Nova Scotia Advisory Council on the Status of Women
"A Woman's Work is Never Done"~
Can Policy Value
Caregiving?
A Forum Report: March 2000
Nova Scotia Advisory Council
on the Status of Women
PO Box 745, Halifax, NS B3J 2T3
Phone: 902-424-8662 / 1-800-565-8662
Fax: 902-424-0573
E-mail: nsacsw@gov.ns.ca
Internet: http://www.gov.ns.ca/staw/
About the
Council
The Nova Scotia Advisory Council on the Status of Women was
established by provincial statute in 1977. The Council's mandate under the
Advisory Council on the Status of Women Act is to advise the Minister
Responsible for the Status of Women; and to bring forward the concerns of women
in Nova Scotia.
The Council's work touches on all areas of women's lives,
including...
We are committed to voicing women's concerns to government
and the community through policy research, information services and community
development. Working cooperatively with women and equality-seeking
organizations, our mission is to advance equality, fairness and dignity for all
women.
Comments, Questions, and Ideas from the Floor
Keynote Address by Pat Armstrong
Comments, Questions, and Ideas from the Floor
Comments, Questions, and Ideas from the Floor
What policy options should we advance?
On March 10, 2000, about 70 people from the general community, business,
labour, government and volunteer sectors met in Halifax to talk about the
research on unpaid work and caregiving and the questions it raises. We thank all
the participants, particularly Joan Hicks who was our facilitator for the day,
and all our panelists and guest speakers.
Between audience and presenters, we had a world-class event to celebrate
International Women's Week 2000, and we were only sorry that we could not have
many more participants with us. The purpose of this report is to bring more Nova
Scotians into the public dialogue, to share what was said in the forum, and to
learn the thoughts of other Nova Scotians on these vital matters.
As one participant put it, these issues are not just something to talk about
in a rented meeting room in downtown Halifax. They need to be talked about at
your neighbour's kitchen table or while you're sitting with friends in your back
yard.
We hope this report will encourage that kind of talking. It includes
information we have gathered and questions we need you to answer. We hope you
find both useful and that you will pass along your answers, thoughts, or ideas
to us.
As you read what the people at the forum had to say, you will see that there
are many different views on how to improve matters. We are not making any
particular recommendations at this time, but would very much like to have your
opinions too.
Patricia Doyle-Bedwell, LL.B.
Chair, Nova Scotia Advisory Council on the Status of Women
How to reach
us?
Nova Scotia Advisory Council on the Status of Women
PO Box 745, Halifax, NS B3J 2T3
e-mail: nsacsw@gov.ns.ca
phone: 902-424-8662; 1-800-565-8662 (toll free in NS)
Think of the unpaid jobs everyone takes on every day. They may not be unpleasant and you may not think of them as "work." They could include picking up the children at school or doing your grandmother's grocery shopping. You might volunteer at a hospital, help to improve your neighbourhood, work on environmental projects, or leave your paying job to take care of a sick or elderly relative. There are costs and values associated with all caregiving work, but few accepted ways of measuring them.
GPI Atlantic is a research organization working to develop GPI, or Genuine
Progress Indicators, for Nova Scotia. The Nova Scotia Advisory Council on the
Status of Women supports the use of the GPI because, instead of looking only at
amounts of money earned and spent, the GPI includes the value of unpaid work,
environmental quality, and other factors to reflect the overall health of the
economy and the society.
For example, research by GPI has found that unpaid housework and childcare in Nova Scotia is worth $8.5 billion a year (1997). That is 25 percent more than the value of the 707 million hours Nova Scotians worked for pay in 1997. Yet unpaid work does not show up in the traditional measures of the economy, such as the Gross Domestic Product (GDP). For example, hiring a housekeeper contributes to the GDP, but cleaning the house yourself does not.
Women most often perform unpaid caregiving work. Despite a doubling of
women's participation rate in the labour force, women's share of unpaid
housework has hardly changed in 40 years. When we look to the future, we see
that houses are getting larger and families are getting smaller. The population
is aging, ensuring that elder care will place more and more demands on both paid
and unpaid caregivers.
The Nova Scotia Advisory Council on the Status of Women organized this forum
as part of its mandate to explore women's concerns and to advise the government.
