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Evaluation
Copyright © 2003
SAGE Publications (London,
Thousand Oaks and New Delhi)
[1356–3890 (200310)9:4; 383–403; 040429]
Vol 9(4): 383–403
MARÍA BUSTELO
Complutense University at Madrid, Spain
Introduction
Public policies aiming to promote gender equality have evolved substantially in
the last decades. Ever since 1975, when the United Nations established Women’s
International Year, and most of the western nations started to acknowledge
gender inequality – then known as ‘women’s discrimination’ – as a public issue
that deserved public intervention, the strategies and political instruments of
those policies have been changing. Focus on sex discrimination (discrimination
based on biological differences) and especially women’s discrimination has
evolved to focus on gender (based on the cultural and social consequences of
those biological differences). In addition to specific actions for women – positive
actions – ‘gender mainstreaming’ emerged as a new and necessary strategy for
combating gender inequality in the long term. Gender mainstreaming means
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that, in addition to specific policies addressing gender discrimination – which are
still necessary to deal with actual gender discrimination – there is a need to look
for a gender perspective in all public policies.2 This strategy implies a much more
complex and widespread political action, and a revolutionary change in the
process of policy making. Thus, evaluation of gender-equality policies must take
into account this new strategy and the challenges it poses about the way in which
those policies should be evaluated. How should gender-equality public policies
be evaluated if gender mainstreaming is the assumed strategy? How can gender
mainstreaming itself be evaluated?
The first step for elaborating on that issue is to analyse the way public gender-
equality policies are currently evaluated. If these policies formally assume
‘gender mainstreaming’ as a strategy in their formulation, and, supposedly, in
their implementation, how do they deal with it in the evaluation phase? A good
way to analyse and assess evaluations is by means of meta-evaluations. Meta-
evaluation refers to the evaluation of evaluations and, in addition to assessing
evaluation quality, it may contribute to the description, analysis and assessment
of evaluation studies or processes.
Alternatively, the evaluation phase has been the least studied in the area of
policy analysis and public policy studies. However, governments and policy
makers must evaluate in order to obtain explicit feedback to adjust their actions.
There are other information sources, such as polls, statistics, observatories,
investigations and so on, but evaluation is an especially useful tool for facilitating
decision making – for the improvement, accountability and enlightenment of
public policies – and for organizational learning. Although the practice of public
policy and programme evaluation has developed rapidly in recent years, this is
not the case for the study of their evaluation.3 Thus, there is a strong need for
studying and analysing public policies with specific regard to their evaluation.
This is not only a way to better understand those policies, but also to improve
evaluation processes.
This article proceeds from a meta-evaluation in which 11 evaluation experi-
ences of public gender-equality policies in Spain, at the national and regional
levels, were analysed, compared and evaluated. In that work, we did not conceive
meta-evaluation as a procedure for evaluation quality control, but as a means to
study and analyse public gender-equality policies, in the specific aspect of their
evaluation. Therefore, instead of evaluation quality, we focused on its suitability
to the evaluative and political context and its contribution to the performance of
the evaluation. In addition, we proposed to analyse whether or not those evalu-
ations took into account the new strategy of gender mainstreaming, and shed
some light on how gender-equality evaluation may be sensitive to that strategy.
384
Methodology
Eleven evaluation processes, among the regional and national gender-equality
plans, were selected for the meta-evaluation study (one evaluation of the national
plan and 10 of regional plans). All second-generation evaluations, which actually
took place between 1995 and 1999, were selected. We decided to select all the
existing evaluation processes of the overall plans, excluding evaluations of
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specific programmes within the plans. Although, in some cases, it was not clear
whether these experiences were real evaluations, they were included in the study,
providing that the women’s agency regarded them as such and referred to them
as evaluations of the respective plans.
As explained above, the evaluation processes themselves, and not their results,
were the focus of the study. From the meta-evaluation perspective, the purpose
of the study was to evaluate those evaluation processes. In order to define the
assessment criteria of the evaluation processes, an evaluation framework was
established, based especially on the works of:
• Patton (1980, 1997): importance of useful evaluations and utilization, stake-
holder participation, flexibility, context and communication;
• Weiss (1987, 1998): political nature of evaluation, importance of context and
actors;
• Scriven (1995): concept and centrality of systematic judgment in evaluation;
and
• Chelimsky (1998): implications of the political nature of the evaluation,
including the need for credibility and timeliness.
This evaluation framework was also reinforced by the author’s previous experi-
ence as an evaluation consultant.
Thus, the (meta) evaluation criteria were established around three main
aspects:
1. The overall design of the evaluation processes, including their responsive-
ness to context, clarity of purposes and objectives, existence of institutional
structures and resources for the evaluation, and the utilization of different
types of evaluations.
