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Beyond the Keynesian Welfare State PROGRESSIVE MOVEMENTS AND NEW DIRECTIONS IN SOCIAL POLICY BEYOND THE KEYNESIAN WELFARE STATE: PROGRESSIVE MOVE:MENTS AND NEW DIRECTIONS IN SOCIAL POLICY IN CANADA By JAMES P. MULVALE, B.A., M.S.W., M.A. A Thesis Submitted to the School ofGraduate Studies in Partial Fulfilment ofthe Requirements for the Degree Doctor ofPhilosophy Sociology McMaster University ©Copyright by James P. Mulvale, December 1998 DOCTOR OF PHILOSOPHY (1998) McMaster University Sociology Hamilton, Ontario TITLE: Beyond the Keynesian Welfare State: Progressive Movements and New Directions in Social Policy in Canada AUTHOR: James P. Mulvale, B.A. (University ofWestem Ontario), M.S.W. (Carleton University), M.A. (University ofWindsor) SUPERVISOR: Dr. Robert H. Storey NUMBER OF PAGES: xi, 289 1l Mc~S:tER UNIVERSIR£ L:IBRA~ ABSTRACT Title: Beyond the Keynesian Welfare State: Progressive Movements and New Directions in Social Policy in Canada Author: James P. Mulvale This study investigates the responses ofthe labour movement, social policy advocacy organizations, and feminists to the downsizing and restructuring of the welfare state in Canada. Of interest in this research is whether these constituencies are in the initial stages of 'reconceptualizing' social welfare, given that the increasing degree ofeconomic globalization and the rightward shift in political thinking in recent years have created a need for 'paradigm shift' in approaches to social policy among equality-seeking social movements. It is discovered that these three social movements (labour, social policy advocates, and feminists) are at varying stages in imagining and working to achieve a progressive alternative to the postwar welfare state. Some elements of the labour movement have clearly identified the economic and political roots of growing social inequality. Some elements ofthe social policy advocacy community are promoting comprehensive alternative economic and social policies to the ones currently dominating political discourse. The women's movement, as represented by the National Action Committee on the Status ofWomen, appears to be the furthest ahead in developing a theoretically grounded critique ofneo­ conservative I neo-liberal social welfare restructuring, and in posing progressive alternatives to it. Theoretical issues which arise in regard to rethinking social welfare and reformulating social policy are discussed. There is also reference made to the strategic challenges which confront social movements within Canada and internationally, in their efforts to use social policy as a means ofachieving greater social equality and an environmentally sustainable set ofeconomic and political arrangements. 111 ACKNOWLEDGEMENTS I wish to express my sincere thanks to my thesis Supervisor, Dr. Robert Storey. His enthusiasm about my topic, his practical suggestions, and his very constructive and prompt feedback on my 'work in progress' have been very much appreciated. Sincere thanks are also due to my thesis committee members, Dr. Jane Aronson of Social Work and Dr. Vivienne Walters of Sociology. Both of them offered me very insightful and helpful comments, and great encouragement and good humour along the way. I also wish to thank Dr. Julia O'Connor, who is currently on leave from the Department of Sociology. As my Supervisor at the early stage ofthis research, and as someone who provided very useful feedback from overseas on initial drafts ofmuch ofthis work, she was a great help to me in launching and shaping this thesis. I wish to thank Dr. Susan French and Ms. Helen Wagner ofthe School of Nursing at McMaster University. As my Supervisor in my other (salaried) research position, Dr. French was most accommodating in regard to flexibility of working hours when deadlines loomed, and was generally most encouraging that I 'get it done'. Ms. Wagner was a great help to me in the final stages offormatting the typescript, before it was officially submitted for defence. I wish to thank all the individuals who served as key informants in this study, many ofwhom were also very helpful in making documents oftheir lV organizations available. A particular note ofthanks goes to Mr. Robert Baldwin, National Director ofthe Social and Economic Policy Dept. at the Canadian Labour Congress. As well as serving as a key informant himself, he assisted me in arranging other interviews with CLC officials and in navigating the documentary archives at the CLC office in Ottawa. I am grateful to the Labour Studies Programme ofMcMaster University, which provided me with a Research Grant to defray the cost oftravel and related expenses when I was interviewing key informants from the labour movement in Ottawa and Toronto. Finally, ofcourse, I wish to thank my spouse Diane Delaney and our children (older and younger). They were most encouraging and supportive during this long and often arduous