Commission for Gender Equality PARLIAMENTARY COMMITTEE ON WOMEN PRESENTATIONS ON CGE RESEARCH...

Commission for Gender Equality

PARLIAMENTARY COMMITTEE ON WOMEN

PRESENTATIONS ON CGE RESEARCH REPORTS

21St APRIL 2015

Research Department

Commission for Gender Equality

CONTENTS

1. Mainstreaming Gender in the Public Service (2013)(Reviewing Progress in the Depts. Police & Science and Technology)

2. Assessing Effectiveness of Gender Focal Points in South Africa (2013)

3. ‘Out of Mind, Out of Sight’ (2013) (Reviewing Implementation of the 365 Days of Action To End Violence Against Women and

Children)

4. ‘Expectations Unfulfilled’ (2013) (Assessing effectiveness of the National Council On Gender Based Violence)

5. From Rhetoric to Gender Reality (2014)(Women’s participation & representation in South Africa’s 2014 Elections)

Report 1

Mainstreaming Gender in the Public Service

(Reviewing Progress in the Depts. Police & Science and Technology)

(2013)

A. Department of Science and Technology (DST)OVERVIEW OF THE FINDINGS

Focus on efforts to promote gender mainstreaming through internal departmental processes, practices, structures and procedures

1. Organisational /Institutional Personnel Profile

While males are still dominant, there was evidence of significant progress in the involvement of women in senior level decision making structures.

There was significant representation of women in senior management structures

We did notice evidence of a slight decrease in the number of women in senior level structures (from just over 20% in 2012 to just under 10% in 2013)

Nonetheless this was accompanied by an increase in the representation of women in the middle and senior management levels

A. Department of Science and Technology (cont.)OVERVIEW OF THE FINDINGS:

Information obtained during the study showed that there were 15 female senior managers compared to 13 males

At middle level management, there were 12 females and 11 male managers

In the professional and technical expert services, it was found that there were more women (120) compared to men (90)

Also, in terms of overall departmental staff gender profile, 46% of the personnel were women while 54% were men

So in general the balance between male and female representation is significantly close


2. Enabling Environment For Gender Mainstreaming:

The Department has a progressive leadership that has put in place a number of internal structures to address issues of gender mainstreaming, policy and practice

E.g.: Established a Women in Management Forum, which serves to prioritise issues of gender equality and women’s empowerment at management level

A Men’s Forum was also established to deal with issues of concern for gender equality A thoroughgoing internal review of current internal policies and employee gender profile Employment equity audit undertaken in 2010 focussing on women in management

The GFP participate Senior Level Management Structures, which provides an opportunity to place gender issues on the agenda of senior managers


3. Budgeting For Gender Mainstreaming:

Department insists its budgeting process is gender sensitive

Not sufficient information was provided to examine and understand how the budget prioritises gender issues/programmes

However some the information provided shows the following:

The department makes provision for post graduate bursaries and research grants, which target both men and women,


However the figures obtained show that more males (3,214) than females (2,968) were the beneficiaries of the post-graduate research funds

Also for research grants, more males (3,079) compared to females (1,044) benefited from research grants

The department did identify other areas were women are specifically target in the budget planning process, such as Women’s Day and the allocations of funds from the Thuthuka Research Grant.


1. Organisational /Institutional Personnel Profile

Policing in South Africa and the world over has historically been a male-dominated profession.

However the SAPS, like all other state institutions, is obliged to comply with and implement national policy and legislative frameworks to promote gender equality and empower of women

B. South African Police Service (SAPS)OVERVIEW OF THE FINDINGS

Women have begun to enter the profession in increasing numbers, but their representation is still woefully inadequate, including in the senior ranks (Supervision and Commander ranks) of the SAPS

Currently led by the first female national Police Commissioner leading a predominantly male team of senior managers/officers at national level

Figures obtained from the SAPS shows representation of women in SAPS stands at only 34.66% (way below 50% target)

At national level, top SAPS leadership comprises 8 female officers versus 15 males


In terms of overall gender profile for the SAPS, available information showed 132,221 (63.73%) males versus 8,485 (36.27%) females

Commander positions at national level – out of a total of 618, only 90 (14.6) were female Commanders

Provincial level Branch Commanders (total =192) – Only 22 (11.5%) were female Commanders Station Commanders (total = 192) – only 35 (18.3%) were female Station Commanders Visible Policing Heads (total = 192) – only 21 (11%) were females

However in terms of Support services, available information shows 3,703 (60%) females compared to 2,535 (40%) males – concentration of females in the lower job category/rank

These figures show a significant level of male domination in policing as a profession


2. Enabling Environment For Gender Mainstreaming:

The SAPS’s current representation of women in the service is 34,66%.

