SOU 2007:15

Gender Mainstreaming Manual, Gender Equality in Public Services

Gender Mainstreaming Manual

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

Gender Mainstreaming Manual

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

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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

Content

Foreword

Introduction

Procedure for Sustainable Gender Mainstreaming – ‘The Ladder’

STEP 1

Gender Equality: The Basics

STEP 2

Study the Operation

The Gender-Equal Operation

Study the Operational Processes

STEP 3

Checklist for Planning and Organising Development Work – METS

STEPS 4–6

JämKART – Gender Equality Survey Analysis and Conclusions

JämKAS Bas

The 4R Method

JämKAS Plus

Process Mapping

STEP 7

STEP 8

JämUR – A method for evaluating outcomes

Some definitions

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.

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.

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 equal-

ity 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:

3

4

5

6

Plan and organise

Examine the activities

Survey and analyse

Formulate objectives and measures

Implement the measures

Evaluate the outcome

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:

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:

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

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:

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:

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:

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

JämStöd’s methods

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

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:

How do we assess the quality of what we did?

What can we learn from changes for the worse? What is the next step?

JämStöd’s methods

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

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.

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 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.

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

What? Policy

Swedish gender equality policy

Why? Theory

Gender order

How? Strategy Gender mainstreaming

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.

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 respon-

sibility’:

“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:

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.

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?

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:

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.

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?

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).

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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 integrity?

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.

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The Gender-Equal Operation Step 2

The Gender-Equal Operation method is used to create a shared idea of what a gender-

equal 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.

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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

1. Does what we do affect women’s and men’s opportunities for active citizenship? How?

2. Does what we do affect the distribution of power and influence between women and men? How?

3. Does what we do affect the ability of women and men to exercise power and influence? How?

Interim objective 2. Economic equality between women and men.

• Women and men shall have the same opportunities and conditions in terms of education, training and paid work that provide lifelong economic independence.

Discuss:

1. Does what we do affect women’s and men’s financial situations? How?

2. Does what we do affect women’s and men’s opportunities and conditions for paid work, education and entrepreneurship? How?

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 take part in unpaid household work? How?

2. Does what we do affect women’s and men’s opportunities to take part in unpaid care work? How?

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Discuss:

1. Does what we do affect men’s violence towards women? How?

2. Does the activity affect the right of women and men, girls and boys to physical integrity? How?

3. Does the activity affect, or have the potential to affect, the sexualisation of public space in a positive or negative direction? How?

Step 3. What is to be analysed?

List the pros and cons of selecting various parts of the activity for more in-depth analysis. Select the activity (or part of activity) that is strategically important from a gender equality viewpoint. Give reasons for your choice.

Discuss what activity, or part of an activity, is the most strategically important one from a gender equality viewpoint. Reasons may include:

• that you can influence and control the measures
• that they impact on a lot of people
• that the issue is currently the subject of political debate
• that the activity currently exacerbates inequalities. Make a list of the pros and cons of choosing the various alternative activities. This makes strategic choice easier.

It is here that the organisation decides which area is to be analysed in greater depth, and draws up a schedule for the work.

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).

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Step 4. Identify the target group.

Identify the target group for the activity you have chosen.

‘Target group’ means those who are to be reached by the activity, who the resources are intended for. This is not a question of who is working on the issue. In a youth project, for example, the target group is young people – it is their world that is to change. Many actors work with youth issues, including officials at municipalities, but these officials are a tool for reaching the young people, and not the target group in itself. They may be actors but they are not the target group.

Step 5. What gender patterns are there?

Make a list of questions and statements about women’s and men’s situations, the answers to which might be useful in assessing the activity. Use the explanations outlined in the theory of the gender system.

Think, as freely as possible, about what gender patterns are relevant within the activity to be analysed. Don’t look in your bookshelf just yet for previous studies and existing statistics. Simply because facts are available about certain issues and gender patterns, they are not necessarily the most relevant in your particular case. What are the current gender patterns among girls and women, boys and men respectively? Decide which questions you need answers to if you are to map gender patterns. It might be easier to work from hypotheses or assumptions about the state of things. Use the material obtained in Step 2. It might also help to proceed from the gender system’s explanations of how gender inequality is maintained.

