Gender Equality in Public Services Some useful advice on gender mainstreaming

A book of ideas for managers and strategists Swedish Government Official Reports SOU 2007:15 Gender Equality in Public Services

Some useful advice on gender mainstreaming

A book of ideas for managers and strategists from the Swedish Gender Mainstreaming Support Committee

Stockholm 2007

Swedish Government Official Reports SOU 2007:15 This report is on sale in Stockholm at Fritzes Bookshop.

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

Text: Sara Bergquist-Månsson and JämStöd Translation: Lingon Layout: Svensk Information

Printed by Edita Sverige AB Stockholm 2007

ISBN 91-38-22730-5 ISSN 0375-250X Foreword

JämStöd (Gender Mainstreaming Support) is a Swedish committee of inquiry that has worked for two years under a government mandate to provide information about gen- der 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 staff in the practical implementation of the process. We have collaborated with a number of government agencies that have been at the forefront in seeking to ensure that the services they provide to the general public benefit women and men equally.

Working with gender mainstreaming is a groundbreaking task that represents one of the most important challenges facing the public sector. We hope that this book will inspire both those of you who are keen to get started and those wishing to make further progress towards public services of the same high quality for women and men. In these pages, we outline our own experience in this area and our conclusions, but we also give many of those with whom we have collaborated the opportunity to express their opinions.

In parallel, we have produced a method book, The Gender Mainstreaming Manual, to supplement the present publication. It contains methods and working models, com- plete with detailed explanations of practical approaches to gender mainstreaming. In addition, we have produced a separate offprint from our book of ideas, targeting man- agers and management groups. We have also delivered a final report to the Government containing our recommendations (SOU 2007:15).

Finally, we would like to express our thanks to Sara Bergqvist-Månsson, who carried out the interviews and wrote the final text on the basis of the material we had gathered in the course of our inquiry.

Stockholm, March 2007

Ann Boman Committee Chair

/Ulrika Eklund Carina Löfgren

Gender Equality in Public Services – Useful advice on gender mainstreaming 3 4 Gender Equality in Public Services – Useful advice on gender mainstreaming Innehåll

Foreword 3 A new path 6 What is the problem? 8 Gender mainstreaming in practice 11

THE TASKS OF SENIOR MANAGEMENT 15 “Gender equality must become a part of everyday life” – Interview with Anders Granat 16 Your role as a leader in the gender mainstreaming process 19 Success factors and obstacles to change – Interview with Johan Quist 21 Stand up and be counted! – Intervview with Ulf Westerberg 23 What others have done 26 The evaluation process takes time – Interview with Gunno Gunnmo 30 Confronting obstacles 32

THE TASKT OF GENDER EQUALITY STRATEGISTS 33 Keep the task within limits! – Interview with Sabina Petersson 34 Your role as a gender mainstreaming strategist 37 Make demands on management – Interview with Eva Mark 39 Don’t take opposition personally 41 Invest in training 42

METHODS AND MODELS 47 “The Ladder” 48 Methods and models 50

Gender Equality in Public Services – Useful advice on gender mainstreaming 5 A new path

In publishing this book, our aim is to show we lose sight of when performing our how gender mainstreaming can upgrade duties? Do our decisions affect women and and improve the activities of public organi- men differently? If you fail to study these sations. As a technique, gender main- questions, you will never find out. streaming is guaranteed to produce results, In practical terms, it may for instance paving the way for legally secure, demo- involve examining how a government cratic and efficient public services – for agency goes about supervising the work of both women and men. the social services. Are only men offered In Sweden, there is broad agreement on rehabilitation leading to training and jobs, gender equality policy in general and on while women are given a few hours’ coun- the need for all central government activi- selling and a disability pension? Are we ties to be informed by an equality perspec- considering the needs of both women and tive. This task is prescribed in a range of men and how each benefit from the servic- policy documents, action plans and appro- es we provide? Are we addressing the needs priation directions. And it is not confined of both women and men when planning to the usual gender equality issues: that regional development, projecting roads, women and men should have the same building lifeboats, subsidising business chance to advance in their careers, that start-ups, formulating information about there should be no unjustified pay differen- potential emergencies, and so forth? The tials, or that both sexes should be repre- questions and issues involved are almost sented at all levels in an organisation etc. countless, and naturally differ, depending These relate to staff policy and are dealt on the area of activity for which your par- with under the Equal Opportunities Act. ticular agency is responsible. But the ques- Here, the aim is to mainstream gender tions must be put. And the answers may into core activities, which is a completely reveal imbalances and disparities that no- different matter. Gender mainstreaming is one had noticed before. a strategy for achieving equality of the sexes. It means applying a gender equality Essential knowledge perspective throughout the operation, If it is to succeed, gender mainstreaming wherever decisions are made and wherever necessitates a grasp of the issues – among activities are undertaken. The aim is to heads of agency, gender equality strategists ensure that the services provided to the and employees alike. This field of work is general public are equally accessible, of the not uncomplicated. Naturally, we would all same high quality and of the same benefit like to be sensible and aware people who to citizens, whether women or men. have no difficulty seeing what needs to be done if we are to deal with citizens, cus- Clear-eyed analysis tomers and users in a respectful manner. In practice, this means opening your eyes But gender equality is an issue that chal- and analysing the situation. How do we lenges traditional attitudes, highly personal work? Are there questions and needs that values and also the established power hier-

6 Gender Equality in Public Services – Useful advice on gender mainstreaming archies found in an organisation. It is a should analyse the present state of affairs in good idea, therefore, to be well prepared. the organisation and how improvements You will need gender skills – an under- can be made. Later in the book, we briefly standing of the general situation of women describe the methods used by the commit- and men in society, of which values govern tee in the course of its work. people’s perceptions of what is ‘normal’ We hope this publication will inspire you and desirable in the way women and men to join in and that you will benefit from the lead their lives, and of why it is so difficult advice offered in these pages by other man- to introduce change. agers and gender equality strategists, based You will also need to familiarise yourself on their own experiences. We also hope the with good, practical methods for how an book will provide you with a basic fund of organisation should adopt gender main- knowledge on which to draw for further streaming as a work approach, i.e. how it work in this field.

GOVERNMENT POLICY ON GENDER EQUALITY

In 1980, the Equal Opportunities Act was passed, and in the same year the Office of the Equal Opportunities Ombudsman (JämO) was established to combat discrimination in working life. In 1984, the first mainstreaming strategy was adopted, stating that the gender perspective was to be integrated into all policy areas so that all decisions were to be analysed on the basis of their respective implications for women and men. The international breakthrough for gender mainstreaming came in 1995 when most UN countries adopted it as a strategy, and the following year it was adopted by the EU. The overall goal of gender equality policy in Sweden is to ensure that women and men have the same power to shape society and their own lives. The subgoals refer to an even division of power, influence and unpaid work and care in the home, to financial equality between the sexes, and to the need to stop male violence against women. Gender equality work has long been about fair employment conditions for women and men at the workplace. Gender mainstreaming adopts a different approach – it is about integrating the gender equality perspective into external activities and ensuring that service provision and decisions have the same consequences for both women and men. In 2004, the Plan for Gender Mainstreaming at the Government Offices was adopted for the period 2004–2009, and 2006 saw the adoption of new gender equality policy objectives.

Gender Equality in Public Services – Useful advice on gender mainstreaming 7 What is the problem?

To mainstream gender into its activities, The examples outlined below show that the agency concerned must review its the gender equality perspective is a signif- mode of operation to ensure that its serv- icant factor in the provision of public ices to citizens, customers and users are services and the exercise of official provided on the same terms, i.e. that they authority. meet the needs of women and men, girls and boys alike. Are boys allowed to be frightened? It is not just about dutifully formulating At a treatment centre for young people, statements of objectives, but about the staff suspected that a boy who had analysing very specifically how the needs recently arrived had an intellectual dis- and conditions of women and men are ability. The boy sat rocking to and fro with affected by the agency’s everyday actions his legs tucked beneath him and a cushion and decisions. All public operations that pressed against his stomach. A member of directly address citizens need to be the staff asked how we would have reacted analysed from a gender equality perspec- if a girl had behaved in the same way. The tive. And this work must be pursued both answer was that most would have thought systematically and continuously. Other- she was frightened. On closer examina- wise, we may well fail to see that women tion, it turned out that the boy was in fact and men are being treated differently, on scared. Had the worst come to the worst, the basis of different criteria. the traditional interpretation of his symp- Surely, no-one deliberately treats them toms might have caused him to be exam- differently? That kind of injustice is not ined for a developmental problem. The reflected in the laws, rules and provisions boy’s behaviour was considered ‘abnormal’ that govern public activities. Yet it is there precisely because he had behaved in a way all the same, despite neutral rules and that is thought natural in girls but unnat- despite the stated aim that all individuals ural in boys. shall be treated according to their needs. Don’t women want a say? So what’s it about? When the road between Mellbystrand and To begin with, we must analyse how our Sandvad in southern Sweden was to be own operation works in relation to rebuilt, few women turned up at the pub- women and men. What is the situation at lic meeting held to discuss the matter, our workplace? This simple question usu- despite the fact that there had been sever- ally leads to some unexpected insights. al very serious accidents there in a short When it is followed by a systematic review space of time and that the problems were of the operation, an even clearer picture of well known. The National Road decisions, actions and behaviour patterns Administration then called a special con- tends to emerge showing how girls and sultative meeting for women only. It was boys, women and men in fact are provided well attended, and the women contributed with differing services and are treated dif- a wide array of views and ideas, ranging ferently. over such matters as safety solutions, chil-

8 Gender Equality in Public Services – Useful advice on gender mainstreaming dren’s routes to school, and bicycle traffic most common among boys. The agency etc. This caused the Road Administration could have contented itself with this – to ponder the question of how consulta- after all, the caring allowance is not a uni- tive meetings should be organised in the versal right; it is an allowance given to par- future. ents who need to reduce their working hours in order to look after a child with a Do we listen to women? specific diagnosis. Instead, however, the When the management group at the agency asked itself why such diagnoses Swedish Maritime Administration was were so much more common among boys given gender equality training, a research than girls. It then found a major imbal- report that one of the participants had ance in the research undertaken in this just come across was discussed. The report field. Some 5 000 studies had been carried focused on safety in passenger ferries, and out on boys with ADHD and DAMP diag- set out recommendations on how passen- noses but only 25 on girls. Probably, the gers were to be informed in the event of numerous studies conducted on boys had an emergency. One piece of advice was to yielded knowledge that made it easier to let a man provide the requisite oral infor- diagnose them. As yet, we know little mation as people consider men more about girls. trustworthy. If it was a woman who was to provide the information, she was advised Are men more motivated? to make it clear that she was acting on the Women on sick leave are given less help in captain’s orders. returning to working life than men. Men are more frequently referred for examina- Do only boys have attention deficits? tion and occupational training, while When the National Social Insurance women are given sheltered work training, Board (as it was then called) was assigned which is the cheapest form of public sup- by the Government in the late 1990s to port and the least likely to lead back to investigate why the number of caring employment. allowances had risen so sharply in recent A study of the 2002 rehabilitation pro- years, the agency noticed that the greatest gramme operated by the Social Insurance increase was in cases involving boys. The Agency shows that both doctors and local reason was that DAMP (deficits in atten- social insurance offices took different tion, motor control and perception) and decisions when faced with the same prob- ADHD (attention-deficit-hyperactivity lems or symptoms, depending on whether disorder) had been officially accepted as the person concerned was a woman or a diagnostic terms qualifying for public man. Men were granted rehabilitation benefit, and that these diagnoses were sooner than women and were allocated

«For women, the average cost of a rehabilitation-to-work training programme purchased by a social insurance office was under SEK 35 000 while the corresponding figure for men was SEK 113 000.»

