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CHAPTER 5 - PROGRESS GATHERING AND USING DATA
Introduction
5.1 Ensuring that we develop a good evidence base is key to creating public policies which understand and respond to the needs of disabled people in Scotland.
5.2 As we set out in our scheme, equality impact assessment ( EQIA) is a key mechanism for mainstreaming equalities and ensuring public policies consider and respond to people's different needs. Information and data about disability is vital to support officials to undertake the EQIA process and identify where they may need to adjust individual policies and strategies in order to address disadvantage and achieve greater equality of opportunity between disabled persons and other persons.
5.3 In recognition of this, the Scottish Government ( SG) made data gathering - to develop the information base in relation to disability - a key strand of our work and one of its disability equality scheme priorities.
5.4 This chapter shows, at a corporate level 1, the progress we have made on gathering information and making use of information as we set out in our scheme. Firstly we summarise what we said we would do before evidencing what we have done to progress gathering and using data in the context of disability.
What we said we would do
5.5 Chapter 7 of our disability equality scheme set out the Scottish Government's strategy and commitment to developing the evidence base, the steps we had already taken in this regard and the Government's long-term strategy for gathering information and data about the experiences of disabled people throughout Scotland. This strategy recognises that there is a distinct need to improve the collection and analysis of equalities data, particularly the kinds of data that is collected on the differing needs, views and experiences of disabled people.
5.6 Our strategy set out our activities to assist with delivering the duty through our commitment to mainstreaming equalities into the work of analysts across the Scottish Government. In this context, our strategic framework set out three key areas of work as follows:
- Strengthening central support for mainstreaming and working to build capacity;
- Improving access to equality evidence/data; and,
- Developing a longer term strategy for improving evidence/data to make information and analysis more accessible.
5.7 Within these three areas of work our scheme set out a number of activities to improve data which are summarised below.
Central support for mainstreaming and building capacity
5.8 Social Justice Analytical Unit - We highlighted that action to develop the evidence base would be needed across individual Analytical Services Divisions ( ASD) and that this would be supported by a dedicated analytical unit within Communities Analytical Services. In relation to indicators and outcomes we highlighted that the unit would continue to work with ASDs to ensure that the equality dimensions of the SG Performance Framework - which sets out a series of high level indicators, outcomes and related targets against which the current Administration is monitoring its performance - are monitored and delivered in an evidence based way.
5.9 Equality Analysts Working Group - We also highlighted our intention for our equality analyst working group to develop capacity and awareness of equality issues across the Scottish Government ( SG). Here we set out our intentions to develop ways to support our Directorates to gather information to inform their business plans, review the effectiveness of the disability equality scheme and to inform the development of future schemes.
Improving access to equality evidence/data
5.10 ' Portal to Resources and Information on Mainstreaming Equalities' ( PRIME) - The PRIME website pulls together links to a wide range of research and statistical evidence across a full range of equality and policy areas. Our scheme set out our commitment to review the websites use and content, through the Equality Analysts Working Group, to ensure that the website is updated regularly strengthening the evidence relevant to disabled people (and other equalities groups) within policy areas.
5.11 High Level Summary of Equalities Statistics ( HLSES) - As with PRIME, the HLSES provides an important source of evidence on equalities. As the HLSES was published in 2006, our scheme set out our commitment to review the role and scope of this publication in collaboration with the Equality Analysts Working Group.
Longer term strategy for improving evidence/data
5.12 Building Equalities into our Processes - Our scheme set out our commitment to putting in place monitoring arrangements to ensure that disability issues have been considered as part of the procurement process - here we said that we would regularly update our procurement guidance ( e.g.'Guidance for Commissioning and Managing Social Research') and database ( e.g.CERES - Central Research) to reflect and evidence our commitment.
5.13 Disability Definitions - We also highlighted our intention and commitment to developing a better and more consistent approach to collecting data on disabled people. We said that our work here will enable analysts and policy-makers to benefit from consistent disability definitions used in surveys because it will ensure that survey data are comparable when they are used in policy impact assessment and evaluation.
5.14 Attitudinal Data - Our scheme said that it will be important to collect data which will inform the promotion of more positive attitudes towards disability. Here Communities Analytical Services set out their intention to work in conjunction with the Equalities and Human Rights Commission ( EHRC) to consider the policy implication of the attitudinal research findings, from the Scottish Social Attitudes Survey 2, related to disabled people, and look at ongoing needs for evidence on attitudes towards disabled people.