• Is there anything in the activity that segregates women and men – that keeps them in separate spheres? Ask yourself the question without considering whether this is good or bad. How is this segregation expressed in the activity?
• Where are women and men, girls and boys, represented – not only as citizens and users, but also as decision-makers and implementers?
• Are there differences between the sexes in the relevant areas as regards living conditions, maintenance, rights, power, resources, security and so forth?
• Consider gender representation and allocation of resources in particular. You may find it worthwhile to think about formal and informal power. What are the structures?
• Is there anything in the activity that creates a hierarchy between what is deemed ‘female’ and ‘male’ and that attaches greater value to the ‘male’? How is this manifested in for instance the allocation of resources such as money and time? Are there examples where men are the norm and women are the ‘deviant’ party?

THE GENDER SYSTEM

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Gender is the basic criterion. Feel free to combine it with other variables such as ethnic background, age and disability. Think beyond your own area of responsibility as well. There are many issues that cut through different types of activity, so it might be a good idea to collaborate with other fields. For example: local employment markets involve issues such as transport and travel, employment and training, entrepreneurship and access to schools, care and commercial services.

Step 6. What is the current situation?

Describe the gender patterns from Step 5. Confirm them with qualitative and quantitative data.

Now is the time to start looking for facts. What is the current situation? Some information may be available from previous inquiries and studies. Other information may be available in official statistics or other publications. Perhaps no information is currently available; in that case, your first step might be to suggest that this shortcoming be brought to the attention of whoever produces the statistics. You can also formulate a task: we need to produce new statistics. It is vital to look both at how the resources (e.g. time, money, information and training) within the activity have been divided between women and men and at the gender distribution in formal and informal decision-making circles and networks.

ANALYSIS

In steps 7–9, you analyse the statistics and facts that you have compiled, and consider what can be done about the picture that emerges. Does the activity in question help provide girls and boys, women and men, with the same rights, obligations and opportunities? If not, what are the consequences and what can you do about it?

Step 7. What are the consequences?

If there is anything to indicate a lack of gender equality in Step 6 – describe the possible consequences.

Start from the gender patterns that emerged in Steps 2 and 6. Describe how these affect girls and women, and boys and men, respectively. Describe how the lack of gender equality manifests itself. Women and men may frequently have the same rights and obligations but not the same opportunities – if this is the case, describe the consequences. This might for instance concern the opportunity to exercise a right.

Step 8. How to contribute to the gender equality objectives?

Describe how your activity should be designed to help meet the various gender equality objectives.

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Step 9. What can be done?

List the changes that could enhance gender equality.

Make a list of what could improve the situation. These proposals could either be in areas that you have a mandate to change or in areas that someone else controls. Sketch roughly, starting from the patterns you have detected. There will probably be goal conflicts in the various proposals. Clarify these and describe them. Explain the pros and cons of the various proposals. The organisation decides how you move on, i.e. what courses of action you are to pursue at the next stage.

Example

Analysis shows that women travel more on public transport than men, and also make more stops on their way home than men do. Men are more likely than women to take the car straight to work and straight home. Given this situation, what measures would enhance or hamper gender equality? There are various options here. You can propose increasing public transport to make women’s situations easier, or propose redirecting bus traffic and starting new bus routes that run on routes and at times when men otherwise take the car. Other, broader issues that may be of interest in this discussion are greater tax funding of public transport, road tolls and road tax levels. How does that type of measure impact on gender patterns in travel? And how do other underlying gender patterns help sustain women’s and men’s differing travel habits?

MEASURES

Steps 10–11 involve finding measures that will alter the outcome from a gender equality perspective. You then have to select measures and follow them up if outcomes are to evaluated. What will you change? How will you measure the change?

Step 10. What measures are to be taken?

Decide what measures from step 8 you intend to implement. Plan how and when they are to be implemented. Allocate time and resources. Plan training.

Review the proposals for possible action in step 9. Select which measures are to be implemented to enhance gender equality. Plan how and when they are to be implemented. Are time, knowledge and skills available in the organisation, or do you also need to plan training?

Step 11. How is the result to be measured?

Decide how the measures and impact are to be followed up.

How can you follow up the measures and their impact? How will you measure the outcome? How do you capitalise on experience and incorporate the lessons learned into your regular work? Sex-disaggregated statistics are one way of measuring and following up results.