Gender Equality in Public Services – Useful advice on gender mainstreaming 9 longer periods of study or work training. on road accidents and male coronary For women, the average cost of a rehabili- attacks, despite the fact that it was chiefly tation-to-work training programme pur- older women who required ambulance chased by a social insurance office was transportation. The ambulance service under SEK 35 000 while the corresponding managed to shorten the time from emer- figure for men was SEK 113 000. The study gency response to operating table by shows that men were able to improve their adapting its routines so that it was better work capacity to a greater extent than able to deal with patients suffering hip- women. Short-term cuts in rehabilitation joint fractures. Recovery for such patients programmes for women prove more costly is closely connected with the time it takes to society in the long run as women then to transport them to hospital. Compli- have less chance of returning to working cations may otherwise prove fatal. One life. patient out of four with a hip-joint frac- ture dies within a year. Another study Farming – not for women? showed that men were more likely than Farming companies are largely owned by women to be rushed to hospital with the men and usually inherited by sons, accord- blue light/siren on. Women’s ailments ing to a study undertaken by the Swedish were considered less acute. Board of Agriculture. To ensure that the farm is not split up in the event of a divorce, couples often sign a marital property agree- «Asking how an ment. Such documents tend to be written operation is run from a in a one-sided way and seldom consider the woman’s interests in the matter. The money gender equality perspec- and time she has invested in the business is tive almost always yields seldom taken into account when the couple separate. In many other countries in fresh insights.» Europe, partners in a farming company or the like frequently enter into operating agreements that regulate financial commit- ments and rights. Insight is the first step Asking how an operation is run from a Who has the most pain? gender equality perspective almost always Three out of four people who suffer hip- yields fresh insights, as the above exam- joint fractures are women, and the ailment ples show. From there to actually changing is common among patients at hospital the ways we act and work is often quite a casualty departments in Sweden. A study step, however. Only when we apply the conducted by the Sahlgrenska University insights we have arrived at by introducing Hospital in Göteborg showed that among changes into our everyday actions does the elderly woman who suffered such frac- activity or operation enhance gender tures, only one in ten was given a equality in society. We now know that sys- painkiller in the ambulance, compared tematic and ongoing efforts are required with four men in ten. to this end. And it is here that gender The study further showed that the mainstreaming as a strategy comes into ambulance service concentrated primarily the picture.

10 Gender Equality in Public Services – Useful advice on gender mainstreaming Gender mainstreaming in practice

Most people get upset when they read money is used in the health care service and about the kinds of injustices outlined how the operation is run. above, and agree that gender mainstream- Health care is not an easy area to ing would seem to be a good and reason- change. The workforce is large and the able strategy for improving activities from organisation is complicated. But this did a gender equality perspective. not deter Birgitta Evengård, a chief physi- Yet understanding how one’s own oper- cian and clinical researcher. When she was ation or activity is affected by the problem asked to undertake a thorough shake-up of may present difficulties. A frequent the organisation and introduce a gender- response among staff is that gender analy- minded approach, she immediately ses can hardly be expected to bring about accepted. She was given a free rein and major changes in the way an agency oper- enjoyed the full support both of the coun- ates. Surely, they say, we cannot have been ty’s political representatives and of top wrong in everything we have done so far? management. She was also given a senior In the course of our work with the administrative position at the heart of the JämStöd mandate, we have learned that organisation. this line of argument does not hold water. Birgitta Evengård learned about the Taking the needs of both women and men laundry bag at a meeting of the strategy into consideration in a systematic and group. A nurse had observed that the laun- structured manner leads to changes and dry bags in the male patients’ shower new approaches, not only in the way we room at the skin clinic were always very treat people but also in how we arrive at heavy and difficult to cope with. The decisions and how we operate at a more laundry bags in the women’s shower room, strategic level. meanwhile, were always light. The head of Below, we describe how various organi- department investigated the matter, and sations have worked systematically with the laundry bags were also subjected to gender mainstreaming and gender equali- scientific examination. It turned out that ty issues from different perspectives. male patients with psoriasis and eczema were prescribed light therapy at the clinic The laundry bag brought to a much greater extent than female the message home patients with the same problems. They The tale of the laundry bag has become one were also given help with rubbing in the of the foremost success stories in the gen- skin ointments, after which they used the der equality field in the Stockholm County ward’s shower room, as a result of which Council. It has signalled that health care in the laundry bags in the men’s room were the county must place greater emphasis on always well filled. The women, on the gender equality in its work. It has also other hand, were given a prescription and prompted managers to support the provi- had to go to the pharmacy, pay for the sion of accredited leadership training in ointment and rub it in themselves at gender equality. The laundry bag case has home. A rough estimate showed that costs had a dramatic effect both on the way would be reduced by 22 per cent if the

Gender Equality in Public Services – Useful advice on gender mainstreaming 11 men were treated in the same way as the this, the organisational aspect is vital. All women. the ministries, the Prime Minister’s Office Birgitta Evengård describes how other and the Office for Administrative Affairs studies, too, led to totally new conclusions have appointed their own gender equality when they specifically examined the coordinators whose task is to take forward respective care needs of women and men. and harmonise the gender mainstreaming In her view, such examples are important work in their sphere of operation. These when gender equality considerations are to officers occupy strategically important be introduced into health care. They enable positions and lead the mainstreaming everyone to feel a part of the operation. work on the basis of the objectives. They are assisted in this task by special contact The Government Offices groups. Also, the Division for Gender Over the past couple of years, the Swedish Equality has a working group that acts as a Government Offices have been main- consultative aid and a source of inspira- streaming gender into all their activities. tion vis-à-vis the ministries. This is a major task affecting some 4 000 During the period 2004–2005, some 120 members of staff. A large number of admin- gender analyses were undertaken in all istrative officers in the various ministries policy areas in the Government Offices as are directly involved in building up a gender a first step in implementing the plan. equality perspective in the budget and leg- Based on these analyses, the aim was to islative processes, step by step. Committee develop activity-specific gender equality terms of reference and central government goals for relevant government agencies. In management of public authorities are two the analysis phase, some 400 people of the main targets in this respect. received training and supervision in the Since 2004, an overall plan for main- performance of gender analyses and the streaming gender into the Government formulation of operational goals embody- Offices has been in place, and will run ing a gender equality perspective. until 2009. Based on this plan, annual In addition, the Office for Administrative action programmes are developed setting Affairs broadened its programme of train- out the priorities for the year. The pro- ing courses to encompass gender equality grammes may focus on the need to formu- studies and sex-disaggregated statistics. late appropriate committee terms of refer- In 2006, the main focus was on ensuring ence from a gender equality perspective, or that individually based statistics in the on how gender is to be mainstreamed into Budget Bill were gender-specific, that all the budget process. It is then up to each committee terms of reference were pre- ministry to produce a more detailed pro- ceded by a gender equality inventory, and gramme for its own uses. that work continued on mainstreaming The various areas are being dealt with gender into central government manage- one after another, and when the task has ment of public authorities. been completed in 2009, the aim is for all important processes to have been Gender mainstreaming the budget reviewed and for gender equality to have The Västra Götaland regional authority become a natural part of the Government has decided to focus on the situation of Offices’ ongoing work. women and men. Ahead of each decision, In a major development effort such as the question will now be asked: “How will

12 Gender Equality in Public Services – Useful advice on gender mainstreaming this affect women and men respectively?’. Scorecards specify what is to be measured Are women and men being treated equal- in the quest for care on equal terms. What ly at care centres? Are we aware of how is the position as regards emergency car- women’s and men’s symptoms differ and diac care, waiting times, the diabetes regis- how medicines are prescribed to them? ter? How is the care guarantee working Why do women use public transport to a with regard to waiting times for hip opera- greater extent, and why do men borrow tions for women and men requiring fewer books at the library? arthroplasty? What resources are being To begin with, the regional authority has invested in gender-specific operations decided to introduce gender mainstream- such as enlargement of the prostate gland ing into the internal decision-making for men and incontinence for women? The process when preparing the budget. The distribution of hearing aids should also be budget constitutes the basis for all activities specified. In the search for better and safer undertaken during the year, and is there- care, it is important to acquire an under- fore a natural hub from which to proceed. standing of how the care and treatment of the sexes differs so that a gender equality «Prior to each course perspective may be incorporated when care programmes are developed. Pur- of action, the operation chasers are also urged to seek information concerned is required to both about care periods for certain diag- noses, disaggregated by sex, and about the consider if and where the costs of certain courses of action. gender equality perspec- Kungälv Hospital has introduced a gen- tive is to be found at the der perspective into its scorecard for the 2007 financial year. Among the issues present time.» given priority during the year are “under- standing care from a gender equality per- Prior to each course of action, the opera- spective”. Such knowledge may be tion concerned is required to consider if acquired by for instance ensuring that care and where the gender equality perspective statistics are gender-specific and that key is to be found at the present time and how goal indicators are reported separately for it corresponds to the goals. The budget women and men. instructions also call for an analysis of the more traditional gender equality issues Rural development in Gävleborg such as the gender pay gap and the The county administrative board in prospects for acquiring additional job skills. Gävleborg has worked with gender main- Statistics are an important part of this streaming as part of its rural development effort, and care purchasers are urged to programme. Via measures of different demand facts and figures that make clear kinds, the board has sought to shift the how care is distributed between women present focus in education and training and men today. How are women and men and in funding programmes for entrepre- treated, for instance, in relation to mental neurs, such as those targeting farmers ill-health, cardiac care and rehabilitation? wishing to branch out. Traditionally, con- Indicators for health and medical care tact has been established with the formal are included in the annual reports for 2006. representative of the farming enterprise,

Gender Equality in Public Services – Useful advice on gender mainstreaming 13 who was usually a man. The county traditional farming situation. administrative board has now introduced In the course of this effort, the county measures that specifically target women. administrative board has found it is They are almost always part-owners of the important to review its contact with farm- enterprise, even if their names are not in ers and to determine whether both the contact register. women and men are receiving the infor- “The idea of introducing a gender equali- mation sent out. ty perspective into the rural development “By analysing who are the registered programme has evolved gradually over owners of the company or farm, we’ve time,” says Mats Hindström, director of the found that most of those who sign for the programme in Gävleborg. “We’ve become enterprise are men. Before, we always aware that rural development is one of the addressed our documents to the owners – in designated areas for the county administra- other words almost always the male – with tive boards, but it was already apparent six traditional offers and ‘information for years ago when we were working with gen- men’. Nowadays, however, as a result of our der mainstreaming as a separate project gender equality work, we deliberately seek that this was an imperative issue. to widen the scope of our information so “Then, of course, managerial training in that it reaches both partners in farming gender equality and the work being done enterprises. We want to reach the women with JämKAS Bas (a method described later who we know are there, working with the in the book) have also contributed. We want farm as actively as the formal addressee.” to create an attractive rural development The county administrative board has programme for girls and boys, women and launched special initiatives aimed at men in Gävleborg by mainstreaming a gen- women, inviting them to meetings and der equality perspective into it.” training courses that specifically meet their needs. While the letters continue to Tradition impedes development go to the company representative, the man, The county administrative board has built they deliberately target women or both the on gender analyses in pursuing its devel- partners to show the board’s intentions. opment programme. “We know that our labour market is Integration in day-to-day activities extensively gender-segregated and that From previously having worked with gen- traditional career choices place obstacles in der mainstreaming in project form, the the way of rural development,” says Mats county administrative board in Gävleborg Hindström. “So we have sought to broaden has now brought it into its regular, day-to- our training programme to make tradi- day activities. tional courses for farmers attractive to “We’ve sought to identify areas we need women as well. We’ve also tried to develop to focus on in the rural development pro- new types of training that specifically tar- gramme so that the gender equality issue get rural women and which aim to give can be given priority when the programme them the incentive to develop the kinds of is finally launched,” says Mats Hindström. things that they’ve identified as being of “We need to get everyone involved in pro- interest to them. We encourage them to moting rural development in our county, start new companies, or to supplement which means a gender equality perspective existing ones, as a way of improving the is absolutely essential”.

14 Gender Equality in Public Services – Useful advice on gender mainstreaming The tasks of senior management

This section specifically targets senior managers in public administration, and includes examples of how agency executives have worked with gender mainstream- ing. Later in the book, we briefly describe various analytical methods and working models for tackling the issues practically. Gender mainstreaming is about operational development. When the way opera- tional decisions affect women and men is analysed at a deeper level, the condi- tions are created for improving procedures and priorities. This is why it is so important for the person at the top to become involved in the work. The top manager is quite clearly essential to the process. Our experience shows that the active participation of top management is a decisive factor if gender mainstreaming is to succeed. As the person in command, you can give the gender equality strategist a fully-fledged mandate to take action. When you demand results and reports, things happen in the organisation. When you give an issue pri- ority and allocate the necessary time and resources for the work involved, you are nearing your goal. Managers who show no interest in the work, or remain passive, severely hamper the development process.

