SOU 2007:15

Gender Mainstreaming Manual, Gender Equality in Public Services

Typ: SOU
Datum: 2007-03-28
Källa: www.regeringen.se

Gender Mainstreaming Manual

A book of practical methods from the Swedish Gender Mainstreaming Support Committee (JämStöd)

Swedish Government Official Reports

Gender Mainstreaming Manual

A book of practical methods from the Swedish Gender Mainstreaming Support Committee

Stockholm 2007

Swedish Government Official Reports

This report is on sale in Stockholm at Fritzes Bookshop.

Address: Fritzes, Customer Service, SE-106 47 STOCKHOLM Sweden Fax: 08 690 91 91 (national) +46 8 690 91 91 (international) Tel: 08 690 91 90 (national) +46 8 690 91 91 E-mail: order.fritzes@nj.se Internet: www.fritzes.se

Text: JämStöd Translation: Lingon Layout: Svensk Information

Printed by Edita Sverige AB Stockholm 2007

ISBN 91-38-22731-2 ISSN 0375-250X

Foreword

Gender Mainstreaming Support (JämStöd) is a Swedish committee of inquiry that has worked for two years under a government mandate to provide information about gender mainstreaming and to develop practical methods and models for mainstreaming gender into central government activities. A further task of the committee has been to train central government administrators in the practical implementation of the process. We have collaborated with a number of government agencies that have led the way in seeking to ensure that the services they provide to the general public benefit women and men equally.

This book contains our most tried and tested methods. We hope that it will inspire both those of you who want to start the ball rolling and those who wish to take JämStöd’s methods and models for gender mainstreaming a step further.

As a supplement to this practical manual, we have produced a book of ideas for managers and gender strategists, as well as a separate offprint from it, entitled Gender Equality in Public Services, specifically targeting managers and management groups. We have also delivered a final report to the Government containing our recommendations (SOU 2007:15).

Stockholm, March 2007

Ann Boman Committee Chair

/Ulrika Eklund

Carina Löfgren

Gender Mainstreaming Manual – A book of practical methods 3

4 Gender Mainstreaming Manual – A book of practical methods

Content

Foreword	3
Introduction	6
Procedure for Sustainable Gender Mainstreaming – ‘The Ladder’	8
STEP 1	13
Gender Equality: The Basics	14
STEP 2	17
Study the Operation	18
The Gender-Equal Operation	21
Study the Operational Processes	24
STEP 3	25
Checklist for Planning and Organising Development Work – METS	26
STEPS 4–6	32
JämKART – Gender Equality Survey Analysis and Conclusions	33
JämKAS Bas	41
The 4R Method	47
JämKAS Plus	53
Process Mapping	60
STEP 7	64
STEP 8	65
JämUR – A method for evaluating outcomes	66
Some definitions	67
Gender Mainstreaming Manual – A book of practical methods	5

Introduction

If we are to challenge and change an activity or operation, we need working models and methods that help us achieve our aims. Gender mainstreaming is development work with a long-term perspective and only fully bears fruit when it is done systematically.

This book is a compilation of the methods and models that we think are most useful, all of which have been tested in various types of operation. Our hope is that they will be of practical use when you are carrying out a gender equality analysis, producing a plan of action or evaluating your work.

All methods and models come equipped with step-by-step guidelines.

In the introductory chapter, we present our working model Procedure for Sustainable Gender Mainstreaming, or, as we also call it, ‘The Ladder’. This model outlines both the various steps in the gender mainstreaming process and what we believe needs to be done if the work is to have a lasting impact on the operation concerned.

The Ladder is the platform on which the book rests, since we think it is essential to systematically follow a single model when undertaking gender mainstreaming. The Ladder is followed by a presentation of methods and models from steps one to eight.

The first step involves developing an understanding of gender equality. Here, we provide a brief summary of Swedish gender equality policy. In the second step, the focus is on determining the conditions for gender mainstreaming, and here we present three methods: Study the Operation, the Gender-Equal Operation and Examine the Processes.

The third step contains a working model, the Checklist for Planning and Organising Development Work, known as ‘METS’. This tool is appropriate when a management group is about to undertake the task of organising gender mainstreaming work, and provides an overview of what organisation of the work requires.

Steps four to six contain the JämKAS Basic, JämKAS Plus, Process Mapping and JämKART methods. These are appropriate when you are working with inventories, surveying, analysis and the formulation of objectives from a gender equality perspective.

The seventh step does not include a method; here, the organisation is expected to implement the measures planned in steps four to six.

The eighth and final step contains the JämUR method, which is an aid to evaluating the outcome of an operation or activity from a gender perspective.

About the methods

The methods vary in their degree of difficulty: some are simple and easily implemented without any special prior knowledge, while others demand more in-depth skills in method guidance as well as knowledge of gender issues and Swedish gender equality policy. Some of the methods use broad brushstrokes and involve an inventory of the entire operation, while some delve more deeply into a particular issue or activity. In methods involving gender equality analysis, the participants themselves usually carry out the analyses with the help of a skilled supervisor. If the result is to be meaningful, the supervisor must be well acquainted with gender issues and Swedish gender equality policy. Whatever method is to be used, participants should be equipped with a basic awareness of gender issues beforehand if the work is to be meaningful and rewarding.

6 Gender Mainstreaming Manual – A book of practical methods

How the methods should be used

JämStöd recommends that the various methods be adapted to the task in hand. Each method is followed by a description of the expected outcome. If you wish, various parts of the methods can be combined – the methods themselves are a means, not an end. What is important is that you systematically review your operation from a gender equality perspective. If you do so, you will have a good platform from which to develop an operation that enhances gender equality.