The following activities were identified by the SAPS as efforts to meet gender equity and gender representation imperatives:

50% of recruitment in the cyber crime and commercial units consists of women

14 women in the SAPS special task force and twelve women pilots recruited

Empowerment workshops have been conducted across provinces and divisions to empower women to compete equally with their male counterparts for promotion opportunities


Established a Women’s network that facilitates a mentorship programme for women on the job training

70% of positions in the middle management level reserved for women in order to improve mobility to the more senior positions

An executive development programme put in place for senior managers, catering for the previously disadvantaged group (including women)

60% of the beneficiaries of the annual bursaries are women.


The SAPS has put in place these strategies creating an opportunity for upward mobility especially for women;

The findings however indicate that even though such measures are in place, women do not take such opportunities because such positions coincide with their care role;

According to SAPS, women are reluctant to apply, hence remain at the lower levels;

This has led to the SAPS not making much progress in terms of women’s participation in the middle and senior level decision making structures, as well as budget and planning processes.


3. Budgeting For Gender Mainstreaming:

The study did not manage to obtain information relating to how gender sensitive the SAPS budget was or in what ways gender is prioritised in the budget planning processes

However the SAPS does insist that funds were earmarked for various programmes and projects to advance the interests of women.

Report 2

Assessing The Effectiveness of Gender Focal Points in South Africa

(2013)

OBJECTIVES OF THE STUDY

To determine the current status of GFPs in government departments at national, provincial and local levels

To assess the institutional capacity (i.e. skills, financial and other resources) to perform their functions.

Assess the effectiveness of GFPs in promoting gender equality and women’s empowerment in government.

METHODOLOGY/APPROACH

This study was conducted using a combination of quantitative and qualitative methods.

An opinion survey questionnaire was used for national, provincial & local govt.

Questions on issues like recruitment processes for GFPs; capacity, skills and resources; roles and functions; effectiveness and impact, as well as the future of GFPs.

o 15 national departments.o 21 provincial departments

o 6 municipalities.

In-depth interviews with informants, especially senior officials, from selected national and provincial departments.

METHODOLOGY AND APPROACH (cont.)

The interviews focused on the following key areas:

o Employment/recruitment processes.o The location of GFPs in their departments. o Capacity and skills for gender mainstreaming.o Budget/resource allocations and reporting lines/accountability.

OVERVIEW OF THE FINDINGS

Status of employment, conditions and related processes

GFPs are generally located in units that are responsible for, and burdened with, performing functions unrelated to gender mainstreaming.

GFPs are spending between 26% and 100% of their time on work unrelated to gender mainstreaming.

In most cases people appointed to these positions do not have the necessary skills

Formal accountability/reporting lines for GFP

Majority of GFPs are appointed at the lower ranks of the public service, in direct contradiction of the prescriptions of the NGPF.


The largest number (41%) of GFPs was appointed at the rank Deputy Directors 27% were appointed as Directors, 14% appointed as Assistant Directors 9% appointed as Chief Directors

Therefore 73% of GFPs who participated were appointed below the prescribed minimum rank of Director


Official Designations of respondents


Qualifications of GFP’s


Capacity and relevant skills development/training of staff

Many GFPs lack the necessary skills and expertise to drive gender mainstreaming effectively in the public service.

There are more vacancies in the post of GFP at national level than at provincial level (caution: the sample size and response rate limited).

The provincial government has the highest proportion of respondents indicating that their GFP posts were filled at 73.7%.

For the national government the figure was 60% Many GFPs possessed the type of skills not relevant to gender mainstreaming.


National departments are likely to have larger staffs responsible for gender mainstreaming compared to the provincial and local government.

The average figures are as follows:o At national government level: 5 people.o At provincial government level:3 peopleo At local government level: 4 people

(Caution: response rate small)

Overall, gender mainstreaming responsibilities are carried out by units with sizes of between 1 and 6 people.


Effectiveness/Impact of GFPs

Respondents to the survey questionnaires were asked to rate the effectiveness and impact of GFPs in gender mainstreaming using the following scale:

o 1:very ineffective

o 2: ineffective

o 3: effective

o 4: very effective.


The following are the ratings received: (Ref. page 31 research report)

o Provincial GFPs (3.00) and local governments GFPs (2.50) were rated most effective in coordinating gender mainstreaming activities within their departments

o National GFPs were rated most effective (2.93) in promoting effective collaboration with external role players (e.g. civil society) and (2.93) promoting effective collaboration on gender mainstreaming between departments


The following were the three key factors identified as undermining the effectiveness of GFPs at different levels of government:

(Scale: 1=disagree strongly, 2=disagree, 3=neutral, 4=agree, 5=agree strongly)

At National Government Level: o Inadequate financial resources: (3.07)o Lack of understanding of the functions of the GFP by departmental management (2.60)o No policy guidelines on the role of GFP in the department(2.33)

At provincial level:o Inadequate financial resources (4.19)o Inadequate skills (3.29)o Lack of knowledge of gender policies and legislation (3.24)


At Municipality Level:

o Lack of adequate financial resources (3.75)o No proper job description for the post of GFP (3.75)o Lack of regular performance evaluation/assessment of the GFP (3.50)


Budget/Resources for Gender Mainstreaming

Just over half (51%) of respondents said their departments had a dedicated budget for gender mainstreaming


The rest of the respondents either said the department did not have a gender sensitive budget; or did not know, or failed to respond to the question.

Moreover, a higher number of national respondents (66.7%) said their departments had a gender sensitive budget, compared to only 42.1% at provincial level.

However this finding should be treated with care as in many instances the respondents often referred to budgets for special operations under which a variety of functions are covered (e.g. women, youth, disabled, elderly & commemoration events such as Women’s Day celebrations)

Nonetheless, this finding appears to suggest that there is either lack of knowledge among officials or failure by departments to disseminate information regarding allocation of resources towards gender mainstreaming.

Report 3

Out of Mind, Out of Sight

(365 Days of Action Plan To End Violence Against Women and Children)

(2013)

BACKGROUND

Agreed and Developed as 5 Year (2007-2011) National Action Plan (NAP) – outcome of the Kopanong Declaration of 2006

Multi-sectoral/Stakeholder national action plan to deal with gender based violence:

Prevention Support Response

OBJECTIVES OF THE STUDY

Objectives of CGE Review/Evaluation

Determine progress in implementation Determine effectiveness of programmes in place Identify constraints to implementation

Study revealed two broad categories of constraints:

Systemic/structural issues Operational issues


Systemic/Structural Issues:

Poor coordination of implementation of NAP

Failure of effective cooperation and collaboration between government and CSOs Failure to achieve effective coordination/collaboration among government

institutions/stakeholders (IDMT) CSOs felt excluded from NAP implementation (lack of resources and lack of consultation

by government departments)

Budgetary/Funding Issues

State departments not taking NAP objectives into strategic plans and budgets Lack of funding allocations/ limited progress in implementation of NAP


Poor Planning for NAP related activities

Failure of departments to integrate NAP objectives into strategic plans & resource allocations

Lack of clear role allocation/lines of accountability for stakeholders More resources focussed on VEP (by Dept. Justice) and less on the NAP

Capacity Issues

Programme Management Unit (PMU) lacked institutional capacity to manage/coordinate nationally

PMU relying on consultants due to lack of capacity to coordinate/manage the program No capacity for systematic monitoring and evaluation of progress implementing NAP


Operational Issues NAP operations clustered around 3 pillars (Prevention, Support & Response)

Prevention:

NAP related social services not effectively communicated to those who needed them CSOs generally more pro-active in work in line with objectives of the NAP (e.g. Sonke

Gender Justice) NPA carried out good work training Traditional leaders on Domestic Violence Act (impact

not assessed) NPA developed a training manual for reference (poor dissemination)


Dept. Education developed materials on raising awareness on sexual violence in schools Media increasingly playing a role in reporting on gender issues/gender based violence More focus by media on gender issues during 16 Days of Activism Campaigns

Support Majority of victims of crime economically vulnerable Many (41%) victims dependent on perpetrators of domestic violence Limited economic empowerment opportunities for women/victims of domestic violence to

break cycle of dependency More shelters for abused women being established across the country (but most shelters

fail to meet standards of service in line with Victims Charter) SAPS established Victim Empowerment Centres and trained officials on Domestic Violence

Act and sexual offences


Some gains – amendments to relevant legislative frameworks on children’s rights (e.g. Children’s Amendment Act 2007; Child Justice Act 2009)

However system of protection for children uncoordinated lacking clear provincial and district leadership

Lack of record keeping/ineffective information management and reporting to the child protection register

Response:

Positive legislative developments to ensure access to justice for women and children (e.g. Sexual Offences and Related Matters Act 2007)

Positive legislative & policy developments not matched by effective implementation (mainly by police and courts)

Prosecution of gender based violence cases generally difficult


Knowledge of Victims Charter among relevant state institutions (courts and SAPS) often limited, thus undermining effective responses

Shortages of magistrates, delays in process of court cases Shortage of resources/transport to transport victims to places of safety Absence of anti-rape strategy in most SAPS Police Stations Limited knowledge of Victims Charter, leads to secondary victimisation (e.g. lack of

privacy and confidentiality in some community service centres) Limited number of Care Centres especially in areas of high sexual violence


NAP implementation was generally unsuccessful, with limited achievements of NAP objectives

Need to review the NAP (after 5 year cycle ended in 2011)

Report 4

‘Expectations Unfulfilled’

(Assessing effectiveness of the National Council On Gender Based Violence)

(2013)

GBV COUNCIL: BACKGROUND

Established in 2012 – In line CEDAW General Recommendation 19 (on Gender based Violence)

Multi-sectoral/stakeholder structure to coordinate implementation of policy/regulatory frameworks & Programmes on GBV

Review/revive/re-launch the NAP (365 Days of Action to End Violence)

Membership – government, CSOs, CGE, etc.

GBV COUNCIL: BACKGROUND

Establishment NCGBV a positive development (bringing together key stakeholders (& donors) to deal with GBV

Institutional response to continued high levels of GBV

CGE Monitoring Objectives

Monitored in 2013, (continued in 2014) Assess effectiveness of NCGBV fulfilling its mandate Review/assess programme implementation


Identified structural & operational/programme issues affecting effectiveness of NCGBV:

Structural Issues

Institutional internal weaknesses – new structure (problems setting up internal structures, policies, plans/strategies and programmes)

Unresolved internal leadership issues, independence & institutional direction of NCGBV hampering effectiveness

Lack of clarity on relations with DWCPD


Lack of institutional capacity to coordinate national programmes on GBV Unresolved funding limitations (state support and donor funding) Lack of direction on the way forward on the 365 Days of Action to End Violence

against Women and Children (NAP 5 year cycle ended 2011) Persistent conflicts amongst primary stakeholders (government & civil society) Weak secretariat/administrative support - NCGBV lacked own administrative

component (& Late recruitment of CEO) Unresolved issues relating to transparency on financial reporting/accountability to

stakeholders


Operational/Programme issues Weak internal structures & late recruitment of CEO led to lack of capacity for

strategic/programme planning No clear/comprehensive operational programme, plans and budget NCGBV Programme initiatives

Review the NAP of the 365 Days of Action To End Violence Against Women and Children (review done very late in 2013)

Developing the National Strategic Plan (NSP) – not yet developed National ‘Vikela Mzanzi’ Campaign (flagship programme to publicise the NCGBV) –

campaign lacked budget/resources & was never launched officially Know Your Epidemic Study (measuring extent of GBV in SA) – findings never disseminated


Root Causes Study – conducted by government departments to inform development of NSP

Council needs to be reviewed (institutional & Legal status, powers, functions & relations with Ministry for Women)

Clarity needed on the financial/budgetary support & independence of the Council

Report 5

From Rhetoric to Gender Reality

(Women’s Participation and Representation in South Africa’s 2014 Elections)

(2014)

Background/Frameworks• SA Constitution chapter 2 (9) on equality: “state may not unfairly discriminate directly or

indirectly against anyone on one or more grounds including race, gender, pregnancy, marital status, ethnic or social origin, colour, sexual orientation, age, disability, religion, conscience, belief, culture, language and birth.”

