Scottish Government

Learning From Experience: Lessons In Mainstreaming Equal Opportunities

Fiona Mackay and Kate Bilton, University of Edinburgh

Main findings

• Mainstreaming is a social justice led approach to policy making in which equal opportunities principles, strategies and practices are integrated into the every day work of government and other public bodies.

• Mainstreaming aims to transform the organisational cultures of governments and public bodies and to improve the quality of public policy and of governance itself.

• Mainstreaming is a term which is increasingly used, but is less well understood. There are substantial shortfalls in knowledge, awareness and techniques which appear common to the experience of mainstreaming in most countries.

• Mainstreaming is a strategy that can, without care, degenerate into tokenism where public commitment is given in principle but where in practice little is achieved.

• Specialist equality units play a crucial role in driving, co-ordinating and supporting mainstreaming.

• There is a shortage of concrete case studies which are crucial for governments and other public bodies seeking to 'learn' mainstreaming.

• Gender equality has been the primary focus of mainstreaming in theory and practice. Further work is needed to develop generic equality tools. It must also be recognised that different equality groups may require different sorts of analyses and specific tools.

• Prerequisites or enabling conditions for successful mainstreaming include: specific equality legislation, structures and policy; statistics disaggregated by gender, race, disability and the like; comprehensive knowledge of gender relations and patterns of social division; knowledge of government organisations and administration; necessary funds and human resources; and the equal participation of women and men (and the fair participation of equality groups) in political and public life and in decision-making processes.

• Mainstreaming in the UK is at an early stage. Constitutional change and the government's modernisation agenda are seen as important enabling contexts within which equalities work can develop both collaboratively and distinctively at different levels.

• Case studies demonstrate that whilst there has been much innovation, progress has been uneven and mainstreaming remains vulnerable to political and organisational change and loss of momentum.

• Policy leaders such as Canada and the Nordic countries underline the importance of integrated strategies for the implementation of mainstreaming.

• Strong and sustained political will is probably the single most important factor for successful implementation.

• Further systematic research is needed to draw lessons from the experiences of policy leaders and from UK local government.

What is mainstreaming?

Mainstreaming is a relatively new approach to policy making in which equal opportunities principles, strategies and practices are integrated into the every day work of government and other public bodies from the outset, involving 'every day' policy actors in addition to equality specialists. It is a long-term strategy to frame policies in terms of the realities of people's daily lives, and to change organisation cultures and structures accordingly. The ultimate goal of mainstreaming is to create a fairer society. A number of arguments have been put forward in support of mainstreaming:

• It puts people, and their diverse 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 and helps to tackle democratic deficit by encouraging wider participation in the policy process through effective consultation mechanisms.

• As a process it tackles the structures in society which contribute to, or sustain, discrimination and disadvantage.

• It challenges institutional discrimination.

• It makes equality issues visible, demonstrating that equality is a mainstream concern with implications for all and for the development of society, and that it is not just a 'cost' or a 'luxury'.

• The application of a mainstreaming approach can avoid the adoption of policies and programmes which replicate discrimination and exacerbate existing inequalities.

• Mainstreaming complements lawful positive action designed to address the historic and current impact of discriminating structures and practices.

Strategies, Tools and Techniques

There is clear evidence in all the case studies that misunderstanding and confusion over the meaning of 'mainstreaming' and related concepts remains at all levels in all countries. This confusion arises from the lack of a clear definition of mainstreaming, the lack of practical examples of 'what mainstreaming is', and from the fact that concepts of equality and analyses of different equality groups are very complex. Mainstreaming is sometimes referred to as a tool, sometimes a process or method, and sometimes as a strategy.

It is useful to think of mainstreaming in terms of principles, systems, framework tools and discrete tools and techniques. Mainstreaming is supported by principles which set out commitment to, and conceptions of, equality, and systems consisting of strategies, policies, structures, mechanisms and tools through which these principles can be put into practice. Tools are diverse and can be used separately or as part of a framework or package. Mainstreaming is an active process combining these elements. Therefore the use of mainstreaming tools alone does not constitute mainstreaming but must be part of a broader mainstreaming system.

There are three broad categories of tools: analytical, educational and consultative and participatory. In reality, most tools have multiple uses, for example, disaggregated statistics are useful as educational tools or in forming the basis of consultation, as well as for their analytical uses.

Analytical tools are designed to 'expose' the problem. Tools include: disaggregated statistics; surveys and forecasts; research; check lists; guidelines and terms of reference; gender impact assessment and differential impact analysis models; indicators; and monitoring tools.

Educational tools are designed to raise awareness, to transfer knowledge, and to support training. Tools include: awareness-raising and training courses; follow-up action; mobile or flying experts; manuals and handbooks; booklets and leaflets; educational material for use in schools.

Consultative and participatory tools are designed to improve the quality of policy-making and deepen democracy. For example, working or steering groups and think tanks; directories; databases and organisational charts; participation of both sexes - and all social groups - in decision-making; conferences and seminars; hearings and consultative fora.

Developing a Generic Equalities Approach

Gender equality has been the primary focus of mainstreaming in theory and practice, although more advanced models tend to incorporate a diversity perspective; in other words they take into account the realities of women's and men's lives in respect of race, disability and other dimensions of discrimination and disadvantage, including class, sexuality and religion. Examples of mainstreaming from other equalities perspectives remain rare but, when they do occur, they tend to be less sensitive to gender.

The logic of mainstreaming equality within the UK context suggests that a generic approach should be developed. Easy assumptions cannot be made that concepts, systems and tools developed for gender mainstreaming can be automatically utilised for other equality groups, although it is undoubtedly the case that some are amenable for wider use. Work is needed to develop understanding of the requirements of a generic equalities approach which works with commonalties but also recognises that different dimensions of inequality may require different sorts of analyses and specific solutions. A generic mainstreaming equalities approach needs to combine the following approaches:

• equal treatment approaches and anti-discrimination policies and legislation (there must also be recognition that some equalities groups do not have legal protection).

• positive action approaches which recognise the historic and current impact of discriminating structures and practices on different social groups, including women.

• gender and diversity approaches which recognise the impact of gender, the differences amongst women and amongst men, and the existence of multiple discrimination.

Defining mainstreaming as a strategy which draws upon legislative, social group and diversity analyses has various benefits. It enables the development of policy tools and decisions which are sensitive to the different legislative contexts within the UK; which take into account the significance of gender as it affects all women and all men; acknowledges the impact of social group disadvantage, (based on for example race, ethnicity, age and disability); and exposes the existence of multiple discrimination and the realities for those often made invisible by an approach which does not recognise the existence of gender as a division within equality groups (for example black women).

Case Studies

The study reviewed mainstreaming developments at different levels of government in a number of countries: Australia, Austria, Belgium, Canada, Denmark, Finland, France, Iceland, Ireland, Italy, Netherlands, New Zealand, Norway, Slovenia, Spain, Sweden, United States. The study also drew upon a small number of examples of mainstreaming in UK local government. The research found that while there has been much innovation in developing mainstreaming strategies, progress has been uneven.

The research report includes case studies from 18 countries. In this Research Findings, two examples from the policy leaders, the Nordic countries and Canada, are cited.

The Nordic countries: The Nordic Council of Ministers provides a striking example of an intergovernmental institution promoting mainstreaming through its Programme for Nordic Co-operation on Gender Equality 1995-2000. A three-year pilot project was launched in 1997, to develop and test methods and tools for mainstreaming. The 'umbrella' design of the project allows the sharing of experiences between the countries involved, and the co-ordination of activities through the Council of Ministers who commission projects and reports to ensure that different sub-projects cover different areas and approaches. The strengths of the Nordic approach include:

• top level political support of mainstreaming. For example, in Sweden and Norway commitment to mainstreaming is regularly restated in prime ministerial statements; in Norway equality goals have been built into government Action Plans. The importance of specific resources for equality work is also recognised.

• integrated mainstreaming systems. For example, a strong co-ordinating structure exists at Nordic Council level including a Nordic Project Manager responsible for implementation and monitoring. Within individual countries, Sweden and Norway have particularly well developed systems with specialist co-ordinating structures, inter departmental working and collaboration at different levels of government.

