what gets lost along the way? chances and pitfalls of government led implementation procedures for...
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What gets lost along the way?Chances and pitfalls of government led
implementation procedures for GRBThe case of Austria
Dr. Elisabeth KlatzerEuropean Gender Budgeting Network
WiSE ConferenceCounting on Women: Gender, Care and Economics
Glasgow, May 24-26
Main research question
„GRB as a long-term change process“
Implementation of Gender Budgeting in Austria: is it on the right track?
Outline
Framework for analysing change in public administration
Account of Gender Budgeting implementation in Austria
Analysis using the theoretical framework Some conclusions
Framework for analysis
Conventional framework of public management literature
Michael Butler: concept of receptivity Attempt to reveal factors contributing to
organizations being Low-change contexts Non-change contexts or High-change receptive contexts
Receptivity
How open/receptive are organisations to change and how they cope with it?
Organizational level Ideological vision Leading change Institutional politics Implementation capacity
Possibility space (emergent processes)
Source: Michael Butler
Case study - Austria
Initial impulse from civil society Publications, Expertise, Lobbying
Pilot projects Federal level (e.g. income taxation, research
funding programs) First attempts of systematic integration
Government decision to develop pilots in all ministries
Chapter „Gender aspects of the budget“ in budget materials
Interministerial steering group Training activities Development of manuals, trainings
Unique Window of Opportunity: Reform of budgetary laws
Austria: Examples of pilot analysis
Gender controlling of public administration Monitoring of highest ranking positions in
public administration Analysing share of men and women Setting targets to improve representation of
women Carried out annually
Analysis of income taxation Impact of tax structure and rates Impact of tax brakes (exemptions)
Examples of pilot analysis (2)
Analysis of pension benefits Elaboration of disaggregated statistics
Labor market policies for people with special needs Who is elegible? => enlarging the target
group Participation in training programmes Beneficiary analysis of funding
Integrating GRB in budgetary reform in Austria
Main elements of the reform: Medium term planning
Medium term expenditure framework Strategic planning
Strategy report
New budget structure Global budgeting instead of line item
budgeting Results-oriented management Performance Budgeting Accrual accounting and budgeting
Phase
1
Phase
2
Legal Provisions for GRB in Austria
After piloting phase, strong legal anchoring
Constitutional provision: National, regional and local levels of government have to
strive for the effective achievement of equality between women and men in their budgetary policies.
Budgetary reform process at federal level:
Gender Budgeting as integral part of performance oriented budgeting
Key features of integrating GRB (1)
Providing a firm legal basis
Entry points: Strategic policy documents Objectives, Indicators Performance reporting Impact assessment of legislative projects Controlling, Monitoring, Auditing
Intended impacts are at the center of attention: Results and impacts, especially taking into account
gender equality impacts
Putting into practice: Defining gender equality performance objectives (1)
Each ministry has to define at least 1 gender equality performance objective (out of 5 performance objectives)
Big cultural change for administration Currently pilot phase Full implementation in 2013
Putting into practice: Defining gender equality performance objectives (2)
ExamplesInternal performance objectives:
equal respresentation of women and men in leading positions
equal participation in training activities
External performance objectives: Equal access to active labour market policies
(number and quality of training) Gender equality in educational attainment Better access of women to research funds More women in leadership positions at
universities
Analysis of Austrian case
Receptivtiy Organizational level
Ideological vision Leading change Institutional politics Implementation capacity
Possibility space
Ideological vision factor
Strategic agenda Goals intelligible to all stakeholders? Consistency?
The leading change factor
Leadership / change strategists? All org. members need to fulfill the role of
strategists, implementers and recipients
Commitment rather than compliance Influencing people through values and
visions Persuade people to support a common
cause or vision
Institutional politics factor
Public participation in agenda-setting crucial to obtain legitimacy, support and commitment
Negotiations between different groups within the organisation Reach agreement on necessity of reform Obtain and maintain main stakeholders
commitment Importance of cooperative organizational
networks (inside and outside) Advocacy coalitions
Implementation capacity factors
Mechanisms used to shape and influence implementation
Behaviour of other stakeholders in org. network
Availability of skills and resources (financial, human, knowledge, time)
Establishment of learning processes
Conclusions Some promising factors
Change strategists located in Finance Ministry Gradual implementation to allow adaption …
Some major shortcomings Need for change not clear, not established Clear process, but limited vision People not persuaded of common cause and vision Change strategists clearly too few Weak advocacy coalitions Learning process not established Side effects considered? Regular assessments of reform implementation? …
Rather low-change context