Gender Mainstreaming Manual – A book of practical methods 7

Procedure for Sustainable Gender Mainstreaming – ‘The Ladder’

The procedure outlined here, which we call ‘The Ladder’, is appropriate for an organisation about to initiate systematic gender mainstreaming work.

If the work is to be sustainable, we need more than one method of carrying out gender equality analyses. The Ladder model draws on our broad experience both of regular development work and of mainstreaming gender into entire organisations, including the Working Life Fund and the Ministry of Health and Social Affairs. Experience has taught us that time and resources devoted to the first steps on the Ladder are well spent.

We have also encountered organisations that begin in the middle of the Ladder, either because they do not feel they need the initial steps, or because they are so eager to forge ahead with the analysis work itself that they skip steps. Experience has shown, however, that this approach does not lead to stable change. Development work needs a firm base, and this is what the organisation builds in the first two steps. It is then time to organise the development work, for instance with the aid of our model ‘Checklist for Planning and Organising Development Work’, known as METS. Regarding gender equality analysis, JämStöd has a number of different methods to offer.

The model also contains a self-assessment form for joint appraisal of the work undertaken. This test is particularly useful in the management group.

At each step of the Ladder, we specify what it contains and what actions we recommend, and describe JämStöd’s methods.

Expected results

Working with the Ladder model provides: • an overview of all steps in the gender mainstreaming process • an overview of what should be done in the organisation, and in what order • an overview of what methods JämStöd has to offer at the various stages in the

process • a common view of the current situation in the organisation, and an awareness of

how the work can proceed.

Evaluate

7 the outcome

Implement

6 the measures

Formulate

5 objectives and

measures Survey and

4 analyse

Examine the

3 activities

Plan and

2 organise

Examine the

1 conditions

Fundamental understanding

Improvement

8 Gender Mainstreaming Manual – A book of practical methods

Procedure for Sustainable Gender Mainstreaming – ‘The Ladder’

STEP 1: FUNDAMENTAL UNDERSTANDING

Before gender mainstreaming work begins, the entire organisation, from management on down, must be given training in gender equality and gender, and in what Swedish gender equality policy and the gender mainstreaming strategy involve.

What to do

Organise training in: • Swedish gender equality policy • gender theory • gender mainstreaming as a strategy.

JämStöd’s methods

– The Ladder model: Procedure for Sustainable Gender Mainstreaming – Gender Equality: The Basics

STEP 2: EXAMINE THE CONDITIONS

The organisation examines the conditions for change, the potential benefits of mainstreaming gender into the operation, and whether the will exists.

What to do

Examine the conditions by answering these questions: • What characterises a gender-equal operation? What would it be like in our case? Do

we share a common vision? • Usefulness – what are the benefits of gender-equal activities? How will gender

mainstreaming improve our operation? What do our customers stand to gain? In

what ways will it affect our operation? How will it affect our target groups? • Where there’s a will there’s a way – do staff and management actually want to cre-

ate a gender-equal operation? What can be of help in this endeavour? What obsta-

cles are there?

JämStöd’s methods

– Study the Operation – The Gender-Equal Operation – Study the Operational Processes

STEP 3: PLAN AND ORGANISE

Management plans and organises the gender mainstreaming work. It is important to provide directives on how the work is to be led, organised and carried out.

What to do

Develop a strategy for how the gender mainstreaming work is to be led and organised by answering the following questions: • Objectives, checks and controls – is there a directive from the top? Have we set tar-

gets for our mainstreaming work? How is the work evaluated? Have we allocated

resources? Have we introduced the work into the agency’s follow-up system? • Training – have we planned training in gender theory and gender equality analysis

methodology?

Gender Mainstreaming Manual – A book of practical methods 9

Procedure for Sustainable Gender Mainstreaming – ‘The Ladder’

• Methods – are methods and procedures in place for our gender mainstreaming

work? • Support and coordination – how do we coordinate our gender mainstreaming work?

How do we manage strategic development? How do we provide support to our staff?

JämStöd’s methods

– Checklist for Planning and Organising Development Work (METS)

STEPS 4 – 6: MAKE AN INVENTORY, SURVEY AND ANALYSE THE OPERATION

The organisation makes an inventory of its operation and its operational goals as a basis for a decision on what is to be analysed or improved. Decisions are then reached on what needs improving.

MAKE AN INVENTORY OF THE OPERATION What to do

Develop a basis for your decisions by answering these questions: • What activities do we undertake? How can our activities help meet gender equality

policy objectives? Where do we start?

SURVEY AND ANALYSE What to do

Use the results of the inventory as a basis for a gender equality analysis by answering the following questions: • Which are the target groups for our operation? What is their gender profile? How

are resources distributed by gender? What gender patterns are present? What con-

sequences does this have for women and men respectively?

FORMULATE OBJECTIVES AND MEASURES

The organisation produces an action plan by formulating objectives, indicators and measures for creating a more gender-equal operation.

What to do

Plan improvements by answering the following questions: • What do we want to change? How do we want things to be? How do we get there?

How can we determine if the work is having any effect?

JämStöd’s methods

– JämKART – JämKAS Bas – The 4R Method – JämKAS Plus – Process Mapping

10 Gender Mainstreaming Manual – A book of practical methods

Procedure for Sustainable Gender Mainstreaming – ‘The Ladder’

STEP 7: IMPLEMENT THE MEASURES

The organisation implements the measures required to achieve gender equality in its activities.

STEP 8: EVALUATE THE OUTCOME

The organisation leadership follows up and evaluates the work, to see whether the objectives have been achieved.

