1 devolved governance, political participation and third sector equalities organisations in wales...
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Devolved Governance, Political Participation and Third Sector Equalities Organisations in Wales
Paul Chaney
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Content Aims/ methods/ evaluation criteria Context The Third Sector in Wales ‘Inclusive Governance’ – structures of engagement
(?) Evidence: the nature and extent of post-devolution
engagement in work of govt.– Ministerial meetings with 3rd sector reps– Govt. Funding of third sector policy networks– Assembly cross- party equality committee– The views of members of 3rd sector orgs– Petitions Committee– Electoral Politics
Summary: Critical evaluation of third sector
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Methods/ Evaluation Criteria Methods
– Qualitative – semi structured interviews– Purposive sample 3rd sector equalities
organisations Evaluation Criteria
– Pro-devolution discourse > ‘a new, more inclusive and participatory democracy’ (Welsh Office,1998:19).
– Neo-institutionalist perspective– Mainstreaming
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Mainstreaming: ‘the integration of respect for diversity and
equality of opportunity principles, strategies and practices into the every day work of [government …] and other public bodies. It means that equality issues should be included from the outset as an integral part of the policy-making and service delivery process and the achievement of equality should inform all aspects of the work of every individual within an organisation’. (NAfW 2004:6).
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Context: Devolution and the Discourse of 3rd Sector engagement
Third Sector offers alternative to centralised state practices (Hain, 1999).
the Assembly will be able to develop … [a] partnership; the Government will encourage it to harness the special contribution which voluntary organizations can make in a wide range of policy areas’ (Welsh Office, 1998:19).
‘if the Assembly is to fulfil the expectations of operating inclusively and in partnership with others, then it will need to work closely with voluntary and community organizations’ (WCVA, 1999:8).
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Scope of operation Forum heading WCVA classification
National
Regional
Local
Branch
Project
Total (Number of organisations)
% of whole sector1
60 72 1689 25 9 Gender
0.2% 0.3% 5.9% 0.1% 0.0%
1855 6.5
21 20 238 3 2 Men
0.1% 0.1% 0.8% 0.0% 0.0%
284 1.0
53 67 1476 24 7 Women
0.2% 0.2% 5.1% 0.1% 0.0%
1627 5.7
62 43 232 15 11 Ethnic minorities
0.2% 0.2% 0.8% 0.1% 0.0%
363 1.3
20 2 11 4 0 Refugees
0.1% 0.0% 0.0% 0.0% %
37 0.1
55 43 226 14 11 Ethnic minorities
0.2% 0.2% 0.8% 0.1% 0.0%
349 1.2
113 123 3512 17 7 Religion
0.4% 0.4% 12.2% 0.1% 0.0%
3772 13.1
113 123 3512 17 7 Religious organisations
0.4% 0.4% 12.2% 0.1% 0.0%
3772 13.1
154 168 1143 151 63 Disability
0.5% 0.6% 4.0% 0.5% 0.2%
1679 5.8
132 132 873 98 42 Physical disabilities
0.5% 0.5% 3.0% 0.3% 0.2%
1277 4.4
86 97 630 107 40 Learning disabilities
0.3% 0.3% 2.2% 0.4% 0.1%
960 3.3
163 140 2724 116 110 Children and Families
0.6% 0.5% 9.5% 0.4% 0.4%
3253 11.3
76 55 415 72 86 Family welfare
0.3% 0.2% 1.4% 0.3% 0.3%
704 2.5
133 119 2524 68 84 Children
0.5% 0.4% 8.8% 0.2% 0.3%
2928 10.2
140 142 2227 58 61 Youth
0.5% 0.5% 7.8% 0.2% 0.2%
2628 9.1
140 142 2227 58 61 Youth
0.5% 0.5% 7.8% 0.2% 0.2%
2628 9.1
TOTAL 692 688 11527 382 261 13550 47.1
Table 8.0. Details of Equalities –related Voluntary Organisations from the All Wales Database of Voluntary organisations (WCVA, 2008).
1 28,754 Organisations as at July 1, 2008.
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‘Inclusive Governance’ – structures of 3rd sector engagement (?)