• Article 7 of CEDAW provides for states to take all appropriate measures to eliminate discrimination against women in the political and public life of the country and to ensure women enjoy equal right to vote and participate in processes of governance

• Article 25 of the International Covenant on Civil and Political Rights provide that every citizen shall have the right and opportunity to vote and to be elected at genuine periodic election

Background/Frameworks• Beijing Platform for Action consolidates all the agreements to effect gender equality

• Regionally - Article 2 of the African Charter on Human and People’s Rights provides for state parties to combat all forms of discrimination against woman through appropriate legislative, institutional and other measures to ensure equality between men and women.

• Southern African Development Countries(SADC) Protocol on Gender and Development requires 50/50 representation of women in political leadership.

Approach/Methodology

• Selected 6 political parties represented in the national assembly (ANC,DA,COPE, UDM, IFP and VF+).

• Examined / analysed ender composition of party nominations/candidate lists (for comparative placing of female and male candidates in the list)

• Examined / analysed content of party manifestos from a gender perspective

Overview of Findings: Manifesto Contents Majority of parties addressed various issues of interests for women, but not directly addressing

the issue of gender equality and gender transformation:

• Land reform• Improvements in provision of social services (i.e. Housing, education, welfare, water and

sanitation, primary health care, child maintenance, etc.)• Employment creation• Support for women-led SMEs/SMMEs• Various forms of violence (i.e. Gender based violence, sexual violence, rape, domestic

violence, child abuse, etc.)• Supporting the role of women as mothers & care givers• Economic/Business empowerment/skills development

Generally, manifestos tended to propose policy initiatives that were gender neutral, assuming that benefits would accrue equally to both women/men or girls/boys.

Overview of Findings: Manifesto Contents Manifestos often unclear on what strategies to put in place to address specific policy issues

pertaining to gender equality.

• A number of key policy issues critical for gender equality emanating from both international and regional treaties were ignored on various party manifestos.

• Where manifestos were overt about gender mainstreaming and gender equality issues, the focus was predominantly on women and children and the LGBTIs were mainly excluded.

Overview of Findings: Party Lists Party Analysis of the party lists

ANC •Generally practiced its ‘zebra stripe’ candidate placement strategy within its 50:50 gender parity policy.•The 50:50 gender parity policy resulted in considerable gains in real numbers for women’s representation (in structures at national, provincial and local government). •Achieved the most progress in terms representation for women in S. Africa.

IFP •52% of candidates were males/ 48% women overall party lists.•Major improvement from the previous 29% of women in the 2009 elections. •Almost met a 50:50 gender parity quota in its lists•Majority male candidates featured higher up on the lists and in top/electable positions

Overview of Findings: Party Lists Party Analysis of the party lists

COPE •Women candidates constituted 43% of the general party list, compared to 57% of men.•The party’s national, regional and provincial nomination lists had more males than females.•More male candidates at the top of the lists.

DA •Women constituted 35% of the overall party list, while men constituted 65%.•The party list revealed that the placement of women followed a pyramid pattern, with more males higher up the lists.

UDM •69% of candidates were males in the nominations lists, with 31% female candidates•In the national list, 19 women candidates compared to 48 male candidates.•Provincial list showed large gap between male and female male candidates (122 males versus 54 females).•For regional list candidates, male candidates nearly double the number of female candidates (70 male candidates and 36 female candidates).•Provincial party lists, male candidates in the majority in all 9 provinces.

Overview of Findings: Party Lists

Party Analysis of the Party Lists

VF+ •Women constituted only 27% of the overall party list compared to 73% of men.

•The party has the lowest number of women representation compared to the other parties selected for this study.

•The party had 102 male candidates in the national list compared to only 36 female candidates.

•In provincial list, only 47 female candidates compared to 121 male candidates.

•Only 31 women on the regional list compared to 93 men.