Gender Equality in Public Services – Useful advice on gender mainstreaming 15 “Gender equality must become a part of everyday life”

– INTERVIEW WITH COUNTY DIRECTOR ANDERS GRANAT

The trick is to make gender equality a part ferent weight to the needs of women and of everyday life. This, in brief, is the con- men, this is not my idea of what a democ- clusion of Anders Granat, Director of the racy should be,” he says. “So it makes me Gotland County Administrative Board, want to help break down the structure, describing the region’s successful work even if this involves viewing myself as a with gender mainstreaming. Also, he adds, part of the problem.” the issues must have the support of top management. Pushing for change “It’s not that extraordinary,” he says. As a consequence, he has chosen to be an “Gender mainstreaming is about hard active leader. He wants to help drive work and sustained effort, being commit- through a policy whereby all the activities ted and having a reasonably good develop- of the county administrative board are ment programme.” based on the principle that the exercise of Commitment is one of the qualities he public authority, public services and com- feels is vital to the success of the change munity development must proceed from process, from a managerial viewpoint. the needs of both women and men. “It’s not enough to see gender main- “This means adopting an outward-look- streaming simply as an administrative ing approach, being willing to learn, matter. There must be passion there as which in turn adds a deeper dimension to well, an inner fire that demands change. your work as a leader. You have to try and Otherwise, as a leader you are just one see things in a new light.” more thing to be avoided.” Anders Granat became County Director Anders Granat himself is infused by a of Gotland three and a half years ago, since commitment to the notion of shared when much has changed. human interest and how we relate to one “When I arrived, there were a lot of another. good projects that involved promoting “If we have a system that permits the gender equality, both among the staff and existence of a power structure that keeps in our external activities. But they were certain people back and that attaches dif- pursued outside our regular organisation.

«It’s not enough to see gender mainstreaming simply as an administrative matter. There must be passion there as well, an inner fire that demands change.»

16 Gender Equality in Public Services – Useful advice on gender mainstreaming They were good projects but they didn’t affect our operation as a whole. If you «When you get involved work like that, gender equality is just an appendage. That’s why I want to main- in the gender equality stream the work into our regular opera- issue as a man, some tion. That’s much more laborious, as it has people seem to find it a to be based on a shared conviction that this is an important matter.” bit suspect. They try to trip you up.» Found support Together with Kicki Scheller, the board’s gender equality expert, he developed a up. This means you have to think very strategy aimed at deliberately and system- carefully about what you’re after. But we atically introducing the issues into regular believed in one another from the start and decision-making processes and action were able to develop a good strategy. In plans. other county administrative boards, the In Gotland today, the gender equality gender equality expert sometimes sees it issue is pursued at the strategic level, as a as part of the job to judge management, part of the board’s definition of what is which makes cooperation more difficult.” essentially ‘sustainable development’. It is Many argue that what really brings then spread through the organisation via about change in an organisation’s working Kicki Scheller. methods is the requirement that gender In 2004, the issue was incorporated into mainstreaming must be evaluated and fol- a long-term action plan for gender main- lowed up. streaming due to run until 2009. It has “Follow-up is of course important,” says since been incorporated into the county Anders Granat, “but I see this as part of administrative board’s policy documents the organisation’s regular operation. You and statements of objectives. Today, gen- have a discussion before the year starts, der mainstreaming is a part of the man- then you evaluate what happened and date that each work team develops togeth- then this perspective is automatically er with the manager concerned and which included.” is then broken down into separate work- ing plans for the various teams. These Everyone knows what applies plans are evaluated three times a year He hasn’t the slightest doubt that people together with the strategic manager. in the organisation know what applies. Anders Granat emphasises the impor- “I really do believe that everyone has got tance of Kicki Scheller in the undertaking. the message. They know what I stand for, Her cooperation, he says, has been a vital and I’ve shown my commitment in ways factor in the success of the undertaking. that people notice, for instance by going to “We hit it off immediately as we shared seminars and conferences. It’s important the same view of how we were to that people in positions like mine exploit approach things,” he says. “Otherwise, the fact that they’re interesting as leaders. when you get involved in the gender If someone tries to block the agency’s equality issue as a man, some people seem efforts in this respect, or ignore them, it’s to find it a bit suspect. They try to trip you not up to us at the top to intervene. As in

Gender Equality in Public Services – Useful advice on gender mainstreaming 17 all other matters, that’s primarily for the be improved. Having the issue on the person’s immediate superior to deal with.” agenda each time a team meets is asking Managerial appointments are one of too much.” Anders Granat’s principal tasks. “Today, I feel we have a good balance in Not just because the boss wants it the management group. It’s also impor- Since values are involved, he says, there is tant for me personally to keep informed no point in the staff adopting new and to take an interest in the issues I pur- approaches simply because that is what sue. That’s a way of exercising leadership.” the person at the top wants. Rather, it is Nowadays, he has the support of a man- something that each individual must agement group that shares his views on arrive at personally. gender equality. When he took up his Anders Granat is reluctant to talk about appointment, that was not always the case. success factors. When the board’s organisational set-up “What we’re doing here in Gotland is was overhauled, however, a management nothing special,” he says. “We’re labouring group emerged that was more homoge- away and keeping at it, using an approach nous in its approach. that we believe in. It’s like most other Anders Granat emphasises the impor- things in life – sometimes it works, some- tance of ensuring that the entire organisa- times it doesn’t.” tion feels it is moving in the right direc- He attributes the success of the venture tion, that the operation is improving. This to Kicki Scheller. And the mistakes? also makes it easier to mainstream gender “We’ve certainly made some. Our deal- into the organisation’s activities. That this ings with the municipality, for instance, is the Government’s policy aim, as set out sometimes run into trouble over regional in the appropriation directions to the development issues. They haven’t always board, is not enough – there must be a kept up when we’ve moved on to new shared conviction that a gender-equal work methods. When others don’t operate Gotland will indeed be a better place. in the same way as we do, we try and get What, then, causes people to become them to collaborate with us. We’re sup- actively involved in the issue? posed to be responsible for coordinating “It differs little from other issues in this matters at central government level, and respect,” says Anders Granat. “People gender equality policy is part of that brief. must find it attractive, a source of satisfac- We feel we’re making good progress in tion, rather than a dogma to be blindly fol- that area, and this in turn means we feel lowed. There must be a tolerant atmos- we’re in a position to actively pursue the phere so that people dare to say what they discussion and ask how things are going. think, to discuss openly how the job can We all learn from one another.”

«People must find it attractive, a source of satisfaction, rather than a dogma to be blindly followed.»

18 Gender Equality in Public Services – Useful advice on gender mainstreaming Your role as a leader in the gender mainstreaming process

The top manager is crucial to the success of only that which can be measured and a development process such as gender evaluated. mainstreaming. Gender mainstreaming is If you as the top manager ensure that the no different from any other development framework is in place, middle manage- process in this respect. The attention and ment will be better able to get staff to active participation of the top executive address the matter in their day-to-day when strategy decisions are taken sends a activities. Studies have shown that middle message to the organisation that she or he managers are often the main stumbling expects results. block when gender is to be mainstreamed Strategic decisions on what course an into an organisation. They are the ones operation is to take has a decisive impact who decide which issues are to be allotted on staff. When they get the message con- time and which are to be given low priori- cerning management’s vision, decisions ty in everyday work. In practice, it is they and commitment, they realise they will who decide how much room for manoeu- have to revise their work methods based on vre the gender equality strategist and the the new development strategies. line staff have in this matter. The actual presence of the senior man- ager is also important. You can write as Choose the right person many cleverly worded documents and The gender mainstreaming process is a statements of objectives as you like – but if wide-ranging one and the idea is for it to you do not show by your actions that you improve activities on an ongoing basis. If it support the gender mainstreaming drive, is to be sustainable, patient and long-term there is a danger that your staff will accord efforts will be required on the part of the matter less priority. You will be helping everyone in the organisation. the cause considerably if you attend One of the most important tasks of the important meetings, training courses and top manager, therefore, is to choose the conferences in person. right person to lead the work. The assign- Clear and unambiguous steering docu- ment is a highly demanding one. In our ments – ensuring that the organisation experience, the ability to urge people on, to knows how to proceed and how the work liaise, to move things forward and, not least, will be evaluated – are a vital part of all to act in a consultative capacity are the qual- change processes, and the top manager ities that have produced the best results. should make a point of signing them The person who is given the task of lead- where gender mainstreaming is concerned ing the work may not have all these quali- as well. Insistence on follow-up and ties, but should have a broad range of skills reporting shows that management all the same. And any skills that are lacking expects results, that something is to be can perhaps be acquired along the way. done and reported. It is often argued that Also, the gender equality strategist employees don’t do what the boss says but should not have to work alone. A working

Gender Equality in Public Services – Useful advice on gender mainstreaming 19 group whose members represent the most good grasp of the agency’s management important units in the organisation is vir- and follow-up system. tually essential if the work is to gain a Also, your gender equality strategist will proper foothold. doubtless initiate training courses and per- The gender equality strategist needs a haps organise seminars and coaching ses- mandate issued by you as the top manager sions personally. So it is a good idea if she and by the management group. If the work or he has teaching skills and is able to adapt is to succeed, the appointee must be both methods and methodology to various oper- strategic and credible, both as a person and ational needs. In other words, the person in the position he or she occupies in the in charge of the gender mainstreaming organisation. This individual must be process will be a key figure in developing given both a clearly defined mandate to the organisation’s activities. lead the change process and resources that correspond to the measures planned and Time and money the outcomes foreseen. No doubt there will be plenty of resistance Gender equality strategists should work along the way. By making yourself available specifically as strategic planners and not to the gender equality strategist, by insist- assume operative duties, such as producing ing on reports in the course of the work gender analyses. That task should be per- and by calling in the results of various formed in the line. They must, however, be undertakings, you personally can help carry good at consultative work and act as an the work forward. Remember, too, that inspirational coach to others. gender mainstreaming is a type of work To get the analytical process under way that sometimes arouses strong feelings, and out in the organisation, gender equality that abusive treatment and other counter- strategists must see to it that strategies and productive behaviour are not uncommon decisions are widely supported and in connection with the change process. endorsed in the organisation. And that the Such matters should be taken seriously. management group and the strategist work Besides a strategist to coordinate efforts, together closely. A gender equality strate- your organisation needs resources for the gist, therefore, should be a person who is work, not least in terms of time allocation. familiar with the organisation. Here, it is a It takes both time and money to train staff, case of being able to see the overall picture for instance. Such investments signal that and of making the gender equality per- the work has priority. spective a natural part of the regular oper- As the leader, you might also like to con- ation. To this end, the person concerned sider how you yourself are to summon the must take an integrated approach based on strength and energy to push through the his or her familiarity with all aspects of the necessary changes. Gender mainstreaming organisation. Also, of course, she or he is a process that must be continuously must have a sound knowledge of Swedish maintained now and in the future and gender equality policy and gender theory which may sometimes feel like heavy in order to do the job properly. going – just like all change work. Whose The gender equality strategist may per- support can you count on? Can you build haps be required to take part in the evalu- up a network among other agency heads ation process out in the field, in which case who are also working actively with gender the person concerned will need to have a mainstreaming?

