Gender Equality Indicators
Gender Equality Indicators
1. Prepared for the DAC Network on Gender Equality by Justina Demetriades in 2009, based on BRIDGE’s Gender and Indicators Cutting Edge
Pack (2007), http://www.bridge.ids.ac.uk/reports_gend_CEP.html#Indicators. The opinions expressed and arguments employed in this
paper do not necessarily reflect the official views of the OECD or of its members.
1 www.oecd.dac/gender
Quantitative and qualitative approaches
Quantitative Quantitative methods of data collection produce quantifiable results. They focus on
what can be counted, such as percentages of women and men in parliament, male
and female wage rates or school enrolment rates for girls and boys. Quantitative data
can show changes in gender equality over time – for example, a common quantitative
indicator is the number of girls in school compared to boys.
Qualitative Qualitative methodologies capture people’s experiences, behaviours, opinions,
attitudes and feelings – for example, women’s experiences of the constraints or
advantages of working in the informal sector, or men’s and women’s views on the
causes and consequences of domestic violence. Participatory methodologies such as
focus group discussions and social mapping tools are often used to collect data for
qualitative indicators. Qualitative data can also be collected through surveys
measuring perceptions and opinions. One example is ‘Program H’ which was
developed in Latin America to promote more gender‐equitable attitudes among
young men (see box below).
Program H uses a Gender Equitable Attitudes in Men Scale to evaluate attitudinal changes resulting from
project activities. Indicators were developed to measure changes in attitudes and social norms relating to
masculinity. The questions or statements used to evaluate results include affirmations of traditional gender
norms, such as: ‘Men are always ready to have sex’ and ‘There are times when a woman deserves to be
beaten’, as well as assertions of more gender‐equitable views, such as, ‘A man and a woman should decide
together what type of contraceptive to use’. For each indicator, three potential answers are provided: I agree; I
partially agree; I do not agree. This has proven useful for assessing men’s current attitudes about the roles of
men and women and to measure whether men have changed their attitudes over time (Barker et al 2004).
A combination of quantitative and qualitative methods allows data to be compared for cross‐
checking results. Qualitative interpretation of quantified data can provide for a more nuanced
analysis which reduces the possibility of distorted findings and conclusions (see box below).
Importantly, qualitative analyses enable us to question why certain patterns have emerged.
The Swiss Agency for Development and Cooperation (SDC) has developed a matrix to assist the qualitative
interpretation of quantitative data. For example, data on the proportion of women and men in parliament can
be interrogated further by asking ‘Is there a correlation between the proportion of women candidates who
stood for parliament and number of women who actually got in? How does this compare with the situation of
men?’ (SDC 2006: 31).
Participatory methods are effective in gathering relevant data. Participatory methods are based on
the principle that men and women should be the agents of their own development. As well as
participating in the research, they contribute to decisions about what should be measured and what
indicators should be used (see box below).
2 www.oecd.dac/gender
Why look at gender equality and indicators?
What is measured is more likely to be prioritised. Evidence gathered against indicators can also
help to make the case that gender equality issues should be taken seriously. Indicators can be used
for advocacy and can support the case for action by highlighting key issues, backed up with statistics
and other evidence. 2
Gender equality indicators improve planning and programming. They can be used to evaluate the
outcomes of gender‐specific and mainstream interventions and policies and help reveal barriers to
achieving success. They can provide vital information for adjusting programmes and activities so that
they improve the achievement of gender equality goals and do not create unintended adverse
impacts on women or men. They can also be used to measure gender mainstreaming within
organisations (see section 5.4).
Gender equality indicators can be used to hold institutions accountable for their commitments.
Indicators and data can make visible the gaps between the commitments many governments and
other institutions have made and their implementation and impact. One example would be the
collection of data on the implementation of the Convention on the Elimination of All Forms of
Discrimination Against Women (CEDAW). Indicators can be used to hold political leaders and
implementation agencies accountable for their actions, or lack of action.
Gender equality indicators can help to stimulate change through the data collection processes. For
example, discussions in focus groups or in individual interviews can help raise awareness of particular
issues. They can stimulate discussion and inspire recognition amongst participants of common
experiences related to socially sensitive topics such as gender‐based violence.
Lack of existing data on a proposed indicator can lead to it being dismissed as not useful. In fact,
the lack of data may reveal a need for such an indicator and the need to stimulate data collection.
It is not always easy to know why particular changes have happened. There are often factors that
contribute to positive or negative change in a given situation, other than the interventions of donors
2. Rwandan women parliamentarians worked with national and international NGOs, UN agencies and the Ministry of
Women’s Affairs to use statistics on gender‐based violence (GBV) to lobby for a GBV bill. This evidence confirmed the
prevalence and importance of GBV to parliamentarians, resulting in the acceptance of the bill in which domestic rape and
other kinds of ‘private’ family issues are classified as criminal offences (UNDP Rwanda, UNDP/BRIDGE e‐discussion, March
2007).
3 www.oecd.dac/gender
or other actors. This does not need to be seen as a problem of “attribution”. Rather, it can be seen as
an opportunity and reason to recognise that multiple factors, including local resistance, political will,
and pressure from the media can all contribute to shifts in gender equality, and need to be taken into
account to gain a more accurate and rounded picture.
4 www.oecd.dac/gender
• What legal frameworks exist that may enable or inhibit gender equality and women’s
empowerment? For example, does national law prohibit violence against women or gender‐
based violence? These frameworks can provide the basis for indicators.
• Has CEDAW and its Optional Protocol been ratified? If so, this can offer a framework for
developing indicators.
• What information already exists, or is being collected, to assist in tracking changes? What
relevant research and reports on the indicator already exist? If there is no data, what does
that tell you and where might you look?
• Do partner governments have the political will to undertake data collection which is
relevant to the gender equality indicators selected? Were they consulted in the formulation
of the indicators? Do they have the capacity to collect data?
• How can small changes be measured? There is increasing pressure on donors to “manage for
results” ‐ to demonstrate significant changes in a fixed period. It is, however, important to
consider which indicators could capture the often small, nuanced shifts in gender equality
that tend to happen over time.
• How will the data be collected, analysed and disseminated? And how will the results be
used for learning and feedback into programming, project design, and policy development? 3
3. See Imp Act, 2003 for information on the ‘Feedback Loop’, http://www2.ids.ac.uk/impact/files/practice_notes/PN1_FBL.pdf
5 www.oecd.dac/gender
MDGs and the importance of gender equality 4
Goal 1. Eradicate • Equal access for women to basic transport and energy infrastructure can lead
extreme poverty to increased economic activity by women.
and hunger • Investment in women’s health and nutritional status reduces chronic
hunger and malnourishment, which increases productivity and wellbeing.
Goal 2. Achieve • Educated girls and women have greater control over their fertility and
universal primary participate more in public life.
education • A mother’s education is a strong, consistent determinant of her children’s
school enrolment and attainment and their health and nutrition outcomes.
Goal 3. Promote • This central goal dedicated to gender equality and women’s empowerment
gender equality & depends on the achievement of all other goals for its success.
empower women
Goal 4. Reduce • A mother’s education, income, and empowerment have a significant impact
child mortality on lowering child mortality.
Goal 5. Improve • A mother’s education, income, and empowerment have a significant impact
maternal health on lowering maternal mortality.
Goal 6. Combat • Greater economic independence for women, increased ability to negotiate
HIV/AIDS, malaria, safe sex, and more awareness of how to challenge traditional norms in sexual
and other diseases relations are essential for preventing the spread of HIV/AIDS and other
epidemics.
Goal 7. Ensure • Gender‐equitable property and resource ownership policies enable women
environmental (often as primary users of these resources) to manage them in a more
sustainability sustainable manner.
• Women’s existing knowledge of natural resources is essential for sustainable
climate responses.
