Scottish Office: Mainstreaming Equal Opportunities

Mainstreaming Equal Opportunities

Equalities policy machinery and ‘mainstreaming’

There is some debate about whether ‘mainstreaming’ as a strategy negates the need for equalities policy machinery. In some instances the adoption of ‘mainstreaming’ as a policy has been accompanied by the disbanding of equal opportunities units and committees. However all those organisations which have formulated frameworks and guidelines on ‘mainstreaming’, for example the Council of Europe, the European Commission and the EOC (Britain), have stressed that ‘traditional’ equality work needs to continue in tandem with ‘mainstreaming’.

Gender ‘mainstreaming’ cannot replace and render redundant specific equality policy and machineries. When ‘mainstreaming’ is mentioned as a new strategy to achieve gender equality, it is always stressed that this strategy does not replace ‘traditional’ gender equality policy, but complements it. They are two different strategies to reach the same goal, i.e. gender equality, and must go hand in hand, at least until there is a real culture and consensus regarding gender equality in the whole of society.⁸

‘Mainstreaming’ is not a replacement for equality legislation. Nor is it a replacement for specialist equality teams. It provides a framework in which equality legislation and other equality measures, such as positive action, can be placed strategically. Positive action aims to complement legislation on equal treatment by contributing to the elimination of inequalities in practice".⁹

‘Mainstreaming’ and specific equality strategies have different starting points, involve different actors, and are concerned with different sorts of policy. The starting point for ‘traditional’ forms of equality work is a specific problem resulting from inequality. A specific policy solution for that problem is then developed by an equality machinery. The starting point for ‘mainstreaming’ is a policy which already exists. The policy process is then reorganised so that the ‘ordinary actors’ ie. departmental officials and politicians take a gender (and other equality) perspective into account, and equality as a goal is reached. ‘Mainstreaming’ is a long term strategy for transformation, it may take some time before it is effectively or fully implemented but it has a potential to achieve sustainable change. ‘Traditional’ forms of equality policy can achieve faster results, but are limited to specific policy areas and do not necessarily effect change to government policy making as a whole.

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.

Types of ‘mainstreaming’ Tools

Gender ‘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; educational tools and techniques; and tools and techniques which facilitate consultation and participation. Key points are summarised in Figure 3 below:

