Contested Time: Family-Friendly Working Time Policy in Germany and the United Kingdom (1997-2005)
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The London School of Economics and Political Science Contested Time: Family-Friendly Working Time Policy in Germany and the United Kingdom (1997-2005) Lisa Christina Warth A thesis submitted to the Department of Social Policy of the London School of Economics and Political Science for the degree of Doctor of Philosophy London, March 2008 Declaration I certify that the thesis I have presented for examination for the PhD degree of the London School of Economics and Political Science is solely my own work other than where I have clearly indicated that it is the work of others. The copyright of this thesis rests with the author. Quotation from it is permitted, provided that full acknowledgement is made. This thesis may not be reproduced without the prior written consent of the author. I warrant that this authorization does not, to the best of my belief, infringe the rights of any third party. Lisa C. Warth 2 Abstract Access to family-friendly working time arrangements is unequally spread both within and between workplaces, leaving many working parents with difficulties in combining employment with family responsibilities. The British and German governments have started to address this problem, but have done so in different ways. Focusing on time allocation in the work/family interface and its implications for gender and employment relations, this thesis explores the differences between the British and German government strategies to improve access to family-friendly working time arrangements for working parents, and how variation can be explained. As the flexibility requirements of employers and employees often diverge and can be in conflict, the thesis further investigates to what extent the German and British policy strategies were designed to empower working parents to access the time flexibility they need. It applies an empowerment perspective to the analysis of policy choice and design and draws on the policy making literature to analyse cross-national variation. Between 1997 and 2005, the incoming centre-left New Labour and ‘Red-Green’ governments both introduced information campaigns and employment rights to improve access. The lack of economic incentives for the provision and take-up of family-friendly working time arrangements reduced the overall empowering potential of the British and German strategies. Although similar at the level of policy choice, employment rights and information campaigns varied at the level of policy design with different implications for access. The thesis concludes that family-friendly working time policy did not achieve a significant redistribution of control over working time to employees in either of the two countries. This can be in part explained by a strong employer lobby and opportunities to influence policy choice and design, but also by the ‘competitive advantage’ of childcare services over family-friendly working time policy, directing government resources to more ‘employer-friendly’ reconciliation policies. 3 Table of contents DECLARATION ................................................................................................................. 2 ABSTRACT ......................................................................................................................... 3 TABLE OF CONTENTS .................................................................................................... 4 LIST OF FIGURES ............................................................................................................ 8 LIST OF TABLES .............................................................................................................. 8 ACKNOWLEDGEMENTS ................................................................................................ 9 LIST OF ACRONYMS .................................................................................................... 10 1. INTRODUCTION ......................................................................................................... 12 I. The reconciliation of work and family life on government agendas ..................................... 14 II. The role of government policy in facilitating work-family reconciliation .......................... 17 III. Family-friendly working time arrangements: a definition ................................................. 20 IV. Research Design ...................................................................................................................... 25 Research question and analytical approach................................................................................. 25 Scope of the study ....................................................................................................................... 27 Research methods and data collection ........................................................................................ 28 The comparative framework and choice of countries ................................................................. 31 V. The structure of the thesis ....................................................................................................... 36 2. ACCESS TO FAMILY-FRIENDLY WORKING TIME ARRANGEMENTS IN GERMANY AND THE UNITED KINGDOM ......................................................... 38 I. Reconciliation choices and government policy in the late 1990s ........................................... 39 The gendered allocation of time to earning and caring ............................................................... 39 Government policy and work-family arrangements ................................................................... 43 Reconciliation policies in the United Kingdom ...................................................................... 43 Reconciliation policies in Germany ........................................................................................ 46 II. Access inequality in the British and German working time regimes .................................. 50 European working time policy .................................................................................................... 51 Statutory regulation of working time at the national level .......................................................... 52 Collective bargaining over family-friendly working time arrangements .................................... 53 Family-friendly working time arrangements at the level of the workplace ................................ 58 4 Variation in provision across workplaces ............................................................................... 58 Barriers to the provision of family-friendly working time arrangements ............................... 61 Access variation within workplaces and the role of workplace culture .................................. 63 Conclusions .................................................................................................................................... 66 3. A FRAMEWORK FOR COMPARATIVE ANALYSIS ........................................... 70 I. A framework for the comparison of policy choice and design .............................................. 72 1. The government’s ‘tool kit’: instrument choice ...................................................................... 72 Regulation ............................................................................................................................... 73 Economic means ..................................................................................................................... 74 Information ............................................................................................................................. 75 The basis of division: degree of authoritative force / empowerment ...................................... 76 Policy packages ....................................................................................................................... 77 2. The devil lies in the detail: comparing policy design ............................................................. 79 1. Breadth of coverage ............................................................................................................ 79 2. Precision of targeting .......................................................................................................... 80 3. Scope of employee control over working time flexibility .................................................. 80 4. Enforceability ...................................................................................................................... 81 5. Opportunity costs ................................................................................................................ 82 II. Analysing variation in instrument choice and design ........................................................... 84 Conclusions .................................................................................................................................... 95 4. FAMILY-FRIENDLY WORKING TIME POLICY IN THE UNITED KINGDOM ........................................................................................................................ 98 I. 1997 to 2001 – New Labour’s first term in office.................................................................... 99 The Work-Life Balance Campaign ........................................................................................... 101 Family-friendly employment rights .......................................................................................... 102 The Work and Parents Review 2000: