Gender equality in the public administration (GEPA):

Gender balance in Public administration : UNDP interim research findings

By Soma Chakrabarti Fezzardi

UNDP GEPA project

• 2011/12 global stocktaking project to assess gender balance, obstacles and issues, as well as identify initiatives and models in the PA

• 2 European case studies: Kyrgyz Republic and Romania, also 2-3 from other regions, covering a range of contexts

• Publication in 2012

• PA definition: executive branch of government, or ‘civil service

GEPA status in region

• Wide variation in the extent, to which GEPA is ‘on the agenda’

• Women in Leadership is often almost synonymous with women’s political representation and private sector, rather than PA

• As much on the agenda of high GDP countries eg France, UK as on that of emerging economies

Wide variation in entry points …but some common themes:

1. PA reform: after independence, regional integration, conflict or economic crisis eg Azerbaijan

2. Gender mainstreaming:

(a) top down through GE legislation, NAPs eg Croatia

(b) bottom-up eg regional police initiative

3. Women’s political representation eg Kyrgyz Republic

4. Individuals and leaders eg France

Different issues at different levels

1. Top leadership eg ministerial positions: 2 main routes, entailing different sets of issues and possible approaches: • Career-based system, where employees work

their way up • Lateral entry through competence-based or

political appointment 2. Senior and ‘decision-making’ positions, rest of PA (recruitment, career planning, retention, work-life balance)

Some trends and patterns: Numbers

• All countries appear to have the classic ‘pyramid’ structure, with few women decision-makers at top and more women at bottom, and more administrative rather than professional positions

• Wide variation in pyramid dimensions, with some countries like Finland & ex-FSU having more women than men as a whole (eg Ukraine, 75% - but 13% at top)

Lessons learned from Kyrgyzstan 1

• 30% PA quota was a result of civil society action for political representation, and civil society is now established partner for gender equality machinery and parliament, appointed to key positions by President

• Quotas not well understood/ appreciated, ex-Soviet legacy

• 45% women in PA, 15% in senior management, but 30% quota was ‘heard’ despite downward trend…and therefore became a ceiling

Lessons from Kyrgyzstan 2 • Many good policy measures were not

implemented due to weak enforcement, organizational culture and other priorities

• Capacity building for officials implementing relevant legislation and at entry level for public servants in general, rather than for women in particular, as they have high education levels – visibility more an issue.

• Political will of the (woman) President has clearly moved this agenda forward

Lessons from Romania 1

• EU a major catalyst in GE generally BUT…PA not a priority in EU Strategy for Equality between Women and Men 2010-2015

• PA shrinking so gender biases in performance evaluation systems potentially impact on who is made redundant

• New government means new executive due to lack of separation between the legislative and executive

• Lack of transparency in promotions • Long working hours

Lessons from Romania 2

• Media portrays stereotypical images

• Parental leave cut in austerity measures

• Lack of women in parliament so nobody to lobby for legislation

• Lack of systematic data on women’s numbers in the PA, especially at local level

• Resurgence of patriarchal values and public discourse

Quotas in the PA

• Albania: 30% decision-making • Azerbaijan, 30% quotas, 2006 GE Law • Bosnia & Herzegovina: at least 40% each sex • Croatia: as above + Affirmative action • Kyrgyzstan: 30% • Serbia: 30% Others eg Sweden, UK, introduce targets & special measures when representation is considered too low at 34% & 35%

Special measures

Azerbaijan UNDP-supported GEPA project, building on PAR project, focus on legislation & staff France Guegot report 2011 on equality in the PA Sweden Women’s Career Advancement in Swedish Central Administration 2009-2010, €2m UK Senior Women’s network, LeadersUnlimited

Some initial recommendations 1. Get it on the (PA) agenda: civil society, women’s

caucuses , PA (data: use it and demand it)

2. Quotas are important but not enough

3. Affirmative action eg fast-track schemes with top political backing

4. Focus on top levels offers potential short-term gains as lateral entry (including via politics) possible

5. Visibility opportunities for women

6. Life-work balance

7. Regional initiatives?

8. Budget

9. Oversight eg parliamentary committees

Synergies between women’s political decision-making & PA

• Quotas – can they be included in advocacy for political quotas?

• Oversight – could Equal opportunities Commissions ask for public hearings on GEPA?

• EMBs – could lessons in EMB gender parity be applied to the PA?

• Gender-sensitive cabinets?

• Could women’s caucuses and civil service/ senior women’s networks work together to advocate for GEPA?

• Capacity-building measures for women and sensitization of men?

• Male champions?