In 1995, Canada adopted the United Nations Platform for Action and the 1995 Commonwealth Plan of Action on Gender and Development, both of which call for a gender-based analysis process.

The Canadian model uses gender as the primary category of analysis in policy, program and legislation development processes. It provides a framework and methodology to assist in analysing policies, programs and legislation from a gender perspective.

It offers a more sector-specific gender analysis framework develops well-researched background documentation that incorporates gender-disaggregated data.

The Canadian GBA model uses an eight-step process in what it refers to as The Policy Development / Analysis Cycle

• Identifying the Issue
• Defining Outcomes
• Defining Inputs
• Research
• Developing Options
• Recommending, Seeking Decisions
• Communications
• Assessing Quality

Step 1 - identifying, defining and refining the issue

Policy analysis usually begins with identifying a problem or an opportunity requiring policy development or analysis. This stage involves determining the nature, scope and importance of the issue within the context of the current policy environment that warranted placing it on the policy agenda.

The following questions are generally asked to identify, define and refine policy issues:

• What is the issue?
• Who says it is an issue?
• Why has it become an issue?
• How does your personal/professional/corporate background (your gender/experiences/values/beliefs/assumptions/circumstances) affect your understanding of the issue?
• What are the root causes?
• How are the root causes perpetuated?
• What factors are influencing this issue?
• Does this issue require policy analysis/development?

To ensure a gender perspective in identifying, defining and refining the issue, consider:

• Define issues and target groups so that the diverse and different experiences of women and men are taken into account. In what ways were these definitions influenced by your gender? When a cultural practice falls outside the dominant society, what steps have you taken to define what is, from a cultural and a gender perspective, acceptable and/or different?
• Your background may influence your vision and prevent you from asking questions and hearing answers. Policies, programs and legislation must be careful not to reinforce stereotypes and systemic discrimination about women and men;
• Policies, programs and legislation can be effective only if they acknowledge and respond to their potential human impact. The impact on both women and men must be assessed;
• Involve both women and men in identifying the issue. What do women's organisations and gender-aware researchers have to say about this issue? How has the issue been shaped by public opinion? Have women's perspectives informed the issue? What was the level of participation of the affected and disadvantaged groups of women and men in the issue identification process?
• Age and other factors modify the different experiences of males and females (e.g. pregnancy, parental responsibilities, pension benefits);
• Equity may be an issue in the policy. For example, do women and men currently receive different levels of benefits from the policy area under review? Are you looking for a policy that provides means to overcome gender inequities and/or also seeks to eliminate barriers?
• Factors (cultural, economic, political, legal, socio-economic, etc.) may affect gender equity within this issue. For example, consider how experiences of women and men will differ geographically, and are influenced by poverty, colour, aboriginal ancestry, disability/ability. Also, explore political considerations and/or events (disasters, changes, legal decisions) that may have precipitated the issue.

EXAMPLE:

Using a gender-based analysis process helps us to see the identified issue as multifaceted.

For example, young women on welfare are predominantly single mothers, while very few young men have family responsibilities. Child care is a critical support need for young women who are seeking to enter/rejoin the labour market.

Young women's training and job prospects generally differ from those of young men. The paid labour market traditionally has excluded young women from training and subsequent jobs in science and technology. At a time when more emphasis is being put on technological skills, this is problematic for women. Similarly, there are fewer resource-based and blue-collar jobs - which young men traditionally entered, posing difficulties for young men. Women tend to receive lower incomes from employment than men. Both young women and young men are entering a changing job market that requires a high level of skills, during a time when job opportunities are declining.

Single parents on welfare, and their children, are vulnerable to health problems. Young women and young men without job prospects are susceptible to violence and crime, but in different ways (e.g. domestic violence, street violence, prostitution, etc.).

Society does not equitably value the skills young women develop in either paid or unpaid work: women's salaries are consistently lower. Pregnancy and peer pressure are factors in school and work drop-out, but these pressures affect young women and men in different ways.