project, and each ofthem helped me in their own way to bring it to completion. v TABLE OF CONTENTS Page ABSTRACT 0 0 0 0 0 0 0 • 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 111 ACKNOWLEDGEMENTS 0 0 0 0 0 0 0 0 0 • 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 iv TABLE OF CONTENTS 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 vi ACRONYMS 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 X CHAPTER 1: INTRODUCTION 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 1 Background to Study 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 1 Major Questions for Investigation 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 5 Movements and Organizations Examined in This Study 0 0 0 0 0 0 0 6 Time Period Under Investigation 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 7 Expected Contribution of This Dissertation 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 8 Organization of Subsequent Chapters 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 11 Endnotes 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 11 CHAPTER 2: RETHINKING A THEORETICAL FRAMEWORK FOR SOCIAL WELFARE 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 16 The Big Theoretical Picture 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 17 Narrowing It Down: Understanding the Welfare State 0 0 0 0 0 0 0 29 Vl Describing and Classifying Welfare States ................. 29 Theorizing the Welfare State . 35 Social Democratic Perspectives . 40 Marxian and Neo-Marxian Approaches . 44 Feminist Perspectives . 47 The Anti-Racist Critique ofthe Welfare State ........ 50 The Green Critique ofthe Welfare State . 53 The Emancipatory Needs-Articulation Approach to Social Welfare ..................... 54 A Theoretical Framework for This Study ................. 56 From Theory to Issues ............................... 58 From Issues to the 'Real World' ........................ 59 Endnotes . 61 CHAPTER 3: METHODOLOGY . 63 Selection ofOrganizations and Key Informants . 64 Labour .......................................... 66 Social Policy Advocacy Organizations . 68 SP AOs with an Exclusive Focus on Social Policy 69 SPAOs with a Broader Focus Which Includes Social Policy ................................. 71 National Action Committee on the Status ofWomen ........ 72 Level of Analysis . 73 Vll Variety of Organizations . 74 Endnotes . 77 CHAPTER 4: OLD FORMULAS OR NEW IDEAS? THE LABOUR MOVEMENT AND SOCIAL POLICY . 79 Defending the Keynesian Welfare State in the Global Economy . 81 Work, Wages and Economic Security .................... 93 Beyond Social Democracy: Redefining Political Economy . 100 The Multiple Axes ofinequality 115 The Greening of Social Welfare 121 Endnotes ........................................ 126 CHAPTER 5: A MULTITUDE OF VOICES: ADVOCACY ORGANIZATIONS AND SOCIAL POLICY 130 Universality Versus Targeting of Social Programs 131 Social Programs and Labour Market Participation 145 Privatization of Social and Health Programs . 161 Building Effective Coalitions for Progressive Social Policy . 164 Endnotes . 185 CHAPTER 6: LEADING THE WAY IN SOCIAL POLICY: THE NATIONAL ACTION COMMITTEE . 190 Endnotes . 220 Vl11 CHAPTER 7: SEARCIDNGFOR THE WAY AHEAD IN SOCIAL POLICY . 223 General Findings . 224 Labour .......................................... 226 Social Policy Advocacy Organizations . 23 5 National Action Committee on the Status ofWomen ....... 240 Theoretical Framework ofThis Study .. 246 Possible Directions for Further Research . 249 Strategic Challenges in Moving Forward 252 Endnotes . 254 REFERENCES ............................................... 259 APPENDICES Appendix I: Key Informant Interviews Conducted ............... 279 Appendix II: Interview Guide . 284 lX ACRONYMS AFB Alternative Federal Budget BCNI Business Council on National Issues CACL Canadian Association for Community Living CAP Canada Assistance Plan CAW Canadian Auto Workers CCPA Canadian Centre for Policy Alternatives CCPI Charter Committee on Poverty Issues CCSD Canadian Council on Social Development CHST Canada Health and Social Transfer CLC Canadian Labour Congress CPC Canadian Pensioners Concerned CPRN Canadian Policy Research Networks CUPE Canadian Union ofPublic Employees GAl Guaranteed Annual Income ICFTU International Confederation ofFree Trade Unions ILO International Labour Organization KWS Keynesian Welfare State X LICOs Low Income Cut-Offs (set by Statistics Canada) MAl Multilateral Agreement on Investment NACorNACSW National Action Committee on the Status ofWomen NAFTA North American Free Trade Agreement NAPO National Anti-Poverty Organization NDP New Democratic Party NGO non-governmental organization NSM New Social Movement OECD Organization for Economic Cooperation and Development OFL Ontario Federation ofLabour ORIT Organizaci6n Regional Interamericana de Trabajadores (Inter-American Regional Organization ofWorkers).
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