g a u t e n g l e g i s l a t u r e multi - party w men’s ...... · 1.3 norms, standards, targets...

M U L T I - P A R T YG A U T E N G L E G I S L A T U R E

W MEN’S CAUCUSO

Gauteng Provincial LegislaturePrivate Bag X52

Johannesburg, 2000

Tel: +27(0) 11 498 5555Fax: +27(0) 11 498 5999

www.gpl.gov.za

Gauteng Legislature condemns violenceagainst Women & Children

Mainstreaming gender, race, disability and youth in the Gauteng Legislature

A Background Paper Produced as Part of the Assessment of Transversal Mainstreaming

in the Legislature: June 2017

Review by Muzi Ntuli (Researcher, Gauteng Legislature)

For more information contact Jamela Robertson:

GPL Transversal Mainstreaming Focal Point

Tel: 011 598 5816

Email: [email protected]

Socio-Economic Exclusion of Vulnerable GroupsNOT ON OUR WATCH

Norms and Standards for Assessing Transversal Mainstreaming in the

Gauteng Legislature

The Meta Question to

be Answered by this

Paper Is: How Should

Transversal

Mainstreaming Occur

within the Legislature?

The Use of the Word

'Should' Is Indicative of

the Fact that this is a

Normative Exploration.

In Other Words, this

Paper Makes a Value

Judgement on how

Transversal

Mainstreaming would

be Best Promoted in

the Gauteng

Legislature.

How Should

Transversal

Mainstreamin

g Occur: A

Normative

Explorations

Contents

1. Introduction 4

1.1 The big questions 4

1.2 Incorporating marginalised voices or ensuring representivity? 4

1.3 Norms, standards, targets and indicators 5

2. The Global Indicator Framework 5

3. The National Indicator Framework 19

Performance indicators from the National Gender Framework (2000) 22

4. Indicators and Targets for the GPL 26

Representivity in the political structures of the Gauteng Legislature 26

Representivity in the Administration of the Gauteng Legislature 27

Encouraging Diversity and Representivity through Law-Making 27

Encouraging Diversity and Representivity in the Legislative Processes of Oversight and Scrutiny 30

Encouraging Diversity and Representivity in the Legislature’s Public Participation Processes 31

Encouraging Diversity and Representivity in the Exercise of Cooperative Governance 33

GPL Policies, Strategies and Processes 34

Footnotes 35

List of figures

Figure 1: The demographics of Gauteng province 5

Figure 2: National Gender Framework - Generic indicators 23

Figure 3: National Gender Framework - Short-term performance indicators 24

Figure 4: National Gender Framework - Long-term performance indicators 25

A Background Paper Produced as Part of the Assessment of Transversal Mainstreaming in the Legislature: June 20172 |

Other Background Papers in this Series:This Background Paper is one of a series produced as part of

an assessment of transversal mainstreaming in the Gauteng Legislature. Other papers in the series include:

• The Emerging International Policy Agenda on Mainstreaming Gender, Race, Youth & Disability,• After Apartheid: The South African Journey to

Mainstreaming Gender, Race, Youth & Disability,• Gauteng Legislature Audit Methodology for Mainstreaming Gender, Race, Youth & Disability,• Mainstreaming Gender, Race, Youth &

Disability in the Gauteng Legislature: Internal Policy Environment.

Also produced as part of the assessment of transversal mainstreaming in the Gauteng Legislature, is a report of the assessment titled: Mainstreaming issues of gender, race, disability and youth in the Gauteng Legislature:

The road travelled thus far, a GPL Transversal Mainstreaming Policy

and GPL-Specific Transversal Mainstreaming Training

Material, customised for Members, Management

and Staff.

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AcronymsAU African Union

GEYODI Committee on Gender, Youth and People with Disabilities

GEYODI-R Gender, Youth, Disability and Race (index)

GPG Gauteng Provincial Government

GPL Gauteng Provincial Legislature

HRD Human Resource Development

MPWC Multi-party women’s caucus

PDI Previously disadvantaged individual

SALS South African Legislative Sector

SCM Supply chain management

SDG Sustainable Development Goal

TM Transversal mainstreaming

TMFP Transversal mainstreaming focal point

UN United Nations

Norms and Standards for Assessing Transversal Mainstreaming in the Gauteng Legislature4 |

1. IntroductionThis paper is one in a series of Background Papers produced to inform a comprehensive transversal mainstreaming (TM) audit being undertaken by the Gauteng Provincial Legislature (GPL). It is intended to guide the actual audit exercise and the intention is to use this framework for all future transversal mainstreaming audits undertaken by the institution.

1.1 The big questionsThe meta question to be answered by this paper is this: How should transversal mainstreaming occur within the institution? The use of the word ‘should’ is indicative of the fact this is a normative exploration. In other words, this paper makes a value judgement on how transversal mainstreaming is best promoted in the Gauteng Legislature.

However, that judgement call does have a sound empirical basis. More specifically, it has been consciously constructed out of a number of authoritative normative policy statements on the subject. These include the norms and standards expressed by international policy statements, such as the Sustainable Development Goals (SDGs) of the United Nations (UN), South African national policy frameworks, the South African legislative sector’s guidelines as well as GPL policies themselves. The latter includes the Gender, Youth, Disability and Race (GEYODI-R) index which has been recently developed by the Transversal Mainstreaming Focal Point (TMFP) in the institution.