Information for the analysis of the examples cited above can be obtained by looking at gender-disaggregated data and studies, consulting with young women and men directly about their experiences, and consulting with poverty groups and gender-based advocacy, research and service groups.

It is evident from the examples given above that issues for young women and young men differ and that there are issues of diversity. Each of the issues identified through gender-based analysis needs to be addressed in the next steps of policy development.

Step 2 - defining desired/anticipated outcomes

In this stage, desired goals and anticipated outcomes for the policy are proposed. An analysis of intended/unintended outcomes usually examines the degree to which the policy can meet or hinder other policies or government objectives. Outcome indicators, monitoring processes, partners in defining outcomes, and accountability for achieving outcomes are usually considered in this phase.

The following questions are generally asked to define the desired/anticipated outcomes:

• What outcomes does government want to achieve with this policy? For whom?
• What outcomes would other stakeholders expect from this policy?
• For which specific outcomes should the policy be defined? On what is this priority based?
• Should any of these outcomes be achieved by means other than new or revised policy/legislation? Is the development of a policy/legislation the best means to produce the desired outcome?
• How do these outcomes meet or hinder other government values, objectives or policies?
• What outcome indicators should be identified?
• What monitoring and accountability processes are needed to ensure the outcomes?
• What factors/forces could contribute/detract from the outcomes?

To ensure a gender perspective in defining the desired/anticipated outcomes, consider:

• Different measures may be required for outcomes to be equitable for both women and men (identical treatment does not necessarily assure equality);
• Consciously choosing outcomes that break down societal barriers or ameliorate current inequitable situations between women and men;
• Multiple outcomes may need to be identified to take into account the effects of gender and/or other aspects of diversity on policy implementation;
• Expectations for outcomes (from government, the public, other stakeholders) should be analysed to ensure they take into account both women and men, and that the expectations do not unintentionally incorporate existing stereotypes or biases;
• If there are different outcomes for both women and men, these should be given equal consideration; outcomes for women should not be an add-on to a ‘mainstream’ policy;
• Policies, programs and legislation that do not provide a "level playing field" for both women and men may produce results that undermine the objectives of the policy;
• As well, you may need different outcome indicators in order to capture the different realities for women and men;
• Assign specific monitoring and accountability for outcomes for both women and men in the policy outline. Be aware that the traditional approach is built on the male norm and that a new paradigm may be required;
• Which gender-specific factors could modify the possibilities of achieving the outcomes; for example, pregnancy, harassment in the work place, lack of child care, care-giving for elders, are all variables which, if unaccounted for in the policy, could mitigate positive outcomes.

EXAMPLE:

Using a gender-based analysis process will help to identify outcomes specific to young women or men.

For example, young mothers and their children on welfare could benefit from training in parenting skills. Other outcomes identified through gender-based analysis could be:

• More flexible child-care arrangements for children of young parents in training or at work;
• Youth moving from welfare to salaried workplace-based training provided through government/private sector partnerships, with specific supports for child care and other gender-related needs;
• Specially designed gender-specific counselling, work experience and preparation programs for street and abused youth;
• More single mothers making the transition to work, aided by transition-to-work bonuses and assistance with child-care costs;
• More youth leaving welfare to attend post-secondary training, aided by special financial assistance packages including child care, career planning, and special incentives for young women and young men to enter non-traditional occupational training (e.g. trades and technology for women, nursing and care-giving for young men);
• Gender-inclusive curricula, and classroom practices that foster equality in both secondary and post-secondary institutions;
• Flexible arrangements at post-secondary education institutions that consider safety, part-time enrolment, transition support and other gender-specific measures and supports.

