The Scottish Government

Discussion paper to Disability Working Group, Satellite Group 2

MAINSTREAMING EQUALITY 1

Sally Witcher September 2005

1. Introduction

1.1 What mainstreaming equality means (and doesn't mean)

Although there is no one agreed definition of mainstreaming equality (Mackay & Bilton 2000), there is broad consensus that it means integrating equality considerations from the outset into the policies, services, culture and operations of institutions. It involves exposing "hidden, unrecognised and unremarked ways in which systems and structures are biased" (Rees 1998, p189) and taking action to prevent inequalities arising. The aim may be to find ways of maximising the access/ integration of people with diverse characteristics into one organisation, process, programme etc, or to ensure a proposed new initiative will redress rather than create new inequalities. Mainstreaming equality is not as simple as a 'one-size-fits-all' approach - although it may well reveal that one size could fit many more, with adjustment. This can remove the stigma sometimes associated with segregated 'specialist' provision.

If well-informed and properly resourced, in a political context it should increase problem-solving capacity, enhance the evidence base for policy, help identify unintended discriminatory implications of policy proposals, give previously excluded groups louder voices, promote cross-sector working and lead to more transparent government.

1.2 Mainstreaming equality into what?

Greater equality might be relevant to an institution's:

• Culture
• Internal systems and operations
• Policy and policy-making processes
• Planning, implementation and evaluation of projects/ programmes
• Design and delivery of services
• Design and delivery of goods and products

A mainstreaming approach could be applied in each case.

1.3 Who is it for?

Mainstreaming equality originated in the gender field. The Public Sector Duty on race (Race Relations Amendment Act 2000) effectively required the mainstreaming of race equality. Similarly, the forthcoming Public Sector Duty on disability will require the mainstreaming of disability equality. Apart from that, there is remarkably little information on mainstreaming disability equality specifically (which is why this paper concentrates on mainstreaming equality more broadly). Where it is mentioned it is usually in the context of discussions on mainstream versus segregated schooling. However, mainstreaming equality has much in common with the social model of disability, as it aims to change attitudes and remove social barriers (Witcher 2005a).

A mainstreaming approach can be taken to promoting equality for one particular group, or for all 'equality groups' together. The key techniques, analyses, requirements, etc required are much the same (another reason why this paper concentrates on mainstreaming equality more broadly). There are similarities in inequality theories relating to different groups (Witcher 2005b), and some issues will be common to different groups (e.g. flexible working hours may be important to women because they have child-care responsibilities and some disabled people because of the nature of their impairment), but there will also be many differences in needs and barriers and the actions necessary to achieve equality. There can be fears that to mainstream equality across the board will result in higher profile groups being focused upon, and others being overlooked, or that all will be reduced to some lowest common denominator. This is a danger, but it is by no means inevitable. However it underlines that it is important to be aware of commonalities and the differences.

It could be argued that to mainstream equality for any one group must mean mainstreaming for all, as no one just has one characteristic! For example, if a service is to be accessible to all disabled people, you need to take into account needs/ barriers experienced by women, people from BME communities, old people, etc, as disabled people also have such characteristics (Witcher 2005a). 2

1.4 Where mainstreaming 'fits' with other equality strategies

Equal Treatment means no one should have fewer human rights, or opportunities on grounds of gender, ethnicity, disability, etc. Positive Action involves targeting resources on specific groups in order to redress unequal starting points. Positive Discrimination focuses on equalising outcomes, e.g. through quotas. All of these are concerned to change positions within existing structures, leaving the latter unchanged.

In contrast, Mainstreaming equality is a long-term transformative strategy, aiming to change structures, etc, as a means of changing positions (Rees 1998). Rights through anti-discrimination legislation are also mechanisms for changing society and its institutions. However, mainstreaming aims to prevent inequalities from arising for groups of people, while rights traditionally redress inequalities experienced by individuals after the event. Obviously the Public Sector Duties have more in common with mainstreaming.

Potentially all strategies have roles to play, e.g. through raising awareness, mainstreaming equality can help legislation reach places it otherwise might not, and highlight where Positive Action is needed to redress historical disadvantage and build capacity.

2. How to mainstream

The literature suggests that the following are key features of mainstreaming equality, whether into institutions in general, or policy-making processes specifically.

