Identity, appropriateness and the construction of regulatory space: the formation of the Public Accountant's Council of Ontario

Practice rights legislation in Canada continues to be contested 50 years after its first enactment. In Ontario, one of the earliest provinces to enact restrictive legislation, the challenges have focused on how the legislation has been implemented rather than on whether or not public accounting should be regulated. To better understand the contested issues in this field, we examine the process undertaken by the Public Accountants Council of Ontario to implement the Public Accountancy Act of 1950. Our analysis is based on the first 15 years of the minutes of the meetings of the Public Accountants Council for Ontario, augmented by other archival sources such as court cases, newspaper clippings, correspondence and reports. Our intent is to document the process and “logic of appropriateness” used by the Council to construct its identity and stake out its “regulatory space” in the face of the ambiguity of the law and pressure from interest groups. We also identify the contradictions that were institutionalized in this field resulting in repeated challenges to the Council. We conclude by relating the historical insights from this analysis to the continuing challenges to practice rights legislation in Ontario.