What to do

Follow up the work by answering the following questions: • Follow-up – Have we achieved our objectives? What were the results of our work?

How do we assess the quality of what we did? • Evaluation – What lessons can we learn? How do we make positive changes last?

What can we learn from changes for the worse? What is the next step? • Disseminate results – How do we disseminate the outcome and the lessons learned

throughout the organisation? How do we make the outcome sustainable? How do

we celebrate our successes?

JämStöd’s methods

– JämKAS Bas – The 4R Method – Process Mapping – JämUR.

Gender Mainstreaming Manual – A book of practical methods 11

Procedure for Sustainable Gender Mainstreaming – ‘The Ladder’

SELF-ASSESSMENT – PROCEDURE FOR SUSTAINABLE GENDER MAINSTREAMING

Suggested procedure

1. Together, go through the description of the work required at each step. 2. Individually, assess where you stand, using the scale below. 3. Draw up a joint assessment on a flip chart, whiteboard or OH film. 4. Discuss your assessments and what conclusions are to be drawn from them.

Put a cross on the line to show how far you think you have progressed in your organisation. The ‘start’ position shows that you have not yet begun the work and the ‘goal’ that you are happy with the work being done in this particular area.

Step 1: Basic awareness Start Goal

Step 2: Examine the conditions Start Goal

Step 3: Plan and organise Start Goal

Step 4: Inventory of the operation Start Goal

Step 5: Survey and analyse Start Goal

Step 6: Formulate objectives and measures Start Goal

Step 7: Implement the measures Start Goal

Step 8: Evaluate the outcome Start Goal

Reporting

Draw the eight lines on a whiteboard and let each person put a cross there after first having marked their own scales.

What picture emerges? Are you strong in some aspects and not in others? In our experience, all steps must be stable if the gender mainstreaming work is to be sustainable. Different areas of activity will probably be on different places on the Ladder. Some of them may find themselves on several different steps at the same time. Should you complete step eight for one limited part of the operation, you can just start again in another part. Thus the ladder becomes self-perpetuating.

12 Gender Mainstreaming Manual – A book of practical methods

Step 1

Basic awareness

Before gender mainstreaming work begins, all staff must acquire a basic understanding of Swedish gender equality policy and the gender mainstreaming strategy. The training they receive should encompass gender equality and gender theory, Swedish gender equality policy and the mainstreaming strategy. They will then know more about how the organisation works and this will hopefully lead to a heightened awareness of gender issues and to greater interest in them. Senior staff, too, need to learn more in order to reach decisions on the future course of the work.

Gender Mainstreaming Manual – A book of practical methods 13

Gender Equality: The Basics Step 1

Before gender mainstreaming work begins, the entire organisation, from the top down, must be familiarised with Swedish gender equality policy and what the strategy of gender mainstreaming involves. This information cannot be reproduced here, but we do provide a brief guide as to what it might consist of.

What? Policy Swedish gender equality policy

Why? Theory How? Strategy Gender order Gender mainstreaming

SWEDISH GENDER EQUALITY POLICY

Swedish gender equality policy is divided into the following three parts:

Policy Political ambitions are expressed as the national gender equality

policy objectives (Govt. Bill 2005/06:155).

Theory Swedish gender equality policy is based on the gender system theory

(Official Government Report, SOU 1994:44).

Strategy Gender mainstreaming has been the strategy of choice for the

Swedish Government and Riksdag since 1994. It was first set out in the bill ‘Shared power, shared responsibility’ (Delad makt – delat ansvar, Govt Bill 1993/94:147).

POLICY

The Swedish Government and Riksdag have adopted objectives for Swedish gender equality policy and all government agencies are required to help achieve them. They are outlined in the bill ‘The power to shape society and your own life: Towards new gender equality policy objectives’ (Makt att forma samhället och sitt eget liv – nya mål i jämställdhetspolitiken, Govt Bill 2005/06:155). The objectives were adopted by the Riksdag in May 2006.

Is your agency a positive force for gender equality, or a negative one? Numerous analyses and reports show that gender equality is not present in all areas. Women and men are allocated unequal resources, are treated differently, and do not enjoy the same influence. An analysis of an operation in relation to the gender equality objectives can reveal what needs to be done to improve it from a gender equality perspective.

14 Gender Mainstreaming Manual – A book of practical methods

Gender Equality: The Basics Step 1

GENDER EQUALITY POLICY OBJECTIVES

Overall objective

Women and men must have the same power to shape society and their own lives.

Interim objectives

1. Equal division of power and influence between women and men. Women and men shall

have the same rights and opportunities to be active citizens and to shape the conditions

for decision-making.

2. Economic equality between women and men. Women and men shall have the same

opportunities and conditions with regard to education and paid work that provide lifelong

economic independence.

3. Equal distribution of unpaid care and household work. Women and men shall take the

same responsibility for household work and have the same opportunities to give and

receive care on equal terms.

4. Men’s violence against women must stop. Women and men, girls and boys, shall have

equal rights and opportunities in terms of physical integrity.

These objectives were adopted by the Swedish Riksdag in May 2006 (Govt. Bill 2005/06:15).

THEORY

Despite broad cross-party agreement on the objectives of Swedish gender equality policy, gender inequality persists in many areas. Why is this? The basic model frequently used in Swedish policymaking is the theory of the gender system (gender system theory). It first appears in gender equality policy in the bill ‘Shared power, shared responsibility’ (Delad makt – delat ansvar, Govt Bill 1993/94:147).

