Two Steps Forward, One Step Back: Political Mobilization and Policy Reform in Québec

Québec enacted major solidaristic family and housing policy reforms toward the end of the 1990s, precisely when other countries were moving toward more individualized policies. Against what existing theories would predict, these reforms took place at a moment when labour's power had weakened, the ruling left party had scaled back its progressive commitments, and employers opposed the proposed reforms. Why did Québec expand its social policies in a broader context of retrenchment? We argue that this resulted from a shift in the context of contention that sparked a process of institutional conversion. First, labour-allied progressive movements in the province were able, through their own cycle of mobilization, to fill the gap left by unions' retreat from direct action and mass mobilization from the 1980s onwards. Second, employers remained relatively weak and state-dependent, leading them to accept the government's agenda as long as it did not differ significantly from their priorities of deficit and tax reduction. Third, the idea of the "social economy" served as a floating signifier in the province's public policy debates of the 1990s, providing a framework within which unions, community groups, employers, and the government could operate while assigning it different definitions and aims. The ambiguity of the idea of the social economy helped to forge a disparate coalition of Québec social actors, resulting in solidaristic policy reforms. Our analysis aligns with recent literature calling for a renewed attention to the role played by contention in the development of social policies in Québec.