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Femocratic Administration: Gender, Democracy and the State in Ontario

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Femocratic Administration: Gender, Democracy and the State in Ontario FEMOCRATIC ADMINISTRATION: GENDER, DEMOCRACY AND THE STATE IN ONTARIO TAMMY FINDLAY A DISSERTATION SUBMITTED TO THE FACULTY OF GRADUATE STUDIES IN PARTIAL FULFILMENT OF THE REQUIREMENTS FOR THE DEGREE OF DOCTOR OF PHILOSOPHY GRADUATE PROGRAMME IN POLITICAL SCIENCE YORK UNIVERSITY, TORONTO, ONTARIO APRIL 2008 Library and Bibliotheque et 1*1 Archives Canada Archives Canada Published Heritage Direction du Branch Patrimoine de I'edition 395 Wellington Street 395, rue Wellington Ottawa ON K1A0N4 Ottawa ON K1A0N4 Canada Canada Your file Votre reference ISBN: 978-0-494-39007-8 Our file Notre reference ISBN: 978-0-494-39007-8 NOTICE: AVIS: The author has granted a non­ L'auteur a accorde une licence non exclusive exclusive license allowing Library permettant a la Bibliotheque et Archives and Archives Canada to reproduce, Canada de reproduire, publier, archiver, publish, archive, preserve, conserve, sauvegarder, conserver, transmettre au public communicate to the public by par telecommunication ou par Plntemet, prefer, telecommunication or on the Internet, distribuer et vendre des theses partout dans loan, distribute and sell theses le monde, a des fins commerciales ou autres, worldwide, for commercial or non­ sur support microforme, papier, electronique commercial purposes, in microform, et/ou autres formats. paper, electronic and/or any other formats. The author retains copyright L'auteur conserve la propriete du droit d'auteur ownership and moral rights in et des droits moraux qui protege cette these. this thesis. Neither the thesis Ni la these ni des extraits substantiels de nor substantial extracts from it celle-ci ne doivent etre imprimes ou autrement may be printed or otherwise reproduits sans son autorisation. reproduced without the author's permission. In compliance with the Canadian Conformement a la loi canadienne Privacy Act some supporting sur la protection de la vie privee, forms may have been removed quelques formulaires secondaires from this thesis. ont ete enleves de cette these. While these forms may be included Bien que ces formulaires in the document page count, aient inclus dans la pagination, their removal does not represent il n'y aura aucun contenu manquant. any loss of content from the thesis. Canada FEMOCRATIC ADMINISTRATION: GENDER, DEMOCRACY AND THE STATE IN ONTARIO By Tammy Findlay By virtue of submitting this document electronically, the author certifies that this is a true electronic equivalent of the copy of the dissertation approved by York University for the award of the degree. No alteration of the content has occurred and if there are any minor variations in formatting, they are as a result of the conversion to Adobe Acrobat format (or similar software application). Examination Committee members: 1. Barbara Cameron 2. Gregory Albo 3. Ann Porter 4. Wenona Giles 5. Meg Luxton 6. Pauline Rankin IV ABSTRACT The dissertation uses a feminist political economy approach to bring together elements of democratic administration, and gender and public policy, specifically in relation to two central debates in political science about globalization and the state and feminist state theory. It applies ideas about democratic administration and Australian state feminism to the Canadian, or more specifically, the sub-national, case in Ontario. The study explores the promise of state feminism to the project of democratic administration and the challenges posed to gender democracy by neoliberal public management, or the New Public Management (NPM). The project is based on interviews with both present and former feminist public servants working mainly in, or with, the Ontario Women's Directorate (OWD), a number of former Cabinet Ministers and members of women's community groups, OWD documents and a range of secondary sources. It traces the OWD from David Peterson's Liberals and Bob Rae's New Democrats to Mike Harris' Progressive Conservative government: two different gender regimes of public administration. The Ontario case study demonstrates a number of things. First, while there are clear limitations for women working within public bureaucracies, lessons about democracy can be learned from studying these cases. Second, a comparison between two different contexts for the OWD highlight the greater possibilities for women's representation and democratization within a citizenship and equality paradigm over one based on consumers and efficiency. It is shown that neoliberalism, particularly in the form of the New Public Management (NPM), has undermined gender democracy at both the procedural and the substantial level. At a more general level, the dissertation underscores that despite claims about globalization, and