The gender system is a theoretical model of explanation developed by Yvonne Hirdman, a professor of history. It is based on two logics, those of separation and hierarchy. This is a structure which limits men’s and women’s power to make free choices. All of us – women men alike – help create and maintain this system throughout our lives, by our everyday actions. The aim of national gender equality policy is to break down the gender system.

Gender is our ‘created’ sexual identity as opposed to our biological sexual identity – the sum total of what we perceive to be ‘male’ or ‘female’.

Examples of the two principles

Separation

A clear example of separation is the gender-segregated labour market. Almost all of those working in care are women and almost all of those working in technical jobs are men.

Hierarchy

In the labour market, men generally earn more than women in just about every occupational category, and women are increasingly scarce the higher up you go in an organisation’s hierarchy. Whatever men do, or whatever is regarded as male work, tends to be valued higher than whatever women do and whatever is regarded as female work. Male-dominated technical professions are generally better paid than female-dominated care professions.

Maintaining the gender system

Gender structures in society are created and maintained by all of us, women men alike; such structures cannot survive unless individuals recreate them in their everyday acts.

Gender Mainstreaming Manual – A book of practical methods 15

Gender Equality: The Basics Step 1

Carrying out gender equality analyses of all public service operations is one way of exposing how the gender system manifests itself at government agencies.

STRATEGY

Gender mainstreaming was adopted as a strategy by the Swedish Government in 1994, and by the UN at the 1995 Beijing Conference on Women. The strategy was also adopted by the EU in 1996, and is the required method to be applied along with special measures on behalf of the under-represented gender.

Definition

The following quote is from the Swedish government bill ‘Shared power, shared responsibility’:

“Gender equality work must be conducted in every area of policy, and measures should primarily be undertaken as part of the regular operations of the body concerned.” (Delad makt – Delat ansvar, Govt. Bill 1993/94:147, p. 17)

This means that public services are to be equally accessible, of equally high quality and equally well adapted to all citizens, regardless of gender. Services and resources must be adapted to the needs of both sexes by basing them on women’s and men’s living patterns. A gender equality analysis is needed to determine what gender patterns exist among the citizens the operation serves.

How will gender mainstreaming benefit my agency?

Applying gender mainstreaming to the operation results in: • Reorientation of the operation. Changes give women and men equal access to the

operation, power and resources. • More effective service on the part of government agencies and better distribution

of resources, since the operation proceeds from the needs of both sexes. • More legal security, better democracy – in that women and men are treated equally. • A better grasp of gender equality policy and of the needs of those who use the

agency’s services.

THE GENDER EQUALITY ANALYSIS

A distinction is usually made between gender equality analyses and gender impact assessments. Analysing gender impact involves reporting statistics and other data disaggregated by sex and describing the situations of women and men respectively. A gender equality analysis involves examining an operation or activity – on the basis of sexdisaggregated statistics etc – in relation to the gender equality policy objectives in place. A prerequisite for conducting such an analysis is a basic understanding of Swedish gender equality policy. Briefly, the gender equality analysis process can be described as follows: Inventory – Taking stock of the present operation/activity. Survey – The current situation of women and men. Analysis – How the operation/activity affects women and men respectively. Objectives – What the position of women and men should be in the future. Action – What we will be doing to move from the present situation to the desired goal.

16 Gender Mainstreaming Manual – A book of practical methods

Step 2

Examine the conditions

In Step 2, the agency will need to look at the conditions for change, the advantages of mainstreaming gender into the operation, and whether the will exists. This can be done by seeking the answers to the following questions: What characterises a gender-equal operation? What would it be like? Do we share the same vision? What are the benefits of gender-equal activities? How will gender mainstreaming improve our operation? What do our customers stand to gain? In what ways will it affect our operation? How will it affect our target groups? Where there’s a will there’s a way – do staff and management actually want to create a gender-equal operation? What can be of help in this endeavour? What obstacles are there?

Gender Mainstreaming Manual – A book of practical methods 17

Study the Operation Step 2

Before embarking on a more in-depth gender equality analysis of one or more areas of activity, it is a good idea to make an initial study of the situation. This method will help you.

Begin by reviewing what gender equality measures have already been implemented in the operation. Have they helped enhance gender equality? After this, make an inventory of the various activities in your operation and decide whether they can help achieve the gender equality policy objectives. Finally, plan what steps are needed if your operation is to help achieve the gender equality policy objectives.

EXPECTED RESULTS

Working with the Study the Operation method can provide: • focus on previous gender equality work • an understanding of how the operation can help enhance gender equality • a platform for future priorities.

STUDY THE OPERATION Step 1. Earlier work

1a. What has been done so far to enhance gender equality in your core operation? 1b. What were the results? 1c. How have they helped boost gender equality? 1d. How has this helped achieve the gender equality policy objectives?

In Step 1, you make an inventory of what gender equality work has already been done in the operation and note down what results your previous work has yielded. Then proceed from the gender equality policy objectives and examine how the previous work has helped contribute to their achievement. The aim of this task is to draw attention to what has already been done and to bring out valuable know-how and experience. It also serves as acknowledgement of what the organisation and staff have already achieved.

Step 2. New inventory

Proceed from your own activities. Make an inventory of what activities are present in the project/unit/function. Note: this concerns actual activities (what you do), not the organisational set-up (who does what).

Go through the list, answering the following questions and linking them to each activity. Examine whether your various activities can help achieve the gender equality policy objectives.

Interim objective 1. Equal division of power and influence between women and men.

• Women and men shall have the same rights and opportunities to be active citizens and

shape the conditions of decision-making.

