Feminist Policymaking in Chile

Chapter 1: The Rules of the Game: Explaining Feminist Policy Outcomes

1 the rules of the game: explaining feminist policy outcomes It is far better to see the state as a site of struggle, not lying outside of society and social processes, but on the one hand, having a degree of autonomy from these which varies under particular circumstances, and, on the other, being permeated by them. Gender inequalities are therefore buried within the state, but through part of the same dynamic process, gender relations are also partly constituted through the state. —Waylen 1996b, 15, citing Pringle and Watson 1992 To explore the question of how feminists in Chile learned to strategize politically to promote women’s rights within the state, we must consider a wide range of political factors that affect their ability to influence state policy. While every case study presents a unique set of opportunities and obstacles for policy reform, comparative research has identified a number of conditions that are likely to play a role in creating an auspicious context for feminist policymaking. Any attempt to understand the determinants of feminist policy change must confront two sets of challenges. The first involves the highly dynamic nature of the policy process itself. Multiple actors inside and outside the state attempt to influence the policymaking process, and the strength of these actors varies across cases. Within a given country, the shifting strength of different political parties, as well as the larger stability of government institutions, fundamentally shapes the opportunities for policy change. Within this context, critical actors are more or less successful in their ability to exploit available political opportunities. More complicated still is the fact 22 FEMINIST POLICYMAKING IN CHILE that political opportunities shift within countries, not only over time but across policy areas. Effective political strategies may not be transferable from one policy area to the next. Finally, past success or failure will affect future strategy decisions, creating a policy context that is constantly in flux. A second series of challenges emerges from the subjective perceptions of the political actors themselves. Particularly in an area such as women’s rights, which arouses strong passions among proponents and opponents, actors’ evaluation of their effectiveness in influencing policy shapes their future willingness to participate in the policy process. How do feminists within and outside the state define successful policy reform? What were their original expectations for change in a given case? Did their participation leave them more or less confident about their ability to shape government policy? What role do political leaders play in shaping expectations for reform? Before an issue can be seen as a legitimate domain for public policy, it must first be seen as a political issue. Organized women in civil society are most often responsible for the politicization of women’s rights issues. The policy impact of women’s movements, and feminist movements in particular, makes a logical starting point for any analysis of feminist policymaking. But the larger political context in which these movements operate shapes movement strategies and the possibilities for policy reform. Within the state, research from cases across the globe identifies several institutional factors that enhance the prospects for feminist policy reform. The existence of an executive agency specifically focused on women’s rights can significantly broaden the opportunities for feminists to influence state policy, although the influence of these agencies varies widely across cases. In addition, the strength of the political Left within the government is often key, although the Left is not monolithic in its support for women’s rights. Many proponents of women ’s rights assume that increasing the number of women in office will increase government attention to women’s rights, but as more women from across the political spectrum win election, one cannot assume their support for feminist proposals. To these institutional components I add the importance of balance of power among branches of government, which often determines the origin and trajectory of proposals for reform, as well as the degree of policy cooperation within the government. Outside the state, feminists battle with opposition to women’s rights from powerful cultural forces like religious institutions. These struggles are influenced by, and in turn in- fluence, larger patterns in public opinion on women’s rights. This chapter evaluates the importance of each of these factors for feminist policymaking. Of crucial importance are not only the ‘‘inherent’’ powers of EXPLAINING FEMINIST POLICY OUTCOMES 23...