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The 4R Method Steps 5–6

The 4R Method is used to aid the survey and analysis of a given operation from a gen-

der equality perspective. It provides a general picture of how the operation is run and financed at the present time and of what changes are required to meet the differing needs of women and men. The survey seeks to answer the question: Who gets what, and on what terms? The analysis answers the question: How can we improve matters?

The idea is that the gender patterns you detect will form the basis for a discussion with those running the operation. How can we formulate a vision and new objectives for our work when we look at the operation from a gender equality perspective? What must change if we are to achieve the objectives?

The original 3R method was developed in a project called JämKom, run by the Swedish Association of Local Authorities in the late 1990s. Its primary testing ground has been in municipal operations. You can read more about the 3R method in the pamphlet Jämställdhetsverkstan. Om Jämtegrering och 3R metoden i svenska kommuner

(‘The equality workshop. Gender mainstreaming and the 3R method in Swedish municipalities’), published by the Swedish Association of Local Authorities. JämStöd has trans-

formed the 3R method into the 4R Method.

THE 4R METHOD

Pages 51–52 contain two examples of a 4R survey. These are the starting point in describing the method.

EXPECTED RESULTS

Work using the 4R Method can provide:

• information on the distribution of women and men in the various parts of the organisation and at all levels.
• information on how resources are allocated to women and men.
• an idea of the gender patterns that exist in the organisation, and their impact
• a plan for remedying shortcomings

Step 1. R1 Representation – surveying gender representation

In the first step, R1, you select a specific activity and the target groups to be measured. Begin by answering the question: how many women/girls and how many men/boys?

The responses are supposed to provide a picture of the gender distribution at all levels of the decision-making process and the various parts of the operation, e.g. among decision-makers, staff, users, entrepreneurs, job applicants etc.

Who makes the decisions?

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the decisions, politicians who make the decisions, relatives, institutional staff and representatives of foster homes. All groups are divided by gender. In the example on page 52, the activity is ‘Allocation of regional project funds’. The actors are those applying for the funds, those who make decisions on the funds, representatives of regional/local public administration, regional business organisations, individual business owners and others.

Who implements decisions?

This is where you describe where the decisions are implemented – in what bodies, at what levels and by which individuals. This could be people working in a local government department, in an association or in a company. It could also apply to job centre staff or treatment centre staff. What is the gender distribution of the selected groups?

The target group – who is the user/client?

What is the target group of the activity? In the example of regional development work, the ultimate target group is the entire population of the county. In such cases, it is important to be aware of the gender patterns in the county. Who are these women and men? How are they represented in various public and private arenas, companies, professions?

Step 2. R2 Resources – examining the allocation of resources

R2 answers the question: How are our common resources – money, scope, time – distributed between women and men? The answers show how resources in the activity are allocated by gender.

Who gets what?

Examples of factors you can study are:

• time
• rooms/premises
• money
• information/meetings
• development work.

Time

What items, and what aspects, are allowed to take up time at meetings and in the processing, preparation and investigation of an issue?

• Who is allowed to take up time – as speakers, for example?
• Who is affected by the issues that take time?
• Can you see any gender-related patterns in what and who is given priority with respect to time?

Space

How is the public arena used by women and men? How, for example, is access to sports premises, land for new businesses, classrooms at training courses etc allocated?

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Information

• What information is important for an active participant in the project or the activity?
• Who receives important information? Who learns what, and when? How are different groups given information, and when? Is this done early in the process or late, and in what format?
• How many meetings are different groups invited to? What gender patterns can you see in the groups? Are some groups allowed to take part in more meetings than others? What is the representation of women and men in the ‘important’ groups?

Development work

What development work is undertaken in the project/activity, for instance in the form of training, trade fairs, study visits, investigations or project planning?

Step 3. R3 Realia – analysing conditions

R3 answers the question: What are the reasons for the gender distribution of representation and resource allocation? On what terms are women and men able to influence the design and use of the activity concerned?

Representation and resources are about quantity. Who has access to what? ‘Realia’ are the quantitative substance of an activity. The idea is that patterns will become clear through a survey of the first two Rs – patterns that will then lead on to questions about why things are the way they are.