We'd like you to consider the questions and issues raised in this report. If
you're discussing this with friends or in a group, you might like to try the
following exercise:
Caregiving is significant and important work. It is vital to the maintenance
of family life and the welfare of individual family members. Caregiving is also
essential for the future well-being of our province and our country. That said,
then, why is most of the responsibility borne by women? Despite the fact that we
know instinctively that caregiving is valuable and important work, it has gone
largely unrecognized and unacknowledged. I can only assume that it's because
mainly women do it…
…As you meet here today, there is a particular question to be answered. How, as a province and a nation, can we meet (the challenges of the 21st century) without compromising the progress women have made towards equality?
In the morning session, the people at the policy forum heard from
researchers in the area of unpaid work and talked about the questions their
research raises. In the afternoon, we heard and talked about different ways to
answer those questions.
The invited speakers for the morning were (in the order they spoke):
This section contains the highlights of what the morning panelists had to
say. The next section, Comments, Questions, and Ideas from Discussions, covers
issues raised in the small groups of other forum participants.
There is more information on all the guest speakers and their work at the end
of this report.
Her recent research looked at how women's unpaid work affects women's
paid work and focuses on women with young children.
Research shows Canadians aren't sure what to think about the effect of paid
work on mothers and children. When asked in the mid-1990's "do you think a
pre-school child is likely to suffer if his or her mother works (outside the
home)," almost as many people said yes, as said no.
She talked about the costs to women of their unpaid work and about the
earning gaps between men and women. It is no surprise to hear that women working
full-time in the labour force make 70 percent as much as men working full-time.
Then she pointed out that over their lifetimes, women who have had children
earn only 87 percent of the amount earned by women who have never had children.
However, over their lifetimes, men who have had children make 134 percent of
the amount earned by men who have never had children.
"This is referred to as the family gap...so there's a premium associated with
fatherhood and a penalty associated with motherhood."
Women who have had children are likely to have spent time out of the labour
force. Women are also the people most likely to take time off to care for the
ill or the elderly. The negative effect on women's incomes is never overcome,
particularly if a job interruption is followed by a change in job.
Other points to consider:
Women's participation in the labour force is rightly seen as a sign of
liberation, but at the same time women's free time has been declining in the
last 20 years. Because unpaid work is ignored in our measures of progress, the
fact that women are working longer hours isn't seen as an issue.
Other points to consider:
Many caregivers "don't consider themselves volunteers…it is just what
they do....They would want me to tell you how much satisfaction and pride they
gain from caring for their family members, friends, and neighbours, but they
can't do it alone."
The trend in Canadian health and continuing care policy is to shift care from
institutions to communities--not just for seniors, but throughout the life span.
Most caregivers are women. Their burdens are financial, social, and personal,
and caregiver burnout is a major problem.
Caregivers need time off from paid work and flexible work schedules.
Employers must learn to adjust policies on benefits, career development, and
pensions.
The federal government recently extended maternity leave to one year. Family
leave provisions should cover workers who have to leave the labour force to care
for family members of any age.
Caregivers should have input into policies affecting them. Some examples:
Her focus is on child-rearing and the experiences of mothers. She sees
women facing an "all or nothing" attitude. That attitude says: if you are a
mother, you can't expect to be a good employee; if you are employed, you can't
expect to be a good mother.
"All or nothing" assumes mothers either work outside the home or stay at
home. In real life, most mothers belong to both categories at different times.
Forty-two percent of mothers questioned by the Family Mosaic Project said
they had resigned from at least one job because of family demands or
responsibilities. Two-thirds said they worked part-time at some time while
raising their children, and most said they worked part- instead of full-time
because of family responsibilities.
Even when fathers play an active role in parenting, the kinds of caregiving
that tend to be mothers' responsibilities are precisely the kinds that are
likely to take them away from their jobs unexpectedly: illness, for example.
Fathers are more likely to take their children to special events. Those things
are easier to plan for, but no more important.
Policy has to focus on outcomes--higher school completion rates, for
example--rather than on blaming parents, financial circumstances, or specific
groups. This will bring people together rather than driving them apart.
| "Many women don't
know they have problem. If your grandmother got up and put a pebble in her shoe every day, and your mother did the same thing, you're going to put the pebble in your shoe too, and not think about complaining" |
The broad social and economic consequences or implications of unpaid work...
| "It's not even a
glass ceiling; it's concrete" |
| "I worry about rural women and men; it's hard to keep your self-estem when there's no work" |
| "Why is it on TV, when a guy is a caregiver, it's always a comedy? |
| "...there are real risks to demanding change, not just to ourselves, but to our families and relationships we're in... it's not easy" |
Three strategies would help us work toward what a United Nations report
calls "a strong commitment to preserving time and resources for care, and the
human bonds that nourish human development."
