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Mainstreaming Equal Opportunities
 
 
Executive Summary
 
This project was undertaken on the basis of the brief issued by the Consultative Steering Group on the Scottish Parliament. The project lasted five weeks over July and August 1998.
 
In light of the unfamiliarity of ‘mainstreaming’ as a concept and the nature of experience to date, this report has extended its brief to place the questions of parliamentary ‘mainstreaming’ within the wider literature, and the concerns and lessons learned so far in equalities work in a variety of institutional settings.
 
Whereas ‘mainstreaming’ can sometimes be characterised as a managerial or organisational device, research makes clear that politics is at the heart of ‘mainstreaming’, and that political will is necessary for it to succeed. The Council of Europe expert group has identified the following factors which they perceive to be necessary conditions or facilitating factors.
 
  • Political will
  • Specific gender equality policy
  • Gender statistics
  • Comprehensive knowledge of gender relations
  • Knowledge of the administration
  • Necessary funds and human resources
  • Participation of women in political and public life and in decision-making processes
 
The concept has become increasingly topical in the 1990s, as a result of a number of political contexts and support from global, european, national and local institutions and bodies. It is seen to form an important plank in strategies to improve the quality of government and to counter the democratic deficit which has led to a crisis of trust and legitimacy in many liberal or welfare state democracies. It is likely that ‘mainstreaming’ will increase in importance within members countries of the EU as a result of the new Treaty of Amsterdam in which equality between women and men will be one of the core objectives.
 
What is mainstreaming
 
  • ‘Mainstreaming’ equality is essentially concerned with the integration of equal opportunities principles, strategies and practices into the every day work of government and other public bodies from the outset, involving ‘every day’ policy actors in addition to equality specialists. In other words, it entails rethinking mainstream provision to accommodate gender and other dimensions of discrimination and disadvantage, including class, ethnicity and disability. It is a long-term strategy to frame policies in terms of the realities of women's and men’s daily lives, and to change organisation cultures and structures accordingly.
  • ‘Mainstreaming’ also involves an acknowledgement that the task for removing imbalances and inequalities in society is a shared responsibility involving both women and men.
  • Explicit links are made between ‘mainstreaming’ and wider issues of participation and consultation. Gender balance in political, social and economic decision making is seen as both a central plank for the promotion of mainstreaming, and also an important goal. Mainstreaming also requires the close involvement of ordinary women and men, and communities of interest in the policy making process.
 
‘Mainstreaming’ and equalities structures
 
‘Mainstreaming’ has developed as a new strategy to take equalities work forward but must be placed within the context of the history and considerable achievements of specialist structures and policies. Specialist equality policy machinery is seen as both a necessary precondition for ‘mainstreaming’ and a parallel strategy. The experience of state equality machineries over the past 25 years demonstrates that whilst a ‘mainstreaming’ approach is essential if equality issues are to be embedded within policy they operate most effectively when this is coupled with a powerful co-ordinating body. Effective pro-equality policy depends upon the combination of specialist structures and the integration of gender awareness within all policy areas.
 
The following roles have been identified for equality policy machinery in complementing and supporting ‘mainstreaming’:
  • tackling specific issues of inequality with specialist policies and initiatives
  • acting as a think tank for developing analyses of inequality
  • development of techniques and tools for ‘mainstreaming’
  • provision of expertise and specialist knowledge
  • dissemination of knowledge
  • publicising government commitment to equality and its achievements
  • training and awareness raising
  • acting as an internal lobby
  • acting as co-ordinator for ‘mainstreaming’ initiatives and point of contact
  • monitoring overall government performance in achieving equality goals and targets.
 
The case for mainstreaming
 
There are a number of arguments in support of ‘mainstreaming’:
  • It is a primary tool for the delivery of public policy objectives on the promotion of equality and the effective distribution and delivery of public services.
  • it puts people, and their specific needs and experiences, at the heart of policy-making.
  • it leads to better government through better informed policy-making and a greater transparency and openness in the policy process.
  • it makes fuller use of human resources by involving men as well as women in equality work.
  • it helps to tackle democratic deficit by encouraging wider participation in the policy process through effective consultation mechanisms.
  • it makes equality issues visible in the mainstream of society, demonstrating that equality is an important societal issue with implications for all and for the development of society, and that it is not just a 'cost' or a 'luxury'.
  • it tackles the structures in society which contribute to, or sustain, gender segregation and discrimination.
  • it can avoid the adoption of policies and programmes which replicate discrimination and exacerbate existing inequalities.
 
Tools and techniques
 
  • ‘Mainstreaming’ involves the reorganisation of policy processes so that gender issues are dealt with in ‘mainstream’ policy making by mainstream policy actors. This necessitates the development or adaptation of a range of tools and techniques within three broad headings: analytical tools and techniques such as gender disaggregated statistics and methods of gender impact assessment; educational tools and techniques, such as awareness training and ‘flying experts’; and tools and techniques which facilitate consultation and participation, such as gender balance in decision making, consultative forums and surveys.
 
