Developing indicators and official statistics to monitor the new duty to promote gender equality Sylvia Walby Lancaster University

Sponsors of seminar Royal Statistical Society Official Statistics Committee Royal Statistical Society Official Statistics Committee ESRC seminar series What is gender equality in a global era ESRC seminar series What is gender equality in a global era Gender Statistics Users Group Gender Statistics Users Group

Introduction The new duty to promote gender equality The new duty to promote gender equality Dilemmas and issues Dilemmas and issues Conceptualising gender equality Conceptualising gender equality Operationalising gender equality for policy goals Operationalising gender equality for policy goals Measuring gender equality using indicators and statistics Measuring gender equality using indicators and statistics Examples in public policy Examples in public policy

The Gender Duty Duty on 43,000 public bodies to promote gender equality Duty on 43,000 public bodies to promote gender equality Derives from commitments in EU Treaty of Amsterdam and consequent Directives Derives from commitments in EU Treaty of Amsterdam and consequent Directives UK legislation to come into effect on 30 April 2007 UK legislation to come into effect on 30 April 2007 Goes beyond personnel/employment issues Goes beyond personnel/employment issues

EU Treaty and Directives EC Treaty, amended by Treaty of Amsterdam 1997, recognises equality of women and men as a fundamental principle and objective of the European Community EC Treaty, amended by Treaty of Amsterdam 1997, recognises equality of women and men as a fundamental principle and objective of the European Community Articles provide specific legal bases Articles provide specific legal bases Articles 141, 137: employment Articles 141, 137: employment Article 13: discrimination outside employment Article 13: discrimination outside employment New Directives: Employment Equality, Equal Treatment Amendment New Directives: Employment Equality, Equal Treatment Amendment Transposed into domestic UK law Transposed into domestic UK law

Rhetoric and achievement Much ongoing policy innovation Much ongoing policy innovation How much progress in achieving gender equality? How much progress in achieving gender equality? How to identify and measure change, simply and reliably so as to evaluate impact of policy changes How to identify and measure change, simply and reliably so as to evaluate impact of policy changes

Process for developing indicators and statistics Define gender equality Define gender equality Clear policy goals for gender equality Clear policy goals for gender equality Indicators to summarise complex data Indicators to summarise complex data Benchmarks and targets established Benchmarks and targets established Gender disaggregated statistics collected to support indicators Gender disaggregated statistics collected to support indicators Policy review mechanisms Policy review mechanisms

Defining gender equality Gender or women? Gender or women? What is gender equality? What is gender equality? Defining gender equality in the context of other inequalities Defining gender equality in the context of other inequalities

Why gender, not women? Gender is the social relations between women and men Gender is the social relations between women and men Changing womens lives means changing mens lives Changing womens lives means changing mens lives Not always appropriate to start from women Not always appropriate to start from women sometimes appropriate to start from men sometimes appropriate to start from men Sometimes the key is the relationship between men and women Sometimes the key is the relationship between men and women

Example: Employment Goal of European Employment Strategy: Goal of European Employment Strategy: reduce gender gaps in employment and unemployment and pay reduce gender gaps in employment and unemployment and pay Focus on women: Focus on women: Increase womens employment; remove pay discrimination Increase womens employment; remove pay discrimination Focus on men: Focus on men: Reduce long hours; provide paternity leave Reduce long hours; provide paternity leave Focus on gender: Focus on gender: Reconciliation of working and family life; Reconciliation of working and family life; rebalance employment and caring in the workplace and at home rebalance employment and caring in the workplace and at home

Concepts of gender equality Debates over 3 approaches (Rees, Fraser) Debates over 3 approaches (Rees, Fraser) Equal treatment Equal treatment Equality through sameness e.g. equal pay Equality through sameness e.g. equal pay Can equal treatment deliver equality if women and men are differently situated e.g. time spent on care? Can equal treatment deliver equality if women and men are differently situated e.g. time spent on care? Equal valuation of different contributions Equal valuation of different contributions Equality through equal respect for different activities e.g. care; Equality through equal respect for different activities e.g. care; How far does equally valuing different contributions embed inequality? How far does equally valuing different contributions embed inequality? Transformation Transformation Equality through changing gendered patterns e.g. making the workplace carer-friendly so as to enable both women and men to engage in both care and employment, flexible, parental leave Equality through changing gendered patterns e.g. making the workplace carer-friendly so as to enable both women and men to engage in both care and employment, flexible, parental leave Is there support for a transformative project that leaves behind traditional conceptions of gendered action, even if the only way to achieve equality? Is there support for a transformative project that leaves behind traditional conceptions of gendered action, even if the only way to achieve equality?

