Discussion paper to Disability Working Group, Satellite Group 2
MAINSTREAMING EQUALITY AND EQUALITY DUTIES - AVAILABLE LITERATURE
1. Introduction
The group was interested in what literature might exist, both nationally and internationally, on disability equality duties, or equality duties more generally. This paper provides details of the research undertaken by the Institute of Governance at Edinburgh University on lessons in mainstreaming equal opportunities in other countries; and considers the Northern Ireland equality duty. It also discusses the Agenda 22 approach being taken in some European countries.
2. Learning From Experience: Lessons In Mainstreaming Equal Opportunities
This study was carried out by Fiona Mackay and Kate Bilton, University of Edinburgh. It addresses the issue of how mainstreaming equal opportunities can be instigated and sustained in the work of government and public bodies by drawing upon lessons from elsewhere. It considers, analyses and reports upon developments in mainstreaming practice and research in the 1990s and draws out concrete case studies of innovative practice of mainstreaming at various government levels in Europe and beyond. This review develops understanding of mainstreaming, identifies gaps in knowledge and highlights the strategies, structures and tools needed for successful mainstreaming.
Main findings
- Mainstreaming is a social justice led approach to policy making in which equal opportunities principles, strategies and practices are integrated into the every day work of government and other public bodies.
- Mainstreaming aims to transform the organisational cultures of governments and public bodies and to improve the quality of public policy and of governance itself.
- Mainstreaming is a term which is increasingly used, but is less well understood. There are substantial shortfalls in knowledge, awareness and techniques which appear common to the experience of mainstreaming in most countries.
- Mainstreaming is a strategy that can, without care, degenerate into tokenism where public commitment is given in principle but where in practice little is achieved.
- Specialist equality units play a crucial role in driving, co-ordinating and supporting mainstreaming.
- There is a shortage of concrete case studies which are crucial for governments and other public bodies seeking to 'learn' mainstreaming.
- Gender equality has been the primary focus of mainstreaming in theory and practice. Further work is needed to develop generic equality tools. It must also be recognised that different equality groups may require different sorts of analyses and specific tools.
- Prerequisites or enabling conditions for successful mainstreaming include: specific equality legislation, structures and policy; statistics disaggregated by gender, race, disability and the like; comprehensive knowledge of gender relations and patterns of social division; knowledge of government organisations and administration; necessary funds and human resources; and the equal participation of women and men (and the fair participation of equality groups) in political and public life and in decision-making processes.
- Mainstreaming in the UK is at an early stage. Constitutional change and the government's modernisation agenda are seen as important enabling contexts within which equalities work can develop both collaboratively and distinctively at different levels.
- Case studies demonstrate that whilst there has been much innovation, progress has been uneven and mainstreaming remains vulnerable to political and organisational change and loss of momentum.
- Policy leaders such as Canada and the Nordic countries underline the importance of integrated strategies for the implementation of mainstreaming.
- Strong and sustained political will is probably the single most important factor for successful implementation.
- Further systematic research is needed to draw lessons from the experiences of policy leaders and from UK local government.
Research summary:
http://www.scotland.gov.uk/cru/resfinds/sjf4-00.asp
Full report:
http://www.scotland.gov.uk/library5/social/lfel-00.asp
3. Statutory Equality Duty in Northern Ireland
Section 75 and Schedule 9 to the Northern Ireland Act 1998 came into force on the 01 January 2000 and placed a statutory obligation on public authorities in carrying out their various functions relating to Northern Ireland, to have due regard to the need to promote equality of opportunity -
- between persons of different religious belief, political opinion, racial group, age, marital status or sexual orientation;
- between men and women generally;
- between persons with a disability and persons without; and
- between persons with dependants and persons without.
The statutory obligations are implemented through Equality Schemes, approved by the Equality Commission, and by screening and carrying out Equality Impact Assessments (EQIAs) on policies.
In May 2003 the Equality Commission published a report on the extent of the implementation of the Section 75 statutory duties by public authorities, for the period 1 January 2000 - 31 March 2002.
It found that, in the main, public authorities were progressing implementation of Section 75 duties at different speeds, for a variety of reasons. Generally, implementation of EQIA timetables had fallen behind across parts of the public sector. Nevertheless significant progress was being made by a number of authorities and there was evidence of the benefits of collaborative approaches to implementation, particularly in terms of EQIA and consultation processes.
In the Further Education sector, the Association of Northern Ireland Colleges had developed an accredited "training for trainers" scheme dealing with the Section 75 duties, which had been fed out through FE colleges and developed expertise in dealing with equality and good relations issues.
However the report also found that the carrying out of equality impact assessments had taken longer than expected and the timetables set by some authorities were falling behind.
Further detailed information on these processes can be found on the Equality Commission for Northern Ireland website,
www.equalityni.org
4. Agenda 22
In 1993 the United Nations published a list of 22 standard rules on equal opportunities for disabled people. These rules have no legal weight but carry a moral obligation for Governments around the world.
In an effort to strengthen the impact of the UN rules the Swedish Disability Federation in 1996 created a method for implementing them called Agenda 22.
At first, local authorities were targeted. More recently, the aim of Agenda 22 has been to assist authorities on all different levels in society to draw up strong disability policy plans based on the standard rules.
Agenda 22 consists of three parts.
The first part of Agenda 22 states that a comprehensive disability plan:
- Is produced in close cooperation with local organisations of disabled people with future cooperation described in the plan;
- Weaves disability aspects into all planning and activities from the very beginning of any product whether it is a disability-focused project or not;
- Pays special attention to women and children, since they tend to be especially vulnerable groups;
- Uses the local authority to act as a good example;
- Determines specific long-term objectives and measures for implementation; and
- Includes a method of evaluation and review.
The second part highlights the importance of equal-partnership, namely that representatives from organisations of disabled people should take part in every aspect of any process that affects them, from planning to the final product.
The third part focuses on methods of working and suggest 2 different approaches must be taken. First, questions need to be answered, including: What is the current situation for people with disabilities? What resources are available from governmental authorities? And, how do authorities live up to the UN Standard Rules at present? Second, an inventory must be made of the kinds of public services people with disabilities need. These surveys are best carried out by directly communicating with the local community.
Due to its success in Sweden, Agenda 22 has spread to other countries in Europe. The European Disability Forum (EDF), a federation of organisations involved in the European disability movement, has shown great interest in Agenda 22.
In the UK, the new duty to promote equality of opportunity for disabled people is clearly similar to the Agenda 22 approach. However, it is perhaps stronger in that it has a legal basis and non-compliance can be challenged through the courts, and the entire public sector is covered, rather than just local authorities or other specified bodies.
Further information on Agenda 22 is available at the web address below, from which much of the material for this summary has been taken.
http://www.disabilityworld.org/06-08_03/gov/standards.shtml
Equality Unit
June 2005