Here, we focus on the operation or activity itself, i.e. the content of the services produced. What is the reality, and does it match present objectives? The question is then: who gets what, and on what terms?

What is the situation in our operation?

• What gender patterns do we see?
• Whose needs are being met?
• Can you see whether the activity has been designed on the basis of a norm that favours one gender ahead of the other?
• Are women’s and men’s interests, opportunities and wishes met to an equal degree?

How does the activity deal with gender equality issues?

• Does the activity proceed on the basis of the user’s/client’s gender?
• Do women and men, as individuals and groups, encounter differing demands and expectations linked to stereotyped ideas of gender?
• What is the ‘gender contract’ in the activity? By ‘gender contract’ we mean the prevailing norms and values that lead to some tasks being defined as ‘female’ and others as ‘male’.

With respect to the realia – the norms governing the activity – there are no simple factors that can be measured. An analytical approach and an open discussion are needed. This should be based on a familiarity with gender equality and gender, and perhaps on further research that illustrates why the operation is the way it is, e.g. in terms of power relationships between the sexes.

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Step 4. R4 Realisation – formulating new objectives and measures

The 3R model contains steps R1–R3. At JämStöd, we have added a further step that involves drawing up and realising new objectives and measures. R4 answers the question: What shape should the operation take if it is to achieve gender equality? Describe your vision of an operation adapted to the needs of both women and men.

When you have performed the analysis and answered the questions in R1–R3, it is time to decide whether the operation must change to live up to the gender equality policy objectives. Here, you can formulate a fresh vision for the activity – a vision based on the needs of women as well as men. If you are to realise this vision and help achieve the national gender equality policy objectives, you must review current operational objectives. Are the agency’s own objectives sufficient, or do you need to formulate new ones to bring gender equality into the picture? If so, what steps need to be taken to achieve the objectives? The effects of this work should be measured using various indicators. The indicators are used to gauge how well you have achieved your objectives. If the objective is to allocate resources equally among women and men, an indicator could be statistics of the operation’s costs disaggregated by sex.

Vision

Try to express how the operation is to be run and what it must achieve if it is to be gender-equal.

New objectives and measures

• Examine current objectives for the activity. Are they sufficient, or do you need to draw up new ones based on the gender patterns identified in the analysis?
• Decide what measures are necessary to adjust distorted gender patterns.
• Decide a completion date for achievement of the objectives.

Follow-up

• Decide how the results of the measures are to be measured in relation to the new objectives. What indicators or key ratios are to be used to follow up the activity?
• Decide when, and in what way, evaluation and follow-up are to take place.

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EXAMPLE: SUPERVISION OF SOCIAL SERVICES County administrative board supervision of compulsory temporary care orders issued by social services for young people.

R1. Representation

What target groups?

How?

Who?

When?

Proportion of women and men among:

Boys and girls subject to care orders Survey/statistics Director of Social Services,

Aug

County Administrative Board

Social workers Investigations Director of Social Services,

Sept

County Administrative Board

Politicians, Social Welfare Board Surveys/statistics Director of Social Services,

Oct

County Administrative Board

Institutional staff Surveys/statistics Director of Social Services,

Nov

County Administrative Board

R2. Resources

What is to be measured?

How?

Who?

When?

Women’s and men’s share of:

Number of care orders Statistics from Director of Social Services,

Done

municipalities County Administrative Board

Number of placements Statistics from Director of Social Services,

Done

municipalities County Administrative Board

Processing time for cases Statistics from Social workers in the municipalities Dec

municipalities

Resources (care periods and Surveys/investigations Social workers in the municipalities Jan money) at institutions

Foster home placements/costs Statistics from Social workers in the municipalities Jan

municipalities

Later follow-up of young people Info from municipalities Social workers in the municipalities Feb Care period/successful result?

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EXAMPLE: REGIONAL DEVELOPMENT Allocation of regional project funds (33:1) granted by the County Administrative Board in 2004.

R1. Representation

What target groups?

How?

Who?

When?

Proportion of women and men among:

Project managers Go through those approved Official(s) in business department Autumn

applications

Steering groups Go through those approved Official(s) in business department Autumn

applications

Reference groups Go through those approved Official(s) in business department Autumn

applications

Target groups Go through those approved Official(s) in business department Autumn

applications

R2. Resources

What is to be measured?