2. Key evaluation elements, such as the stakeholders involved in the evaluation
processes, the time when these processes took place, the evaluation criteria
established and the methodology and techniques used for gathering and
analysing information.
3. The evaluation utilization, taking into account the adequacy and usefulness
of the information produced, its communication and dissemination
processes, and its utilization and impact both on gender-equality policies
and on women’s agencies.
The techniques for gathering and analysing information employed in the meta-
evaluation included document collection and analysis, on-site visits to women’s
agencies, 17 in-depth interviews with the heads of women’s agencies, and tele-
phone and on-site interviews with the technicians in charge of the evaluation in
the women’s agencies.
Types of Evaluation
In order to present a summary of the meta-evaluation results, first, the types of
evaluations are described. Four basic classifications are used to describe the types
of evaluation performed: formative versus summative evaluation; design, process
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collecting information at the beginning and continuously does not necessarily imply
a formative nature. In fact, the annual reports of the Basque Women’s Institute pre-
sented in Parliament are more summative in nature because they emphasize the
accountability function and the recapitulation of what had been accomplished each
year. In La Rioja, the collection of information from the beginning was more due
to the need to keep records during the process in order to evaluate at the end; so
it appears that the intention was more summative than formative.
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contextual because they do not directly involve the evaluation processes, but are
institutional factors concerning gender-equality policies or specific characteristics
of those policies. By means of the meta-evaluation, 10 contextual factors were
identified, five with positive influence on the evaluation, and another five with
negative influence.
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Results and Lessons Learnt
Some broad results are now summarized, following the meta-evaluation
criteria established and provided earlier in this article. Firstly, for each of the
three main issues (overall evaluation design, key evaluation elements and
evaluation utilization), some general conclusions are drawn from the evidence
found about the state of evaluation practice in this area. Secondly, and follow-
ing the format of the conclusions, some lessons learnt are commented upon.
For each lesson, some evidence is also presented. These lessons learnt from
the analysed evaluation experiences may also contribute to: the general
discussion about which aspects of gender mainstreaming can be evaluated and
how; and guide the improvement and optimization of the evaluation function
of gender policies.
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Lessons Learnt
1. There is a need to distinguish between gender-equality policy evaluation and
investigation of gender inequality or the status of women.
Analysing the evaluation experiences, the conclusion was reached that it is neces-
sary to distinguish between research on the status of women and evaluation of
gender-equality plans and policies. We have already observed that these two
concepts were confused in some experiences, such as those carried out in Castilla
y León, Madrid and at the national level. Essentially, these investigations
produced indexes for measuring gender inequality. But, clearly, they are not
evaluations of gender-equality plans because there was no direct or formal
linkage between the variables studied and the plan being evaluated.
There are many reasons for distinguishing research from evaluation (Bustelo,
1999b), but here two are highlighted. The first is related to the object. In this
case, the object of research is gender inequality (how the status of women differs
from that of men) and its evolution over time. The object of evaluation, however,
is the way in which the authorities deal with the gender inequality problem and
how public actions influence the public issue of gender inequality: the plans and
policies themselves, not the problem they are meant to address. Secondly, there
are differences in the purposes, with improvement and accountability being the
main purposes of evaluation, and knowledge construction the purpose of
research.
Obviously, research on gender inequality and the status of women contributes
to better policy formulation. But this does not preclude the need for evaluating
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those policies. Both activities – investigation and evaluation – are crucial for
women’s agencies. Moreover, the so-called ‘equality observatories’ (whose aim
is to collect information periodically about gender inequality) are very useful for
evaluating gender-equality policies, in addition to their utility for policy formu-
lation. But the very fact of their existence does not imply evaluation.
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5. There is a need for greater resource investment in evaluation.
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There are two time-related issues, which are key elements for evaluation
processes, and gender-equality policies are no exception. The first issue is the
moment in which the evaluation is planned and started. Evaluation is a rather
more powerful tool if it is planned from the start and in a continuous way. As
already pointed out, most of the evaluations analysed were planned almost at
the end of the implementation period of the plan, and this led to serious diffi-
culties in data collection.
Secondly, there is a need for timeliness in the evaluation processes. Evaluation
criteria arise in a specific context, situation and moment. If much time is required
to answer evaluation questions, they might become irrelevant or the beneficiaries
might not be the same. Evaluation responsiveness is clearly linked to the evalu-
ation timetable. The time factor has deeply determined the experiences analysed,
and delays in some evaluation processes have decreased the chances of it being
useful.
One of the first and crucial steps in the evaluation process is the determination
of what is going to be evaluated. As already mentioned, the evaluation criteria
determine and guide the evaluation study, being the main orientation for the
gathering and analysis of the necessary information. That is, evaluation criteria
determine which variables to study and, also, the logic base for systematically
judging the information previously gathered and analysed.