Goal 8. Develop a • Greater gender equality in the political sphere may lead to higher investments
global partnership in development co‐operation.
for development
The Gender‐related Development Index (GDI) and Gender Empowerment Measure (GEM)
6 www.oecd.dac/gender
The GDI and GEM need to be used with caution. They are useful in their capacity to identify gender
gaps in developing countries, rather than providing an overall picture of growth or education. One
concern is that the indicators are too broad to reflect the multiple dimensions of gender equality. A
way to offset this might be to use the GEM and GDI in combination with measures of additional
dimensions of equality, such as personal security and dignity, women’s leisure time and gender
balances in decision‐making.
Complementary indices
Other international composite indices to measure gender equality have been developed, partly to
complement and expand on the Gender‐related Development Index and the Gender
Empowerment Measure. For example, Social Watch’s Gender Equity Index (GEI) combines
indicators from both the GDI and GEM, with a separate gender equality rating estimated for three
dimensions (Social Watch 2005):
• Education: measured by the literacy gap between men and women and by male and female
enrolment rates in primary, secondary and tertiary education.
• Participation in the economy: measured by the percentage of women and men in paid jobs,
excluding agriculture, and by the income ratio of men to women.
• Empowerment: measured by the percentage of women in professional, technical, managerial
and administrative jobs, and by the number of seats women have in parliament and the number
of decision‐making ministerial posts held by women.
The World Economic Forum’s Gender Gap Index (GGI) also uses a broad range of dimensions and
indicators (see box below). Part of the GGI’s innovation is in its measurement techniques, which
combine quantitative data sets with qualitative measures from the Executive Opinion Survey of the
World Economic Forum ‐ a survey of 9 000 business leaders in 104 countries.
7 www.oecd.dac/gender
The Gender Equity Index and the Gender Gap Index can be constrained by the data available.
National statistical data is limited in many countries, making it difficult to measure all the indicators
associated with these indices. While the Gender Gap Index is a nuanced and comprehensive tool, the
data requirements are so complex that it can currently only be used to measure levels of gender
equality in 58 countries. The Gender Equity Index measures a much smaller range of indicators than
the GGI but it can be applied to 130 countries (Social Watch 2005b).
Another major shortcoming of both these indices is that neither includes indicators for informal
work, unpaid and reproductive work, or time‐use. These are critical to understanding women’s
participation in the economy because much of women’s work falls outside the formal sector.
Regional indicators
International indicators do not always translate usefully to the local or regional level. Gender
inequalities play out in different ways depending on the social, cultural or political context. For
example, the 2004 ECLAC report on the Caribbean’s progress towards the MDGs highlighted the
limited utility of the MDG indicators (ECLAC 2004). 5
The Africa Gender and Development Index (AGDI) is one example of how international indicators, in
this case the GDI/GEM, have been adapted to the regional context. The AGDI has been designed for
use by African governments as a tool for monitoring progress towards gender equality. It also helps
to monitor progress in implementing the conventions which have been ratified by African countries,
including the Dakar Platform for Action (UNECA 2004). It is made up of two complementary
components:
• The Gender Status Index (GSI) ‐ a quantitative tool of 42 sex‐disaggregated indicators (see
box below), and
• The African Women’s Progress Scoreboard (AWPS) ‐ a qualitative assessment of the level of
implementation of key women’s rights and national, regional and international gender
equality documents such as human rights conventions and agreements (see box below).
5. In the Caribbean, while girls have higher participation rates in primary and secondary education than boys, this educational
attainment does not translate into women’s better positioning in labour markets or increased involvement in decision‐
making in the region. So the ratio of boys to girls in education may not be an appropriate indicator of gender equality (ibid).
8 www.oecd.dac/gender
The Gender Status Index (GSI) of the AGDI
The GSI is based on three components: social power, economic power and political power. Each of the three
main components has the same weight in the calculation of the GSI. Within each block, each component also
carries the same weight.