How?

Who?

When?

Women’s and men’s share of:

Size of sum granted by Go through funds granted Official(s) in business department Autumnn projects led by women/men

Correspondence and contact bet-E-mail and Someone in business department

Autumn

ween officials and project managers notes in the files but not the official involved prior to decision (women/men)

Number of steering groups where Go through the files Official(s) in business department Autumn the County Administrative Board is represented (distributed by women/men as project managers)

R3. Realia

To assess prevailing norms (realities), you must know the results of R1 and R2. On the basis of the gender patterns, we can analyse the possible reasons for the differences and what effects they may have. We acquire an idea of which norms govern the operation/activity.

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JämKAS Plus Steps 5–6

JämKAS Plus is a method that helps provide an impact analysis of a gender pattern.

With this method, you can examine whether the gender pattern represents a problem, and if so, whether it should be viewed as a gender equality problem. The method also helps you choose which measures and initiatives are required to combat gender inequalities.

Start by focusing on what you want to study. What issues do you want to examine in depth? One example might be car allowances. What are the gender patterns with respect to approved car allowances? (Car allowances are granted to people who have a permanent disability that makes it particularly difficult for them to get about on their own or to use public transport.)

You then perform an analysis and work your way through to possible measures. The purpose of the method is to determine whether a gender equality issue is present, and, if so, what measures can be used to combat inequalities.

EXPECTED RESULTS

Work with the JämKAS Plus method can:

• be helpful when you want to highlight the gender equality perspective in a field
• illustrate the complexity of factors underlying gender inequality (which often extends into other policy areas).
• facilitate the work of choosing actions and initiatives to combat gender inequalities.

Step 1 Identify target groups

Step 2 Report gender

patterns

Step 3 Formulate observations

Step 4 List causes/ consequences

Step 5

Discard/ confirm

SURVEY

Step 6 Analyse and

describe

Step 7 Identify actors and stakeholders

Step 8 List possible

measures

?

ANALYSIS

CONCLUSIONS

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SURVEY Step 1. Target groups affected

What target groups are affected by the operation/issue?

Identify the target group, i.e. those who are affected by the operation/issue or those who are the focus of it. Who uses or comes into contact with the operation: as citizens, consumers, traffic users, patients etc? The target group should consist of both women and men, girls and boys. The target group might, for example, be women and men who have been granted a car allowance, or women and men who are entitled to a car allowance.

Step 2. Gender patterns

What are the conditions for women and men, respectively, in the chosen operation/issue?

Use existing statistics and other information to identify gender patterns in the area you wish to examine. Describe gender distribution in important areas, as well as the distribution of overall resources by gender. For example, you may want to report the gender pattern among those who are entitled to a car allowance, among those who have applied for one, and/or among those who have been granted one. Start by mapping the representation of women and men in the target group(s). How many women and men, respectively, use the activity/operation? Then survey the distribution of or access to resources among women and men respectively in the target group(s). Remember that resources can also include time, premises, staff, materials and so on. In the car allowance example, you might like to report how much of the total funding has gone to women and how much to men. A gender pattern will emerge. It is a good idea to use diagrams to clarify the figures, as this makes it easier to see the pattern.

Step 3 Formulate an observation

Work from the patterns you see and formulate a statement or an observation, a hypothetical problem, which you feel is worth studying further.

The problem in focus is the relationship between women and men. The observation must therefore contain a statement that illustrates this relationship. The observation is to be comparative, and both sexes are to be included – e.g. ‘more men than women are granted a car allowance’.

Step 4. Survey causes and effects

List possible cause-effect relationships in the observation. Why are the gender patterns the way they are? List consequences.

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quences. You might just guess, for instance. Could it be because of this, and would that have these consequences? Keep in mind that the problem in focus is the relationship between women and men. Try, therefore, to write ‘women and men respectively’ when describing your underlying causes and your consequences; you risk otherwise falling into the trap of focusing on women as ‘the problem group’, separate from men. This means you could easily miss how women as a group stand in relation to men as a group, and might lose sight of the key point – that the problem is about power and norms.