In the experiences analysed, there seems to have been no previous and
profound reflection about what to evaluate. Mostly, the evaluation criteria were
established and defined by means of the specific techniques used, giving priority
to this term (what we have called the ‘dictatorship’ of methodology and tech-
niques). A good example is the evaluation of the second national plan, a mixture
of three different studies organized by the techniques applied.8
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order to be useful and used, information must be elaborated or ‘translated’ into
specific and relevant guides of action. It is clear that evaluation should be useful,
practical and action-oriented for the improvement, accountability and enlighten-
ment functions. Through the meta-evaluation study, the author concluded that
these last analysis phases – judging and establishing recommendations – were
almost nonexistent in the experiences analysed.
In some cases, there was even a lack of a global analysis. If there were a
‘process’ evaluation and a ‘results’ evaluation, there was no overall or final
analysis for ‘putting everything together’. In a few cases, there were some final
conclusions – although when they existed, they were very short and not global –
but none of the 11 reports contained any recommendations. In sum, it seemed
as though the evaluation processes were not really finished, missing opportunities
to be really useful.
11. The important role which women’s agencies should play in policy evaluation.
As mentioned above, in Spain, women’s agencies have been the main leaders
and promoters of gender-equality policies. Although the key component of these
policies is gender mainstreaming (i.e. they are intended to involve other govern-
ment actors), the agencies are still the main actors formulating, promoting, co-
ordinating and monitoring the policies. Taking this into account, policy
evaluation should be a crucial issue among agency functions. The evaluation
function is precisely the one which might help to define the specific role of
women’s agencies in gender-equality policies that are conceived with a main-
streaming strategy. Moreover, the fact that the final aim of these policies is to
achieve a ‘gender perspective’ in other public policies could place at risk the
existence of specific women’s agencies. Therefore, playing a leading evaluation
role could aid their definition. In addition, the evaluation function is an especially
important one for these policies because of their innovative nature.
However, and with the exception of the Basque woman’s institute, the
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to their results, it is necessary to evaluate the design of those gender main-
streaming strategies and the process of their implementation.
However, by means of the meta-evaluation, the author concludes that one of
the factors identified as crucial by the femocrats was what can be called the ‘co-
ordination factor’. This factor was considered essential for:
1. persuading others to plan and implement gender actions and to assume a
gender perspective; and
2. obtaining valid and reliable information about those actions and the plan
management or evaluation.
None of these aspects was addressed by any of the evaluations studied. In the
author’s opinion, this co-ordination factor is directly related to the mainstream-
ing strategy. How do femocrats persuade other government units to assume a
truly active role in gender-equality plans? Which strategies and instruments work
better, and in what circumstances? Which are the best co-ordination structures
for the plan and its evaluation and at what level – political or technical?9 Why
are some government units more sensitive about gender issues than others? What
is needed to awaken that sensitivity, or which factors influence it? To what extent
is the ‘personal factor’ counted on? If this dimension is not evaluated, we will
probably fail to understand much about that ‘horizontal’ action and, hence, about
the gender mainstreaming strategy. We must be aware of the fact that evaluation
of gender mainstreaming strategies is complex, because the first step is to define
and typify the gender mainstreaming strategy in different contexts, moments and
policies. In relation to this, the Group of Specialists on Mainstreaming in the
Council of Europe elaborated an excellent document defining the term, promot-
ing ideas and demonstrating good practices to deal with it. If they are imple-
mented, evaluating those practices might be especially important due to their
innovative nature. It is not sufficient to implement them; they must be evaluated
in order to determine their effectiveness.
Moreover, any form of gender mainstreaming poses particular challenges for
evaluation practice; and as we have seen, current evaluation practice does not
address those challenges completely. In order to facilitate progress in this area,
there is a strong need for new tools and methodological approaches, which also
take seriously into account the lessons learnt from the analysis of the practice of
evaluation.
A new evaluation perspective implies that both the gender mainstreaming
strategy itself should be evaluated, in addition to the evaluation of its effects.
Alternatively, rather than exclusively emphasizing the evaluation of the
implementation of proposed actions, evaluation of gender-equality policies should
stress the assessment of their global design as policy instruments, their implemen-
tation processes, government co-ordination and organizational performance.
We have presented above a case for meta-evaluation in gender-equality policy
evaluation. However, meta-evaluation has potential value in other policy areas.
Important conclusions and guidance to improve the evaluation function in a
specific field can be drawn from the systematic analysis and assessment of evalu-
ation practices, their strengths and weaknesses and their final utility.
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(the equivalent to a vice minister) – is the only way to have real ‘horizontal’ authority,
but being technical is the only way to be operative. Some of the femocrats think that it
is very difficult to be effective if there are no motivated technicians who are sensitive to
gender issues.
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