Figure 3: Summary of ‘mainstreaming’ tools and techniques

Analytical tools and techniques	Educational tools and techniques	Tools and techniques to facilitate consultation and participation
Aims and objectives	Aims and objectives	Aims and objectives
Analytical tools and techniques are involved in the production and provision of information necessary to become aware of equality issues and to make informed policy decisions. Tools and techniques are also required to monitor and evaluate policy implementation	Educational tools and techniques contain two aspects: awareness-raising and the transfer of knowledge: awareness-raising aims to challenge existing values and norms which perpetuate inequality and demonstrate how they influence and limit decision-making; and training which teaches people, especially the actors normally involved in policy processes, how to detect gender issues and how to develop policies in order to take gender and other equalities issues into account. In addition public awareness-raising about ‘mainstreaming’ is needed to give impetus to debate, to raise political interest, and to encourage mobilisation in general as well as means of training to transmit the information and knowledge necessary for action.	Gender ‘mainstreaming’ involves a greater number of people, including external actors, and this requires consultative and participatory techniques and tools. The direct input of people who will be affected by policies not only improves the quality of policy making but also deepens democracy. It is important that both women and men participate in all decisions taken in a society, given their various experiences in life. ‘mainstreaming’ is a central plank of initiatives to promote democratic renewal.
Selected tools and strategies	Selected tools and strategies	Selected tools and strategies
Gender disaggregated statistics The routine identification, collection, use and dissemination of gender statistics (further broken down by other variables such as age, ‘race’ and class) is a prerequisite to effective policy making and the ‘mainstreaming’ of equality into government. Exemplars of such a tool are found in the Swedish Government’s annual report Men and Women of Sweden and the annual statistical profile produced by the provincial government of British Columbia Women Count.	Awareness-raising and training courses Involving ministers, parliamentarians and high ranking bureaucrats to promote political commitment. Courses at middle and lower management focus on awareness-raising, but equally highlight how these persons can put equality ‘mainstreaming’ into practice and integrate it into their work. Specialist training for persons who need to apply specific tools and techniques such as gender impact assessment.	Working or steering groups and think tanks ‘mainstreaming’ requires exchanges of information, experiences and knowledge as well as tight co-operation and co-ordination of activities between various actors. Therefore, channels for inter divisional and interdepartmental collaboration have to be set up, including specific equality machineries and external partners where necessary.
Surveys and forecasts To map the current state of gender relations and make predictions of the impact of policies on future developments	Follow-up action Post-training support in the form of regular tasks, meetings or mentors. ‘Refresher or ‘booster’ courses to maintain awareness and knowledge levels.	Directories, databases and organisational charts Directories, databases and organisational charts help policy makers consult with individuals, groups or organisations.
Cost benefit analyses Cost benefit analyses of the differential impact of governmental policy on the lives of women and men operates as an ‘eye opener’ and helps to detect unintended consequences of proposed policies.	Mobile or flying experts These are specialists in gender issues, who provide education at the level of a unit or department. These experts temporarily join a unit or department in order to provide intensive help to those persons who have already had an awareness-raising course and training. Specialists intervene in order to put people on the ‘right track’. Their role does not consist in doing the work of the unit. Flying experts may be seconded from specific equalities machinery or academia. Examples of flying experts can be found in Sweden and British Columbia.	Participation of both sexes in decision-making Gender ‘mainstreaming’ requires the full participation of both women and men in all fields of society, not the least at the decision-making level. Lists of qualified women, quotas, positive actions and other special measures for the recruitment, appointment and promotion of women, are ways to ensure the participation of women in decision-making. Guaranteeing an equal participation of both sexes in decision-making also involves the evaluation of existing personnel policies. Several governments, particularly the Nordic countries, have quotas or targets for achieving gender balance in political decision making and in public bodies involving social partners.
Research One of the most important bases for ‘mainstreaming’ because it identifies current issues and problems and potential solutions. Research may involve any of the tools listed above. In addition, it can provide new insights and ideas.	Manuals and handbooks These tools contain very practical information and can help individual persons to integrate a gender or equality perspective into their work. They explain why, where, when and how to incorporate a gender perspective in policies and contain important sources of information and background material. Examples of training manuals can be found in British Columbia, New Zealand and Flanders	Conferences and seminars The organisation of public conferences, seminars and press conferences creates opportunities to inform the public in general and those concerned by policies.
Checklists, guidelines and terms of reference All these tools are intended for policy-makers, serving as a help to put ‘mainstreaming’ into practice. Checklists explain what gender ‘mainstreaming’ is about, set out the objectives and describe the action to be taken. Guidelines and terms of reference are more general tools. Terms governments and of reference are meant for ministerial or parliamentary committees, guidelines civil servants. are primarily aimed at Policy-makers need to already have considerable knowledge of gender issues.	Booklets and leaflets The publication of promotional booklets or leaflets about gender ‘mainstreaming’, for wide distribution in the public administration and among the general public, provides information and raises awareness. For example, examples may be given of policies which have caused damage to people and society as a whole because gender perspectives had not been taken into consideration, and also cost-benefit analyses and good examples of gender ‘mainstreaming’.	Hearings Hearings provide an opportunity to transmit information and also enable people to participate in the policy-making process. Hearings allow for the direct participation of people in developing and deciding on policies which concern them.
Gender impact assessment methods Gender impact assessment has its roots in the environmental sector and is a typical example of an existing policy tool that has been adapted for the use of gender ‘mainstreaming’. Gender impact assessment allows for the screening of a given policy proposal, in order to detect and assess its differential impact or effects on women and men, so that these imbalances can be redressed before the proposal is endorsed. Gender impact assessment can be applied to legislation, policy plans, policy programmes, budgets, concrete actions, bills and reports or calls for research. Gender impact assessment methods require a considerable amount of knowledge of gender issues. Examples include the Dutch and Flemish Gender Impact Assessment initiatives.	Educational material for use in schools There is a growing concern that children and adolescents should learn more about the functioning of society as a whole, about gender relations and about gender equality as being a part of human rights. Therefore, there is a need for educational material for use in schools, containing television and video programmes.
Monitoring This technique consists of the continuous scrutinising, follow-up and evaluation of policies. It can take the form of regular meetings and reporting or of research and special studies. Regular reporting has to be preceded by the establishment of relevant procedures, tools and analytical indicators by specialists. Reporting is not an end in itself and the outcomes have to be assessed and taken into account in policy preparing and planning processes. Other forms of monitoring include evaluation research. eg. in Norway academics are routinely commissioned to evaluate existing equalities policies