20 Gender Equality in Public Services – Useful advice on gender mainstreaming Success factors and obstacles to change

– INTERVIEW WITH JOHAN QUIST, RESEARCHER, SERVICE RESEARCH CENTRE

Gender mainstreaming involves an exten- tive trends and solutions, notes Johan sive, wide-ranging development effort Quist. You are told that by adopting spe- that places heavy demands on manage- cial methods and models, you can speed ment. Actually achieving results in a up your case processing, improve citizen change process is far from easy, as many relations and streamline your activities in leaders have discovered. Things do not general. always turn out as planned, and this may “These are solutions that public organi- be due to a number of different factors. sations tend to buy all too easily,” he says. Johan Quist, an organisational theorist “But things are not that simple. You can’t and researcher at the Service Research just take over a concept and trust that Centre in Karlstad, knows a great deal everything will be better. To start with, about success factors and obstacles to you have to know why you’re taking a new change. He has studied many different idea on board. Often, there are manage- aspects of change work in the public sec- ment trends involved. The Director tor, and has specialised in effective man- General wants to be a legitimate player and agement. Amongst other activities, he has not be the only one who isn’t talking about produced a management programme for processes, for instance. Suddenly everyone leaders in central government, and has is supposed to be working in a ‘process-ori- been heading it for the past few years. ented’ way. To follow the same trend as others then becomes a way of enhancing Each organisation is unique your legitimacy as a leader. And buying “You have to remember that each organi- ready-made package solutions is easy. It sation is unique, and that what proves suc- gives you something to show in your annu- cessful for one will not necessarily succeed al report. ‘We have been following the for another,” he says. “One important suc- project and have achieved this and that’.” cess factor, however, would seem to be the ability to adapt trends and ideas to one’s Proceed from one’s own needs own operation.” This is not a good basis for change, says Leaders often encounter large consul- Johan Quist. Instead, the agency should tancy firms that offer them highly seduc- proceed from a specific need to improve

«You have to remember that each organisation is unique, and that what proves successful for one will not necessarily succeed for another.»

Gender Equality in Public Services – Useful advice on gender mainstreaming 21 the way it works. It may, for instance, want to reduce processing periods from 24 to 12 days. «It takes time and “If you know what you want to achieve, resources to invest in long- you can choose a model that suits your purposes. But if the change project is to term development, but that succeed, the Director General must also be approach is more likely able to adapt the model to the agency’s to succeed.» own activities. You need to consider beforehand what problems you may encounter, and which words or concepts change creates uncertainty. You shouldn’t may not work in the model you’ve chosen. carp at the old when trying to introduce Otherwise, the new project will lose cred- the new, but show respect for the organi- ibility. If a model constantly refers to ‘cus- sation’s history. Otherwise, your change tomers’ instead of citizens or users, you process will have too many negative con- may lose 25 per cent of the staff. Their notations.” reaction might be: ‘What a pathetic model The Director General’s personal com- – our boss doesn’t understand what we’re mitment is also crucial, he says. You must doing here’. That’s how good ideas get lost be sure in your heart that what you are along the way. doing is right. “There is also an assumption that new “The staff are talented people. They can models have ‘good intentions’, that they see whether the boss means what she or he will automatically be good for the opera- says, and this determines the extent to tion. But what exactly are we seeking to which they are prepared to listen and to achieve when we start using, say, ‘balanced change something. I also think it’s impor- scorecards’ here at the agency? If you can tant that you consider from the start how get your staff to understand this, you may you intend following up the change succeed.” process, so that the system measures the right things.” Locate key figures Describing obstacles is more problemat- Then comes the next step: getting all the ic, says Johan Quist. innovations to work and making sure that “Why aren’t we getting more change, they lead to real change. How is this to be and faster? I think this is partly down to done? human nature. We have to get used to “It’s difficult to generalise about this, change. I also believe that the short-term too,” says Johan Quist, “but if I were the approach tends to take precedence over Director General I’d try to find people the long-term approach. It takes time and with ideas – visionaries, innovators – and resources to invest in long-term develop- with a good reputation in the organisa- ment, but that approach is more likely to tion. You also need to remember that succeed. It gives people a chance to adapt.”

22 Gender Equality in Public Services – Useful advice on gender mainstreaming Stand up and be counted!

– INTERVIEW WITH DIRECTOR GENERAL ULF WESTERBERG

Ulf Westerberg, Director General of the it works well for both sexes.” National Board of Forensic Medicine, has Ulf Westerberg has been head of the battled long and hard to ensure that all cit- National Board of Forensic Medicine for izens have access to public services accord- seven and a half years, but has taken an ing to needs rather than gender. He began interest in equal rights for women and working with gender mainstreaming men ever since the late 1960s. before the term had entered the vocabu- “Originally, my interest was political in lary and makes no secret of the fact that nature,” he says, “but when I became head he has experienced both widespread oppo- of the Swedish Working Life Fund the gen- sition and personal ridicule over the years. der aspect grew to be a natural part of my “As a man, it’s not always easy getting work. One of the aims of the fund was to involved in gender equality matters,” he finance workplace programmes that says. “I accept the argument that there is a sought to improve the working environ- gender order, a pattern evident in most ment and work organisation and to reduce areas of society whereby women are in a absenteeism. In their applications, subordinate position and men in a superi- employers often referred to problems that or one. But that argument is not always affected women, but the bulk of the easy to deal with. What is true at the gen- money they asked for was to be used to eral level is often misleading at the indi- redress traditional problems mainly affect- vidual level. If we take the easy way out ing men. This made us realise that a gen- and view all women as victims and all men der-neutral approach on our part would as oppressors, I’m not happy at being often place women at a disadvantage. lumped together with any obnoxious old male chauvinist you’d care to name. That’s Funding unevenly distributed why it feels good to be involved in what In response, Ulf Westerberg and his col- we now call gender mainstreaming. Every- leagues began introducing a gender equal- one, women and men alike, can contribute ity perspective into their work, constantly in a positive and straightforward way to asking whether a given measure or action improving our operation and making sure would benefit both women and men.

«It feels good to be involved in what we now call gender mainstreaming. Everyone, women and men alike, can contribute in a positive and straightforward way to improving our operation and making sure it works well for both sexes.»

Gender Equality in Public Services – Useful advice on gender mainstreaming 23 “Often, we discovered, funding for “You may be a director general, but peo- women and men differed, although the ple still make jokes about you behind your same resources were required.” back when you fight for gender equality,” After his years at the Working Life he says. “I’ve also been accused of being an Fund, Ulf Westerberg promised himself opportunist, intent on furthering my own never to forget the lessons he had learned career, of ingratiating myself with female and the insights he had gained concerning managers in the organisation.” the differing needs of women and men. He has encountered other kinds of He has stuck to his convictions, but opposition elsewhere, and in practice it is adopting such a stance has not always sometimes hard to be consistent in your made him popular; he has encountered response, he says. severe obstacles, and still does. It appears “You have to be prepared to deal with it that gender mainstreaming as a concept is both in the sauna and in the management not always easy for people to absorb. group, but you’re not always able to with- Where are the biggest obstacles to be stand the pressure. All men have been found? immature kids and some remain so all “Both in myself and in others,” says Ulf their lives. Especially in the sauna. Westerberg. “We’re used to certain pat- Sometimes I’ve voiced my objections and terns and boundaries in society, and men sometimes I’ve been ashamed to find are not the only ones that help maintain myself joining in the laughter when some- them. Changing them is the responsibility one makes a derogatory joke about of all, but as a manager you’re better women.” placed to do something about it and you People resist progress towards gender have a greater responsibility to take equality for different reasons, and many action. Everyone stands to gain when we senior managers probably feel they are adopt a new approach to our work. The doing a good job, says Ulf Westerberg. operation improves, we get a better socie- “They think it’s enough just to adopt a ty, and our daughters – and sons – are neutral approach to their work, until they given better opportunities in life.” analyse the situation properly and find that their approach has consequences that Encountered resistance are not in fact neutral as they affect In some quarters, this kind of outlook is women and men differently.” considered provocative, despite coming The National Board of Forensic from someone in such a senior position as Medicine, he concedes, may not be at the Ulf Westerberg. cutting edge of gender mainstreaming.

«Everyone stands to gain when we adopt a new approach to our work. The operation improves, we get a better society, and our daughters – and sons – are given better opportunities in life.»

24 Gender Equality in Public Services – Useful advice on gender mainstreaming «Gender mainstreaming improves the organisation’s activities and frees resources. People get more for their tax money when you adopt a gender perspective. Which director general can afford to pass up such a chance?»

“You need a degree of maturity in an reached the courts. We’ve also begun col- organisation before you can start working laborating with the National Centre for with these issues, and it is only now that Battered and Raped Women in Uppsala so we’ve been able to launch the process that women can get their injuries docu- properly,” says Ulf Westerberg. “We’ve mented even if they don’t want to report appointed gender agents and have begun the man involved to the police. If they analysing our operation.” change their minds later, perhaps after further assaults, the documentation is New procedures for dealing there. with domestic violence “I still have a burning interest in these “In our field, we already have a good issues, and I believe my experience here example of how work with women’s needs means other agency heads listen when I and legal security can be organised in a discuss things with them. I know the facts. better way,” he adds. “Under a trial pro- Every year, the Government imposes new gramme run jointly by the forensic medi- demands in its appropriation directions, cine department at Uppsala University and it’s almost impossible to find time for and the public prosecution office in them all. Nor do we have the resources to Västerås, medical certificates for all embark on a new venture. I’m aware of crimes of violence towards close relatives this, but I also know that gender main- are now issued by the National Board of streaming improves the organisation’s Forensic Medicine. As a result, criminal activities and frees resources. People get proceedings have increased in volume by more for their tax money when you adopt 40 per cent. Before, the lack of proper doc- a gender perspective. Which director gen- umentation meant that few cases actually eral can afford to pass up such a chance?

Gender Equality in Public Services – Useful advice on gender mainstreaming 25 What others have done

There are many different ways of pursuing says Andreas Liljenrud. “People’s reactions gender mainstreaming. Below are four afterwards were very favourable.” examples. The common denominator here Each management group appointed a is an explicit focus on the role of top man- representative to a steering group whose agement. task was to formulate a management development programme with gender ‘Time to act’ for managers mainstreaming as its theme. The final in Kronoberg programme comprised four seminars and The county administrative board in ‘homework’ for the management groups in Kronoberg County is taking its task very between. The title, ‘Time to Act’, shows seriously. The Government’s appropria- the approach taken, and the three main tion directions clearly state that the subjects were Swedish gender equality agency’s role is to coordinate national pol- policy, gender theory and strategy. icy. The board is required to provide guid- This initiative, too, met with a huge ance and support in promoting local response. Some 80 municipal directors development, and gender mainstreaming and commissioners, county council direc- is one of the foremost issues. tors, agency heads and management group To get the gender mainstreaming effort representatives took part. under way, the county governor and the At the end of the programme, the par- management group chose to contact the ticipants identified three ‘strong’, specific key actors in the region directly – i.e. pub- courses of action that management groups lic authorities and municipalities – with a could take to further the work in their view to establishing a management devel- respective organisations. opment programme. “A year has now passed since the pro- “All experience shows that strategically, gramme ended, and we are seeing a great the active support of management is the need of support out in the field. I’ve been most important success factor in the gen- to almost all the municipalities and agen- der mainstreaming process,” says Andreas cies in the region to take part in skills Liljenrud, director of gender equality acquisition courses for staff. The manage- affairs in Kronoberg and the man in ment groups have drawn up action plans, charge of development work there. “We and the time has now come to move called a meeting and invited the heads of things a step further and produce gender municipalities, government agencies and analyses of the various operations. That organisations in the region.” part tends to take the form of customised The response was overwhelming. Some solutions commissioned by each respec- 80-odd top executives and members of tive management group. We only accept management groups received invitations commissions from senior management.” and over 90 turned up. In practice, this second phase has target- “The county governor and our own man- ed middle management. In Tingsryd in agement group at the county administra- the south of the county, for example, tive board attended as a matter of course,” Andreas Liljenrud took part in a special

26 Gender Equality in Public Services – Useful advice on gender mainstreaming training programme directed at all man- the whole Nutek operation,” says Bo agers in the municipality. Stenviken, Director of Planning at the There were a number of reasons why agency. “At the same time, we decided to the development programme itself was strengthen the gender equality aspect in such a success, says Andreas Liljenrud. The all regional development work. In our steering group, for instance, played a very operation, we require gender equality, important strategic role. diversity and a healthy environment to be “They tailored each day of the pro- integrated simultaneously and at all gramme to the participants’ needs,” he times.” says. “And after each daily session, the var- The agency had as its objective the cer- ious management groups evaluated the tification of its management system in proceedings. This meant that we always accordance with the international ISO stayed on course and raised issues that the standard for environmental and quality participants themselves were anxious to work. A systematic approach is a funda- discuss. This in turn, I think, created a cer- mental requirement, and an ISO-certified tain level of commitment, and no-one organisation is regularly assessed on the dropped out. We also made a point of basis of its stated objectives and the quali- sending out the invitations from the ty requirements that apply. county governor himself. This was of great “The issues involved are pretty basic, symbolic importance.” like having realistic goals and measuring Andreas Liljenrud also stresses the and evaluating the work at regular inter- importance of focusing on the right objec- vals,” says Stefan Nordin, who acted as tives. Gender mainstreaming work is not project leader for the agency’s develop- about providing support to discriminated ment effort. “The important thing is sys- groups. tematic application and using ISO-certi- “Public authorities are required to pro- fied management systems as an aid to ceed from a human rights perspective,” he development.” says. “Consequently, we must make As yet, no formal criteria have been absolutely sure that in exercising our established for the ISO certification of authority we treat women and men equal- gender equality work. At Nutek, however, ly. This is a development issue.” gender equality issues are subject to the same systematic processes as other types Nutek incorporated gender equality of environmental and quality work. into its management system “We haven’t built up parallel systems. When the Swedish Agency for Economic Instead, we’ve made gender equality and and Regional Growth (Nutek) began work diversity a part of our regular system of on introducing an environmental and control and follow-up. The systematic quality management system into its entire aspect has brought the greatest benefits as operation, gender equality issues were regards gender equality work,” says Stefan included on the agenda. Today, they are in Nordin. “As a result, we now include gen- the process of becoming a natural part of der equality requirements in our external the system, both in the agency’s internal activities, too, for instance when dealing work and in its external activities. with project applications of various kinds.” “Four years ago, we decided to develop The process required a major effort on an environmental management system for Nutek’s part.