5.15 Data Comparing Social Groups - Our scheme set out the need to understand more about issues of multiple discrimination and the complex inter-linkages between disability and other equalities strands such as gender, race and age and poverty. While we recognised the significant challenges in producing data on multiple discrimination we highlighted that we were undertaking work to integrate our five core surveys 3 allowing us the possibility of combining samples to increase numbers.
5.16 Exploring Various Methodologies - We highlighted that we were exploring different methodologies, such as standalone, issue-focussed surveys to provide supplementary quantitative information to the larger national surveys.
5.17 Scottish Household Survey ( SHS) - We also highlighted that a new discrimination question has been added to the SHS which asks respondents about their experiences of verbal or physical abuse within their communities because of their gender, disability, race, faith or sexual orientation.
What we have done
5.18 We continue to work to improve the collection and analysis of equalities data, particularly in terms of the kinds of data collected on the needs, views and experiences of disabled people. All national surveys break down data by some of the equalities strands and more work is being done by various Divisions to link mainstreaming concerns with data collection and analysis issues. This next section follows on from what we said we would do to report on examples of what we have done to improve and progress our commitment to gather and make use of information in the context of disability.
Central support for mainstreaming and building capacity
5.19 Social Justice Analytical Unit - The Unit continues to have an integral role in helping analysts to build the capacity of their ASDs to provide sound equalities evidence and analysis which will inform and support policy. In this context, through the Equality Analyst Working Group (see 5.9 and 5.28), the Unit will be a key driver of equalities mainstreaming across analytical groups to help ensure that good evidence and analysis is built into EQIA processes and policy development and public duty schemes/annual reporting.
5.20 A key unit objective is to provide sound equalities evidence and analysis which informs and supports the SG Social Inclusion and Equality Unity policy areas. Two recent cross-cutting pieces of work have been 'Achieving Our Potential: A Framework to tackle poverty and income inequality in Scotland'4 and 'Reporting on Progress Towards Equality of Opportunity between Disabled Persons and other Persons made by Public Authorities in Scotland: The Scottish Ministers' Duties'.
5.21 The unit carried out several pieces of analytical work to support the development of policy around 'Achieving our Potential'. These included an overview of the evidence of poverty in Scotland; a review of the evidence around income inequality and the groups affected by the SG Solidarity Purpose Target; an audit of current SG policies affecting poverty and commissioning research into the experience of poverty in urban and rural areas. Throughout this work the unit ensured that the interests of the various equalities groups were represented in the analyses. The Scottish Government will shortly publish an evidence paper which brings together much of the analytical work carried out in support of 'Achieving our Potential' and which includes sections on each of the main equalities groups.
5.22 Indicators and Outcomes - To ensure that the equality dimensions of the SG Performance Framework are monitored and delivered in an evidenced based way - in the context of disability - we are undertaking work to develop a harmonised disability question to be used in our main social surveys in Scotland.
5.23 Harmonised question - this work is important because the lack of a harmonised disability question across surveys in Scotland makes it difficult to monitor inequalities experienced by disabled people in society over time. Further it also makes monitoring the progress we are making towards equality of opportunity and eliminating unlawful discrimination challenging - the development of a harmonised question by the Scottish Government will work towards improving this (see 5.40 (and 5.42 on larger survey samples)).
5.24 In order to provide some current information/evidence in relation to disability the Social Justice Analytical Unit have provided an evidence chapter (see Appendix 1) containing Scotland level data based on the Office for Disability Issues ( ODI) indicator list 5 (where applicable).
5.25 In addition the Office of the Chief Statistician ( OCS) has compiled an internal database detailing which equality strands are included in each of the Scottish Government's statistical outputs and sources (c. 170 sources and 150 outputs) - including a flag for disability. The database has now been made available internally to Scottish Government employees and will be kept updated on a regular basis as and when required - individual branches will be responsible for ensuring the database is kept updated. The database will provide analysts and policy-makers with easy access to disability statistics (and other equality group statistics) contained in all Scottish Government statistical outputs and sources.
