Multilevel Governance Meets Federalism: The Role of the EU in Recent German Quota and Childcare Policies

This paper examines the different ways in which German Länder download European gender policies, focusing on the effects of federal structure on EU policy implementation. It builds on two assumptions: 1) that a federal structure is conducive to echoing EU-level policy debates, generating public attention and promoting debate among diverse actors and publics who can foster gender equality; and  2) that although multiple agenda-setting and framing venues might increase attention for women’s policies, diffusion might/might not reflect progressive gender politics, requiring federal as well as sub-national party constellations and politics to advance the cause.

I will examine these propositions in regard to two recent “negotiations” regarding  German gender policies: Attempts to establish legal quotas on the boards of private companies, and the launching of a childcare allowance for parents who raise their children at home. The center/left Länder quota initiative failed to pass in the Bundesrat, even though some conservative Länder joined in the demand for stronger, gender sensitive board representation; the second endeavor, pushed by Bavaria despite rejection by a majority of Länder, resistance at the federal level and massive public protest, was approved in both chambers of Parliament, taking effect in August 2013. Both the quota and the child allowance decision making processes were set within EU-level discursive frames, but confronted implementation barriers on the national and subnational level. Both cases also exhibit the EU’s role in fostering trans-party women’s coalitions, even though these coalitions’ frames ultimately were squashed by party interests.