• development of innovative tools and methodologies. There has been considerable investment in developing and testing tools and methodologies. For example, the use of 'flying experts' has been piloted in Sweden. Swedish local government has developed the '3R method' of awareness raising and analysis which has been adopted elsewhere; in Norway, Gender Mainstreaming Guidelines have been developed; and packages of mainstreaming methodologies and tools compiled in a number of participating countries including Finland. All countries will contribute to a Nordic Mainstreaming Manual.

• gender disaggregated statistics are recognised to form a central plank of mainstreaming work. Sweden is well advanced in the collection and production of gender disaggregated statistics, with the production of an annual publication Men and Women in Sweden.

• sharing experiences and good practice. Collaboration between the Nordic countries has provided a supportive environment through which progress can be made in all countries. The Nordic Mainstreaming Newsletter provides a forum for dissemination of ideas and lessons as do common activities including seminars, working groups, and study visits. For example, mainstreaming training in Iceland has been facilitated through the assistance of Swedish expertise.

Canada: Canada provides a case of a well established and integrated strategy for mainstreaming gender equality based upon: high level political will, regularly restated; strong legislation concerning gender equality; and co-operation and collaboration between Federal, Provincial and Territories levels. The Federal Government is committed to implementing gender based analysis in the development of policies, programmes and legislation; and to developing analytic tools, training approaches and data for undertaking gender based analysis. Canadians use the term gender based analysis to describe gender mainstreaming activity, analysis and research. Most Provincial governments and Territories are likewise committed to some degree of gender based analysis, most notably British Columbia. At both Canadian Federal Government and British Columbian Provincial Government level, there is visible political commitment and integrated mainstreaming systems are in place including: specialist structures and gender experts within departments; strong co-ordinating mechanisms and lines of accountability and responsibility; policy appraisal frameworks; extensive training; and support in terms of gender disaggregated statistics and gender research.

The Canadian Federal Government and British Columbian Provincial Government are regarded as pioneers of mainstreaming tools in much of the emerging literature. The Canadian Gender-based Analysis and the British Columbian Gender Lens provide general frameworks which can be adapted by departments. Several sector-specific manuals have been produced in areas such as human resources and employment; the justice system; international development and Aboriginal affairs. The schema have also been widely used elsewhere.

In both cases, successful mainstreaming depends upon:

• commitment to the principles and goals of mainstreaming defined as a social justice strategy to create a fairer society; and respect for diversity. For example, the Canadian Government has endorsed mainstreaming in the Federal Plan for Gender Equality;

• high level support within government to implement and hold line ministries accountable. For example, in British Columbia each new policy, programme and legislative proposal for Cabinet consideration must include an Equity impact assessment, this refers to an analysis of implications not only in the area of gender but also sustainable development, social, regional and community issues, other equity groups, and health;

• building capacity to do gender-based analysis including key elements of capacity building such as ongoing training; development of tools; support for departments to develop their own sectoral tools; collection of gender disaggregated data; timely policy relevant research; expert support. For example, the Canadian Justice Department has established a network of 55 gender equality specialists to assist their colleagues in mainstreaming. Canada has also established Centres of Excellence for Women's Health to meet policy research needs;

• sufficient resources to co-ordinate, support and champion mainstreaming;

• managing the process such as ongoing liaison and co-ordination between relevant departments and at different levels of government; sharing of resources and good practice. For example, a Director of Gender Based Analysis has been appointed by the Federal Government to co-ordinate the strategy and maintain momentum;

• communication and consultation with women's groups and equity groups. For example, women's organisations are consulted on the annual federal budget.

• systems of reporting, monitoring and evaluating outcomes. For example, a joint federal-provincial/ territorial initiative resulted in the 1997 publication of Economic Gender Equality Indicators (EGEIs), a set of benchmarks to assess the relative status of women and men, and to measure change over time. Indices included comparison of women and men in such areas as earnings, income from all sources, paid and unpaid work, education and training.

Significant progress has been made towards mainstreaming gender equality into the work of governments in the above examples in Canada and the Nordic countries, however they share very similar difficulties and challenges with other case studies. Although there is commitment across the board, implementation has been uneven, resistance has been encountered, relevance of mainstreaming is not always understood by public officials, and issues of resources (time, budgets), shortage of data and lack of expertise are all cited as reasons to do nothing.