Gender equality in policy approach Is equality best achieved by? Treating women and men in the same way Treating women and men in the same way Traditional legislative approach Traditional legislative approach Providing women with special treatment Providing women with special treatment Exceptions are allowed, but are controversial Exceptions are allowed, but are controversial Transforming the practices of both women and men Transforming the practices of both women and men Depends upon analysis, since may not rest on existing behaviour Depends upon analysis, since may not rest on existing behaviour

Employment example Sameness/equal treatment: Equal pay for work of equal value; Sameness/equal treatment: Equal pay for work of equal value; Special treatment: training in non-traditional areas of work so as to break down occupational segregation by sex Special treatment: training in non-traditional areas of work so as to break down occupational segregation by sex Transformation: Regulating working time in the workplace (e.g. parental leave) so that carers can maintain careers, so that both women and men can be simultaneously carers and workers, removing the need for gendered choices. Transformation: Regulating working time in the workplace (e.g. parental leave) so that carers can maintain careers, so that both women and men can be simultaneously carers and workers, removing the need for gendered choices.

Gender mainstreaming Gender mainstreaming is the application of gender equality principles in all areas of policy by the normal policy actors (Verloo) Gender mainstreaming is the application of gender equality principles in all areas of policy by the normal policy actors (Verloo) Which model of gender equality is mainstreamed? Which model of gender equality is mainstreamed? European Commission considers that gender mainstreaming should always exist alongside, not as an alternative to, specific gender equality policies, so focal points of gender expertise are still needed European Commission considers that gender mainstreaming should always exist alongside, not as an alternative to, specific gender equality policies, so focal points of gender expertise are still needed

Intersectionality Gender equality and other equalities Implications of intersection of gender inequality with other inequalities (Crenshaw, McCall) Implications of intersection of gender inequality with other inequalities (Crenshaw, McCall) No gender is a uniform category, so attention to difference No gender is a uniform category, so attention to difference In some areas, e.g. employment, policy appears to be similar and mutually supportive In some areas, e.g. employment, policy appears to be similar and mutually supportive In other areas, competition and contestation over priorities, e.g. gay adoption and religion In other areas, competition and contestation over priorities, e.g. gay adoption and religion

Policy development Categories and feminist theory Categories and feminist theory Anticategorical approach (Braidotti) Anticategorical approach (Braidotti) Policy action: no ambiguity in definition of gender equality can remain Policy action: no ambiguity in definition of gender equality can remain Indicators and statistics Indicators and statistics

Why Indicators? Indicators essential to implementation, to know if planned progress is being achieved. Indicators essential to implementation, to know if planned progress is being achieved. Indicators needed for targets and setting benchmarks Indicators needed for targets and setting benchmarks Simplify complex data Simplify complex data Provide a clear focus to measure change Provide a clear focus to measure change Always abstractions Always abstractions Strength: simplify Strength: simplify Weakness: omit some important issues Weakness: omit some important issues

Types of indicators Outcome Outcome The degree of gender inequality in a specific field The degree of gender inequality in a specific field Policy development and implementation Policy development and implementation Identifying the extent to which policy is implemented on the ground Identifying the extent to which policy is implemented on the ground

Benchmarks Benchmarks are stable reference points Benchmarks are stable reference points Point against which future positions can be compared (for better or worse) Point against which future positions can be compared (for better or worse) Depend on indicators and statistics Depend on indicators and statistics

Targets Targets are the goals represented in a figure that is measurable. Targets are the goals represented in a figure that is measurable. Where do we want to go? Where do we want to go? When do we want to get there? When do we want to get there? E.g. Barcelona target within the EES on childcare measures the amount of childcare and when it should be available E.g. Barcelona target within the EES on childcare measures the amount of childcare and when it should be available Depends on indicators and statistics Depends on indicators and statistics

