{"id":266160,"date":"2018-04-24T16:00:32","date_gmt":"2018-04-24T20:00:32","guid":{"rendered":"https:\/\/policyoptions.irpp.org\/issues\/what-makes-quebec-such-an-outlier-on-child-care\/"},"modified":"2025-10-07T22:04:09","modified_gmt":"2025-10-08T02:04:09","slug":"what-makes-quebec-such-an-outlier-on-child-care","status":"publish","type":"issues","link":"https:\/\/policyoptions.irpp.org\/fr\/2018\/04\/what-makes-quebec-such-an-outlier-on-child-care\/","title":{"rendered":"What makes Quebec such an outlier on child care?"},"content":{"rendered":"<p class=\"dropcap-big\">Several provincial governments have recently increased public funding of child care services. The Alberta government <a href=\"https:\/\/www.alberta.ca\/release.cfm?xID=511855C346B7E-EFA9-8F76-7291CA2EB0BA03BB\">announced a modest investment in child care<\/a> in December 2017, and the BC government proposed <a href=\"https:\/\/bcbudget.gov.bc.ca\/2018\/childcare\/2018_Child_Care_BC.pdf\">a $1 billion investment<\/a> over three years in its 2018 budget. In its latest budget, the <a href=\"https:\/\/www.thestar.com\/news\/queenspark\/2018\/03\/27\/ontario-budget-to-fund-free-child-care-for-preschoolers-by-2020-as-part-of-22-billion-plan.html\">Ontario government announced a very ambitious plan<\/a> to provide free child care services for children aged 2\u00bd-to-4 years starting in 2020.<\/p>\n<p>Despite these announcements, as we show in our <a href=\"https:\/\/irpp.org\/research-studies\/les-services-de-garde-subventionnes\/\">study for the IRPP<\/a>, the other Canadian provinces are far from matching the level of investment in child care that has been in place in Quebec since the late 1990s.<\/p>\n<p>As shown in figure 1, public spending on child care services in Canada (0.2 percent of GDP) is the lowest of all OECD countries, tied with Turkey and Latvia (see figure 1). The UK spends 1.4 percent of GDP on child care services and Australia 0.8 percent; even in the US, such spending is 0.6 percent of GDP.<\/p>\n<div class=\"infogram-embed\" data-id=\"a31407ba-0d78-4110-9037-89c3ba167c8b\" data-type=\"interactive\"><\/div><script>!function(e,t,s,i){var n=\"InfogramEmbeds\",o=e.getElementsByTagName(\"script\"),d=o[0],r=\/^http:\/.test(e.location)?\"http:\":\"https:\";if(\/^\\\/{2}\/.test(i)&&(i=r+i),window[n]&&window[n].initialized)window[n].process&&window[n].process();else if(!e.getElementById(s)){var a=e.createElement(\"script\");a.async=1,a.id=s,a.src=i,d.parentNode.insertBefore(a,d)}}(document,0,\"infogram-async\",\"\/\/e.infogram.com\/js\/dist\/embed-loader-min.js\");<\/script>\n<p>The low level of public funding for child care in Canada is a policy puzzle: despite popular demand and an international consensus around the benefits of child care spending in encouraging female labour market participation, public child care funding across Canada remains extremely low in comparative perspective.<\/p>\n<p>To explain this, researchers have tended to focus on the federal government\u2019s inability to implement a national child care program. From a Quebec perspective, this focus on the federal government is surprising, since there is a broad consensus that early childhood education and child care are within provincial jurisdiction. As shown in figure 1, Quebec\u2019s level of child-care spending is close to the OECD average.<\/p>\n<p>Shouldn\u2019t we instead ask why the other provinces have not developed ambitious public child care programs?<\/p>\n<p>In the 2013-14 budget year, Quebec\u2019s spending on child care was almost five times higher than the average of the other Canadian governments (see figure 2), and Quebec spent more than all other provinces combined. Even after implementation of the recently announced $1 billion in BC, public spending in that province will be 2.5 times lower than in Quebec.<\/p>\n<p>In Quebec, average fees were around $152 per month, compared with $1,210 a month in Ontario and $1,071 in BC in 2013-2014. Not surprisingly, child care use in Quebec is the highest among the provinces.<\/p>\n<div class=\"infogram-embed\" data-id=\"cb5ce14b-162a-4956-a4f7-91b9f585af88\" data-type=\"interactive\"><\/div><script>!function(e,t,s,i){var n=\"InfogramEmbeds\",o=e.getElementsByTagName(\"script\"),d=o[0],r=\/^http:\/.test(e.location)?