Lessons Learned

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.

In a number of cases mainstreaming has resulted in the dismantling of equality units and the loss of specialist projects. Effective pro-equality policy depends upon the combination of specialist structures and the integration of gender awareness within all policy areas. Shortfalls in knowledge, awareness and techniques are common to the experience of mainstreaming in most countries. In many of the case studies, much of the innovative practice is dependent on the commitment and experience of a surprisingly small number of politicians and specialist officers, who understand equality issues very well. Despite increasing public statements of commitment to mainstreaming equalities principles by governments, public bodies and councils, there is little evidence that the majority of politicians or public officials understand how this might be applied to specific issues.

This suggests that mainstreaming is a long term strategy requiring substantial investment in training and specialist support, the production of gender disaggregated statistics and other 'mapping' data, the employment of multiple strategies and tools, and the involvement of a wide range of internal and external actors including specialist practitioners, statutory equality agencies, academics, social partners and 'ordinary' women and men. 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'. Finally, but perhaps most importantly, mainstreaming is dependent upon consistent and high profile political commitment.

To summarise, the research underlines the need for an integrated strategy including strong political leadership, co-ordinating structures, specialist support, information, research and communication programmes, robust systems of monitoring and evaluation, and the development of innovative tools. The following needs are identified:

• the need for political will and leadership which is unambiguous, consistent and regularly restated in public.

• the need for managerial drive and commitment at top level.

• the need for political and bureaucratic accountability including the duty to demonstrate, for example:

• • Action Plans and progress reports

  • equality impact statements

  • performance appraisal system

• the need for systems for the co-ordination, monitoring and championing of mainstreaming, for instance:

• • ministerial, organisational and parliamentary champions

  • a mainstreaming director or co-ordinator to progress and maintain momentum

  • mainstreaming management team

  • specialist equality units

  • equality focal points in ministries and departments

  • inter departmental and intergovernmental working groups

  • communication and dissemination strategies

  • management information systems

• the need to embed equalities in a permanent and sustainable way, for example, through:

• • ongoing training and awareness raising

  • building understanding of gender and equalities issues

  • developing sector specific policy case studies and analyses

  • robust systems of monitoring and evaluation

  • communication

  • fostering a sense of ownership - by policy makers, service providers, equality groups and citizens

  • a move away from a blame culture

  • effective incentives (and sanctions)

• the need for a statistics and research strategy to support sound evidence-based policy making, including:

• • gender disaggregated statistics - cross tabulated by race, age and disability

  • annual compendia of equality statistics

  • timely research which is gender and diversity sensitive

  • equality indicators

• the need for the adaptation and development of appropriate methodologies, tools and mechanisms for policy appraisal.

• the need for equalities expertise (and the recognition of equalities expertise), for example:

• • recognition of 'gender know how' and skill

  • specialist staff and 'flying experts'

  • input from statutory equality agencies and academics

• the need for gender balance in decision making and the fair representation of members of equality groups; and for a socially representative workforce.

• the need for ordinary voices to be heard through:

• consultative fora

• development of innovative tools to involve women and men in general, and members of equality groups in policy development

• the need for secure and realistic resources for change.

• the need for collaborative learning and exchange of good practice.

About the study

The study by the Governance of Scotland Forum was undertaken between October and December 1999. It was funded, in part, by the Equal Opportunities Commission in Scotland. Bibliographic and internet searches were conducted, recent transnational European research was reviewed and supplementary information was gathered from selected government web sites in Europe and elsewhere. In addition, a multi staged email questionnaire survey of mainstreaming experiences was conducted with key equalities/women's agencies/departments at national and regional level including Australia (including New South Wales), Canada (including British Columbia and Quebec), France, Iceland, Norway, Slovenia, San Francisco (USA) and New Zealand. Information was gathered on selected local government case studies in the UK through email contact, phone briefings and interviews. The project aimed to consider, analyse and report upon recent developments in mainstreaming practice and research, to seek out concrete case studies of innovative practice of mainstreaming at various government levels and to highlight the strategies, structures and tools needed for successful mainstreaming.