One explanation for the observation about car allowances might simply be that more men are entitled to it. Alternatively, the officials who grant the allowances may be stuck in a gender-stereotyped mindset and think that men have more need of transport than women. Possible consequences of the observation could be that disabled women are less able to work than disabled men, or that women have to pay for their own transport to a greater extent than men.

Step 5. Discard or confirm the cause-and-effect relationships

Discard or confirm the cause-and-effect relationships in your hypothesis by testing them.

Produce statistics or other information showing the hypothetical links. These might for instance be references to research or qualitative studies. You may find that the hypotheses do not hold water and have to be discarded. Try to be as explicit as possible and show how those cause-and-effect relationships that can be confirmed are based in fact. The reason for the gender pattern/observation might be completely different and not represent a gender equality issue at all. For example: more men than women apply for a car allowance. There may be a lack of information. If so, it is important to point this out. There may not be any available statistics about a certain item of information, or the available statistics may not be disaggregated by sex. Improving the available information might then be one of your proposals for action aimed at providing a more comprehensive picture of gender equality in a certain area. Only causes and consequences that can actually be confirmed are to remain when the problem is described in the next step: Is there a gender equality problem? If there are important reasons or consequences that cannot be confirmed due for instance to a lack of statistics, these can be put in an ‘open drawer’ until further notice. Note that most factors that cannot be confirmed will be discarded directly; only questions that are likely to require follow-up at a later date are placed in the ‘open drawer’.

ANALYSIS

At this stage, you should be gaining some idea of the situation. You can see underlying factors and the likely consequences of the gender pattern you identified during your survey work. It is now time to analyse the observation that you made in Step 3. The observation, in other words, is either to be reformulated as a gender equality problem or to be discarded because it never amounted to one.

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Step 6. Analyse and describe the problem

Does the problem need to be rephrased, or is your observation still valid?

If you decide that a gender equality problem exists, describe it on the basis of the gender equality objectives drawn up for the area in question, or on the basis of the national gender equality policy objectives. The problem, along with the underlying factors and consequences that have been confirmed, is to be described in relation to the gender equality objectives. In what way is the problem related to the objective that women and men are to have the same rights, obligations and opportunities in all areas of life? What bearing does it have on the national interim gender equality objectives?

Step 7. Identify actors and stakeholders

Who has the skills and the authority to remedy the inadequacies that your analysis revealed? Make a list.

When the problem has been described and the underlying factors identified, it is time to link it to those actors who are in a position to influence the situation. You should also link the problem to the stakeholders affected by its consequences. Identifying actors and stakeholders is crucial if you are to obtain an overview of who ‘owns’ the issue. Who has the skills and the authority to remedy the inadequacies that your analysis revealed? Perhaps the greatest potential for change exists outside your agency or organisation?

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).

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Step 8. List possible measures

List measures that could help solve the gender equality problem identified. List the pros and cons of the various measures.

These prospective measures may be found either in areas where the agency has a mandate to act or in areas that someone else ‘owns’. List which changes might enhance gender equality. Start from what the analysis revealed and the description of actors and stakeholders. If there are goal conflicts, or conflicts of interest, be clear about them and describe them. Explain the pros and cons of the various proposals.

OPEN DRAWER

It is now time to empty the ‘open drawer’. Have you put questions in here that could not be confirmed in Step 5 because there were no statistics? Think about whether the lack of statistics is so crucial that it should be remedied as one of the measures. Have you placed an issue here because you are convinced it is important but have been unable to confirm it? Usually, such issues are discarded directly – unless, again, it is a matter of your needing to discover more facts and figures in order to proceed further. Questions that can be directly translated into proposals for action are to be raised in Step 9.

CONCLUSIONS Step 9. Propose measures

Select measures and draw up a plan for their implementation.

Go through the proposals for action in Step 8. Select those that need implementing to enhance gender equality and make a list of measures that the operation is to undertake. Draw up a plan for how the measures are to be put into practice and followed up. If other actors can be linked to the underlying factors, then a measure might consist of drawing the attention of those concerned to your findings. You can simply pass the matter on to the appropriate agency, organisation or ministry. This gives them a chance to tackle the underlying factors.