\"http:\":\"https:\";if(\/^\\\/{2}\/.test(i)&&(i=r+i),window[n]&&window[n].initialized)window[n].process&&window[n].process();else if(!e.getElementById(s)){var a=e.createElement(\"script\");a.async=1,a.id=s,a.src=i,d.parentNode.insertBefore(a,d)}}(document,0,\"infogram-async\",\"\/\/e.infogram.com\/js\/dist\/embed-loader-min.js\");<\/script>\n<p>Our aim in the IRPP study was to explain what makes Quebec so unique in this field. We identify the conditions that led to the adoption and maintenance of Quebec\u2019s public and \u201cuniversal\u201d child care program, introduced in 1997 by Lucien Bouchard\u2019s Parti Qu\u00e9b\u00e9cois (PQ) government. We argue that the main conditions are (1) a left-of-centre party ready to act as a \u201cprotagonist\u201d in initiating a major child-care reform; (2) the absence of a right-wing party ready to act as an \u201cantagonist\u201d and roll back progressive reform; and, (3) a shared understanding across political parties and civil society associations that child care is an exclusive provincial responsibility.<\/p>\n<p><strong>Quebec\u2019s unique party system and interest group dynamics<\/strong><\/p>\n<p>The presence of a centre-left party in government is a necessary condition for significant public investment in child care. All the significant provincial child care initiatives have been sponsored by centre-left New Democratic Party (NDP) or PQ governments. Ontario\u2019s Liberal government under Kathleen Wynne clearly aims to attract centre-left voters with its pre-election promise. In contrast, centre-right parties generally prefer direct cash transfers to families instead and have tended to cut public spending on child care services once elected.<\/p>\n<p>The polarization of the party system on the left\/right scale also matters. In this regard, the Quebec party system is unique, because the dominant political cleavage has traditionally been the federalist\/sovereigntist divide. On other issues, PQ governments have been leftist enough to implement major social policy initiatives, and the Quebec Liberal Party (QLP) is rather centrist, especially in contrast to conservative parties (or the BC Liberals) in other provinces. Most important, the QLP did not roll back the PQ\u2019s 1997 child care program when it came to power in 2003.<\/p>\n<p>Party systems in other provinces have either lacked a credible centre-left party (as in Atlantic Canada) or have a strongly competitive right-wing party, which can cut back on child care initiatives once elected. For example, BC\u2019s NDP government under Ujjal Dosanjh proposed a $7-a-day-per-child public child care program in 2001, but the plan was scuttled after the NDP lost the election to the right-leaning Liberal Party later that year. Similarly, it is unclear what will happen to the Premier Wynne\u2019s promised investments if the Progressive Conservative Party (PCP) of Ontario, under Doug Ford, wins the June election.<\/p>\n<p>The political orientations of its interest groups is the final condition that explains why Quebec is such an outlier in the area of child care. Put simply, in Quebec, feminist and left-wing interest groups focus much of their policy representation efforts on the provincial government; they expect their \u201cnational\u201d government to deliver major social policy initiatives. In the other provinces, feminist and left-leaning groups tend to focus their efforts on the federal government. This is in part because they believe Ottawa has more fiscal room and because, importantly, they believe that such measures should be \u201cnational\u201d in scope and thus led by the federal government.<\/p>\n<p><em>\u00a0<\/em><strong>Limits to public policy diffusion<\/strong><\/p>\n<p>Our study also sheds light on the influence of one jurisdiction\u2019s policy \u2500 or the policy\u2019s diffusion \u2500 across a federal system.<\/p>\n<p>First, such diffusion is less likely to occur when policy-makers\u2019 objectives differ. Greater women\u2019s labour market participation was one of the main objectives of the PQ government when it implemented its child care program. However, this seems to be less important in the debates about child care in many provinces today. Instead, policy-makers tend to focus on the positive impact of child care on children\u2019s cognitive capacities.<\/p>\n<p>Unequal access to child care in Quebec has been identified as a negative aspect of the program: middle class parents tend to use the program more than do low-income families. This argument has limited the influence of Quebec\u2019s policy on the rest of the Canada. However, the argument does not take into account three factors connected to the political dynamics of social policies and of the reality of child care use around the world.<\/p>\n<p>First, the lack of available data on child care across Canada makes it difficult to ascertain if low-income parents have better access to the relatively small number of publicly funded child care spots in other provinces.<\/p>\n<p>Second, <a href=\"https:\/\/onlinelibrary.wiley.com\/doi\/full\/10.1111\/spol.12311\">international research<\/a> shows that access to publicly funded child care is unequal in most of the other OECD countries, simply because middleand upper-income parents have higher labour market participation rates than low-income parents and are thus more likely to use child care.