First, recognize the value and skill involved in paid and unpaid caring
work--and not just in the financial sense. In Finland, France, and Portugal, for
example, it's been reported that "child minders" must take training.
Second, ensure that caring work is rewarded and supported, through rights,
regulations, and legislation; universal public services; and financial support.
It's important to work out how these affect pay equity. We shouldn't measure the
value of housework by what we pay a housekeeper, because we continue to pay
housekeepers so badly!
Third, recognize diversity. One size does not fit all. Institutions aren't
always bad, and home isn't always the best place to be. Universal programs
should offer a range of services, rights, and financial supports for women in
different places and with different needs.
Don't "go mad"--get angry!
| "I worry about our elderly parents. They know we're stressed and hate to ask for help. It lowers their self-esteem. They don't want to be a burden" |
"Women who provide care try to make up for inadequacies in the changing
health care system and they have…camouflaged the real impact of these cuts until
they've gotten really bad--they work overtime, they don't take breaks, they
steal extra sheets to have clean sheets, they use all kinds of strategies to
cover up for the inadequacies in the system, which is good for the patient but
in the long term is killing to the provider, and the real consequences of
"reform" are camouflaged.
"…What we need to do is dare to dream….We have been confined to the notion
that we can't afford it…when what we have to think about is what would work, and
then figure out how to get there…
| "Women advocate strongly for others, but not for themselves" |
"What 'costs too much' is women getting sick because they can't provide
enough care, can't provide care to patients or to children who are in
trouble…that costs a lot of money we can't even put into statistics…
"We have to recognize that there are real risks, and not just for ourselves
but for our families and the relationships we're in…It's not easy…(but it's
also) important to see the point where you have nothing to lose…
"We shouldn't start by assuming we can't, by emphasizing our weaknesses or the risks, and we shouldn't…ignore the problems, but I think we have to take some risks, make some demands. We have to recognize our differences and figure out what we share, so we can move ahead in ways that allow us to have voice and choice."
However, while there are exceptions, there is no general movement toward men taking on more unpaid caregiving and housework.
It's important to look at ways to get men to take up more of that work, but
it's hard to talk about. "It's easy to dump what's actually a social problem on
individuals"--a kind of "privatizing." The issue becomes "How come you don't
wash the dishes?" and pits men and women against each other.
Broader cultural values discourage men from taking on caregiving work- it's
not socially acceptable.
But there is also an economic rationale for the way things are: the lower income earner in a couple (usually the woman) is also often the one who stays home....This points to the importance of pay equity programs.
We mustn't underestimate the fact that women spend enormous amounts of
time--and enormous amounts of unpaid labour--in ways that free up other people's
time and create profit for other people. If women demand to get paid better for
all the work that we do, it's going to cost somebody.
We need to get involved in actions that will make politicians and
corporations take notice...for example, the World March on Poverty and Violence,
or even a consumer boycott of companies that exploit women.
Equality requires policies that will divide unpaid responsibilities fairly
between men and women, families and communities, workplaces and governments.
The options cover several areas:
The short answer to "Can policy value caregiving?" is "no," at least in
the short run. The current climate doesn't welcome the idea of redistributing
caregiving responsibilities. Responsibility for areas directly related to
caregiving falls on the provinces, and Nova Scotia's provincial deficit means we
must anticipate cuts, not increases, in areas like community services and
health.
On wider issues like pensions and social programs, there is little willingness to move and it is unrealistic to expect otherwise. It might be more useful to find ways to smooth the transitions between unpaid and paid work.
How can we bridge the gap that opens between men and women's pay after
women's paid work is interrupted by child rearing?
Thinking of unpaid work and the issues discussed today as 'economic rights':
Can these be considered through a human-rights lens?…To a large extent the
answer is "no."
Human rights legislation in Nova Scotia provides some protection from
employment discrimination based on family status, but it focuses on paid work in
the paid workforce and doesn't look at unpaid caregiving work directly.
The UN Declaration of Human Rights and some other UN conventions do refer to
basic social and economic rights, but valuing or recognizing
unpaid work isn't one of them. Furthermore, these economic rights are not
enforceable in the same way as domestic human rights and the Charter of Rights
and Freedoms.
So there is no constitutional or human right to economic equality in Canada
or anywhere else that she knows about that is actually enforceable. Without that
right, it's hard to find legal remedies for inequality. In a world of
globalization and capitalism, it's also not likely the right will be established
any time soon.