Development of these outcomes and related indicators would involve consultations with partners expert on gender-related issues such as poverty, social assistance, training and job creation, as well as with more traditional partners such as the private sector and institutions. Care should be taken to ensure that gender-specific outcomes and indicators are monitored by agencies with clearly assigned accountability; for example, educational institutions and program managers should be required to gather information and report on gender-related outcomes.

Step 3 - defining the information and consultation inputs

This step is most often done along with the research phase. It looks at what knowledge is needed, and what sources can best provide it. Available and relevant data sources, and partners in data gathering and analysis are identified.

The following questions are generally asked to define the information and consultation inputs:

• What do we need to know about the issue? About the underlying problem? About values influencing the issue?
• What information is required to ensure that all perspectives will be taken into consideration?
• Who should be involved in determining what information is needed?
• What information sources are available?
• Who will be partners in information gathering/provision? What processes are required to effectively consult with these partners?
• Is the available information sufficient and appropriate to define the policy? Is there a need to generate primary data?
• Should the scope of the policy be redefined in light of the availability and appropriateness of the information?

To ensure a gender perspective in defining the information and consultation inputs, consider:

• Information regarding equity groups (including aboriginal people, people with disabilities, and visible minority groups) needs to be disaggregated by gender;
• Actively seek the advice and participation of community and women's groups expert in this field when looking at sensitive issues, such as experience of sexual abuse or family violence. Take appropriate measures to ensure their full participation which could include changing the consultation processes, providing child care support;
• Gender-disaggregated data is often not available; therefore it may be necessary to seek information in the form of case experience, administrative data, or facilitate the direct participation of both young women and young men. In the absence of any of these, it may be necessary to engage in direct research to generate primary gender-specific data;
• Unique and comprehensive information, often not available through traditional data sources, can be obtained by consulting with non-government organisations. These groups often have access to information at the international, national, provincial and local levels;
• You should take into account the operational realities of community groups when seeking their input - non-governmental organisations are not all structured the same. Women's organisations generally have limited funds and rely almost entirely on volunteers. Responses to consultation requests take time, as decisions are generally made consensually.

EXAMPLE:

Using a gender-based analysis process helps to know more precisely what information and what kind of consultation is required. Looking carefully at types of information sources and information-gathering methods will prompt those involved in policy development and analysis to seek out alternate forms of information, partnerships, and consultation.

For example, collecting information that reflects the resourcefulness of youth, youth networks and organisations will demonstrate their contributions, not just their needs. They may have a lot to say about motivation, attempts to break down gender discrimination, and the kinds of incentives to which both young women and men will respond.

Step 4 - conducting research

This stage hones and clarifies the research design, and the type of analysis to be done (e.g. cost/benefit, social impact, relationships to government, etc.).

Tasks and methods of analysis and approaches to data presentation are discussed in this phase, and the research is carried out.

The following questions are generally asked to define the research design:

• What is the analysis seeking to determine (e.g. cost/benefit, social impact, effect on government priorities)?
• Who determines the research question(s)?
• What is (are) the research question(s)?
• What factors will affect the research design?
• Who will be involved in the research and the research design? How?
• Is the scope and nature of the research design appropriate for this policy issue?
• What methodology(ies) will be used?
• What type of analysis will be done?

To ensure a gender perspective in defining the research and the analysis to be done, consider:

• Policies, programs and legislation that do not address gender concerns may leave out relevant facts and data;
• Research questions must make specific reference to both women and men if the research is to address their particular circumstances;
• The research design should include gender as an analytical tool for understanding social processes. Knowledge of issues that make gender a factor (e.g. parenthood, safety, medical issues, wages) should influence your choice of the research design to be used. The research design should be constructed in a way that disaggregated data are collected. In the case of secondary research, disaggregated data should be sought;
• Some research approaches are not sensitive to women's or men's particular needs (e.g. issues of disclosure or confidentiality for women in shelters may rule out some data collection approaches);
• A research methodology should have "face validity" with those consulted, as well as with those who will implement the policies, programs and legislation. This will require consultation with both women and men;
• Use reports, studies and guides that use gender methodologies in designing your gender-aware research. These need to be part of your research tool kit;
• Assume gender as the primary category of analysis. It is the analytical tool to understand the issue at hand. Analysis should identify the relationships among variables so that gender differentials are exposed and understood.