Statutory Equality Duty (S.77, GOWA) Cross- Party Equality Committee
(Standing Order 17) WAG Equality and Human Rights Unit Voluntary Sector Scheme (S.74 GOWA,
2006)– Third Sector Partnership Council
Petitions Committee (post GOWA, 2006) (SO.28)
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Voluntary Sector Scheme
‘the goal is the creation of a civil society which: has a duty to promote equality of opportunity to all its members regardless of race, colour, sex, sexual orientation, age, marital status, disability, language preference, religion or family/domestic responsibilities’ (NAfW, 2000).
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Meetings when key topic discussed
Key topic Examples of Policy Discussions around each Topic in Ministerial Meetings
No. % Disability Concerns from voluntary sector about the availability of funding for implementation of new Strategy on
Disability and the Arts, discussion of implementation of recommendations around disability in WAG ‘Climbing Higher’ Sports Strategy, ‘there were voluntary sector provider concerns over therapy. Disabled children often could not access the relevant services.
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Gender Minister updates voluntary sector representatives on WAG’s equal pay campaign, gender balance in the arts ‘the Minister assured the group that he would ensure that gender balance issues would be addressed in ASPB’s remit letters, including the collection of relevant gender statistics’,
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‘Race’ / ethnicity
The voluntary sector expressed concern over schools awareness of diversity… ‘especially within schools with a low number of BME pupils who sometimes refuse to report racial bullying when it occurs’, discussion of funding for The North Wales Race Equality Network, discussion of WAG’s Race Equality Scheme,
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Faith It was reported that WAG is represented on the Office for National Statistics Census Topic Group, discussion of faith in the Statistical Focus on Diversity.
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Language Questioning minister whether EHRC will be covered by the Welsh Language Act’, discussion of how the Welsh Language could be better represented in the guidance for Communities First economic aid programme, ‘voluntary sector expressed an interest in how the principles expressed in "Iaith Pawb" [WAG’s Welsh Language strategy] are integrated into the Minister's portfolio’,
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Sexual orientation
Minister discusses policy around homophobic bullying in schools, discussion of WAG support for sexual orientation amendments to UK Equality Bill (2005), Stonewall Cymru lobbying the Office for National Statistics for the collection of Sexual Orientation data,
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Age ‘the Minister expressed concerns that the formalised structures of volunteer work and representation may not be the most appropriate for many of the children and young people in Communities First areas’,
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Generic equalities
Government minister outlines departmental cross stand equality action plans, discussion of the need for improved equalities data covering Wales, discussion of the ‘Voluntary Sector’s views on the need for an equalities fund,
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Figure 9.4. A Nexus for the Advancement of Equalities? Details of 45 Ministerial Meetings with Voluntary Sector Representatives 2003-07
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State Sponsoring of 3rd Sector Equalities Networks
Welsh Assembly Government Funded Equality Policy Networks. All Wales Ethnic Minority Association (AWEMA); Women’s Voice/ Welsh Women’s National Coalition (WWNC); LGB Forum Cymru/ Stonewall Cymru; Minority Ethnic Women’s Network Cymru (MEWN); Disability Wales; Black Voluntary Sector Network Wales
Policy Networks around Equality and Rights for Children. Accompanied and Unaccompanied Asylum Seekers Network; All Wales Children and Young People’s Advocacy Providers Network; Children’s Rights Practice Exchange Groups; The Disabled Children Policy Group; The Forum on Issues for Disabled Children; The Early Years and Childcare Advisory Group; End Child Poverty Network Cymru; Fatherhood Wales Forum, Fatherhood Wales Policy Group; Fforwm Magu Plant/Parenting Forum; Looking After Health Exchange; The Sure Start Network; The Young Disabled Persons’ Network; Young Carers Workers’ Network; Children and Young People’s Participation in Cymru Network; and, Participation Workers’ Network Wales
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Female Male Key Debating term
AMs Advisor (All) AMs Advisor (All)
Domestic abuse 1.4 0.6 (2.1) 0 0.1 (0.2) Equal pay 5.7 6.7 (12.4) 0.5 0.4 (0.8) Childcare 8.3 0.7 (9) 0.5 1.1 (1.7) Public appointments 1.3 5 (6.4) 0 0 (0) Gender 8 6.6 (14.7) 2.3 3 (5.3) women 10.4 10.6 (20.9) 3.7 7.3 (11) Girls 0.4 0.4 (0.8) 0.1 0.6 (0.7) Gender budgeting 0.9 0.7 (1.6) 0.3 0 (0.3) Mainstreaming 7.1 2.4 (9.6) 1 1.3 (2.4) All
43.7 34 8.4 14
N
422 328 (750) 81 135 (216)
Table 8.1 The Incidence of Key Terms in the Equality Committee Transcripts during the Second Assembly 2003-07 (percentages)
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The Views of Members of 3rd Sector Equality Organisations General acknowledgement: positive effect of
new structures of engagement/ political recognition– “I’ve been here long enough to remember things
before [i.e. during the Welsh Office] – things have changed for the better in my view’.