<\/p>\n<p>Third, the view that there has been unequal access to child care in Quebec neglects the political dynamics associated with universal programs. When the middle class is included in a social program, this broadens popular support and makes the program more resistant to cutbacks. Indeed, no political party in Quebec would seriously consider a retrenchment of the popular child care program, precisely because it benefits the large and influential middle class.<\/p>\n<p>In our view, it is especially important for progressive parties in jurisdictions where there are polarized political systems to include the middle class in their child-care reforms, even if it leads to a less egalitarian distribution of the benefits than would an expansion targeted solely at low-income households. If bold child care reforms are in place \u2500 and they benefit a large segment of the population \u2500 long enough before the elections in Alberta, BC and Ontario, the Quebec exceptionalism in child care might be short-lived. If not, if a conservative party wins the next election, the child care measures such as those announced recently in those provinces might not survive (or they will be greatly weakened).<\/p>\n<p><span class=\"image-caption\">Photo: Shutterstock, by puifaiminiiz<\/span><\/p>\n<hr \/>\n<p><em>Do you have something to say about the article you just read? Be part of the\u00a0<\/em>Policy Options<em>\u00a0discussion, and send in your own submission.\u00a0Here is a\u00a0<\/em><a href=\"https:\/\/policyoptions.irpp.org\/fr\/article-submission\/\"><em>link<\/em><\/a><em>\u00a0on how to do it. <\/em><em>|\u00a0Souhaitez-vous r\u00e9agir \u00e0 cet article ? <\/em><em>Joignez-vous aux d\u00e9bats d\u2019<\/em>Options politiques\u00a0<em>et soumettez-nous votre texte en suivant ces\u00a0<\/em><a href=\"https:\/\/policyoptions.irpp.org\/fr\/article-submission\/\"><em>directives<\/em><\/a><em>.<\/em><\/p>\n","protected":false},"excerpt":{"rendered":"<p>Several provincial governments have recently increased public funding of child care services. The Alberta government announced a modest investment in child care in December 2017, and the BC government proposed a $1 billion investment over three years in its 2018 budget. In its latest budget, the Ontario government announced a very ambitious plan to provide [&hellip;]<\/p>\n","protected":false},"featured_media":257046,"template":"","meta":{"_acf_changed":false,"content-type":"","ep_exclude_from_search":false,"apple_news_api_created_at":"2025-10-08T02:04:12Z","apple_news_api_id":"d3d09bea-155e-4698-b79f-f4c0753aa5bb","apple_news_api_modified_at":"2025-10-08T02:04:12Z","apple_news_api_revision":"AAAAAAAAAAD\/\/\/\/\/\/\/\/\/\/w==","apple_news_api_share_url":"https:\/\/apple.news\/A09Cb6hVeRpi3n_TAdTqluw","apple_news_cover_media_provider":"image","apple_news_coverimage":0,"apple_news_coverimage_caption":"","apple_news_cover_video_id":0,"apple_news_cover_video_url":"","apple_news_cover_embedwebvideo_url":"","apple_news_is_hidden":"","apple_news_is_paid":"","apple_news_is_preview":"","apple_news_is_sponsored":"","apple_news_maturity_rating":"","apple_news_metadata":"\"\"","apple_news_pullquote":"","apple_news_pullquote_position":"","apple_news_slug":"","apple_news_sections":[],"apple_news_suppress_video_url":false,"apple_news_use_image_component":false},"categories":[9362,9357,9372],"tags":[8309,8477],"article-status":[],"irpp-category":[4245,4239,4251],"section":[],"irpp-tag":[],"class_list":["post-266160","issues","type-issues","status-publish","has-post-thumbnail","hentry","category-economie","category-politiques-sociales","category-recent-stories-fr","tag-quebec","tag-services-de-garde","irpp-category-economie","irpp-category-politique-familiale","irpp-category-politique-sociale"],"acf":[],"apple_news_notices":[],"yoast_head":"<!-- This site is optimized with the Yoast SEO plugin v27.4 - https:\/\/yoast.com\/product\/yoast-seo-wordpress\/ -->\n<title>What makes Quebec such an outlier on child care?<\/title>\n<meta name=\"robots\" content=\"index, follow, max-snippet:-1, max-image-preview:large, max-video-preview:-1\" \/>\n<link rel=\"canonical\" href=\"https:\/\/policyoptions.irpp.org\/fr\/2018\/04\/what-makes-quebec-such-an-outlier-on-child-care\/\" \/>\n<meta property=\"og:locale\" content=\"fr_FR\" \/>\n<meta property=\"og:type\" content=\"article\" \/>\n<meta property=\"og:title\" content=\"What makes Quebec such an outlier on child care?\" \/>\n<meta property=\"og:description\" content=\"Several provincial governments have recently increased public funding of child care services. 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