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Key Factors to Adopt Paid Family Leave Policies in U.S. States

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Key Factors to Adopt Paid Family Leave Policies in U.S. States KEY FACTORS TO ADOPT PAID FAMILY LEAVE POLICIES IN U.S. STATES Erin M. Abramsohn A dissertation submitted to the faculty at the University of North Carolina at Chapel Hill in partial fulfillment of the requirements for the degree of Doctor of Public Health in the Department of Health Policy and Management in the Gillings School of Global Public Health. Chapel Hill 2019 Approved by: Pam Silberman Asheley Cockrell Skinner Gene Matthews Cathleen Walsh Judy Waxman © 2019 Erin M. Abramsohn ALL RIGHTS RESERVED ii ABSTRACT Erin M. Abramsohn: Key Factors to Adopt Paid Family Leave Policies in U.S. States (Under the direction of Pam Silberman) In 2019, The United States remains the only developed nation without a paid family leave policy. The Family and Medical Leave Act (FMLA) passed in 1993, grants eligible employees up to 12 weeks of unpaid leave per year. However, due to eligibility limitations only 60 percent of U.S. workers qualify for FMLA benefits and only about half of those eligible utilize the program. Many also report shortening the length of unpaid leave they take due to financial constraints. As of December, 2018, only four U.S. states offered paid family leave (California, New Jersey, Rhode Island, and New York). Starting in 2020, Washington state and the District of Columbia will both begin offering paid family and medical leave benefits, and beginning in 2021 Massachusetts will also provide paid family leave benefits. Bills have been introduced (but not passed) in 23 additional states. This study examined the question of why two states (California and New York) were able to pass paid family leave policies, while two other states that made multiple legislative attempts (Colorado and Illinois) failed. Through in-depth case studies I analyzed the activities of these four states specific to their efforts to adopt a paid family leave policy. While all four states had unique challenges and facilitating factors, I identified seven themes that helped to explain why California and New York were successful but Colorado and Illinois were not. Some factors appeared to be necessary for the bill to pass, but were not sufficient on their iii own, including: 1) having a strong, broad-based, and well-organized coalition, 2) conducting a fiscal analysis to estimate potential costs and economic benefits, 3) having a supportive, or primarily Democratic state political climate, and 4) introducing a number of bills in different sessions, or having a longer history of working on efforts related to paid family leave. Three additional factors were critical to the success in both California and New York, including 5) having an existing administrative structure in place (in this case, a state temporary disability insurance program), 6) having the support of key leadership (e.g., a Governor who supported paid family leave, or was not opposed to it, and/or a strong bill sponsor), and 7) having an open window of opportunity. This work is intended to inform future efforts by advocates, policymakers, and legislative staff, and potentially contribute to agenda-setting in states that do not yet have a paid family leave law. iv To my husband Sam, for selflessly supporting me on this journey. And to my boys, Owen, Max, and Leo. v ACKNOWLEDGMENTS This has been a long process, and I am incredibly grateful to many people who helped make this possible for me. To my committee, Cathleen Walsh, Gene Matthews, Asheley Cockrell Skinner, and Judy Waxman–thank you for your steady guidance and continued support. This is a practice-based program, and my goal was to create something that would be useful in the real world. Your varied expertise and insights allowed me to develop products that I hope will help move states forward on this topic. I could not have done this without you. To Pam Silberman–thank you for taking a chance on me, for investing your time and energy in me, and for believing in me. You saw the light at the end of the tunnel for me even when I couldn’t see it for myself. Your steady direction and consistent feedback allowed me to refine my own ideas and create something that I’m incredibly proud of. To my friends and family–thank you for your continued love and support through this process. Thank you to my neighbors who have fed my family and watched my kids, to my friends near and far who have listened to my ideas and helped me through rough patches, and to everyone who has given me the time and space I needed to accomplish this goal. Thank you to my mom and dad, Terrie and Gary, for raising me in an environment where education was always a priority, and for giving me everything that I needed to get to this point. This would not have been possible without a strong foundation, and I owe that to you. To my grandma Patty– you are a shining example of selflessness, self-sacrifice, and the definition of “caregiver.” You have taught us all strength and resilience, and I am grateful every day for the impact you have had on my life. vi To my sisters, Emily, Elizabeth, and Erika–you are my biggest inspiration. Because of you, I feel challenged every day to be a good leader and a role model. I will always strive to make the world a better place for you. Thank you for listening to me, talking through ideas with me, commiserating with me, and supporting me through this process. To my boys, Owen, Max, and Leo–you can’t read this yet, but when you can, know that this process wasn’t easy, and definitely took me away from you more than I liked. Thank you for your unconditional love and your patience. And to Sam–I wouldn’t have started a doctoral program, let alone finished it, without your love and support. Thank you for always believing in me, and doing whatever it takes to help me pursue my dreams. vii TABLE OF CONTENTS LIST OF TABLES ........................................................................................................................................ x LIST OF FIGURES ..................................................................................................................................... xi LIST OF ABBREVIATIONS ..................................................................................................................... xii CHAPTER 1: INTRODUCTION ................................................................................................................. 1 Statement of the Issue ............................................................................................................................... 1 Goal ........................................................................................................................................................... 2 Importance and Rationale ......................................................................................................................... 3 Legislative History and Background ......................................................................................................... 7 Conceptual Models ................................................................................................................................. 22 CHAPTER 2: REVIEW OF THE LITERATURE ..................................................................................... 25 Methods .................................................................................................................................................. 25 Findings .................................................................................................................................................. 26 Limitations .............................................................................................................................................. 37 CHAPTER 3: APPROACH AND METHODOLOGY .............................................................................. 41 Study Overview ...................................................................................................................................... 41 Conceptual Framework ........................................................................................................................... 48 Research Questions ................................................................................................................................. 49 Data Collection ....................................................................................................................................... 49 Analysis .................................................................................................................................................. 53 Data Management ................................................................................................................................... 57 IRB and Confidentiality .......................................................................................................................... 58 CHAPTER 4: RESULTS ............................................................................................................................ 59 California ................................................................................................................................................ 60 New York ................................................................................................................................................ 95 Colorado ................................................................................................................................................ 122 Illinois ..................................................................................................................................................
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