Small orgs concerns ‘uneven playing field’ > bigger, better funded 3rd sector orgs greatest influence in policy circles (e.g. children’s and youth organisations)
State funding ‘invaluable’ – recipient orgs Steep post-’99 ‘learning curve’ in engaging with
devolved policy work A devolved equalities “Lobby”
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Concern over bureaucratisation / drawn into govt agenda
“homogenisation” of equality strand representation “Steep learning curve” > Policy work Majority of interviewees positive about electronic
means of political engagement Complexity of Welsh devolution settlement >
challenge to 3rd sector orgs Key issue: State funding of 3rd sector networks/
orgs > interviewees acknowledged potential effect on autonomy
Concerns over “representativeness” of TSPC networks
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Views of 3rd Sector Equality Organisations 3. Interviewees expressed need for govt.to
broaden the circles of 3rd sector engagement mixed views on whether voices heard in policy
consultations/ effectiveness of their lobbying Children, older people, learning disabilities,
Muslim women cited good policy influence In contrast a minority, inc. ‘race’ equality orgs
felt they were ignored – “not a partnership of equals”
Increasing competition over access/ “dilution of influence”
increasing role of cross-border 3rd sector equality orgs
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Petitions Committee 10% of admissible petitions put forward /
supported by third sector equalities organisations and concerned with equalities issues
Examples: Disability > Extend Provision of Accessible Bus Services (P-03-090); increase the number of people with a learning disability employed by the public sector in Wales (P-03-170)
Interviewees: benefits > accessibility, transparency and cost effective nature
On line tracking of progress/ deliberations. Evidence
Does it work? > Coleg Ffederal
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Electoral Politics 3rd sector equalities orgs.
issuing own equalities manifestos > all-Wales elections
Individual orgs issuing own manifestos (e.g. Cerebral palsy org. called on govt. ‘banish disablism’ through public procurement)
Alliances of equalities NGOs issuing manifestos on single policy issues (e.g. free home care for disabled people, child poverty etc)
Alliances of equalities NGOs issuing manifestos on all aspects of equality (e.g. Welsh Equality Reference Group)
Effect? Parties/ candidates signing up to adopt 3rd sector orgs proposals (e.g. Welsh Refugee Council/ ‘One Wales’)
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Summary: Critical Evaluation of Equality Organisations’ Political Participation
Devolution > development of a nascent “equalities policy lobby”
New governance structures > increased “system openness” – giving 3rd sector equalities orgs. voice in policymaking
General continuity of govt. ‘policy style’ Issues of representativeness of TSPC /neo-
corporatism concerns > bureaucratisation and
professionalisation of 3rd sector equalities orgs.
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Summary: Critical Evaluation of Equality Organisations’ Political Participation
Significant discontinuity with pre. devo era Rights, recognition, redistribution Governance structures facilitate engagement Failure to ‘mainstream’ Growing capacity of 3rd sector eq. Orgs to
engage in policymaking Danger of co-option into govt. agenda Need to broaden circles of engagement Danger of replacing one elite process with
another
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Summary: Critical Evaluation of Equality Organisations’ Political Participation
Mainstreaming?– “authentic voices” > limited no. of orgs. tended to
dominate dealing with the state for each equality strand
– much unevenness across govt. depts in addressing equalities issues in policy
– Monitoring and evaluation: interviewees concerned> seldom asked for their views on effectiveness of past policies + lessons learned
– concerns > govt. devoted much attention to some equality strands (e.g. gender, children, older people)– yet others felt ignored (e.g. race, faith)
– Concerns > govt.’s general failure to apply basic mainstreaming tools e.g. equality impact assessments and gender/ equalities budgeting