Gender Disaggregated Statistics Indicators depend upon robust data Indicators depend upon robust data Quantitative data, usually Quantitative data, usually Statistics need to be gender disaggregated or gender divided Statistics need to be gender disaggregated or gender divided Meaningful disaggregation Meaningful disaggregation Policy relevant presentation Policy relevant presentation

Are there adequate gender disaggregated statistics? Is the data collected? Is the data collected? Has data has been collected but is not yet in public domain? Has data has been collected but is not yet in public domain? Does data need re-presenting in a more suitable form for gender equality policy? Does data need re-presenting in a more suitable form for gender equality policy? Does a medium or long term data strategy need to be developed? Does a medium or long term data strategy need to be developed? Can questions be added to an existing survey? Can questions be added to an existing survey? Is there a need for original data collection? Is there a need for original data collection?

Tools Gender impact assessment Gender impact assessment Gender budgeting Gender budgeting

What gender equality objectives? Equal gender composition? Equal gender composition? During the decisional process During the decisional process In the population provided with the service In the population provided with the service Equal numbers of women and men in the relevant population? Equal numbers of women and men in the relevant population? What constitutes relevance? What constitutes relevance? Gender equality in policy outcome? Gender equality in policy outcome? Direct and indirect Direct and indirect Changing the relationship between differently gendered organisations/policies/projects Changing the relationship between differently gendered organisations/policies/projects

Mechanisms creating indirect gender effects Segregation (or different proportions) of women and men in different activities Segregation (or different proportions) of women and men in different activities Employment niches; sporting/leisure activities; Different travel patterns; victims of crime Employment niches; sporting/leisure activities; Different travel patterns; victims of crime Different resourcing of differently gendered organisations or practices Different resourcing of differently gendered organisations or practices Equal funds for womens and mens sports? Equal funds for womens and mens sports? Equal resources to fight violent crime in the street as violent crime in the home? Equal resources to fight violent crime in the street as violent crime in the home?

Examples Examples of goals, indicators, targets and data Examples of goals, indicators, targets and data EU: EU: European Employment Strategy to create the most competitive knowledge based economy in the world European Employment Strategy to create the most competitive knowledge based economy in the world Gender equality a fundamental principle and objective Gender equality a fundamental principle and objective UK UK Public Service Agreement working with all departments, bring about measurable improvements in gender equality across a range of indicators, as part of the governments objectives on equality and social inclusion Public Service Agreement working with all departments, bring about measurable improvements in gender equality across a range of indicators, as part of the governments objectives on equality and social inclusion

EU Gendered economic indicators, targets, data sources Indicator: Gender gap employment rate/Womens employment rate Indicator: Gender gap employment rate/Womens employment rate Target: closing the gender employment gap/womens employment rate 57% by 2005, 60% by 2010 Target: closing the gender employment gap/womens employment rate 57% by 2005, 60% by 2010 Data source: Labour Force Survey (LFS) Data source: Labour Force Survey (LFS) Indicator: Gender pay gap Indicator: Gender pay gap Target: significant progress in closing gap Target: significant progress in closing gap Data source: new Survey on Income and Living Conditions (SILC) Data source: new Survey on Income and Living Conditions (SILC) Indicator: Childcare provision Indicator: Childcare provision Target: childcare for 90% of 3-school age; 33% of < 3, by 2010 Target: childcare for 90% of 3-school age; 33% of < 3, by 2010 Data Source: new questions in LFS and SILC Data Source: new questions in LFS and SILC

UK PSA: Womens economic participation and advancement GOALS GOALS Enhancing lifetime incomes Enhancing lifetime incomes Maximising personal career development Maximising personal career development Optimising work-life balance Optimising work-life balance BUT BUT No target or indicator on incomes No target or indicator on incomes No target or indictor on high level jobs No target or indictor on high level jobs ONLY ONLY Increase in awareness of right to request flexible working Increase in awareness of right to request flexible working Increase employer provision of flexible working time Increase employer provision of flexible working time Increase employer provision of childcare Increase employer provision of childcare Increase numbers of large employers undertaking equal pay reviews Increase numbers of large employers undertaking equal pay reviews Increase womens membership of SET boards Increase womens membership of SET boards Increase in number of women newly self-employed Increase in number of women newly self-employed Reduce under representation in ITEC jobs Reduce under representation in ITEC jobs WHY NOT WHY NOT Narrowing gender pay gap? Narrowing gender pay gap? Narrowing gender participation gap in employment? Narrowing gender participation gap in employment? Reducing occupational segregation? Reducing occupational segregation?