EXAMPLE:

Using a gender-based analysis process helps to identify the research questions more accurately, and guides the research design, methodology, data collection and analysis to ensure that both women's and men's circumstances are considered.

For example, if a policy outcome is to have more young women trained in trades, research should look at specific barriers and successes that young women experience in such training. These will be different than those experienced by young men. To help ensure young people's participation and input, gender-aware research events (focus groups, participatory methodologies, talking to street kids, etc.) can de designed.

Step 5 - developing and analyzing options

At this stage, options indicated by the research are articulated and refined.

Implications and outcomes of options are identified and analysed.

The relationship of options to, and their impact on, existing policies, programs and legislation are also studied. Economic, social, equity, community, environmental, etc. impact analyses are preferably developed for each option.

Responsibility for implementation and the resources required are also examined.

The following questions are generally asked in developing and analysing options:

• What options are indicated by the data/ information/research?
• How are the options directly related to the desired outcomes previously identified (see Step 2)?
• How do your values, those of the system and those of society limit the range of options being developed?
• How do these options influence or change the factors affecting the issue as previously identified (see Step 2)?
• How do each of the options meet or hinder existing policies, programs or legislation?
• Do each of the options present a "real" alternative for government?
• What are the direct and/or indirect implications of each option? Are there unintended outcomes?
• What factors will positively and negatively affect the implementation of each option?
• Who would implement each option? What resources are required for each option?
• How to ensure accountability?

To ensure a gender perspective in developing and analyzing the options, consider:

• The options may disadvantage or provide benefits for either women or men;
• How does each option reinforce or challenge stereotypes and systemic discrimination?
• How will the options support gender equity, and avoid discrimination, or where may equity be compromised? This should be explicit in the cost/benefit analysis of each option;
• What are the consequences of not adopting a gender-sensitive option? For women? For government?
• Include gender-specific measures in each option;
• Seek the perspectives of both women and men in developing the options and assessing their costs, benefits, acceptability and practicality.

EXAMPLE:

Using a gender-based analysis process will clearly highlight the differences among options and the respective costs and benefits for both young women and men on welfare.

For example, if one option suggests that some youth should be encouraged to return to their families for support, this step will clarify the potential impact on young women who have encountered sexual abuse within their families.

Options that include gender-specific measures can feature benefits for young women or men, such as all-female trades exploration sessions, all-female counselling environments or all-male anger-management sessions.

Step 6 - making recommendations/decision-seeking

The recommendation of options is often a collaborative effort, and sometimes draws directly on public input and consultation.

The rationale for the recommendation is derived from the analysis of options, and presents the recommendation in terms of its favourable and unfavourable impacts and implications, and the policy environment.

The following questions are generally asked in making a recommendation and obtaining a decision:

• Who will be involved in choosing the option recommended?
• On what basis will the recommendation be made?
• What are the underlying assumptions and values implicit in the option being recommended?
• What sort of documentation is needed to support the recommendation? Are the underlying assumptions and values included in this documentation?
• Is the recommended option free from unintended outcomes and/or restraints (legal, economic, social, cultural, environmental, etc.)?
• Will there be further consultation on the recommended option? Who should be involved?
• What aspects of the policy environment (fiscal, government strategic priorities, other policies, current public opinion, government commitments, etc.) impinge on the recommendation?