18 Gender Mainstreaming Manual – A book of practical methods

Study the Operation Step 2

GENDER EQUALITY POLICY OBJECTIVES

Overall objective

Women and men must have the same power to shape society and their own lives.

Interim objectives

1. Equal division of power and influence between women and men. Women and men shall

have the same rights and opportunities to be active citizens and to shape the conditions for decision-making.

2. Economic equality between women and men. Women and men shall have the same

opportunities and conditions with regard to education and paid work that provide lifelong economic independence.

3. Equal distribution of unpaid care and household work. Women and men shall take the

same responsibility for household work and have the same opportunities to give and receive care on equal terms.

4. Men’s violence against women must stop. Women and men, girls and boys, shall have

equal rights and opportunities in terms of physical integrity. These objectives were adopted by the Swedish Riksdag in May 2006 (Govt. Bill 2005/06:15).

Discuss: 1. Does what we do affect women’s and men’s opportunities to be active citizens? 2. Does what we do affect the distribution of power and influence between women and

men? 3. Does what we do affect women’s and men’s opportunities to exercise power and in-

fluence?

Interim objective 2. Economic equality between women and men

• Women and men shall have the same opportunities and conditions with regard to educa-

tion and paid work that provide lifelong economic independence.

Discuss: 1. Does what we do affect women’s and men’s financial situations? 2. Does what we do affect women’s and men’s opportunities and conditions for paid work,

education and self-employment?

Interim objective 3. An equal distribution of unpaid care and household work

• Women and men shall take the same responsibility for household work and have the

same opportunities to give and receive care on equal terms.

Discuss: 1. Does what we do affect women’s and men’s opportunities to share unpaid household

work? 2. Does what we do affect women’s and men’s opportunities to share unpaid care work?

Interim objective 4. Men’s violence against women must stop

• Women and men, girls and boys, shall have equal rights and opportunities in terms of

physical integrity.

Gender Mainstreaming Manual – A book of practical methods 19

Study the Operation Step 2

Discuss: 1. Does what we do affect men’s violence towards women? 2. Does the activity affect the right of women and men, girls and boys, to physical integri-

ty? 3. Does the activity affect, or have the potential to affect, the sexualisation of public

space in a negative or positive direction?

Step 3. Prioritise

Select and plan measures for those areas in which the activity has an impact on gender equality, i.e. where the answer to the above questions is ‘yes’. Steps should be taken wherever the answer is ‘yes’. The order in which this is done could be based, for instance, on relevance, simplicity (likelihood of success) or the time aspect.

20 Gender Mainstreaming Manual – A book of practical methods

The Gender-Equal Operation Step 2

The Gender-Equal Operation method is used to create a shared idea of what a genderequal operation might look like, and to determine whether people are willing to work with the issue. It can also be a way of drumming up enthusiasm or getting people to acknowledge the need for work in this area. It gives them a chance to see the benefits. The method, which is inspired by Birgitt Williams’ work with the Genuine Contact programme, consists of three steps. In step one, the participants describe a genderequal operation. Step two involves examining the degree of willingness and Step 3 is about mapping obstacles and keys to success. The method was developed during work on change processes in organisations, and has also been tested in other countries. In our context, it has been adapted to gender equality. It takes about four hours to complete all the steps.

The aim is to create a shared idea of a gender-equal operation and to examine whether people are willing to work with the issue.

EXPECTED RESULTS

Working with the Gender-Equal Operation method can provide: • a shared understanding of what a gender-equal operation might look like • an inventory of what can underpin and what can prevent the development of such

an operation • an opportunity for participants to reflect over their personal willingness to be part

of such an operation • a review of what participants know about gender equality.

SUPERVISION

When focusing on the operation, you as supervisor should consistently use the expression ‘the gender-equal operation’ at all stages. It must be made clear to the group that this concerns the core operation, for example how you deal with and view women and men in your services as a public agency and how you distribute resources among women and men as customers/citizens.

The method is also a useful tool for focusing on the organisation in human resource contexts. In such cases, you should consistently use the expression ‘the gender-equal organisation’. Your results will depend on what expression you use.

In the guidelines, we have chosen to mainstream gender into the core operation, which is why we consistently use the term ‘operation’.

STAGE 1

Time required: approximately 50 mins; 30 minutes in groups + 20 minutes of reporting. Ask the participants to sit in groups of about four and answer questions 1–3 below. They are to write down their answers on three separate flip-chart sheets which are then stuck up on the wall.

Questions 1–3 apply to a gender-equal operation in general – we have not yet got round to

your particular operation.

Gender Mainstreaming Manual – A book of practical methods 21

The Gender-Equal Operation Step 2

Questions

1. Describe a gender-equal operation. 2. List the advantages of a gender-equal operation. 3. List the disadvantages of a gender-equal operation.

Reporting

Ask the groups to briefly report what they have written on their sheets.

STAGE 2

Time required: approximately 55 mins; 15 minutes for individual reflection, 20 minutes in

group, and 20 minutes’ joint discussion. Ask the participants to sit quietly and think about questions 4, 5 and 6. Give them one question at a time and ask them to write down their thoughts after each question. Question 4 is important since it is a matter of personal attitude. Do I want to do this? Ask the participants to be very specific when answering question 6 since it now concerns a particular operation - their own – so we do not want any general, sweeping responses. Ask the participants to divide into groups of about four and share their thoughts from the individual exercise. Ask the participants to write down all their answers to question 6 on one sheet.

Questions

4. Do you want to work in a gender-equal operation as we defined it in the last exercise? 5. Do you work in such an operation today? 6. What would your activity/clients/citizens gain from the operation becoming gender-equal?