Gender Equality in Public Services – Useful advice on gender mainstreaming 27 “We surveyed attitudes in the workforce participants is the Östsam Regional and had a big ‘kick-off’ to inspire the Development Council. staff,” says Stefan Nordin. “We’ve also pro- This is a joint body bringing together vided each member of staff with extensive the thirteen municipalities in the region training, and done a lot of work on visions and the county council, under a political and policy that we then translated into leadership. Its principal task is to pursue activities.” region-wide strategic issues, such as sus- Today, Nutek works systematically with tainable economic, social, ecological and such things as proposals for improvement. cultural development. The gender equality The agency has a database where everyone perspective, too, is now to be included in can enter their thoughts and ideas and all areas of activity, and to ensure that this suggest improvements, which may range is the case the Development Council has from how working groups are composed produced an action plan for the period to how to choose the right images for 2007–20010. agency publications or how to formulate a The basic aim is to mainstream gender project. into all decision-making. Both the Each proposal is addressed to a specific Development Council’s own activities and person, who is then required to take a its dealings with other actors are to incor- position on it. Otherwise, constant porate a gender equality perspective. reminders arrive by e-mail. Also, any measures taken are entered into the data- base. «The basic aim is to “Over the past two years, we’ve dealt with 130 proposals in this way, a third of mainstream gender into which were about gender equality,” says all decision-making.» Stefan Nordin. Since that project, attitudes to the gen- der equality issue have changed, he adds. The strategy being applied is METS, “Now, the issue keeps coming up in our which involves dividing subgoals and discussions, and that’s real progress. We’re measures into four principal areas, i.e. seeing a greater commitment on the part management and objectives, education and of staff. Much remains to be done, and it’s training, tools and procedures, and support taking longer than we’d planned to map and coordination. The strategy also calls the processes. Also, we’ve given a lot of for clearly defined intermediate goals. thought to the question of how we should One of the objectives is to bring a gender measure and follow up quality aspects and equality perspective into all areas of deci- gender equality. But we’re on the right sion-making and all policy documents. path.” Such a perspective is also to be included when the Development Council takes Clearly defined goals in the decisions on projects, both internal and Östsam Regional Development Council external. On completion of the project, all The county administrative board in practical input is to be summed up and Östergötland County has coordinated analysed. An intermediate goal may for gender equality work in the region in a instance be to ensure that policy docu- project entitled ‘Equal Action’. One of the ments, three-year plans and annual bud-

28 Gender Equality in Public Services – Useful advice on gender mainstreaming gets contain at least one specific type of whenever gender equality is high on the input per area of operation, or that all deci- agenda,” says Britt-Marie Lugnet- sions relating to regional assignments out- Häggberg, Director of Gender Equality sourced to an external provider in 2008 are Affairs in Norrbotten. “The fact that men to include a gender equality perspective. in executive positions turn up of their own Also, 90 per cent of the Development accord is particularly interesting. We’ve Council staff are to have received some never had so many men at our gender form of gender equality training by the end equality activities before.” of 2008, and half of the external providers The high attendance is perhaps not so are to have been offered such training, strange in light of the explicit priority along with all of the agency’s executive given to the issue by the county leader- committee members and spokespersons. A ship. further goal is for half of the agency’s staff In 2005, the county administrative to feel sufficiently skilled to undertake a board’s executive committee adopted a well-defined gender analysis. gender equality action plan that clearly One of the intermediate goals in the specified who was responsible for what. method/analysis section is that 60 per To assure quality in the management cent of all investigatory studies and analy- system, the county executive has issued a ses initiated during the period are to directive for operational planning specify- include an objectively based gender equal- ing how work should proceed, although ity perspective. Also, each area of opera- actual content may differ from policy area tion will be required to have undertaken to policy area. at least one exhaustive gender analysis The directive lays down certain princi- during the period. The action plan speci- ples, including the requirement that the fies which concrete steps are to be taken agency is to work with gender main- in the various areas. streaming. This means that all operations The actual follow-up will take place in for which the agency is responsible are to conjunction with work on the agency’s analyse how their activities affect women annual report. Ongoing follow-up is the and men respectively. They are also duty of the controller. required to show how the work is pro- gressing, what impact it has had during Norrbotten makes clear its intentions the period, and so forth. No-one can doubt what Per-Ola Eriksson, “In practice, this means we’ve managed County Governor of Norrbotten, is after. to incorporate the gender perspective Throughout his term as governor, he has requirement into all areas of our regular been emphasising that gender equality is work,” says Britt-Marie Lugnet-Häggberg. one of the most important strategic issues “By first creating an action plan describ- in the region. He made this clear from day ing how the gender mainstreaming work one. is to be organised and then including it in As a result, the gender equality issue the directive as well, we’ve created a situa- enjoys considerable status in this northern tion in which this perspective could be county. said to inform the entire agency operation. “Now that the county governor has made clear how important the issue is, senior officials, both women and men, turn up

Gender Equality in Public Services – Useful advice on gender mainstreaming 29 The evaluation process takes time

– INTERVIEW WITH COUNTY POLICE COMMISSIONER GUNNO GUNNMO

Most people who become involved in the sis within the Ministry of Justice’s area of practical work of mainstreaming gender responsibility. Together with a ministerial into their activities learn that it takes working group, he analysed the situation time. Many, too, discover that in the final with the aid of the JämKAS Bas method analysis it is a matter of changing people’s developed by the JämStöd committee at values and attitudes in the organisation. the Government Offices (and described One person who has experienced this is later in the book.) County Police Commissioner Gunno “It was an exceptionally good process,” Gunnmo, who has analysed the work of says Gunno Gunnmo, “both in terms of the police and prosecution authorities how we were to proceed with the actual from a gender equality viewpoint. analysis and in terms of the training pro- “In the case of male violence against vided. We were given a free hand, and sen- women,” he says, “we’ve looked at the way ior management at the ministry subse- women are treated when their cases are quently came out in support of our con- investigated. But the question also con- clusions.” cerns what status such cases have, and the To make the assignment more manage- fact that murder investigations and the able, the analysis was specifically confined like tend to be given greater priority. The to the operational area of investigation most important thing, therefore, is to and criminal proceedings, i.e. the duties of bring about a change of values in the police and prosecutors. organisation.” “In an endeavour like this, you have to look outwards, look at how the external An exceptionally good process work is conducted, but you end up focus- Gunno Gunnmo previously worked as the ing on the employees all the same, as it is County Police Commissioner of Stock- their attitudes that decide how women holm, and was known for his readiness to and men are treated in the operation,” he pursue gender equality issues in day-to- says. day police work. It is perhaps not surpris- Gunno Gunnmo and the rest of the ing, therefore, that he was chosen for the working group concluded that values and task of conducting an initial gender analy- attitudes are vitally important if police

«In an endeavour like this, you have to look outwards, look at how the external work is conducted, but you end up focusing on the employees all the same, as it is their attitudes that decide how women and men are treated in the operation.

30 Gender Equality in Public Services – Useful advice on gender mainstreaming and prosecutors are to deal equally with incorporated into policy documents, and women and men in their external activi- the implementation of changes needs to ties. take place in existing structures, not in This is not just a matter of how people separate projects. Other important aims are treated, or the status accorded differ- are to give managers strategic training, to ent types of offences. It is also about the enable people to exchange views and expe- preconceptions people have about crime rience, and to ensure follow-up. If you neg- victims and perpetrators, due among other lect these aspects, nothing will happen.” things to a lack of awareness. To others working with gender main- “Men who beat women are said to be streaming, both managers and gender found at all levels of society, but there are equality experts, Gunno Gunnmo offers no studies of offenders to show whether the following advice: there is a common denominator. Also, many rape cases go unreported. The degree • Make sure management is actively back- to which people are known may be a deci- ing you. sive factor in this respect. What social price do you pay for reporting a rape if, say, • Make sure everyone receives training. you are a woman living in a small town where everyone knows everyone else?” • Keep known success factors in mind when planning change. People’s values are crucial Gunno Gunnmo’s gender analysis in- • Choose courses of action that have an cludes a number of practical proposals for impact, otherwise results will be negli- change, but he himself views people’s val- gible. This means focusing on the oper- ues as the most important issue. How, ation as a whole and not just on individ- then, is one to bring about a change of ual measures. attitude? “We’ve compiled a list of success factors • Don’t avoid difficult issues. If you want in our analysis,” he says. “The support and to effect change, you will have to take commitment of senior management is the matters to a deeper level and attack pre- most important prerequisite. Also, the vailing values. gender equality perspective has to be

Gender Equality in Public Services – Useful advice on gender mainstreaming 31 Confronting obstacles

To work with gender mainstreaming is to as “Are all men supposed to be like radically change the way an agency oper- women now?” or “I don’t see why I need to ates. It takes time and it challenges both attend a course. We’re all familiar with the organisation’s current values and such matters. I do the washing up and methods and the individual’s self-esteem bake bread – we don’t need to learn more at work. Aren’t I good enough at my job – about this sort of thing.” Or “We’ve got has everything I’ve done been wasted? other things to do. Let’s concentrate on Sooner or later, therefore, both you as our core activity”, or “Surely this is a mat- the senior manager and the people you ter for the staff department?”, or “But have put in charge of the practical main- we’re supposed to be objective in our streaming work will run into obstacles. work. Gender equality is ideology and These will differ in character. Some are should be left to the politicians.” described in the interviews above and in the fact boxes in this book. Others have Gibes and disparaging remarks arisen in our contact with managers and Both senior managers and gender equality gender equality strategists. strategists may also find themselves sub- jected to personal gibes and disparaging All change is a challenge remarks, as noted by Ulf Westerberg earli- Not all of these obstacles will affect you er in the book. This does not always hap- and your staff, but if you encounter oppo- pen, of course, but it may be a good idea to sition – or find out that your colleagues be prepared for the fact that change are doing so – it is worth bearing in mind processes tend to arouse strong feelings. that others have undergone the same Managers may also encounter resistance experience before you. It is due not to you of another kind. Employees may be personally or to your staff but to the fact exceedingly reluctant to change the values that major changes in an organisation are and methods that prevail in an organisa- always a challenge. tion. Such reluctance may take the form Those working with gender main- of passive resistance to whatever changes streaming are sometimes met by com- are decided upon. In many cases, this is ments that show how little importance due to a lack of awareness about the impli- some people attach to the issue and to the cations of gender mainstreaming and/or a need to deal with it in a structured way in failure to understand what the change the organisation. You hear comments such process involves.