To ensure a gender perspective in developing a recommendation and obtaining a decision, consider:

• Gender equity can be a significant element in weighing and recommending options;
• Ensure that the recommended option contains no legal, economic, social or cultural constraints to gender-equitable participation in the proposed measures;
• How will any differential consequences based on gender, and their social and economic costs, be communicated to decision-makers?
• Explain the consequences of the recommended option in light of government's commitment to gender equity, and if and how the recommendation supports these objectives;
• Outline the recommendation methods to ensure that the policy is implemented in a gender-sensitive and equitable manner;
• If your recommended option results in a conflict of values, how you would articulate your recommendations to ensure gender-sensitive decision-making?

EXAMPLE:

Using a gender-based analysis process in the recommendation phase will result in a clear outline to decision-makers of the gender implications of the recommended option. It will also demonstrate links between the recommended option and the government's wider objectives for gender equity.

For example, a recommended option to increase the number of young women re-entering education and moving to a training allowance will contribute to a reduction of government expenditures on welfare. At the same time, it will support government objectives for gender equity.

In weighing a recommendation, such as the eligibility of single youth for welfare benefits, the gendered social costs (e.g. health of children and mothers) should be communicated to decision-makers.

Step 7 - communicating policy

Communicating the recommended or chosen option can play a significant role in its acceptance and implementation.

Timing, choice of media, language, and public involvement are important to ensure that government intent and the impacts of the policy, program and legislation are understood.

The participation and acknowledgement of partners and consulting groups can be a key part of communicating policies inside government and to the public.

The following questions are generally asked in communicating policy:

• What is the message we want to communicate?
• To whom do we want to communicate it?
• What is the main message to be communicated to each audience?
• How will the policy be communicated? What information will be given to whom? How?
• What measures will be taken to communicate the policy, program and legislation to those who participated in its development?

To ensure a gender perspective in communicating policy, consider:

• The message should address both women and men;
• designing communication strategies that reach both women and men;
• How will information be communicated to women and men who are members of equity groups?
• How will gender implications of the policy be highlighted?
• How will the participation and contributions of both women and men in the policy development and analysis process be acknowledged and communicated;
• In what ways could organisations that share similar equality-seeking goals participate in the communication of policies?
• How can you ensure that examples, language, and symbols used in the communication are gender-aware and diversity-appropriate?

EXAMPLE:

Using a gender-based analysis process will help you ensure that the message is formulated and distributed in a way that is respectful of both young women and men on welfare.

For example, you will want to ensure that the information is received by, and makes sense to, those individuals who need it most. In addition to sending information to those involved in consultations and research, you can send information to schools, community centres, women's organisations or service groups. Lists of, and advice on, suitable groups can be obtained from Status of Women Canada or other organisations including provincial/territorial status of women offices across the country.

You should continue to involve youth and others in the preparation of communication materials and approaches. Acknowledge their contribution in a way that is respectful. Different communication approaches may be required for young women and men. Policies, programs and legislation that have differential impacts on women and men will need to be explained, as will any measures in the policy intended to address imbalances.

Step 8 - assessing the quality of analysis

At this stage it is important to review the analysis process.

The following questions are generally asked in assessing the quality of analysis:

• How will we know our policy analysis and advice was appropriate and effective?
• Who will establish the criteria to judge this?
• How and to whom are we accountable for the quality of our analysis?
• Who will review/analyse the quality of the analysis? To whom will the assessment be reported? Who will report it?

To ensure a gender perspective in assessing the quality of analysis, consider:

• Integrate questions concerning gender throughout the analysis;
• Clarify gender implications within the context of the policy, and within the policy priorities of government;
• Clearly present what the gender implications are for each option, and why the recommended option will support gender equity, and promote (not restrict) women's autonomy, opportunities and participation;
• Substantiate these claims with relevant, reliable gender-disaggregated data, and/or, reliable information from credible informants;
• Balance this information with appropriate considerations of the policy environment, such as historical information, the policy context, comparative information from other jurisdictions, community-based information and studies;
• Present recommendations concerning the policy that support gender equity in a credible and practical way, and demonstrating how gender equity considerations are balanced and congruent with other government priorities and considerations.