Gender and Equal Opportunities in Public Sector Organizations

Author(s): John Kremer, Adrian Hallmark, Jennifer Cleland, Vilinda Ross, Jan Duncan, Bill Lindsay and Sinead Berwick
Commissioned by: Equal Opportunities Commission for Northern Ireland; Chief Executive's Forum
Document Type: Article
Year: 1996
Title of Publication: Journal of Occupational and Organizational Psychology
Volume: 69
Pages: 183-198
Subject Area(s): Gender, Employment, Equality Issues
Client Group(s) : Women

Background to the Research

  • While women's attitudes and aspirations, as well as employment legislation, have affected the sexual division of the 1990s labour market, the gendered nature of work organisations is still a concern.

Research Approach

  • Research focused on the 106 public service organisations represented on the Chief Executives' Forum.
  • The evaluation addressed 4 main areas: equal opportunities policy development and implementation; resources, channels of communication and organisational structures; where women figure and barriers to progress; practical steps and positive action.
  • There were 6 concurrent strands within the evaluation:
    • Construction of a database with summaries of all equal opportunities documentation from 86 organisations (81% response rate).
    • Structured interviews with 81 officers responsible for equal opportunities in 89 organisations.
    • Semi-structured interviews with chief executives of 24 organisations, selected as a cross-section in terms of size, location, function and stage of equal opportunities development.
    • Interviews with local trade union representatives in the same 24 organisations.
    • 15 focus groups with a cross-section of staff from 8 organisations.
    • Structured interviews with 8 full-time officers (4 male, 4 female) of all trade unions representing employees in the public service in Northern Ireland.

Main Findings

Computer Database

  • Equal opportunities documentation varied in quantity and quality.
  • Most documents referenced an equal opportunities policy (90%) or recruitment guidelines (73%). While grievance procedures were often detailed (90%), only 49% outlined explicit policy related to sexual harassment.
  • 95% mentioned some positive action measures, although they were not systematic. Measures included career breaks, training and job sharing.

Equal Opportunities Officers

  • Organisations were at different stages in the implementation and development of policy: religion, gender and disability had been given attention, but age, race and sexual orientation were rarely mentioned.
  • There were imbalances by gender in particular grades, especially senior grades.
  • Legislation was the driving force behind equal opportunities, for example, Fair Employment Commission monitoring returns, although material was rarely used except to meet the statutory requirements.
  • Problems faced by the appointment of women to senior positions included social structures, domestic arrangements and bias in the education system. However, steps had been taken by organisations towards equality of opportunity.
  • Support by senior management for equal opportunities was variable, and in large organisations tended to be restricted to monitoring.

Chief Executives

  • The perceptions of equal opportunities were positive, but did not always match other views.
  • The introduction of a well-formulated policy was seen as the first step, and progress had been made in recruitment, assessment, promotion and working conditions. However, more needed to be done in practical terms.
  • Improvements in equal opportunities were seen to help create a modern business environment, for example, to maximise talent. Although there were also positive cultural changes, the legal imperative was the driving force behind equal opportunities policy.
  • The problems inherent in gender issues (e.g. structural, cultural and personal impediments) was a recurring theme, resulting in a slow rate of change.

Local Trade Union Representatives

  • Most felt that their union had played a role in policy development, although this had sometimes been thwarted by management.
  • Trade unions and/or legislation was the main driving force behind change. The role of management was less significant, although the policy needed the support of management to be successful.
  • A minority of trade union representatives attended meetings related to equal opportunities. Involvement tended to cease once the procedure was established, except for formal disciplinary cases.
  • The most common inquiries related to selection/recruitment, maternity policy, job sharing and childcare. 82 complaints had been forwarded to the trade unions, as well as 19 complaints to the Equal Opportunities Commission.
  • Progress would be made if employees had more information about equal opportunities, and there was more coordination between management and unions. Insufficient resources were offered by employers to tackle gender problems.

Employee Focus Groups

  • There was a general lack of knowledge of equal opportunities policies, and little support for the philosophy behind them as presented within the workplace.
  • There was dissatisfaction about appraisal schemes, for example, most appraisers were men.
  • Working arrangements giving women flexibility were welcome. Lack of child care facilities was a major obstacle to progress.
  • Sexual harassment was not a significant problem, although men's attitudes towards women presented day-to-day difficulties for most working women.
  • Unlawful positive discrimination in favour of women was an issue for all-male focus groups. Female focus groups saw these concerns as epitomising the current 'maleness' of many organisations.
  • Few focus groups thought that their organisation had a genuine commitment to equal opportunities.

Full-Time Trade Union Officers

  • Gender was seen as the most important dimension of equal opportunities.
  • All respondents had received training in equal opportunities issues. The most prevalent issues raised were equal pay or equal pay for equal work, childcare and paternity arrangements.
  • Most officers had initiated direct action on gender issues, and had referred complainants to the Equal Opportunities Commission.
  • Trade unions were proactive on equal opportunities. All respondents thought that management and unions should collaborate on joint ventures, and that the main impetus for change in equal opportunities had come from trade unions.
 

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