32 Gender Equality in Public Services – Useful advice on gender mainstreaming The tasks of gender equality strategists

As a gender equality strategist, your job is to preside over a change process, and this is no small task. It will make heavy demands on you and require the active participation of senior management. The top manager and the management group must issue with you full authorisation to act, in the form of a mandate. When the person at the top calls for results and reports, things happen in the organisation. When she or he accords the issue its proper priority and allocates time and resources to the work, you are nearing your goal. In this section, we describe what other gender equality strategists have learnt in the course of their work, and we also outline strategies and approaches that have proved successful. Keep the task within limits!

– INTERVIEW WITH SABINA PETERSSON, MINISTERIAL COORDINATING OFFICER FOR GENDER EQUALITY

When you begin analysing the activities “We analysed three policy areas: compen- of a large organisation as a prelude to sation in the event of incapacity for work, mainstreaming gender into it, you soon financial family policy – which includes realise there is a tremendous amount that parental benefit, child allowance and main- needs doing. So you need to restrict your- tenance support – and financial policy for self to certain specific issues. It is better to the elderly, in other words pensions,” says tackle a small part of the operation than to Sabina Petersson. “I myself worked with have to fight on all fronts at once – that social insurance. We looked at the available means nothing gets done. statistics and analysed the laws and regula- This is the advice of Sabina Petersson, tions that govern our operation. We also who coordinates gender mainstreaming looked at how we apply the rules and what work at the Swedish Social Insurance kinds of problems arise in our dealings Agency’s department for sickness benefits. with the community in general. What She knows what she is talking about. employers say and how medical certificates The agency has some 16 000 employees, are framed, for instance, affect the assess- and the operation is huge compared with ments we make at the Social Insurance those of other public authorities. Also, the Agency, as do our case officers’ differing agency administers a large part of the expectations concerning women and men.” social insurance system in Sweden, and the actions of its staff have a very definite General analyses impact on the lives of individuals. After initial training, three groups of When the Social Insurance Agency was experts embarked on a general analysis of assigned two years ago to survey and their respective areas of operation. Sabina analyse its activities on the basis of their Petersson analysed sickness benefits. impact on women and men respectively, a “We found that our laws and regulations series of questions arose: were largely gender-neutral, which was • Are laws and regulations neutral and are good to see,” she says. “But there were a women and men assessed equally? Are couple of exceptions. Take sickness and the agency’s decisions influenced by the activity compensation, for instance: when norms and values that exist concerning assessing whether someone is entitled to women and men? such compensation, everything the person does is supposed to be counted, including • Are women and men given equal sup- work in the home. The law is very clear on port and assistance by the agency? this point. It turned out, however, that case officers tended to ask women a lot of • Is as much money invested in measures questions about how much they worked in targeting women and men respectively the home – although this is not supposed and do such measures benefit them to be a major consideration – while the equally? men were asked about their job situations.

34 Gender Equality in Public Services – Useful advice on gender mainstreaming “Consequently, there is a risk that on four areas of action. Under the govern- women’s work capacity will be deemed ment mandate, the report was to include greater than men’s. After all, she can still proposals for ensuring that the Social clean and hoover.” Insurance Agency dealt with cases and customers in a ‘uniform and legally secure’ Values may influence decisions manner, regardless of the person’s sex. Something happens when the Social Insurance Agency’s case officers meet Compulsory training women and men, says Sabina Petersson. “Management’s first decision was to When the right to compensation is organise a compulsory training and skills assessed on an individual basis, the per- enhancement day for all employees and son’s overall situation is considered. As a managers in the department,” says Sabina result, there is a risk that the case officers’ Petersson. “There was a presentation of personal views on what women and men the Government’s gender equality policy are like and what they need may have an and strategy, and we also had three work- impact on decisions. The survey showed, shops – one to teach the JämKas Plus for instance, that women are granted method of analysis, one for the people rehabilitation measures less readily than who work with standardisation and who men and that the measures chosen are less put together examples for our guidelines, costly. It was already known that women and a third for the managers. In 2007, we’ll tend to receive sickness benefit more have a similar training course for new- often, while men are granted work injury comers to the department. annuities or work aids. “The second step was to appoint a coor- The survey that Sabina Petersson partic- dinator whose task would be to carry for- ipated in led to a new assignment, target- ward work on the action plan. It’s well ing the sickness benefit department at the known that such an appointment is a suc- agency’s head offices. cess factor, and my role is to act as an “The Government immediately com- ‘engine’ in the process without necessarily missioned us to produce an action plan for doing all the work myself.” dealing with the gender disparities in the Training is tremendously important, sickness benefit field, and my task now is says Sabina Petersson, both for heighten- to implement this plan,” she says. ing awareness about the gender equality The action plan draws on the work pre- policy goals and in helping people to viously undertaken by the Social In- understand them. It also gives the staff a surance Agency on the theme of gender, proper grasp of the problems involved in and the analysis led to a strategy focusing society as a whole.

«Under the government mandate, the report was to include proposals for ensuring that the Social Insurance Agency dealt with cases and customers ina ‘uniform and legally secure’ manner, regardsless of the person’s sex.»

Gender Equality in Public Services – Useful advice on gender mainstreaming 35 Throughout, the action plan emphasises Paths to success the need to introduce a gender equality The success of a given gender equality perspective into all aspects of the Social strategy depends on many different fac- Insurance Agency’s work on ill-health, tors, says Sabina Petersson. from the collection and analysis of statis- “You need a clear-cut mandate, a com- tics to systematic work on method evalua- mission from the top, otherwise the tions, attitudes and approaches at all levels organisation is not ready for change. of the organisation. Training courses for Preferably, the mandate should describe county employees wishing to learn more what is to be done, point by point. If there about the rules governing case processing is no managerial mandate, don’t undertake give them an opportunity to discuss how the assignment. such rules affect women and men respec- “There must be a realistic level of ambi- tively. tion. Be selective and give priority to tasks that enable you to show results quickly. Modified an information campaign Tangible results help move the work for- “Then are many small activities involved,” ward, but you won’t have time for every- says Sabina Petersson. “For instance, I’ve thing. had a say in the design of an information “You should have a firm grasp of the way campaign on health insurance that was the organisation works,” she adds. “If you launched in the autumn, and I’ve helped are familiar with the decision-making to develop guidelines for the procurement procedures, both formal and informal, you of services. We sometimes purchase per- can make sure you’re in the right place at sonal reports when assessing work capaci- the right time, and can influence things at ty, and it’s important for women and men an early stage. Where are strategic deci- to be treated on the basis of their needs sions taken and where are they prepared? and capabilities in these studies. This is particularly important in the case “The action plan also talks specifically of the organisation’s activity plan. about the need for leadership and control “Make sure you have a mentor or a net- and the introduction of a gender equality work to support you. If you work alone, perspective at all levels, not least in our you’ll quickly feel lonely. Perhaps you can objectives and indicators relating to ill- share the assignment with someone else. health. Gender-specific statistics are “Be ‘proactive’ if a decision is taken to already an established feature at the Social reorganise the operation. Make sure your Insurance Agency, but they need to be project and your activity are given an ade- more clearly defined,” she says. quate place in the new setup. “Preferably, I’d like the agency’s opera- “Set yourself reasonable goals and be tional objectives to make clear that satisfied with what you achieve. women’s and men’s ill-health differ. “Don’t let others use you as their expert. Today, the objectives are framed in a gen- Support them but don’t do the work for der-neutral way, so follow-up is also gen- them,” says Sabina Petersson. der neutral. When the objectives on our scorecards reflect the fact that the situa- tions of women and men differ, we’ll have made some headway in the gender main- streaming process.”

36 Gender Equality in Public Services – Useful advice on gender mainstreaming Your role as a gender mainstreaming strategist

People often expect a lot from you as a involves a new approach to work incorpo- gender equality strategist. Introducing a rating the gender equality perspective as a gender equality perspective into an organ- natural part of all analyses and decisions isation’s ongoing work is a major task in day-to-day activities. requiring strategic action on the part of We advise you as a strategist to gather a both you and senior management. working group around you whose mem- For a start, you must have a good, well- bers represent different parts of the organ- defined commission from the top, show- isation. This group will be an important ing what you are authorised to do as a gen- partner capable of providing you with a der equality strategist and making clear basis for your planning and implementa- that your work is an expression of mana- tion work. gerial intent. This mandate must be for- Later in this book you can read about mally expressed in policy documents and how to develop a strategy for the work action plans. If there is no proper man- involved, but it is important to have the date, it is better to wait until you are pro- right focus from the outset. It is not up to vided with one. Otherwise, who are repre- you personally to carry out all the work in senting? the mainstreaming process. Rather, your role as a strategist is to be a coach, a sup- Core position essential port resource, a trainer and a strategy Since a gender equality strategist works at expert, i.e. the person who introduces the a broad, general level, it is important for issues within the organisation, who draws you to have a position at the heart of the up the plans and who makes available the organisation so that you are close to the requisite tools and methods so that the executive and can be present when devel- organisation can work in a new way. opment matters are discussed. Otherwise, Various analytical methods and models you will be little more than a guest are described later in the book. allowed to say the odd word about gender equality now and then. Raise awareness Broadly speaking, the task of the gender Training is the key to this type of develop- equality strategist is to lead the organisa- ment work. As a gender equality strategist, tion through a development process that therefore, you will need to devote much «It is not up to you personally to carry out all the work in the mainstreaming process. Rather, your role as a strategist is to be a coach, a support resource, a trainer and a strategy expert.»

Gender Equality in Public Services – Useful advice on gender mainstreaming 37 time and energy to measures that raise To a great extent, gender mainstreaming people’s awareness and enhance their is about carrying out analyses and drawing skills. A general grasp of the gender issue conclusions. Another success factor is the will be needed so that those whose task is ability to enlist support for strategies and to develop the operation understand why decisions throughout the organisation, gender is relevant in the first place. Also, not least in the management group and staff need to learn about the Govern- among middle managers. The latter repre- ment’s gender equality policy and its sent a key target group if you want to gain implications for the agency’s operation. a foothold in the organisation. They are Subsequently, as the change process moves the ones who decide how much scope to into the practical phase, it will involve allow individual employees out in the var- using structured methods to analyse the ious units and departments. operation so as to identify issues requiring further effort.

«Another success factor is the ability to enlist support for strategies and decisions throughout the organisation, not least in the management group and among middle managers.»

38 Gender Equality in Public Services – Useful advice on gender mainstreaming Make demands on management

– INTERVIEW WITH EVA MARK (PH.D.), GÖTEBORG UNIVERSITY

It’s easy to become an employer’s ‘alibi’ it has been decided at the top, and you can when working with gender mainstream- devote more of your time to changing and ing. In appointing a gender equality strate- developing work processes so that gender gist or a gender equality expert, the organ- mainstreaming becomes a natural part of isation may think it has fulfilled its obliga- the organisation’s ongoing activities. tions. The actual need for change may “Organisational changes are complex rarely find its way onto the agenda. processes with different dimensions – “Therefore, if you’re to do the job well those that conserve the system and those and if you expect your work to bring about that improve it,” says Eva Mark. “Gender change, you must make sure you have the mainstreaming alters the way activities proper mandate and the right prerequi- and work procedures are analysed, and you sites for your task,” says Eva Mark, PhD. cannot embark on such a course of action As an experienced consultant on gender without the full and unequivocal support mainstreaming issues (and an expert on of senior management.” theoretical philosophy), she emphasises the importance of strong support from More than just managerial support the top. This is crucial to the success of a Many managers fail to understand how change process, and she herself makes a crucial the position they themselves adopt point of turning down commissions is to the success of a change process in the unless they stem from a clear decision on organisation, she says. Even staff who are the part of senior management. dubious about change or opposed to it often accept what management says. It A natural part of the work should be kept in mind, however, that With a strong executive decision to back gender mainstreaming requires much you up, as a gender equality strategist you more than managerial support to succeed. do not need to become embroiled in dis- Eva Mark emphasises that in the main- cussions about whether or not the gender streaming process it is the managers at equality perspective is important to the various levels who are responsible for operation in the first place, says Eva Mark. ensuring implementation and the staff The work is regarded as self-evident since who actually put the changes into prac-

«Gender mainstreaming alters the way activities and work procedures are analysed, and you cannot embark on such a course of action without the full and unequivocal support of senior management.»