EU Gendered decision-making Indicator: proportion of Parliamentarians who are women Indicator: proportion of Parliamentarians who are women Indicator: proportion of members of executive boards of top 50 firms publicly quoted on national stock exchanges who are women Indicator: proportion of members of executive boards of top 50 firms publicly quoted on national stock exchanges who are women Target: equality? Target: equality? Data base: European Commission maintains a data base Data base: European Commission maintains a data base

UK PSA: Womens Social and Civic Inclusion GOAL GOAL Equal representation in public life Equal representation in public life ONLY ONLY 40% female appointments on public boards 40% female appointments on public boards % women in top civil servants to reach 35% by 2004/5 % women in top civil servants to reach 35% by 2004/5 Reduced target to 30% for 2008 Reduced target to 30% for 2008 BUT BUT No target on MPs, Ministers, Lords, local government No target on MPs, Ministers, Lords, local government No target on judicial appointments No target on judicial appointments No target on senior police No target on senior police

EU Indicators: violence against women 3 Indicators on domestic violence: 3 Indicators on domestic violence: The number of female victims; The number of female victims; Types of victim support; Types of victim support; Measures to end violence Measures to end violence Target: none Target: none Data source: none Data source: none Indicators on sexual harassment in the workplace Indicators on sexual harassment in the workplace Target: none Target: none Data source: none Data source: none

UK PSA: Womens access to and experience of public service delivery GOALs GOALs Equal access to public services Equal access to public services TARGETS TARGETS Reducing the proportion of children in households where no one is working Reducing the proportion of children in households where no one is working Increase take up in childcare by lower income families Increase take up in childcare by lower income families Introduce light touch childcare approval scheme Introduce light touch childcare approval scheme Increase percentage of domestic violence cases where arrests are made Increase percentage of domestic violence cases where arrests are made Increase coverage of second tier pensions for women Increase coverage of second tier pensions for women Improve local public transport Improve local public transport BUT BUT Why not EU agreed Barcelona child care target? Why not EU agreed Barcelona child care target? Why not reduction in DV? And other forms of violence? Why not reduction in DV? And other forms of violence?

Tension between specificity and mainstreaming Specific nature of gender-equality and detailed appreciation of distinctive nuances? Specific nature of gender-equality and detailed appreciation of distinctive nuances? AND/OR AND/OR More general categories that facilitate addressing priorities within the mainstream e.g. economic growth? More general categories that facilitate addressing priorities within the mainstream e.g. economic growth?

Conclusions The new duty on public bodies opens a new phase in gender equality policy in the UK The new duty on public bodies opens a new phase in gender equality policy in the UK Tension between different conceptions of gender equality Tension between different conceptions of gender equality Many gender policy goals still being clarified and translated into indicators, targets Many gender policy goals still being clarified and translated into indicators, targets Statistics well provided in employment; less well elsewhere. Statistics well provided in employment; less well elsewhere.

Presentations Morning: indicators and statistics Morning: indicators and statistics Janneke Plantenga Developing gender equality indicators in EU Janneke Plantenga Developing gender equality indicators in EU Esther Breitenbach Statistics for gender equality Esther Breitenbach Statistics for gender equality Afternoon: Afternoon: practical applications in policy practical applications in policy Andrea Murray Implementation of the duty: progress & challenges Andrea Murray Implementation of the duty: progress & challenges Shelha Hussain The development of the equalities scheme in the Crown Prosecution Service Shelha Hussain The development of the equalities scheme in the Crown Prosecution Service Jeff Turner and Frances Hodgson Gender equality in transport Jeff Turner and Frances Hodgson Gender equality in transport Reflections and response Reflections and response Paul Allin: ONS Paul Allin: ONS