2.1 Summary overview

Very broadly, mainstreaming equality involves:

• defining the objective - what is the output/ process/ policy and what is it aiming to achieve
• defining who the target equality group/s is/ are
• identifying 'equality considerations' by analysing the particular needs and barriers experienced by target group/s
• considering how/ if the output/ process/ policy meets needs equitable or whether barriers remain (or new ones are introduced) which will result in inequalities
• considering what adjustments can be made to remove barriers
• monitoring and evaluating outcomes

2.2 Mainstreaming equality exercises

Impact assessments: these are made before a new policy is implemented (or service or product launched) to identify adverse effects that might arise and remove them before they happen.

Equality audits, monitoring, evaluating: baselines (starting points) need to be established from which progress can gauged.

Analysing budgets: this is to identify what proportion of public budgets are spent on particular groups

Public Sector Duties: these require public sector organisations actively to promote equality, produce Equality Schemes, etc.

Corporate Social Responsibility (CSR) reporting involves private sector companies regularly reporting publicly on the 'triple bottom line' - their finances, their environmental and social impact. The latter can be a vehicle for mainstreaming equality as it means undertaking audits of staff and customers, increasing access, etc.

2.3 Organisational requirements

Resources: it is vital that mainstreaming is properly resourced. Significant adjustments may be needed to mainstream policy, processes, services, etc if they are to be truly inclusive. Mainstreaming equality is not an excuse to save money, e.g. by closing down specialist provision/ positive action programmes.

Structures: typically these include some form of central equality unit, to co-ordinate and monitor action, and as a source of expertise; 'champions' in each department, team or Strategic Business Unit; a committee with senior people on it who are responsible for strategic oversight and maintaining momentum.

Commitment: it requires ongoing, long-term commitment and leadership from senior figures, ownership by middle managers/ staff and support from external stakeholders.

2.4 Information

Clearly it is impossible to integrate equality considerations into anything if you don't know what they are! To make mainstreaming meaningful, rather than a tick-box exercise, high quality information is vital. Information can be acquired from various sources:

• External stakeholders particularly representatives from target group/s, as well as social partners (voluntary sector, trades unions, etc), equality experts, etc.
• Internal unit: as above
• Disaggregated statistics: these are statistics that are broken down according to characteristics like gender, ethnicity, disability (maybe impairment type), so that it is possible to establish baselines and monitor impact of policies or organisational changes on particular groups.

2.5 Training

Equality training is essential (disability equality, race equality, generic equality, etc). It might cover concepts, facts and figures, legislation - and how to mainstream.

2.6 Tool-kits

Often these are general break-downs into stages of organisational processes, highlighting where equality considerations or action is required. See annex 1 for some examples.

3. Where mainstreaming equality happens

3.1 Overview

Mainstreaming equality has been adopted by the United Nations and European Commission. The Equality Commission for Northern Ireland and the Irish Equality Authority provide models of generic equality organisations. Northern Ireland has a Public Sector Statutory Duty to promote equality. The Welsh Assembly has a Committee on Equality of Opportunity charged with ensuring the Assembly has equal opportunities arrangements in place. Elsewhere, the Nordic countries and Canada have emerged as policy leaders. Local Government in the UK has played a pioneering role in mainstreaming. The voluntary sector too has a long track record on equal opportunities and they are important social partners. In the private sector there are developments on CSR, and the Employer's Forum on Disability has developed a Global Inclusion Benchmark.

3.2 Mainstreaming equality and the Scottish Parliament

Equal opportunities is one of four principles adopted by the Parliament. It has the power to 'encourage' equal opportunities and has imposed duties on public authorities in Scotland by incorporating equality cla us es into some Acts (e.g. Local Government must have regard to equality issues in defining Best Value). The Executive has an equality strategy, with mainstreaming at its core. This is taken forward by a dedicated Equality Unit. The Parliament has an Equal Opportunities Committee which has published a report on mainstreaming equality in the work of the Parliament's Committees. Its European Committee reported on the European Employment Strategy and Corporate Social Responsibility, suggesting there should be European legislation on CSR.