Reporting

The answers to question 6, ‘Operational gains’ are written on flip-chart sheets and stuck up on the wall. Question 6 should be examined in some depth in the entire group. Make a note of any operational gains that come up in the discussion; they need to be on the overall list that we will be working with at the next stage.

STAGE 3

Time required: 40 minutes; 20 minutes in a smaller group, 20 minutes in a general discussion. Ask the participants to work in groups of about four and think about questions 7 and 8. Ask them to list their answers on a flip-chart sheet. Report their answers after this. Questions 7 and 8 ask what climate promotes or prevents the creation of a gender-equal operation. Once again, the question is a general one – what promotes or prevents such a development

Questions

7. What facilitates and encourages the development of a gender-equal operation? 8. What prevents and obstructs the development of a gender-equal operation?

22 Gender Mainstreaming Manual – A book of practical methods

The Gender-Equal Operation Step 2

Reporting

Mount the participants’ sheets on the wall. Discuss the answers in the entire group. Note whether any new ideas arise on what promotes or prevents gender equality. Remember that the question is what promotes and prevents it in general. We are not at the moment focusing specifically on our own operation.

STAGE 4

Time required: 1 hour and 10 minutes. Questions 9 and 11: 30 minutes in groups, and 30 minutes’ joint discussion. Question 10 is an individual exercise lasting 10 minutes.

Let the participants reflect individually for 10 minutes on questions 9 and 10. The answer

to question 10 need not be reported; what the participants write is for their own benefit. The participants then form groups and discuss questions 9 and 11. The answers are reported on the flip chart sheet.

Questions

9. What needs to change in your organisation and operation to make it more genderequal? 10. How must I change my own behaviour and thinking in order to be part of this process? 11. Next step – plan how you will move on.

Reporting

Report the flip-chart sheet for question 9. Discuss in the entire group what you can do to make your operation more gender-equal and how you can move on.

Gender Mainstreaming Manual – A book of practical methods 23

Study the Operational Processes Step 2

This is a method that will help you examine gender equality in various parts of the operation. By ‘processes’ we mean sequences of events, work phases in the organisation. A process consists of a number of stages and has a clear starting and end point. The focus is on what is actually happening in the organisation or operation. Processes may include activity planning, assessment of applications or case work. This is a quick, rather superficial method that seeks to determine what processes might impact on gender equality. Begin by making an inventory of the various steps in the process, and thereafter study whether there is a risk of creating gender inequality. Should this prove to be the case, measures can be proposed for changing the situation and helping to achieve the gender policy objectives.

EXPECTED RESULTS

Working with the Study the Operation method can provide: • rapid analysis of a process from a gender equality perspective • an aid in detecting and preventing the risk of gender inequality in the operation • measures to boost gender equality in the process, and thereby in the operation.

MAKING AN INVENTORY Step 1. List the various stages of the process.

A process is a chain of events or a work phase in an organisation. The process consists of several stages, and all stages must be included. The process has a starting point, and contains a number of previously determined parts that are designed to lead to a certain outcome. List all the stages. Write down what you actually do, and what you should not be doing.

Step 2. Answer questions a–c for each stage of the process.

2a. What stages might contain gender equality traps? What are these traps?

Think about where gender inequality might be created, for example in the personal assess-

ment of a case, or whether there are procedures that are designed with one gender in mind, or whether you lack the requisite knowledge.

2b. List what gender patterns you would like to know about at this stage. ‘Gender patterns’ describes the situation of women and men at the various stages. Questions you can ask here are what resources are allocated to women and men in the

shape of time, money, training, premises etc. To detect patterns, you need sex-disaggrega-

ted statistics.

2c. What measures do you wish to propose so that you do not create inequality at this stage?

Step 3. According to your inventory, what needs to change in the operational process? How is this to be done?

24 Gender Mainstreaming Manual – A book of practical methods

Step 3

Plan and organise

In Step 3, management takes responsibility for planning and setting targets for gender mainstreaming. It is crucial that directives be provided from the top on how the work is to be organised. The ‘success factors’ in the METS model may be helpful here.

Gender Mainstreaming Manual – A book of practical methods 25

Checklist for Planning and Organising Development Work (METS) Step 3

Gender mainstreaming is a big and challenging job and should initially involve some type of delimited development work in which responsibility, tasks and roles are clearly allocated. It is important therefore to have an action plan for the hands-on work. Such a plan can be drawn up using the Checklist for Planning and Organising Development Work (METS). This plan will then determine the level of objectives and plans in the operation itself.

EXPECTED RESULTS

Working with the METS model can provide: • an overview of what the organisation has to do to organise its gender mainstream-

ing work • a shared view of the current situation in the organisation, and an awareness of how

the work can proceed • a basis for planning the management and organisation of gender mainstreaming work.

METS

Here, we outline four strategic ‘success factors’ for gender mainstreaming: • Objectives and monitoring • Training • Methods and procedures • Support and coordination.

Systematic change work is essential when an organisation seeks to build up long-term gender mainstreaming in its core operation. The objective of gender mainstreaming work is to make operations gender-equal, i.e. to provide services that are equally accessible, of equally high quality and equally well adapted to all citizens, irrespective of gender. To achieve this, we perform gender equality analyses and draw up a plan for how to improve gender equality in the operation.

Work such as this requires a customised organisation and clear objectives for the actual development work. That is why this particular task is the focus of our success factor checklist.

The checklist is based on our broad experience both of regular development work and of mainstreaming gender into entire organisations, including the Working Life Fund and the Ministry of Health and Social Affairs. Current development work in the Government Offices is based on these success factors, and each success factor has appendant objectives which in turn are supplemented by annually updated action plans.