some feminist antipathy toward the state, the state matters. Attention must be placed on how to democratize the state, including sub-national states, and in particular, on how to advance gender democracy. It provides lessons on both the limitations of, and the potential for, state feminism as a strategy for democratization and outlines what exactly gender democracy, or a 'femocratic administration,' would entail. V ACKNOWLEDGEMENTS There are many people who helped me get through this process. I would like to thank my supervisor Barbara Cameron, committee members Greg Albo and Ann Porter, as well as Janice Newton, for their invaluable feedback on this project and their ongoing support, advice, and encouragement. Many of the ideas and chapters in this dissertation were developed in their graduate courses, as well as with Professors Shannon Bell, Alexandra Dobrowolsky, Robert Macdermid, Ken McRoberts, Leo Panitch, Ester Reiter, and Lome Sossin. I would also like to acknowledge David Blair, Neil Bradford, and Paul Nesbitt- Larking for sparking my interest in political science as an undergraduate student. All of the chapters in this dissertation were presented at conferences and received great feedback from discussants, chairs, co-presenters, and other participants including Sylvia Bashevkin, Sandra Burt, Nadine Changfoot, Joan Grace, Peter Graefe, Olena Hankivsky, Laura Janara, Wendy McKeen, Andrew Nurse, Susan Phillips, Pauline Rankin, Shannon Sampert, Richard Simeon, Miriam Smith, Elaine Stavro, Leah Vosko and Robert Young. In addition, comments by Hester Eisenstein were especially helpful in developing the published version of chapter one, which first appeared in the journal Socialism and Democracy. Thanks also to Steven Bittle, from the Law Commission of Canada for his report feedback and to Lynell Anderson for her research guidance and kindness. This project would not be possible without the participation of those who shared their time and experiences with me in the interviews. I take full responsibility for the interpretation of results. Financial assistance for study, research and travel throughout my graduate studies was provided by the Faculty of Graduate Studies, CUPE 3903, the Graduate Student's Association (GSA), the Graduate Political Science Student's Association (GPSSA), CUPE 3908, the Canadian Political Science Association (CPSA), the Association for Women's Rights in Development (AWED), and especially the Ontario Graduate Scholarship (OGS), and the Social Sciences and Humanities Research Council of Canada (SSHRC). A lot of friends provided academic and personal support during my time at York. I am especially grateful to Kimberly Earles, Dan Irving, Maya Eichler and Hepzibah Munoz- Martinez. Thanks also to the other Kims (Nakjung, Mclntyre, McKeown, Rygiel) and to Nigmendra Narain, Seiko Hanochi, Sabine Hikel, Christine Saulnier, Peter Neyers and Stacey Mayhall for feedback and advice. In addition, all of those involved in the Feminist Political Economy Reading Group and Network, the GPSSA Women's Caucus, VI the CUPE 3903 Women's Caucus/TIWI Caucus, the Child Care Advocacy Association of Canada (CCAAC) and the Labour College of Canada, as well as my colleagues at Trent and UWO, have contributed much to my intellectual and political development. Finally, and most of all, thank-you to my family - to my Mom and Dad, Judy and John Findlay, and my sister Lisa, as well as Larry, Connie, Nicole, and Carol - for their love, support, and encouragement, and for often providing a much-needed distraction! vii TABLE OF CONTENTS ABSTRACT iv ACKNOWLEDGEMENTS v TABLE OF CONTENTS vii INTRODUCTION - Feminism, the State, and Democracy in Ontario 1 Locating the Project 1 The Case Study: The Ontario Women's Directorate (OWD) 2 Methodology 4 The Argument: Feminism, the State, and Democracy in Ontario 10 Terminology 15 Globalization and Neoliberalism 15 Procedural and Substantive democracy 18 Gender Regime 21 Gender Democracy 22 Feminist Democratization/Feminist Social Transformation 23 Democratization of State Administration 24 'Femocrats' and State Feminism 25 Women's Policy Machinery and Women's Structure of Representation 26 CHAPTER 1 - Getting Our Act Together: Gender, Globalization, and the State 27 Globalization and the State 28 Globalization as Beyond the State 28 Global Civil Society 30 Globalization as a State Project 31 Why Does the State Matter?: Globalization and Neoliberalism 34 Gender and Globalization 37 Global/Transnational Feminism 39 Universalizing Tendencies 47 Global Feminism Exaggerated 52 Gender, Globalization, and the State 55 Democratic Administration 56 'Femocratic' Administration 59 viii Democratization and Sub-National Governance 76 Linking the Sub-National, the National and the International: The World March of Women 2000 88 Conclusion 93 CHAPTER 2 - Feminist Political Economy: Toward a
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