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P o s s ib le

c a u s e s

O b s e rv a ti o n

L is t c a u s e s a n d c o n s e q u e n c e s

P o s s ib le

c o n s e q u e n c e s

Worksheet 1 JämKas Plus

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A c to rs /

s ta k e h o ld e rs

P ro b le m s

S u rv e y o f a c to rs a n d s ta k e h o ld e rs

C a u s e s C o n s e q u e n c e s A c to rs /

s ta k e h o ld e rs

Worksheet 2 JämKas Plus

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Process Mapping Steps 5–6

The Process Mapping method helps you analyse your processes from a gender equality perspective. You begin by identifying and listing what you are doing and how you are doing it. You then look at ways in which your processes can help achieve the gender equality policy objectives.

Gender mainstreaming is change work, so you need to know exactly what the processes involve if you are to change them. The Process Mapping method helps you conduct a survey and gain a gender equality perspective on your processes.

By process we mean a sequence of events, a particular stage in an operation. A process consists of several stages. Processes might include activity planning, the assessment of applications or case work.

The guidelines explain how you go about mapping your processes from a gender equality perspective. The method is divided into different parts: the inventory, the identification of traps and gender patterns, and proposals for improvements and for the development of an action plan.

EXPECTED RESULTS

Working with the Process Mapping model can provide:

• an analysis of a process from a gender equality perspective
• an aid in detecting and preventing the risk of gender inequalities in the operation
• measures to enhance gender equality in the operation

Step 1. Describe the process

Select a process. Describe it. What are its various stages?

Use the table on page 63 to help you in this. Dividing the process into clearly defined stages simplifies matters. It is a good idea to draw a flow chart for the process as a whole. Describe what is to be done first, what it leads to and what you do after that. The various stages are entered into the table. A process might, for example, be activity planning, assessments of entitlement to support, production of urban planning documents, assessment of project applications, recruitment processes, and the like.

Step 2. Contribute to gender equality

List ways in which this process can help achieve the gender equality policy objectives.

Review the gender equality policy objectives on the next page and see whether the process in any way affects the situation of women and men in the four areas. If your process is carried out in a gender-equal fashion, it can contribute to greater gender equality. Describe what it is important to bear in mind in seeking greater gender equality. What, from a gender equality perspective, is the ideal process?

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Step 3. Identify risks

Where in the process is there a risk of creating gender inequality?

By ‘risks’ here we mean those parts of the process where there is a danger you might foster gender inequality. This might happen, for instance, if you proceed on the basis of ‘gender neutrality’, which can lead to gender blindness, or from a norm that only reflects one of the sexes. The process may then be adapted to the needs of that sex. There is also a risk inherent in dealing with other people: we often have different expectations of women and men. Our conclusions may be gender-stereotyped and may cause us to place different demands on women and men or treat them differently.

Step 4. Survey and analyse the consequences

List what gender patterns you would like to know about at each stage. Enter them in the table for each individual stage.

By ‘gender patterns’ here we mean gender patterns in users, i.e. those who are the end consumers of the operation. Is there some kind of gender pattern that you have to take into account in your internal processes? Do you need to add further stages because the gender patterns look different for girls and boys, women and men? One way of identifying gender patterns is to ask: Is there anything that segregates the sexes? Is there anything that attaches value to one sex or the other? Is any particular sex the norm for this stage? Also, consider gender representation and the allocation of resources. Examine the situation for various groups of women and men with different ethnic backgrounds, disabilities, ages and so on.

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).

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Step 5. Reflect on the sex of the implementer

Who is responsible for the various stages? Are they women or men? How does this affect this particular stage?

Review the various stages in the process. Are there stages where the sex of the implementer is a factor?

Step 6. Propose measures

What measures might prevent the creation of gender inequalities in the various stages?

Look back at Steps 3–5; are there any risks or gender patterns that can be avoided or eliminated? Is the sex of the implementer a factor? In that case, propose measures that might remedy gender inequality.

Step 7. Change the process

Decide which measures you will implement – who does what, and when?

Draw up a plan of action. Schedule the measures and allocate responsibility for them. Don’t forget to plan your follow-up.

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im p le m e n te r

S ta g e 1 S ta g e 2 S ta g e 3 S ta g e 4 S ta g e 5 S ta g e 6

P ro c e s s e s :

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Step 7

Implement the measures

The agency now goes ahead and implements the measures. Management must make a clear decision here about what is to be done and by whom. The time has finally come to create a more gender-equal operation.