The questions in the checklist are formulated so that they can be used in a gender equality audit, and their focus is on how the organisation can ensure that development work is improved and has a lasting impact. Hopefully, the questions also provide guidance and inspiration in the introductory phase when the work is being planned and initiated.

Page 29 contains a self-assessment form which can be used as a basis for discussion.

26 Gender Mainstreaming Manual – A book of practical methods

Checklist for Planning and Organising Development Work – METS Step 3

SUCCESS FACTORS Objectives and monitoring

If the work is to be successful, management must make clear to the entire organisation what has been decided and what is expected. If there is consistent follow-up, these directives will be taken seriously, since the various parts of the operation will need to have something to report.

Gender mainstreaming necessitates investment, at least during the initial build-up phase. The work has to be systematic if the investment is to yield returns in the shape of more effective and appropriate activities. Allocated resources therefore show whether the organisation believes the work is important and definitely needs doing, or if it is simply going through the motions out of a sense of obligation.

Training

Training is fundamental to success; both management and staff must be made aware of gender theory and the aims of government gender equality policy. This will encourage them to see the point of gender mainstreaming and will make it easier for them to accept new methods for gender equality analysis. People need knowledge in order to understand and use information and analyses correctly.

Methods and procedures

Gender mainstreaming requires a systematic work approach, which means for example always using sex-disaggregated statistics, carrying out gender equality analyses prior to decisions, and analysing important processes in the operation from a gender equality perspective. Staff must be equipped with methods that are adapted to the operation if they are to work effectively.

Support and coordination

The process requires a staff function to coordinate the work in the organisation. A support organisation that can provide the workforce with inspiration and advice is also needed. Organised exchanges of experience make the work easier. Also, training and method development at the agency must be coordinated. Everyone should have the same chance to understand what is going on – each individual’s experience is important to the work.

Strategic development is a key issue. The work must live on inside the organisation when the first development phase is over. It is therefore important to create a platform for the ongoing development of the organisation’s gender mainstreaming strategy. This strategy must be one step ahead of the organisation and come up with proposals for ongoing improvements that can be introduced into day-to-day operations.

Gender Mainstreaming Manual – A book of practical methods 27

Checklist for Planning and Organising Development Work – METS Step 3

CHECKLIST FOR PLANNING AND ORGANISING DEVELOPMENT WORK General undertakings

• In what way does management make clear its commitment to developing and intro-

ducing gender mainstreaming? • What explicit actions do senior staff take to communicate the work of gender main-

streaming and ensure that it is understood by staff throughout the organisation? • In what way is management responsible for following up and developing the work? • Who among the senior staff are responsible for following up and developing the

work?

Objectives, checks and controls

• What directives has the organisation been given with regard to gender mainstream-

ing? • How are the agency’s gender mainstreaming objectives consistently followed up? • What is the agency doing to evaluate and improve gender mainstreaming work? • Are the resources allocated (in time and money) adequate for the work in hand? • How has the gender mainstreaming action plan been communicated throughout

the organisation, and how has support for it been sought and established?

Training

• Is there a plan for what skills staff need to carry out their assignment? • Is there a plan for how the organisation is to ensure that management and staff are

provided with the knowledge they need to carry out their assignment? • How will staff be helped to apply their new knowledge? • Is there a long-term plan for how the organisation can supply the knowledge and

skills needed for further development?

Methods and procedures

• What methods and other procedures will the organisation adopt to achieve the

expected goals and results? • How is previous experience of gender equality work put to use? • In what way are sex-disaggregated statistics used in the operation?

Support and coordination

Coordination function

• How is the gender mainstreaming work coordinated within the organisation?

Support organisation

• How will the need for support, advice and inspiration be met? • How are exchanges of experience organised?

Strategic development

• What is the best way to proceed to ensure that the organisation’s gender main-

streaming strategy continues to develop?

28 Gender Mainstreaming Manual – A book of practical methods

Checklist for Planning and Organising Development Work – METS Step 3

SELF-ASSESSMENT FORM

This self-assessment form can be used together with the METS Checklist.

Suggested procedure

1. Discuss the questions in the checklist. 2. Individually, make an assessment of the current situation, using the scale below. 3. Combine your assessments and draw a picture of them on a whiteboard or other

surface. 4. Discuss your assessments and what conclusions you draw from the individual self-

assessments.

General undertakings Start Goal

Objectives and monitoring Start Goal

Training Start Goal

Methods and procedures Start Goal

Support and coordination Start Goal

Suggestion for reporting

Draw the above five lines on a whiteboard and let each person put a cross there after having first filled in their own scale.

What overall impression does your self-assessment give? Do you share the same view of where the organisation is? Is there one area that has made considerable progress, while another is faltering? In our experience, you have to work through all the steps if your gender mainstreaming work is to be sustainable.

Gender Mainstreaming Manual – A book of practical methods 29

Checklist for Planning and Organising Development Work – METS Step 3

EXAMPLE OF AN ACTION PLAN BASED ON METS

Summary of PLAN FOR GENDER MAINSTREAMING OF THE SWEDISH GOVERNMENT OFFICES The plan runs until 31 December 2009.

Overall objective

Conditions at the Government Offices are the best possible for ensuring that gender equality informs all areas of government policy.

The overall objective sets out the vision: the work is to provide the best possible conditions for ensuring that gender equality permeates all areas of government policy. There are four principal areas of focus: management/decision-making, education and training, methods/analyses and coordination.

The overall objective is set out in more detail in the effect goals.