When we talk about capitalism and the dominance of corporations as the
culprits, we should remember that most of the corporations we're talking about
are publicly traded, and that shareholders have to be kept happy. Many of us are
those shareholders through our RRSP's and other investments. We are more
implicated in the "corporate economy" than we sometimes like to think about.
Over the last thirty years of human rights legislation there have been some "very, very important gains for women.…" There has been removal of some barriers for women, especially in the workplace. "We've come a long way, but we've just about reached the end of the line in terms of what human rights legislation can do about the kind of situations we're looking at here today."
After the second panel, people in small groups discussed what policy
options and choices should be considered by employers, governments, and other
public institutions. They also talked about what individuals and groups could do
advance these options. Here are some of their comments and ideas:
| "Family leave where I work is five days a year --but just try and get it!" |
| "What is family-friendly policy anyway? All policy affects families of different types" |
| "We've been advocating for a universal childcare policy since 1945 and it gets ignored in every budget" |
| "Flexibility in education has to be my flexibility. I'm getting a 'degree on Mondays" --the only day I can take any courses.... the only day I'm free." |
| "With the emphasis on early childcare, policies and workplaces aren't even starting to address the questions around raising teenagers" |
We've been meeting today in the presence of the
Caregiver....a fibre sculpture by Kathryn Belzer. Kathryn says of her
work:
"Be it my planet, community, farm, family, or marriage, the
same rule governs: the provider must be fed. Caregiver is about this rule.
Caregiver is about nurturing and healing. It is a container of kindnesses. The
supply must be replenished. Who will do it? If no one does, the provider will be
starved, the cycle broken."
The Caregiver's message has been at the heart of Council's
activities during this International Women's Week because the sculpture
symbolizes all caregivers who envelop us in their arms like the wings of an
angel and who do so with acts of kindness and encouragement. But their work
often goes without notice or compensation. Like our sculpture, they too are
often voiceless and faceless.
We've had the Caregiver with us because it is our task to
restore their faces and their voices. We hope this forum has helped all of us
here today to do just that.
Really valuing caregiving, though, will not happen overnight....It could take a generation or more and it will not happen at all unless we all play a part and make our voices heard. That's why we'd like to hear from you with your ideas about what the Advisory Council could be doing and about the kind of policies that we should be advancing to better value caregiving.
This report is full of questions. The Nova Scotia Advisory Council on the
Status of Women wants your help to find the answers as we advise the Minister
and government on what Nova Scotians think are the best ways to "advance
equality, fairness, and dignity for all women."
What do you think about what the panelists and other speakers had to say? How
would you answer the questions raised throughout this report?
Here are some questions considered in the small groups. You'll find some
examples of how they answered them in the "Comments, Questions, and Ideas from
the Floor" sections earlier...but how would you answer these questions?
What are the implications of the information presented by the guest
speakers?
What are the broad social and economic implications of unpaid work for women?
For men? For children? For people of diverse backgrounds?
What policy issues are raised by the research? Some areas you might consider
(but not be limited to) include taxation, health, home care, childcare, labour
standards, etc.
In addressing these issues, what should be the goals and direction of future
policies? How would these goals address women's equality?
What realistic policy options should be considered in order to recognize
and value unpaid work?
What options and choices should be considered by:
What "next steps" would you recommend for the Nova Scotia Advisory Council on
the Status of Women?
Please think about these questions yourself, or talk with friends and family,
colleagues, and co-workers. Send your thoughts to the Advisory Council at:
NS Advisory Council on the Status of Women
PO Box 745
Halifax, Nova Scotia B3J 2T3
e-mail: nsacsw@gov.ns.ca
phone: (902) 424-8662
1-800-565-8662 (toll free in NS)
fax: (902) 424-0573
Elizabeth Beale is President and CEO of Atlantic Provinces Economic Council. Her
policy and research interests cover a wide range of topics related to the
economy of Atlantic Canada including regional development strategies,
interprovincial and external trade and labour market topics.
Gail C. Bruhm is a founding
member of the Family Caregivers' Association of Nova Scotia, formed in 1998 to
keep the issue of family caregiving on the policy agenda. She was the Project
Manager for the Caregiver Research Project, funded by the Maritime Centre of
Excellence for Women's Health, which looked at the supports women caregivers use
and how their caregiving role affects their health.
Ronald Colman, Director of GPI
Atlantic, heads this non-profit research group and is constructing an index of
sustainable development for Nova Scotia. The project has been designated as a
pilot for the country by Statistics Canada. Dr. Colman taught political science
at the university level for twenty years, and for five years he was a researcher
and speech writer at the United Nations. He is the author of The Economic
Value of Civic and Voluntary Work in Nova Scotia and The Economic Value
of Unpaid Housework and Child Care in Nova Scotia.
