Introduction

The absence of a national system of paid maternity or parental leave in Australia presents a puzzle: how is it that a country once regarded as a ‘social laboratory’ and renowned for its progressive social and industrial legislation (Roe, 1976; Castles, 1998) does not provide this basic entitlement for working parents? Even if a minimalist scheme of paid leave is introduced in the next year or two, as seems likely following the election of a Labor government, the lack of such leave to date requires explanation, especially since ‘work–life balance’ and ‘family policy’ have been prominent political issues for at least two decades (Pocock, 2003; Brennan, 2007). In seeking to explain this puzzle, one may locate Australian approaches to paid family leave (including maternity, paternity and parental leave) within the historical traditions of the welfare state in this country and the distinctive industrial relations regime that prevailed for much of the 20th century. These historical and institutional characteristics help to explain the absence of paid leave in this country, but they do not fully account for it. Both cultural values and party politics also matter a great deal.

The normative strength of the male breadwinner family has been critical in shaping Australian debates and policies on family support. Despite comparatively low levels of female labour force participation, Australian policy makers have eschewed ‘in-work’ benefits such as earned income tax credits.