Effect goal 1

Gender equality informs the decision-making process through the concrete, consistent and congruent mainstreaming of the gender equality perspective into decision-making processes.

Indicators

1.1 Gender equality objectives by policy area, operational area and activity. 1.2 Tables/diagrams in the Budget Bill in which individual-based statistics are disag-

gregated by sex and analysed/commented on by sex. 1.3 Indicators in the Budget Bill that are based on individual-based statistics and are

disaggregated by sex and analysed/commented on by sex. 1.4 Terms of reference for committees that include a gender equality analysis in the

support data. 1.5 Government Bills and written communications that adopt a gender equality per-

spective.

Effect goal 2

Officials and senior staff at the Government Offices are well aware of the import of gender equality, the gender equality policy objectives and the key gender equality policy issues in their own field.

Indicators

2.1 Courses provided by the Office for Administrative Affairs that include gender

equality issues. 2.2 Officials at the Government Offices who have undergone training provided by

the Office of Administrative Affairs wholly or partly focusing on gender equali-

ty issues. 2.3 Senior staff at the Government Offices who have undergone training provided by

the Office of Administrative Affairs wholly or partly focusing on gender equali-

ty issues. 2.4 Training in gender equality arranged for staff at individual government min-

istries. 2.5 Executive officers at government agencies who have undergone in-house training

at the Government Offices wholly or partly focusing on gender equality issues.

30 Gender Mainstreaming Manual – A book of practical methods

Checklist for Planning and Organising Development Work – METS Step 3

Effect goal 3

Gender equality analyses based inter alia on sex-disaggregated statistics and the gender equality policy goals are to be included in support data for government decisions.

Indicators

3.1 Government Bills and communications that contain a complete gender equality

analysis. 3.2 Government reports and official documents (SOU/Ds) that contain complete

gender analyses. 3.3 Hits for gender mainstreaming on the Intranet. 3.4 Areas of operation or activities where gender analyses have been carried out in the

past three years.

Effect goal 4

Efficient coordination at the Government Offices of the work on gender equality policy issues, including support to staff and improvement of the gender mainstreaming work of government ministries.

Indicators

4.1 Assessment of cooperation in interministerial groups. 4.2 Assessed degree of cooperation between gender equality coordination and

budget coordination in the various stages of the budget process. 4.3 Staff who feel that they are supported in their gender mainstreaming work.

Gender Mainstreaming Manual – A book of practical methods 31

Steps 4–6

Examine, investigate and analyse the activities

In steps 4–6, it is time to examine and bring together the operation and its objectives to form a basis for decisions on what is to be analysed or changed. Which decisions affect women and men? How can our operations help meet gender equality policy objectives? The methods in these steps give an idea of what the agency can do to achieve the objectives. It is here that the work of survey and analysing the operation at a deeper level really begins. What are we doing at the moment? What will happen if we take women’s and men’s needs more clearly into account in our decisions? Will it make any difference? Now is the time to use the completed gender equality analyses to produce an action plan by formulating objectives, indicators and measures to create a more gender-equal operation. This will also enable us to determine whether the measures enhance gender equality.

32 Gender Mainstreaming Manual – A book of practical methods

JämKART – Gender Equality Survey Analysis and Conclusions Step 4

The JämKART (Gender Equality Survey Analysis and Conclusions) method provides a rapid assessment of the impact an operation or activity has on gender equality, and also an assessment of how far the gender equality work has already progressed. It further provides a forum for suggested improvements which can then be included in a gender mainstreaming action plan. JämKART is useful for carrying out a rough inventory of activities prior to the selection and prioritisation of more in-depth gender equality analysis work. The aim is to provide an overview of which of the agency’s activities are crucial to gender equality, how these activities are currently helping to achieve the gender equality policy objectives, and what improvements are needed in this respect. The method was developed by the Stockholm County Administrative Board and is based on the same idea as the environmental management system introduced previously. JämStöd has taken the method and developed it further.

EXPECTED RESULTS

Working with the JämKART model can provide: • an overview of the importance of an activity for gender equality • an idea of the potential for improving gender equality in the activity • proposed improvements.

JÄMKART – GUIDELINES Step 1. Examine the impact on gender equality

What activities in the operation impact on equality between women and men?

The aim of this question is to set in motion a systematic inventory of what parts of the operation affect gender equality, either directly or indirectly. Use the table on page 37 (example on page 36). Fill in the various activities of the government agency, using the official register, the activity plan or other documentation that covers the entire operation. Discuss what activities impact on equality between women and men. Put a Yes or No in the box ‘Impacts on gender equality’ in the table. The list below contains examples of questions you can ask to determine the impact of the activity on gender equality. • Does the activity affect women and men by its actions? • Who represents the norm for the activity, the ‘normal’ recipient? For example, in the

case of women and men wishing to start a business. • Who has decision-making been based on? • Whose needs are in focus? Get to the bottom of things in your discussions. Bear in mind that an activity have many component parts: how you treat people, decisions, investigation, projects, processes, cases, inspection and permits, etc.

Gender Mainstreaming Manual – A book of practical methods 33

JämKART Step 4

Step 2. Examine how the activity contributes to gender equality.

Can it help meet the gender equality policy objectives?

Study the national gender equality policy objectives and compare them with the activities that impact on gender equality. Use the results from stage 1. Do the activities help achieve the gender equality policy objectives? Discuss each area separately and put a cross for the interim objectives that the activity affects. Put a cross under each interim objective in the table on page 37 (example on page 36). On page 40, you will find a number of helpful questions which you can use to examine whether the activity contributes to achievement of the gender equality policy objectives.