Overview of Findings: Party Lists

Overall representation of women in the party lists

73

69

65

57

52

50

27

31

35

43

48

50

0 20 40 60 80 100 120

VFP

UDM

DA

COPE

IFP

ANC

% men

% women

Overview of Results: National Assembly

National Assembly

• A 3% drop in women’s representation in the National Assembly (40% in 2014, compared to 43% after 2009 elections.)

• This comes after a steady increase in women’s representation in the National Assembly from 27.74% in the first elections of 1994, 30% in 1999, 32.75% in 2004 and 43% in 2009.

Women’s representation in the National Assembly

Year Total seats

Women’s seats

% women

2014 400 159 40

2009 400 172 43

2004 400 131 32.75

1999 400 120 30

1994 400 111 27.74


• Of the six major political parties selected in the study, the ANC has achieved the highest level of women representation at 49% in the National Assembly

• The Economic Freedom Fighters (EFF) as a newcomer, came second at 40% (Ranking higher than other opposition parties)

• Congress of the People (COPE, 33%); the National Freedom Party (NFP, 33%); the official opposition DA (30%); the UDM (25%) and the IFP (20%).

• The VF+ has performed worst of all the parties, with 0% representation of women in the National Assembly.


Women representation in the National Assembly by party

75

67

80

100

60

70

67

51

25

33

20

0

40

30

33

49

0 20 40 60 80 100 120

UDM

NFP

IFP

VF+

EFF

DA

COPE

ANC

% men% women

Overview of Results: National Cabinet

• There was a percentage drop of women ministers from 2004 (43%) to 2009 (41%) and a further drop to 40% in 2014.

• On the positive side, there was an increase in the number of women deputy ministers from 39% in 2009 to 44% in 2014 (Although this pales in significance given the large general decrease from 2004 (60%).

Overview of Results: Provincial Legislatures A decline in the level of women’s representation between 2009 and 20014 was noted in a number

of provinces.

Eastern Cape provincial legislatures experienced the largest (8%) decline in the number of women (from 59% in 2009 to 40% in 2014). Prior to 2009 women’s representation in the Eastern Cape Provincial legislature remained stable at 59% from 2004 to 2009.

Western Cape, currently ruled by the official opposition DA, experienced the second highest decline (7%) in women’s representation (from 40% in 2009 to 33% in 2014.)

Free State experienced a 3% decrease from 2009; Limpopo, a 2% drop from 45% in 2009; Mpumalanga, a 3% drop from 40% in 2009.

Overview of Results: Provincial Legislatures

• The remaining provincial legislatures (with the exception of KwaZulu-Natal), experienced no growth and remained similar between 2009 and 2014.

• i.e. Gauteng (40%), North West (39%) and Northern Cape (27%).

• The Northern Cape on the other hand experienced a significant drop of 10% from the 37% women’s representation that it had achieved in 2004.

• KwaZulu-Natal is the only provincial legislature to consistently experience an increase in the number of women’s representation from 2004 (26%) to 30% in 2009 and 33% in 2014.

Overview of Results: Provincial Legislatures

• The period between 1994 and 2009 is characterized by a significant increase in women’s representation from 24% to 41%, only to be followed by a slight decrease to 37% in 2014.

Women representation in the provincial legislatures from 1994 to 2014

2427

32.3

4137

05

1015202530354045

1994 1999 2004 2009 2014

% women

Overview of Results: Provincial Premiers

• There was a sharp decline in women’s representation among Provincial Premiers between 2009 (55%) and 2014 (22%) and that is a significant step backward given that there was an 11% gain after the 2009 elections from 2004 when women Premiers made up 44%.

• Currently there are only two female premiers (Northern Cape and Western Cape).

Overview of Results: Provincial Speakers• Huge increase from a 22% share of females speakers after 2009 elections to 89% after 2014

elections (only the Northern Cape provincial legislature has a male Speaker).

• This is a significant break with recent political tradition and convention where positions of Legislature Speaker were overwhelmingly male, with Deputy Speakers overwhelmingly female.

• The increase in the number of female speakers comes in the wake of the widespread criticisms from within the gender sector following the ANC’s appointment of seven male premiers after the 2014 elections.

• The ruling party made a commitment to address the gender imbalance among Provincial Premiers by appointing more female legislature Speakers

COMMISSION FOR GENDER EQUALITY

THE END

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