9 www.oecd.dac/gender
Country level gender equality indicators
At the country level, gender equality indicators are key to measuring the implementation of
national, regional and global commitments to gender equality and sustainable development,
including CEDAW and the MDGs. Indicators on gender equality at the national level could reflect
structural (in)equalities (such as policy commitments, legal frameworks and national legislation).
They could measure manifestations of gender inequalities (such as lower retention rates of girls in
education compared to boys or the prevalence of violence against women), or they could refer to the
impact on women and men of a lack of government provision of basic services.
Cambodia has developed additional targets and indices to measure progress towards the MDGs,
complementing international measures. The Cambodian Millennium Development Goals (CMDGs)
include 9 goals, 25 overall targets, and 106 specific targets. The box below includes a few examples
from CMDG 3 ‐ Promote gender equality and women's empowerment.
Indicators are essential for ensuring development effectiveness at the country level. It is widely
agreed that the implementation of the Paris Declaration on Aid Effectiveness and of the Accra
Agenda for Action can be used to advance gender equality, women’s empowerment and contribute
to poverty reduction. Developing agreed gender equality indicators is, therefore, an important part
of the planning and implementation of aid policy, and should be given the same priority as other
markers of change, such as economic growth. Where possible, such indicators should go beyond
MDG3 measures of gender equality and be able to reflect small changes in gender relations, including
at the household level. Donors need to consider how they will work with partner governments and
local gender‐focused organisations to develop relevant, context‐specific indicators, with broad
ownership for both the monitoring processes and for subsequent policy decisions.
10 www.oecd.dac/gender
• Use participatory approaches wherever possible, including in defining gender equality indicators.
• Use gender equality indicators to assess the outcomes and impacts of gender mainstreaming and
women’s empowerment.
• Support and strengthen local statistics offices to produce gender responsive data.
• Make regular gender equality evaluations or internal audits “commonplace” within agencies.
Increasing attention is being given to measuring the extent of gender equality within development
organisations at all levels, including the gender‐responsiveness of policies and programmes, as well
as internal organisational structures, procedures, culture and human resources. Internal gender
audits or gender self‐assessments are used by many bilateral development agencies, international
NGOs and their partners, and some NGOs in the South. UNDP has developed a Gender
Mainstreaming Scorecard, a tool which combines the measurement of both institutional and
programmatic performance on gender equality and women’s empowerment (see box below).
11 www.oecd.dac/gender
Databases of gender equality indicators and statistics
International databases
UN Secretary‐General's database on Violence Against Women
http://webapps01.un.org/vawdatabase/home.action. A coordinated database on the extent, nature and consequences of
all forms of violence against women, and on the effectiveness of policies and programmes.
Regional databases
ECLAC Gender Statistics in Latin America and the Caribbean (English and Spanish)
http://www.cepal.org/estadisticas/bases/default.asp?idioma=IN. Sex‐disaggregated data on the situation of men and
women in Latin American and the Caribbean at the national and regional levels.
United Nation’s Economic Commission for Europe’s (UNECE) Gender Statistics Website
http://w3.unece.org/pxweb/DATABASE/STAT/Gender.stat.asp. Bringing together gender statistics and policies, it focuses
on the production, dissemination and use of gender‐related data.