Gender Equality in Public Services – Useful advice on gender mainstreaming 39 tice. Initially, and for a limited period, what structures prevail there,” says Eva they will need expert assistance in the Mark. “And that knowledge should pro- form of ‘coaching’. vide the basis for gender mainstreaming. The task of the gender equality expert is It’s better if the practical mainstreaming to supervise the staff in their efforts to of a work process is initiated and designed incorporate the gender equality perspec- awkwardly by a member of staff than bril- tive into their regular activities. This alters liantly by an outside expert. Only then the agenda. Gender equality work is then can you bring the new perspective into the no longer primarily about changing atti- operation.” tudes but becomes increasingly rooted in operational analyses and analyses of work Making people feel secure processes. What is to be done if senior management There is a danger that gender equality fails to lend its full support to the gender experts assume too great a responsibility mainstreaming process? for the implementation of mainstreaming “In that case, you should concentrate on work, and are expected to do so, she adds. management and press it to back the But they should bear in mind that it is the mainstreaming decision,” says Eva Mark. managers and the employees who carry “You shouldn’t allow yourself to become out the work, while they themselves are to the management’s alibi by starting work act as a resource in the process. regardless. The management must take “The employees themselves know their responsibility for its own show of will or particular areas of work best and know lack of will.” One of the most important tasks of a gender equality strategist, says Eva Mark, «It’s better if the practical is to make people feel secure in the change mainstreaming of a work process. There must be open discussion of the issues, and all views and opinions must process is initiated and be respected. No-one needs to be political- designed awkwardly by ly correct. a member of staff than “You can’t force staff as private individ- uals to share the management’s view, but brilliantly by an outside everyone at a workplace must follow cur- expert.» rent policy during working hours,” she says. “That contract is inviolable.”

40 Gender Equality in Public Services – Useful advice on gender mainstreaming Don’t take opposition personally

As a gender equality strategist you may make your job easier, try drawing atten- encounter obstacles and resistance. These tion to your mandate from the top, and tend to take different forms. Change can make sure you have the executive behind be scaring and people are not always you. You can only go as far as management happy about it. You will be altering power allows you to. structures and perhaps exposing preju- You may also be subjected to personal dices, and sooner or later you will meet gibes or encounter obstacles of a more opposition and protest, at various levels. general kind, both in the management But don’t take this personally. Opposi- group and out in the field. Sometimes, tion is not due to you or your colleagues as more deeply-held values may surface and individuals but rather to the fact that create uncertainty as to what actually major changes tend to be viewed as applies, as when a member of a manage- provocative, particularly where gender ment group expressed himself in the fol- equality is involved. lowing terms: “You know, the top manager Some people may dispute the need for is a woman, her two deputies are women gender mainstreaming in the first place, and the gender equality coordinator is a and in the course of your practical work woman. And we men, we don’t listen to you may run into passive resistance in one women. But I think this gender main- form or another. Managers and staff streaming thing is really important.” attend training, then nothing happens. To

«Opposition is not due to you or your colleagues as individuals but rather to the fact that major changes tend to be viewed as provocative, particularly where gender equality is involved.»

Gender Equality in Public Services – Useful advice on gender mainstreaming 41 Invest in training

Education and training are vital when the The analytical work was extensive, with aim is to challenge prevailing norms. For numerous people involved, and in the you, perhaps, the terms are familiar, but it space of six months some 400 members of is not always easy for others in the organi- staff attended a total of more than 90 sation to understand what gender main- training sessions as part of the process. streaming is about. Shared words, phrases All ministries were given special train- and perspectives are required. People ing and supervision in how to perform must, for instance, learn how to see and analyses in their respective policy areas. discuss the existing power structure, and This included: they need the knowledge and skill to detect inequalities. They also need the • Basic training – a half-day for all staff right tools with which to perform analy- charged with performing analyses. ses. Not until the operation has been examined in a structured way do manifest • Training in the JämKas Bas method for distortions and imbalances emerge. those who were to perform the analyses. Training is particularly important since gender equality is an issue that stirs the • Personal supervision on five occasions emotions. Many people have ideas, beliefs for those responsible for performing the and values in relation to it. Also, miscon- analyses. They were required to under- ceptions and prejudices need to be take a couple of the steps at home brought into the open. before joining the supervised sessions to This is why we believe in training that get feedback and then moving on to the provides a forum for discussion, where the next few stages in the process. These participants have the opportunity to talk sessions were based on a model that over the issues and test their ideas. For this involved the participants scrutinising to happen, sufficient time must be allocat- and commenting on one another’s ed. Change processes and work on values analyses. Thus all were brought into the both take time. learning process, and gave and received In the examples below, we show how feedback that focused on the specific different public agencies have met their issues in hand. training needs. All ministerial management groups were Extensive training at the offered training. Several accepted and Government Offices were given a brief spell of basic training In seeking to mainstream gender into their with the emphasis on strategic work. activities, the Government Offices have Training in 2006 focused primarily on placed considerable emphasis on training. methodology as a prelude to agency out- In 2004–2005, some 120 gender analyses come evaluations, on feedback on the were carried out, embracing all policy areas agencies’ annual reports, on the writing of and aiming to formulate better gender appropriation directions and on the for- equality objectives for government agencies. mulation of committee terms of refer-

42 Gender Equality in Public Services – Useful advice on gender mainstreaming ence. Also, ministries provided training adapted to their own special needs. The courses primarily targeted the agen- «Clear-cut managerial cies’ administrative officers, and in many cases the methods developed for the pur- decisions are really pose emphasised a systematic approach important – everyone rather than formal methodology. Many then understands that people welcomed the fact that this gave them a systematic work tool. the work has priority.»

‘Selling’ the gender equality message When the county administrative board in Särnmark. “Clear-cut managerial deci- Blekinge decided to invest in gender main- sions are really important – everyone then streaming, training was given a key role. understands that the work has priority. It In practice, it became a means of ‘selling also helped enormously that we received the message’ within the organisation. funding from the European Social Fund Also, it provided a base from which the (Objective 3) for the development pro- agency could proceed later when working gramme as a whole. This meant we could practically with gender equality issues in bring in experts from outside, and they its operation, says Ylva Särnmark, who helped us find methods and procedures headed the change process. that worked for us.” The mainstreaming of gender into cen- Despite the support of the executive, it tral government activities is hardly a new took time to get the ball rolling. concept, she notes. It has been incorporat- “The difficulty was finding time for ed into agencies’ appropriation directions people to work with the issue. Here, we for years. Core activities are to be conduct- encountered opposition from some of the ed in such a way as to ensure that women managers. A frequent reaction was: ‘We and men receive the same level of service have our regular work to do, how are we and that decisions do not place either sex supposed to find time for this?’.” at a disadvantage. Gender mainstreaming takes time, she “Many people think they are already admits, but in her view it is a development working with this in mind, but when they activity, part of the regular operation. take the time to look more closely at their In the event, the employees were given operation and to analyse it, they learn dif- little chance to opt out when the actual ferently,” says Ylva Särnmark, describing work finally began. the process at her own workplace. “The county governor called together all She and her colleague Frida Berglund staff for an initial half-day session, and the persuaded the county administrative invitation made clear that attendance was board in Blekinge to launch a develop- mandatory. We then appointed eleven ment effort throughout the organisation, gender mainstreaming development offi- focusing specifically on gender main- cers from our various areas of responsibil- streaming. ity, most of whom were the managers in “We began by discussing and planning a charge, and they were given extra training. project, and saw to it that our ideas had They attended six seminars over a 12- the support of management,” says Ylva month period. In between, they were

Gender Equality in Public Services – Useful advice on gender mainstreaming 43 ADVICE FROM THE FIELD

In the course of its work, the JämStöd committee has interviewed a number of gender equal- ity strategists about their practical work with gender mainstreaming. Below is the advice they offer to others involved in the same task.

Management • Make sure management takes the initiative and actively pursues the issues. • Incorporate gender equality into the management system’s policy documents. • Make sure that top management expressly supports the work and requires the organisation to take part. • Don’t start work until you have sufficient expertise and the backing of management. • Make sure the individual managers assume their share of the responsibility for gender equality issues in the organisation’s ongoing work. • If you have not been issued with a clear mandate by top management, try to obtain one.

The process • Use a sound educational approach, with many credible examples and good practices. That makes people interested! • Build up a support organisation for the work. • Draw up a good plan with measurable/quantifiable goals. • Training is essential. Use your gender equality experts. • Set aside resources in the form of time, money and people. • Work on attitudes. • Take small steps that constantly improve the situation. • Begin by analysing a limited part of the operation. That makes the task more manageable. • Make sure that everyone is involved in the process. • Create scope for discussion – most people appreciate that. • Document what you do, so that your work leaves a mark and does not simply remain a pleasant exchange of views. • Make sure your working group possesses the right skills for the job in hand. • Draw on your own and others’ gender equality experts for assistance. • Make sure everyone gets the same basic training, so that no-one ‘owns’ the issue more than anyone else. Then choose a starting point for the work that feels important, and let the change process take time. People need to think things through. • Initiate training and forums for discussion for both managers and other staff.

given homework to do together with their agers was essential, she says, which meant staff group.” the seminars had to be of high quality. If Getting the message across to the man- the managers were not favourably dis-

44 Gender Equality in Public Services – Useful advice on gender mainstreaming Your own role • Make sure you have a clear and realistic idea of what is to be achieved. • Be objective and take a practical view. Things don’t always work out as planned, but often work fairly well nevertheless. • Don’t fall into the trap of trying to change the whole world. Build on the mandate you have been given and do your best. Don’t give up when the going gets tough. • See to it that you receive training yourself, and bring values out into the open – both your own and those found in the organisation. • Dare to focus on yourself. Change starts with you. • Be open to different solutions. No single answer is correct. • Find out what drives the organisation. What can gender mainstreaming do for your particu- lar agency? • Don’t spend too much time on people who don’t want to take part. Instead, focus on those who do. • Accept that the work never ends – the idea is for it to become part of the agency’s every- day activities. • Make sure you have fun, too. Gender mainstreaming is not boring. Have a ‘kick-off’ ses- sion with a good speaker. • Don’t take opposition personally.

Follow-up • Remember that the auditors are your best friends. They can establish checkpoints as part of the operational audit, to determine progress. • Make sure that top management demands results and makes use of them.

Looking ahead • See to it that gender equality awareness/skills are counted as a qualification when new managers are recruited. • Share your projects and the lessons you have learned. • Develop assessment criteria and better tools, and make use of the statistics that will be forthcoming. • Make sure you document the present situation. Then you will be able to see improve- ments, even small ones. Be proud of them!

posed and failed to see the point of the The seminar participants were required project, the work undertaken in their par- to do valuation exercises and learn how to ticular area would not go well. analyse their activities.

Gender Equality in Public Services – Useful advice on gender mainstreaming 45 Subsequently, when they moved on to Today, the work is progressing. The gen- their working groups, they focused on a der equality plan has been revised, and particular area of activity and acquired management has produced some impor- some totally new insights. Support to tant basic principles for work in this field businesses, for instance, was largely grant- that in practice amount to a strategic pol- ed to male entrepreneurs. Homes for sub- icy document. stance abusers had environments that sel- “No-one disputes the need for a gender dom suited women. And those who equality perspective any more, and it has worked with family law came to realise now become part of our regular opera- that they gratuitously focused more atten- tional follow-up,” says Ylva Särnmark. tion on men.

«The seminars had to be of high quality. If the managers were not favourably disposed and failed to see the point of the project, the work undertaken in their particular area would not go well.»

46 Gender Equality in Public Services – Useful advice on gender mainstreaming Methods and models

The task of tackling and changing core activities will require efficient working models and methods if it is to succeed. Gender mainstreaming is a long-term development process that will not have full effect until it becomes a systematic part of the operation. One of the aims of the JämStöd committee, therefore, has been to develop and test methods that can help in this endeavour. Below, we present what we believe to be the most useful methods and working models. All have been tested in agency operations and are specifically designed to serve as an aid in conducting gender analyses, developing action programmes and following up activities. All methods and working models are accompanied by detailed recommendations and advice in the form of a step-by-step guide, set out in a parallel book, The Gender Mainstreaming Manual (JämStöds Praktika, SOU 2007:15). Procedure for sustainable gender mainstreaming – ‘The Ladder’

If work on gender mainstreaming is to be volved, called ‘The Ladder’, is one that we sustainable and effective in the long term, have found to be effective in the practical it must be systematically integrated into mainstreaming process. the agency’s regular management system. Below, we describe the various steps in We have developed a model for how the the Ladder model and also which of work should be organised with this goal in JämStöd’s tools are appropriate in each mind. The structure or procedure in- case.