References and further information

Bennett, C. et al (2001) Mainstreaming Equality in the Committees of the Scottish Parliament CRESR Sheffield Hallam University

Equal Opportunities Committee, 1st Report 2003 Mainstreaming equality in the work of committees of the Scottish Parliament

European and External Relations Committee 2nd Report, 2003 Report on Europe's Employment Strategy and Corporate Responsibility: An Inquiry into the Scottish Model (Volume 1 - Main Report), Stationery Office Ltd

Mackay, F. & Bilton, K. (2000) Learning from Experience: Lessons in Mainstreaming and Equal Opportunities The Governance of Scotland Forum University of Edinburgh ( http://www.scotland.gov.uk/library5/social/lfel-00.asp )

Rees, T. (1998) Mainstreaming Equality in the European Union: Education, Training and Labour Market Policies London: Routledge

SCVO (2002) Equalities Briefing: Why Equalities…Mainstreaming Equality in the Voluntary Sector

Scottish Executive (2000) Equality Strategy: working together for equality - Scottish Executive

The Scottish Office (1998) Mainstreaming Equal Opportunities university of Edinburgh (see

http://www.scotland.gov.uk/government/devolution/meo-00.asp )

Witcher, S. (2005a) 'Mainstreaming Equality: The Implications for Disabled People' in Social Policy and Society, vol 4(1)

Witcher, S. (2005b) 'Mainstreaming equality theories: towards a generic model of discrimination' (see: www.creid.ed.ac.uk/news.html )

Useful Web-sites

www.equality.ie Equality Authority, Ireland

www.equalityni.org Equality Commission for Northern Ireland

www.scotland.gov.uk/mainstreamingequality the Scottish Executive's mainstreaming equality web-site (resource lists for policymakers and researchers). Includes section on disability

www.scotland.gov.uk/equalityanddiversity/IAtoolkit - recently published interim guidance/ tool-kit on conducting an impact assessment: Scottish Executive Health Department

www.scotland.gov.uk/equalityanddiversity/IAleaflet Leaflet

Annex 1

Examples of tool-kits

1) Mainstreaming Equalities: A Checklist for MSPs

EOC, CRE, Governance of Scotland Forum, University of Edinburgh

1. What is the policy for? Who is the policy for? What are the desired and anticipated outcomes?

2. Do we have full information and analyses about the impact of the policy on all equality groups? If not, why not?

3. Has the full range of options and tier differential impacts on equality groups been presented?

4. What are the outcomes and consequences of the proposals? Have the indirect and direct effects of proposals been taken into account?

5. How have policymakers in the Executive demonstrated that they have mainstreamed equality?

6. How will the policy be monitored/ evaluated? How will improved awareness of equality implications be demonstrated?

2) Summary of the Women and Equality Unit's ( DTI, Westminster Government) Gender Impact Assessment www.womenandequalityunit.gov.uk/equality/policy_making.htm

1. Define issues and goals

• What is the policy trying to achieve
• Understand different problems and concerns
• Enable equal contribution

2. Collect data

• Gather gender, race and disability disaggregated statistics
• Consult experts, women and men, black and minority ethnic and disability groups
• Interpret from different perspectives

3. Develop options

• Determine the impact/ implications for different groups
• Offer real choice and opportunities
• Remove stereotyped perceptions

4. Communicate

• Integrate with equality commitments
• Design different strategies
• Use inclusive language

5. Monitor

• Use the community
• Develop indicators
• Examine differential impact

6. Evaluate

• Achieve equality of opportunity and equal outcomes
• Learn lessons
• Spread best practice

3) Summary of Actions and Tools proposed by the Scottish Executive to mainstream equality into policy making

(taken from Bennett et al 2001, pp54-55)

4) Institutional Racism in Higher Education Toolkit Project Building the Anti-Racist HEI

Laura Turney, Ian Law, Debbie Phillips, Centre for Ethnicity and Racism Studies 2002, www.leeds.ac.uk/cers/toolkit/toolkit.htm

The toolkit provides conceptual and methodological tools.

• Section One: Using the Anti-Racist Toolkit: A Reader's Guide - the aims, the sector, reading and using the toolkit, action plan outline
• Section Two: Conceptual Tools: operationalising institutional racism, Eurocentrism, unpicking whiteness
• Section Three: Legal and Organisational Tools - Race Relations Amendment Act 2000, Human Rights Act 1998, direct/ indirect discrimination, harassment, Positive Action, targets, monitoring and indicators, deconstructing stereotypes, training
• Section Four: Anti-Racist Strategies - general statement of aims, organisational areas, employment, student recruitment and transition to employment, teaching and learning, research, contracts and purchasing, external affairs
• Section Five: Reviewing Your Institution - listening to staff and students, analysing data.

Footnotes

1. Some of this paper draws on a report commissioned by the Disability Rights Commission Scotland

2. A lot of the debate covered in this section is relevant to the new Commission for Equality and Human Rights