12 www.oecd.dac/gender
References
Barker, G. and others, (2004), ‘How Do We Know if Men Have Changed? Promoting and Measuring Attitude Change with
Young Men: Lessons from Program H in Latin America’, in Ruxton, S. (ed.) Gender Equality and Men: Learning from Practice,
Oxford: Oxfam http://www.oxfam.org.uk/what_we_do/resources/downloads/geneqmen/gem_barker.pdf
Canadian International Development Agency (CIDA) (1997) Guide to Gender‐Sensitive Indicators, Canada: CIDA
http://www.acdi‐cida.gc.ca/INET/IMAGES.NSF/vLUImages/Policy/$file/WID‐GUID‐E.pdf
Grown, C., Rao Gupta, G. and Kes, A (2005) Taking Action: Achieving Gender Equality and Empowering Women, UN
Millennium Project Task Force on Education and Gender Equality, London and Sterling, VA: Earthscan
http://www.unmillenniumproject.org/documents/Gender‐complete.pdf
Imp‐Act (2005) ‘Choosing and Using Indicators for Effective Social Performance Management’, Imp‐Act Practice Notes No. 5,
Brighton: IDS http://www.ids.ac.uk/impact/publications/practice_notes/PN5_Indicators.pdf
Imp‐Act (2003) The Feedback Loop: Responding to Clients’ Needs, Imp‐Act Practice Notes No. 1,
http://www2.ids.ac.uk/impact/files/practice_notes/PN1_FBL.pdf
Klasen, S. (2006) ‘UNDP’s gender‐related measures: some conceptual problems and possible solutions’, Journal of Human
Development 7.2: 243–74
Klasen, S and Schüler, D. (2009) ‘Reforming the Gender‐Related Development Index (GDI) and the Gender Empowerment
Measure (GEM): Some Specific Proposals’, Goettingen: Georg‐August‐Universität Göttingen http://www2.vwl.wiso.uni‐
goettingen.de/ibero/papers/DB186.pdf
Lopez‐Claros, A. and Zahidi, S. (2005) Women’s Empowerment: Measuring the Global Gender Gap, Geneva: World
Economic Forum http://www.weforum.org/pdf/Global_Competitiveness_Reports/Reports/gender_gap.pdf
Menon‐Sen, K. (2006) ‘Another world is possible: an exercise to define change goals and work out ways to track the change
process’, unpublished paper, September 2006
Ministry of Planning, Cambodia, website http://www.mop.gov.kh/Default.aspx?tabid=156
Social Watch (2005) ‘No Country Treats its Women the same as its Men: the Gender Equality Index – a New Perspective’, in
Social Watch Roars and Whispers: Gender and Poverty: Promises Versus Action, Montevideo: Social Watch
http://www.socialwatch.org/en/informeImpreso/pdfs/gei2005_eng.pdf
Swiss Agency for Development and Cooperation (SDC) (2006) Gender and Qualitative Interpretation of Data, Bern: Swiss
Agency for Development and Cooperation (SDC) http://www.siyanda.org/docs/sdc_qualitativedata.pdf
United Nations Development Programme (UNDP) and BRIDGE (2007) e‐discussion summary: Measuring Gender Equality,
April 2007, organised and coordinated by UNDP and BRIDGE http://www.bridge.ids.ac.uk/reports/Indicators_e‐
discussion_consolidated_reply.pdf
United Nations Development Programme (UNDP) (n.d.) ‘UNDP Gender mainstreaming scorecard’, New York: UNDP
http://hdr.undp.org/docs/network/hdr_net/GDI_GEM_UNDP_Gender_Score_Card.pdf.
United Nations Economic Commission for Africa (UNECA) (2004) Monitoring and Evaluation Programme of the African Plan
of Action to Accelerate the Implementation of the Dakar and Beijing Platforms for Action Part I: A Guide to Data Collection
for Impact Evaluation of Gender Mainstreaming on the Status of Women in Africa, Addis Ababa: UNECA
http://www.uneca.org/beijingplus10/pubs/Part1_2004_final.pdf
United Nations Economic Commission for Africa, (2004) ‘The African Gender and Development Index, ECA
http://www.uneca.org/acgs/Publications/AGDI_book_final.pdf
United Nations Economic Commission for Africa, (2009) ‘The African Gender and Development Index (AGDI): A Framework
to Measure Gender Equality in Africa,’ Presentation by Abdallah, S. at the Global Forum on Gender Statistics Accra, Ghana
26‐28 January 2009.
United Nations Economic Commission for Latin America and the Caribbean (ECLAC) (2004) Regional Report on the
Achievement of the Millennium Development Goals in the Caribbean Community, ECLAC
http://www.eclac.org/mdg/docs/RegionalMDGCaribbean.pdf
13 www.oecd.dac/gender