5.26 We also understand the need to consider what other measures might be effective for looking at progress on disability equality and we are contributing to the development of an Equality Measurement Framework. This framework is being developed by the Equalities and Human Rights Commission (2008-2009) and covers all equalities strands including disability and will, through 'spotlight indicators' over ten different domains, highlight the position of different groups. These indicators are currently being developed in consultation with stakeholders and Scottish Government colleagues to try and ensure that there is a reasonable spread across policy areas. The framework will not present a complete picture for all areas but will aim to highlight salient features.
5.27 The framework will form the basis of a triennial report by the Equalities and Human Rights Commission ( EHRC) to UK and Scottish Ministers indicating the progress we have made towards the elimination of discrimination and the promotion of equality of opportunity across all our policy areas.
5.28 Equality Analysts Working Group - This group was first established in 2006 to address more specific issues around definitions, data collection and use of evidence/data and is currently under review - the Social Justice Analytical Unit are reviewing the membership list with the aim of re-launching the group in January 2009. In our May annual report we will be able to provide an update of our 'first' meeting and our programme of work to develop capacity and awareness of equality issues across the Scottish Government. The group will have an integral role in monitoring progress towards achieving our National Outcomes and Indicators, in relation to disability, across Government.
Improving access to equality evidence/data
5.29 PRIME - Our intention remains to review the PRIME website use and content through the Equality Analysts Working Group to ensure that the website is updated regularly thus strengthening the evidence in relation to disability (and other equalities groups) within policy areas. Communities Analytical Services have assigned a member of staff to assist the working group to ensure that the website is updated regularly.
5.30 High Level Summary of Equalities Statistics ( HLSES) - As with PRIME, our intention remains to review the role and scope of this publication in collaboration with the Equality Analysts Working Group. Our work in relation to the HLSES will be a key agenda on the groups work programme.
5.31 Analytical Services Knowledge Portal - In addition, the Office of the Chief Researcher is currently developing a knowledge portal which will bring together a range of analytical information identified by analysts, in a single place via an intranet interface. The purpose of the portal is to:
- Allow a single point of, and rapid access to, relevant analytical output and other core evidence in different formats across our policy areas;
- Facilitate corporate memory across ASDs and within policy divisions we support;
- Encourage better knowledge exchange and management within analytical services;
- Create a tool for identifying gaps in evidence and therefore aid business planning process and work planning;
- Join-up with existing systems such as SG website publication.
5.32 The portal has been gradually rolled out across ASDs during 2008 and is to go 'live' on Saltire (the Scottish Government's intranet) early 2009. Social Justice Analytical Unit, in collaboration with other ASDs, is currently working to bring together the core analytical outputs and evidence in the context of social justice and equalities (which will include disability). Once developed, the portal will ensure that equality data are accessible and available to analysts and policy at the right time to, for example, inform EQIAs and policy development and to identify gaps in evidence.
Longer term strategy for improving evidence/data
5.33 Building Equalities into our Processes - The Office of the Chief Researcher ( OCR) continues to work to ensure that all the equality duties, including disability equality, are firmly embedded within social research practice to ensure that Scottish Government social research provides an evidence base of the highest quality, inclusive of all groups in our society.
5.34 OCR will continue to update the 'Procedures for Commissioning and Managing Social Science Research' guidance to ensure an inclusive evidence base of the highest quality that incorporates the disability equality duty (and other equality duties and equality groups) in all relevant areas. To date we have revised sections on: ethics and equalities; rural issues; peer review; and use of incentives and reimbursements - particular revisions made to these sections are detailed below.
5.35 Ethics and equalities - this section has been revised to ensure project managers consider equality issues (including disability) when commissioning research. By doing so, the evidence base in the context of disability will be improved and assist with the development of inclusive policies to address all our National Outcomes.
5.36 Rural issues - this section now ensures that rural research gathers evidence on the needs of equality groups in rural areas.
5.37 Peer review - this section ensures that selection of peer reviewers is inclusive and non-discriminatory therefore promoting equality of opportunity between disabled persons and other persons as peer reviewers.
5.38 Use of incentives and reimbursements - this section has been revised to assist researchers to increase participation in research in the context of equality groups in order to work toward achieving more representative samples.
