Disposable foam plugs are cheap and universally available, and that is precisely the problem with them. They are sized for an average ear canal that very few people actually have. A plug that does not seal does not attenuate, and a plug that is uncomfortable comes out the moment the supervisor turns away.
Section 7.7 of the Occupational Health and Safety Regulation is specific about this. Where noise cannot practicably be reduced to or below the exposure limits, the employer must provide hearing protection meeting CSA Standard Z94.2-02, maintain it to that standard, and ensure it is "worn effectively" in noise hazard areas.
Issuing protection is not the requirement. It has to be worn, and worn properly. In a mill, where plugs stay in for most of a shift, that is a fit problem before it is a compliance problem.
A mill is also not uniformly loud. The area around the saws is a different exposure environment from the yard or the planer, and protecting everyone to the same level either under-protects some workers or over-isolates others from the speech and alarms they need to hear.
Promac had the Vancouver Island problem on top of that: most providers are Lower Mainland based, and a crew of 20 is not getting on a ferry for ear impressions.