 
Parliamentary experience
 
  • It is striking how seldom parliamentary actors feature in the growing literature on ‘mainstreaming’ or the existing body of knowledge on equalities work. This is all the more surprising given that political will is seen as a crucial variable for the success or failure of such initiatives.
  • Specialist equalities committees are the norm at national parliament level in EU member states and within European-level institutions. At devolved/regional parliament level the picture is more uneven although, in the case of Germany, 13 out of the 16 Länder have specialist committees with a wide range of functions. Committees are highly heterogeneous but have some or all of the following roles and functions:
    • call evidence / require attendance from ministers and civil servants
    • hold public hearings and public enquiries
    • call evidence from outside experts
    • consult and receive submissions from groups and individuals
    • commission research
    • publish reports and minutes of evidence
    • scrutinise government legislative proposals
    • propose amendments to government legislative proposals
    • discuss and draft proposals for legislative change
    • call debates in parliament
    • monitor and evaluate government policies and their implementation
    • monitor and evaluate government performance
  • Many of the parliamentary initiatives reported in the literature concern the commissioning of research on the status of women in general (economic and social position, role in public life) or on the specific issues facing women and men in equity groups (eg. male and female migrant workers). Parliaments have played a very significant role in establishing baseline data. Parliaments and parliamentary committees have also been active in promoting greater representation of women in decision making (within parliaments, executives and ministerially appointed public bodies and advisory committees) and in putting issues such as domestic violence and the international trafficking of women and children on the political agenda.
 
Mainstreaming the wider picture
 
  • In terms of the wider picture of ‘mainstreaming’ in government there are a number of case studies of ‘mainstreaming’ initiatives at european, national, regional and local levels. The Swedish multi level approach provides a model of good practice. It involves high profile and long term political support and the use of a co ordinated range of analytical, educational, organisational, and consultative strategies. There is a commitment to ‘mainstreaming’ at national, regional and local level and action research has been funded to develop and systemise gender equality analysis. ‘Mainstreaming’ takes place against an established record in specific equalities work and is supported by specialist structures.
  • In many of the case studies, much of the innovative practice is dependent on the commitment and experience of a surprisingly small number of elected members and officers, who understand equality issues very well. Despite increasing public statements of commitment to equalities principles by governments and councils, there is little evidence that the majority of politicians or officers understand how this might be applied to specific issues. This is even in the case in Sweden which represents the most progressive case study country. In these circumstances, it is necessary to provide expert support in terms of gender disaggregated statistics and other ‘mapping’ data, detailed guidance and support. The need for awareness raising and equalities policy appraisal training cannot be over emphasised and must be seen as an on going process rather than a ‘one-off’. Equality experts are also needed to develop and modify techniques and tools for mainstreaming.
  • Many local authorities in both Britain and Europe have experience of some elements of what is regarded as ‘mainstreaming’ or integrated equality good practice: training, information, action plans, gender perspective assessment, specialist support and co ordination, and specialist advisers within departments. Furthermore it is at local government level that some of the innovative consultation methods have been pioneered, for example, women’s surveys, information and consultative road shows, specialist and community forums.
  • As a strategy ‘mainstreaming’ is at an early stage of development and practice is evolving. There are no examples where ‘mainstreaming’ can be said to be fully implemented
 
Key lessons
 
  • There are substantial shortfalls in knowledge, awareness and techniques which appear common to the experience of ‘mainstreaming’ in most countries and suggests ‘mainstreaming’ is a long term strategy requiring substantial investment in training and specialist support, the employment of multiple strategies and tools, and the involvement of wide range of external actors including specialist practitioners, equalities agencies, academics, social partners and ‘ordinary’ women and men. It is also dependent upon consistent and high profile political commitment. The research underlines:
    • the need for political will
    • The need for structures for co ordination, monitoring and championing mainstreaming
    • The need for gender balance in decision making
    • The need for expertise and for training to raise levels of awareness, knowledge and analysis amongst politicians and officials.
    • The need for the voices of women and men, including members of equity groups to be heard
    • The need for an integrated strategy, involving different levels of government and a wide range of external policy actors.
 
Recommendations
 
Political will is perhaps the most crucial variable for the success or failure of ‘mainstreaming’ initiatives. This suggests that parliaments have a key role to play. The report recommends that the Scottish parliament considers:
  • a partnership approach drawing upon the considerable expertise of local government and statutory equalities agencies
  • the requirement for all parliamentary committees to incorporate an equalities dimension in work
  • a standing committee on equalities with responsibilities for co ordination and monitoring. A specialist committee acts as a ‘guarantor’ that the core principles of the parliament in respect of equal opportunities are upheld and maintained
  • a specialist unit within the secretariat of the parliament
 
It must be noted that this report does not constitute an exhaustive survey, this was not possible within the time scale and the timing of the research. However, there is an apparent gap in the existing literature. The SCG or the Scottish Parliament may wish to consider commissioning systematic research which focuses upon parliamentary experiences of ‘mainstreaming’ and the different roles of parliaments, executives, permanent bureaucracies, social partners and citizens.
 
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