avoided the extreme politicization seen elsewhere, lingering doubts about decision-making transparency and the long-term social cost of restrictions persisted.

Discussion

The findings reveal that the Canadian government’s performance during the COVID-19 pandemic—initially bolstered by discursive legitimacy founded on scientific credibility and moral responsibility—evolved into a more contested terrain as the crisis persisted. Early on, cohesive messaging fostered compliance and institutional trust, illustrating how discourse can effectively mobilize collective action under uncertainty. Over time, however, the interplay of socio-economic stressors, “pandemic fatigue,” and politicized narratives strained this legitimacy.

From a Foucauldian standpoint, government messaging functioned as a form of governance, not merely prescribing behaviors but shaping social norms and moral imperatives. The official narrative, anchored in public health expertise, initially enjoyed considerable authority. Yet, the emergence of alternative discourses, challenges to scientific consensus, and increased scrutiny over proportionality of restrictions revealed the fragility of discursive legitimacy in protracted crises. Vaccine mandates further exemplified this tension. While they effectively curbed hesitancy, their imposition ignited discourses around individual freedoms and state overreach, reflecting how contested truths emerge within shifting power relations.

This study’s methodological triangulation provides a robust picture of how discourse interacts with societal variables. Surveys linked trust and compliance not solely to government messaging quality, but also to demographic factors and media exposure. Interviews with experts underscored the importance of transparency, adaptability, and empathy in maintaining legitimacy. The tension identified points to both positives—high initial trust, relatively coherent communication—and negatives—resistance movements, declining compliance, and political controversy.

Conclusion

This research demonstrates that crisis management discourses play a pivotal role in shaping institutional trust, compliance, and long-term societal relations during emergencies. The Canadian government’s handling of COVID-19, while initially effective in securing discursive legitimacy, illustrates the complexities inherent in maintaining that legitimacy over an extended period. As the crisis endured, competing narratives emerged, polarizing public opinion and challenging the coherence of the official discourse.

The study’s findings suggest that sustaining discursive legitimacy in protracted crises requires transparent policymaking, regular recalibrations of strategy in light of evolving evidence, and genuine engagement with public concerns. Enhancing media literacy and institutional communication channels may mitigate the risk of disinformation and polarized perceptions. Future research might compare Canada’s experience with other countries to identify best practices or consider the role of cultural, linguistic, and regional variations in shaping discursive outcomes.

In anticipating future crises—whether health-related, environmental, or economic—governments should recognize the delicate balance between authority and responsiveness. Discourse is not merely a reflection of policy but an active force in governing populations. By refining communicative strategies and investing in trust-building measures, policymakers can better navigate the turbulent waters of emergency governance and uphold democratic legitimacy in times of great uncertainty.

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