5.39 Undertaking such reviews of our guidance to improve the way we work will help us to improve and increase the availability, accessibility and quality of equality research and data. In the context of the disability duty, this will assist us to ensure that our policies properly reflect the needs, experiences and views of disabled people.
5.40 Disability Definitions - At the moment there is no UK harmonised question on disability to be used in surveys. Currently the Office for National Statistics ( ONS) and the ODI are working towards developing a harmonised question. In Scotland, the Social Justice Analytical Unit and OCS are working toward producing a harmonised question for use in social surveys in Scotland and will be consulting ODI and ONS data users, disability groups and stakeholders and academics as part of this work.
5.41 Attitudinal Data - Our scheme said that it will be important to collect data which will inform the promotion of more positive attitudes towards disability. Communities Analytical Services is currently working with the Equality and Human Rights Commission ( EHRC) on a project commissioned by the EHRC looking at attitudes relating to positive visions of equality, such as what measures people would support to achieve equality and what sort of outcomes would symbolise success or progress for them. Communities Analytical Services will consider the findings of this work together with the Scottish Social Attitudes Survey findings noted in paragraph 5.14.
5.42 Data Comparing Social Groups - The Methodology Forum Sub-Group of the Survey Harmonisation Work Programme is looking into standardising the methodology of the five main statistical surveys conducted in Scotland and producing a set of core questions that can be asked in each. The larger sample size derived when data from the five core surveys are aggregated (including for disability), will help to ensure that data used, particularly trend data, to monitor and evaluate policy outcomes, are more robust.
5.43 Exploring Various Methodologies - Where appropriate, we will explore the use of standalone, issue-focused surveys to provide supplementary quantitative information to the larger national surveys. We do not currently have examples in the context of disability, but we will continue to explore, in collaboration with the Equalities Analysts Working Group, these methods to provide supplementary quantitative information to the larger national surveys. We will support the use of such methods where we believe they would improve our evidence around disability issues (and other equality groups).
5.44 Scottish Household Survey ( SHS) - In line with National Statistics Best Practice, the Scottish Household Survey is reviewed every two years to ensure that the information collected is relevant to policy priorities and making the best use of the time in the survey. A small-scale review (which included a review of the new discrimination question) was undertaken throughout 2008, which incorporated consultation with a broad range of external stakeholders and internal analysts and policy colleagues. This review will see a new questionnaire developed, to be used throughout the 2009 fieldwork.
5.45 The SHS sample is structured to be nationally representative each quarter and to provide a representative sample for larger local authorities each year, and every local authority over a two-year period. Fieldwork data for 2009 will be released through the Annual Report 2009 (provisionally scheduled for release September 2010). All local authority-level data will be available in the Annual Report 2009-10 (published in 2011).
5.46 Economic Social Research Council and Scottish Government Collaboration - In addition, from 2008-2014, through the Economic Social Research Council ( ESRC) and Scottish Government Collaborative PhD Scheme, OCR will be supporting and increasing research capacity on issues concerning diversity. Through this arrangement with the ESRC, the Scottish Government offers 3-month placements for PhD students to work with research teams to provide analytical support to policy colleagues. One placement student conducted a review of the research and related evidence on independent living in Scotland. An extensive range of evidence was included in the work. The main topics covered in the review are: disabled people and social care; transport and the built environment; health; and employment. Due to the large amount of evidence available, the review has not yet been finalised and further work will be conducted early next year to identify key findings for policy development.
5.47 Scottish Government Employee Survey (managed by the Change and Corporate Research Team ( CCR)) - Also in addition, we will continue to collect data on disability of Scottish Government staff to ensure that the viewpoints of different diversity groups are collected in all relevant corporate research exercises. By collecting valuable information on the disability of our staff we will be able to ensure that the SG can provide high quality services to the people of Scotland, and has a workforce which reflects the diversity of the Scottish population (see Chapter Four).
Specific action by Analytical Services Divisions ( ASDs) across the Government
5.48 Our scheme highlighted that action to develop the evidence base would be needed across individual ASDs and that this would be supported by a dedicated equalities research team within Communities Analytical Services. As our disability equality scheme was revised in May 2008 - to take account of the change of Government in May 2007, and subsequent restructuring of our organisation - our annual report in May 2009 will include, in addition to further progress on corporate level activities, an update of progress being made across all of our Analytical Services Divisions.
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