Margaret Dechman is on secondment from the Advisory Council on the Status of Women, heading the Family Mosaic Project, research co-sponsored by the Nova Scotia Department of Community Services and Human Resources Development Canada. The objective of the research is to better understand the social, economic, and family circumstances that promote positive outcomes for both mothers and their children.
Joan Hicks is an adult educator
who volunteered to facilitate this policy forum. Joan worked for many years with
the Halifax Regional Library and now works with the Prior Learning Assessment
Centre. Joan has provided leadership and support to initiatives for women
throughout her life, beginning with her participation on the Nova Scotia
Provincial Steering Committee for International Women's Year. That group helped
the Nova Scotia Task Force on the Status of Women, as a result of which the
Advisory Council on the Status of Women was eventually formed. Joan Hicks was
also associated with the Canadian Congress for Learning Opportunities for women,
as the National President.
Meg Luxton is a professor of Women's Studies and Social Science at Atkinson College, York University. She has done extensive research and writing on women's work in the home including the ground-breaking book, More Than a Labour of Love, published in 1980. Recently, she co-authored a research report for the Canadian Policy Research Network, How Families Cope and Why Policymakers Need to Know.
Shelley Phipps is a professor of
Economics at Dalhousie University. Her current research focuses on the health
and well-being of Canadian children, international comparisons of social policy,
poverty and inequality, and decision-making within families.
Maureen E. Shebib has been Legal Counsel to the Nova Scotia Human Rights Commission since 1996. Prior to that, she worked as a staff lawyer for Dalhousie Legal Aid, Program Coordinator of the Guelph-Wellington Sexual Assault Program, and was a part-time panelist on the Canadian Human Rights Tribunal. She is co-chair of the Sexual Orientation & Gender Identity Committee of the Nova Scotia branch of the Canadian Bar Association.
Kathryn Spracklin has been a
paid and unpaid policy researcher and analyst for Mothers Are Women, an
Ottawa-based grassroots feminist organization advocating for the concerns of
mothers. The focus of her work has been the technical, statistical and economic
aspects of unpaid work, including measurement, valuation, and alternative
economic indicators.
Caregiving. Paid or unpaid physical labour,
emotional or psychological support or nurturing a person provides, whether for a
family member or an unrelated individual (e.g., a child, an elderly parent, a
spouse, a friend, a patient or a client) which is focused on their physical,
psychological or emotional well-being or development.
Equal pay for work of equal value. A wage system for
female-dominated jobs which is based on a comparison of the wages for jobs which
are male dominated and which assesses these jobs according to the skill, effort,
and responsibility required to do the job.
Family-friendly policies. Workplace policies which
enable people to accommodate their caregiving responsibilities (e.g., flex-time,
parental/maternity leave, personal leave); social policies which provide
services or financial support to assist people to care for dependent children or
sick or elderly relatives (e.g., subsidized childcare, child tax credits,
respite care).
Flexible work options. Flexible working hours which
can accommodate different schedules and needs (e.g., to assist parents to
accommodate childcare responsibilities).
Gender roles. The different kind of tasks and
responsibilities assigned to men and women based on ideas about sex differences
and on social expectations about what is appropriate behavior for males and
females; social expectations about the kind of work, behavior and
responsibilities which are appropriate for women and for men; sex based
behaviors or attitudes men and women acquire because of social
expectations.
National Children's Agenda. A proposal for a range of
federal and provincial government initiatives designed mainly to address child
poverty and child development but which also includes ideas and initiatives to
assist parents to better balance employment and family responsibilities (e.g.,
various options for childcare).
Pay equity. A wage system which is based on equal
remuneration for jobs which are substantially similar or which are assessed to
be of 'equal value', regardless of whether the work is performed by women or by
men.
Respite care. Programs that help caregivers to
fulfill their caregiving responsibilities by providing a short period of
replacement care so that the main caregiver can take a break.
Telework. Paid work which uses telecommunications and
computer technology to link an employee with her employer and with customers so
that her work can be done from any location (including home).
Unpaid work. Activities related to care-giving, family, home maintenance or volunteering which add social or economic value and which individuals often do without being paid, but which could potentially be 'bought' in the market by hiring someone to do them for you (e.g., laundry, house-cleaning, childcare, home help, driving a family member or friend to a doctor's appointment).
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