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Step 8

Evaluate the outcome

This step enables management to evaluate progress from a gender equality viewpoint. Senior staff make sure that the results are followed up, and evaluate the outcome by answering questions such as the following: 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?

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JämUR – A method for evaluating outcomes Step 8

JämUR (Gender Equality Outcome Evaluation) helps you evaluate the results of the

operation from a gender equality perspective. You are then in a position to propose improvements and provide feedback to those undertaking the actual activities. We recommend that you use the method as a follow-up to JämKAS Bas. The method was developed for use in the Government Offices but has been amended to suit public authorities in general.

Its aim is to evaluate the outcome of the operation from a gender equality perspective so as to be in a position to decide what needs to be done to enhance gender equality.

EXPECTED RESULTS

Working with the JämUR model can provide:

• a chance to measure the impact of the operation on women and men respectively
• a chance to link operational costs to women and men respectively
• proposed improvements aimed at enhancing gender equality in the operation.

Step 1. Operations

Which of your activities/operations involve women and/or men?

Step 2. Outcome

2a. What actions have you taken that affect women and men respectively? 2b. What effects did these actions have on women and men respectively?

Step 3. Costs

How are the costs of the operation distributed among women and men respectively?

Step 4. Conclusions

What conclusions can be drawn from the surveying work in Steps 1–3?

Step 5. Measures

How can the operation become more gender-equal? List possible measures.

Step 6. Proposed improvements

In what way can the agency’s checks and controls, processes and follow-up be amended so that the operation is improved from a gender equality perspective?

Step 7. Feedback

7a. Does the operation receive feedback on the work it is doing to enhance gender equality? 7b. What might such feedback consist of? 7c. In what form should feedback be provided?

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Some definitions

Equality

Fair and just conditions for all individuals and groups in society, based on the idea that all people are of equal worth regardless of sex, ethnic origin, religion and social group etc. One of the most important equality issues is that of equality between women and men.

2

Feminism

Recognition that the sexes are unequal, and a willingness to do something about it. This is the lowest common denominator for different types of feminism; there are various orientations, such as liberal, socialist and radical feminism.

Gender

The social and cultural, ‘constructed’ sex. What we perceive as ‘male’ and ‘female’. This changes and is re-created over time.

Gender-blind

Without regard to the gender equality perspective or gender.

Gender equality

Concerns the relationship between women and men. The objectives of Swedish gender equality policy are set out below.

Overall objective

3

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 of decision-making.

2. Economic equality between women and men. Women and men shall have the same opportunities and conditions with regard to education, training 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.

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Gender equality in internal activities – internal gender equality

Gender equality in human resource activities, i.e. activities governed by the Equal Opportunities Act and the Equal Opportunities Ombudsman, and which is distinct from the gender mainstreaming of the core operation.

Gender equality perspective – Gender equality analysis

The performance an analysis of sex-disaggregated statistics or other information in relation to the gender equality policy objectives.

Gender mainstreaming

A strategy that integrates a gender equality perspective into all areas of policy and activity and all stages of decision-making, planning and implementation of activities in these areas.

Public agencies organise their internal work to achieve gender equality in their core operation.

Gender patterns

The structure that emerges when information, statistics, needs, etc, are divided up by gender.

Gender perspective – gender impact assessment

Reporting statistics and information by gender, and describing the situation for women and men respectively.

The gender system

Describes the social relationships between the sexes. According to Professor Yvonne Hirdman, the gender system rests on two logics. 1) The dichotomy itself, the taboo of segregation: male and female should not mix. 2) The hierarchy: men are the norm. Men are mankind; thus they are the norm for what is normal and generally accepted.

4

The phrase ‘gender power structure’ is used in Swedish politics to describe this.

Intersectionality

A perspective that focuses on the point of intersection of various power structures in society and how different identities are created as a result of factors such as race/ethnicity, sex, sexuality, functional capacity and age.

Patriarchy

A term used in the social sciences to describe social systems in which women are subordinate to men.

Sex

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Jäm Stöd

Gender Equality in Public Services – Useful advice on gender mainstreaming