4 S

Examine the 3 activities

Plan and 2 organise

Examine the 1 conditions

Fundamental understanding

Improvement

48 Gender Equality in Public Services – Useful advice on gender mainstreaming 8

Evaluate 7 the outcome

Implement 6 the measures

Formulate 5 objectives and measures Survey and analyse

I

Gender Equality in Public Services – Useful advice on gender mainstreaming 49 Step 1 2 3 4 5 6 7 8 The JämStöd tools for Step 2 I STUDY THE OPERATION Fundamental understanding This method allows you to examine the Before gender mainstreaming work begins, operation from a gender equality perspec- all staff must acquire a basic understanding tive. It is brief and straightforward, and a of Swedish gender equality policy and the good place to start before you get involved gender mainstreaming strategy. The train- in more advanced, systematic gender analy- ing they receive should encompass gender ses. equality and gender theory, Swedish gen- The method is divided into two parts: a der equality policy and the mainstreaming review of previous efforts and a number of strategy. They will then know more about check questions concerning the relation- how the organisation works and this will ship between the organisation and the gen- hopefully lead to a heightened awareness der equality objectives. of gender issues and greater interest in them. Management, too, needs to acquire knowledge in this area in order to reach The method provides: decisions on the future course of the work. • a focus on previous gender equality work • an idea of how the operation can con- tribute to the goal of greater gender equality. Step 1 2 3 4 5 6 7 8

Examine the conditions I THE GENDER-EQUAL OPERATION In Step 2, the agency will need to look at ‘The Gender-Equal Operation’ is a method the conditions for change, the advantages that gives you a collective picture of what of mainstreaming gender into the opera- an operation emphasising gender equality tion, and whether the will exists. This can might look like in your particular case. You be done by seeking the answers to the fol- might also like to check the extent to which lowing questions. people in the organisation are willing to What characterises a gender-equal oper- work with the issue. The method can serve ation? What would it be like? Do we share as an initial move aimed at motivating staff the same picture? to work with gender mainstreaming. What are the benefits of gender-equal activities? How will gender mainstream- The method provides: ing improve our operation? What do our customers stand to gain? In what ways • a common understanding of what a gen- will it affect our operation? How will it der-equal operation can be like affect our target groups? • a chance for you to identify both obsta- Where there’s a will there’s a way – do cles and what can help the development staff and management actually want to effort create a gender-equal operation? What • a chance for participants to reflect on can be of help in this endeavour? What their personal attitudes to a gender-equal obstacles are there? operation.

50 Gender Equality in Public Services – Useful advice on gender mainstreaming I STUDY THE OPERATIONAL top? Have we set targets for our main- PROCESSES streaming work? How is the work evaluated? ‘Study the Operational Processes’ is a way Have we allocated resources? Have we intro- of examining whether the agency con- duced the work into the agency’s follow-up tributes to gender imbalances or inequali- system? ties. By processes we mean a task in the Training – have we planned training in gen- overall operation. This method is fast and der theory and gender analysis methodology? fairly superficial, centring on the need to Methods – are methods and procedures in identify which processes affect gender place for our gender mainstreaming work? equality. Support and coordination – how do we coordinate our gender mainstreaming work? The method provides: How do we manage strategic development? • a quick analysis of an operation process How do we provide support to our staff? from a gender equality perspective The METS model contains a checklist and • an aid in detecting and preventing the a self-assessment test. risk of inequalities in the operation • proposals for action to enhance gender The method provides: equality in the process. • An overall picture of what is needed to organise the gender mainstreaming work • A collective picture of the present situa- tion in the organisation and of how the Step 1 2 3 4 5 6 7 8 work can be carried forward Plan and organise • A basis for planning how to lead and In Step 3, management takes responsibili- organise the gender mainstreaming effort. ty for planning and setting objectives for the gender mainstreaming work. This includes providing directives on how the work is to be organised. The success fac- Step 1 2 3 4 5 6 7 8 tors described in the METS model can be an aid in this respect. Examine the activities The next step is to survey and compile the The JämStöd tools for Step 3 organisation’s activities and operational goals as a basis for decisions on what is to be I CHECKLIST FOR PLANNING AND analysed or improved. Which operational ORGANISING THE DEVELOPMENT decisions affect women and men? How can WORK – METS our activities help fulfil the aims of gender The checklist represents a model for work equality policy? The methods in this step organisation. The following question should are designed to raise awareness about how be asked: agency activities can contribute to fulfil- Objectives and other forms of management ment of the gender equality policy objec- and control – is there a directive from the tives.

Gender Equality in Public Services – Useful advice on gender mainstreaming 51 The JämStöd tools for Step 4 The method provides: I JÄMKART • a general idea of the activity’s impor- The JämKART (Gender Equality Surveying) tance for gender equality method provides a quick picture of how a • a brief picture of how the activity affects given operation/activity affects gender the gender equality policy objectives equality, and also an assessment of the • an assessment of the potential for progress made so far. In addition, it gives improving gender equality in the activity people the chance to suggest improve- concerned ments, which can then be incorporated into • proposals for improvement. an action plan for gender mainstreaming. JämKART can further be used to take stock of the organisation’s activities when the time comes to choose and prioritise deeper I JÄMKAS BAS forms of gender analysis. The JämKAS Bas method has features that The aim is to provide a general picture of properly belong to Step 4, but since it which agency activities are of importance involves more than just a survey, we have for gender equality, the extent to which the chosen to present it in conjunction with the operation is already helping to fulfil gender next step. equality policy objectives, and what improvements need to be introduced if these objectives are to be met.

PERFORMING A GENDER ANALYSIS

A distinction is usually made between gender analyses and gender impact assess- ments. Analysing gender impact involves using statistics and other data disaggregated by sex to describe the situations of women and men respectively. A gender analysis involves examining an operation or activity on the basis of gender- specific statistics and other data placed in relation to gender equality policy objec- tives. A prerequisite for the performance of such an analysis is a basic understanding of Swedish gender equality policy.

Briefly, the gender analysis process can be described as follows: Inventory – Taking stock of the present operation/activity. Survey – The current situation of women and men. Analysis – How the operation/activity affects women and men respectively. Objectives – What the position of women and men should be in the future. Action – What we will be doing to move from the present situation to the desired goal.

52 Gender Equality in Public Services – Useful advice on gender mainstreaming Step 1 2 3 4 5 6 7 8 resents a gender equality problem. The method also helps you to choose which Survey and analyse measures and initiatives are required to It is here that the work of surveying and combat and prevent gender inequality. analysing an operation at a deeper level really begins. How are we working at pres- The method provides: ent? What happens if we make a point of • an analysis of a gender pattern, based on considering the needs of both women and gender equality principles men in our decisions? Will there be any difference? • an aid in choosing actions and initiatives Here, we survey and analyse how the that combat and prevent gender inequality agency conducts its activities from a gen- • proposals for measures to enhance gen- der equality viewpoint by answering the der equality in the operation. following questions. • Target group – Which are the target I THE 4R METHOD groups for our activities? The 4R method is used as an aid in the sur- • Survey – What is their gender distribu- vey and analysis of a given operation from a tion? How are resources distributed by gender equality perspective. It provides a gender? Who represents the norm in the general picture of how the operation is run operation? and financed at the present time and of what • Analyse – What gender patterns changes are required to meet the differing emerge? What are the implications for needs of women and men. The focus is on women and men respectively, as a group? female and male representation in the vari- ous parts of the operation, and on how agency resources are distributed between the The JämStöd tools for Step 5 sexes. The survey seeks to answer the ques- I JÄMKAS PLUS tion: Who gets what and on what terms? The JämKAS (Gender Equality Survey–Analysis– analysis answers the question: How can we Conclusions) improve matters? JämKAS Plus is a method that enables you to analyse a specific gender pattern. It can The method provides: be useful for bringing out the gender equal- • information about gender patterns in the ity perspective in connection with a partic- organisation in terms of representation ular issue. Examples of gender patterns and resources that you might want to investigate include the uneven allocation of development fund- • a chance to analyse any gender patterns ing, the fact that more women than men that may have been detected apply for a particular type of benefit, or the • proposals for action. fact that more boys than girls profit from a public measure of some kind. Using this method, you can examine whether the gender pattern in question rep-

Gender Equality in Public Services – Useful advice on gender mainstreaming 53 I JÄMKAS BAS improvements and for the development of JämKAS (Gender Equality Survey–Analysis– an action plan. Conclusions) JämKAS Bas is a method for systematically The method provides: analysing an operation from a gender • an analysis of a process from a gender equality perspective and choosing a strate- equality perspective gic area to focus on at a deeper level. The • an aid in detecting and preventing the risk method is divided into different parts: of gender inequalities in the operation inventory, survey, analysis and action. • proposals for action to enhance gender JämKAS Bas is our most comprehensive equality in the operation/activity. method for analysing an organisation’s activities, and is an appropriate tool for pursuing ongoing, systematic gender main- streaming work. Step 1 2 3 4 5 6 7 8

The method provides: Formulate objectives • an analysis of the operation/activity and measures based on gender equality principles Once the gender analyses have been com- pleted, it is time to produce an action plan • a basis for choosing the most relevant based on them by formulating objectives, area to work with indicators and measures for the develop- • proposals for measures to enhance gen- ment of a more gender-equal operation. der equality in the operation. This will also allow you to assess whether the measures concerned lead to enhanced gender equality. I PROCESS MAPPING You can plan improvements by answer- ing the following question: This method enables you to analyse parts • Objectives – What do we want to of the operation from a gender equality per- change? Do we need to formulate new spective. You begin by identifying and list- objectives? Can we improve the objec- ing what you are doing and how you are tives already in place? doing it. You then look at ways in which • Indicators – How can we effectively your processes can help achieve the gender measure our actions? Are the indicators equality policy objectives. of use in evaluating outcomes? By process we mean a sequence of events, • Action – What should we do? How do a particular stage in an operation. A we do it? How do we measure progress? process has several different components, such as operational planning or the assess- The JämStöd tools for Step 6 ment of applications or cases. The same as for Step 5: JämKAS Plus, The The method is divided into different parts: 4R Method, JämKAS Bas and Process inventory, the identification of traps and Mapping. gender patterns, and proposals both for

54 Gender Equality in Public Services – Useful advice on gender mainstreaming Steå 1 2 3 4 5 6 7 8 The JämStöd tools for Step 8 I JÄMUR – A METHOD FOR Implement the measures EVALUATING OUTCOMES The agency now goes ahead and imple- JämUR (Gender Equality Outcome ments the measures. Here, management Evaluation) helps you evaluate the results must arrive at a clear decision on what is of the regular operation from a gender to be done and by whom. The time has equality perspective. You are then in a posi- finally come to create a more gender-equal tion to propose improvements and offer operation. feedback to those undertaking the opera- tion. We recommend that you use this tool when working with JämKAS Bas as well. Step 1 2 3 4 5 6 7 8

Evaluate the outcome The method provides: This step enables management to evaluate • a chance to measure the impact of the progress from a gender equality view- operation on women and men respectively point. It makes sure that the results are • a chance to link operational costs to followed up, and evaluates the outcome by women and men respectively answering questions such as the following: • proposals for improvements aimed at • Follow-up – Have we achieved our enhancing gender equality in the opera- objectives? What were the results of our tion. 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 dis- seminate the outcome and the lessons learned throughout the organisation? How do we make the outcome sustain- able? How do we celebrate our successes?

Gender Equality in Public Services – Useful advice on gender mainstreaming 55 Jäm Stöd

106 47 Stockholm Tel 08-690 91 90 Fax 08-690 91 91 [email protected] www.fritzes.se

ISBN 91-38-22730-5 ISSN 0375-250X