Source: abridged and adapted from CoE (1998) ( Council of Europe (1998) Gender ‘mainstreaming’: Conceptual framework, methodology and presentation of good practices. Final Report of the Group of Specialists on ‘mainstreaming’, Council of Europe, GR-EG (98)1)

‘Mainstreaming’ Issues, problems and correctives

The following table summarises some of the main issues raised by ‘mainstreaming’ as a strategy, together with potential correctives. Potential issues can be divided into four main categories: issues relating to understanding; procedural and structural issues; resources; and political and organisational commitment. Given the limited experience of ‘mainstreaming’ in operation the summary is also based upon expert reflection or prediction of the likely difficulties in ‘mainstreaming’ effectively. See Figure 4 for a summary.

Figure 4: Summary of 'Mainstreaming'

Issue	Problem	Details	Potential Correctives
Understanding Conceptual Issues	Misunderstanding the concept of ‘mainstreaming’ by assuming that it replaces specific equalities initiatives	Dilution or cessation of specific equalities policy machinery and work. Equalities issues might disappear or become over fragmented.	Retention of specific equalities policy machinery and specific equalities policy work.
	Limited concept of equality	Focus on anti discrimination or de jure equality will stall ‘mainstreaming’ initiatives - women and other equity groups will continue to be seen as the ‘problem.’	Introduction of broader definitions of equality, involving human rights, diversity and difference.
Procedural and Structural Issues	Limitations in traditional policy making processes and organisational procedures.	‘mainstreaming’ involves the introduction of gender perspective into functional areas. This can be frustrated by departmental territorialism; by rigidities of ways of doing things; and by reluctance to involve non traditional social partners reluctance to expand consultation.	Changes in policy making procedure to involve greater cross departmental co operation and the creation of new channels for the consultation and involvement of new external political actors e.g. community groups, NGOs and ordinary citizens.
Resources	Lack of adequate tools and techniques.	Existing policy tools and techniques might not be adequate - this may lead to badly implemented ‘mainstreaming’ - or lack of implementation at all.	Need to develop new tools, e.g. gender impact assessment and adapt existing ones, e.g. the integration of gender into statistical data collection and analysis.
	Lack of Sufficient Knowledge about gender equality and other equality issues	‘mainstreaming’ means that equality matters will no longer be (only) in the hands of specific equality machineries. Non specialist actors may fail to identify gender interests or to implement good gender equality policies.	Need to build up gender and other equalities-related expertise amongst all policy actors through training etc. Use of specialist expertise, for example ‘flying experts.’ Attention paid to under representation of women in general, and women and men in other equity groups in decision making and consultative roles
	Lack of human and financial resources	Because ‘mainstreaming’ involves ‘ordinary’ actors and policies, financial and human resources need to be found from generic budgets. Failure to provide enough resources will undermine the effectiveness and credibility of ‘mainstreaming’ as a strategy.	Political will. Specific budget lines. For example, The European Women’s Lobby has given particular emphasis to the need for effective monitoring and the need to include special budget lines for equal opportunities within the European Union’s budget.
Political and Organisational Commitment	‘mainstreaming’ as ‘fashion statement’ rather than concrete policy.	‘mainstreaming’ is currently a fashionable concept. Governments may state that equality is to be integrated into all policies but do nothing to put commitments into practice or only superficially support gender ‘mainstreaming’ initiatives	Political will and commitment - visible champions. Gender balance in decision making and consultative bodies. Robust systems of monitoring and evaluation. Compulsory reporting of progress. Scrutiny of performance by equality policy machinery and specialist parliamentary committees. Building commitment through education and training internally; and externally through making the public case and disseminating achievements and success; and through consultation and participation.