Hence, the lines of enquiry that follow from the meta-question asked by this paper are:• How should the Gauteng Legislature promote representivity in its political structures (particularly in a way that

promotes Previously Disadvantaged Individuals (PDIs), women, youth and people with disabilities)? • How should the Gauteng Legislature promote representivity in its administration, particularly in a way that promotes

PDIs, women, youth and people with disabilities? • How should the Gauteng Legislature undertake its law-making in a way that promotes PDIs, women, youth and people

with disabilities? • How should the Gauteng Legislature undertake its oversight and scrutiny in a way that promotes PDIs, women, youth

and people with disabilities? • How should the Gauteng Legislature undertake its public participation in a way that promotes PDIs, women, youth

and people with disabilities?• How should the Gauteng Legislature exercise its cooperative governance mandate in a way that promotes PDIs,

women, youth and people with disabilities? • How should the Gauteng Legislature execute its key functions of Human Resource Development (HRD), Finance and

Supply Chain Management (SCM) in a way that promotes PDIs, women, youth and people with disabilities?

1.2 Incorporating marginalised voices or ensuring representivity?There is a conceptual difference to be drawn between representivity, on the one hand, and incorporating marginalised groups in a structure or process, on the other. It is a difference that is important for this transversal mainstreaming audit. The concept of marginalised, or even vulnerable, groups refers to those voices in society that have typically not been heard. They have tended, in general, to be the minority segments of a population, such as an ethnic group that has newly migrated to a particular country. Crudely stated, minority voices in a society tend not to be listened to as attentively as those of a dominant majority. Those differences between voices could be on the basis of race, nationality of origin, gender, age, language, religion and so forth.

This audit, as its starting point, has identified the voices of women, previously disadvantaged individuals (PDIs), youth and people with disabilities as those that have historically been marginalised or under-listened to in South Africa. Hence, the marginalised or vulnerable groups that this audit suggests should be drawn more closely into decision-making processes are based on the criteria of race, gender, age (youth) and disability.

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Given the historical logic of why voices are not listened to in a society, this choice assumes that these are the minority segments of the population. That, however, is not true. It is not true for the South African population at large; nor is it true for the province of Gauteng. A quick glance at the latest statistics for the province paint a compelling picture of why institutions like the Gauteng Legislature should take these voices seriously.

Table 1: The demographics of Gauteng province

Racial Group Population %Black/African 74.19

Coloured 3.44

White 19.12

Asian 2.67

Other 0.69

Total 100%

49,62 % of women

34% youth between the ages of 15 – 34

5.7% persons with disabilities

Source: Statistics SA (2016). Mid-year population estimates. Released 25 August 2016

If the picture painted above is true, then the question of incorporating marginalised voices, including of the vulnerable segments of society, begins to coincide with a broader discussion on representivity. Indeed, the fundamental raison d’être for a legislature is premised on the notion of representative democracy. A parliament, in other words, should by its nature and composition reflect broader society. If the Gauteng population is made up of almost 50% women, it makes little sense for its representative parliament to be composed of significantly less than that.

In brief, ensuring that the voices of women, PDIs, youth and people with disabilities – from both inside and outside the Legislature – are heard, is not a side conversation for an institution like the Gauteng Legislature. It is the main conversation.

1.3 Norms, standards, targets and indicatorsA norm is a widely-accepted social principle, as opposed to a binding law. A standard is the benchmark against which this norm is assessed. One of the most succinct definitions of goals, targets and indicators may be found in ESCAP’s Incheon Strategy: “Goals describe the desired end results. Targets are aimed to be achieved within a given time frame. Indicators measure progress towards the targets and verify that the targets have been achieved” (ESCAP, 2012, pp 19).

2. The Global Indicator FrameworkThis chapter sets out the transversal mainstreaming goals, targets and indicators that carry some formal authority within the global community. By definition, these do not include the views proposed by an individual, civil society organisation or an individual country. Instead, the focus is on international development associations that have some form of binding power, whether legal or moral authority, over its membership. As the most recent articulation of comprehensive international development consensus, the SDG framework is a central part of this global architecture.

The post-2015 development agenda is captured most vividly in the Sustainable Development Goals, an international pledge towards 17 goals with 169 associated targets. It was adopted by the UN on 25 September 2015 at the organisation’s Sustainable Development Summit. The new SDGs came into effect on 1 January 2016 and is intended to guide international development efforts for the next 15 years, a global initiative known as the 2030 Agenda for Sustainable Development.


On 11 March 2016, the UN Statistical Commission’s Inter-Agency and Expert Group on SDG Indicators (IAEG-SDGs) agreed on 230 indicators to monitor the attainment of these goals and targets. Although almost all 17 SDGs have some relevance for transversal mainstreaming in the Gauteng Legislature, the table below captures the performance targets and indicators of the goals that have explicit mentions of race, gender, youth and disability. These are also the goals, targets and indicators that the advocacy groups within these four sectors focus on when analysing the SDGs. Goal 5 is the only one exclusively focused on one of these themes, that of gender. However, all four transversal issues are mentioned in several places in the SDG framework. As indicated earlier, based on the work done in this assessment, it is recommended that the Gauteng Legislature considers using these norms and standards to inform its transversal mainstreaming implementation and progress assessments:

GenderSustainable Development Goal 5 (2015): Achieve gender equality and empower all women and girlsTarget No. Target Indicators

5.1 End all forms of discrimination against all women and girls everywhere.

• (5.1.1) Whether or not legal frameworks are in place to promote, enforce and monitor equality and non-discrimination on the basis of sex.

5.2 Eliminate all forms of violence against all women and girls in the public and private spheres, including trafficking and sexual and other types of exploitation.

• (5.2.1) Proportion of ever-partnered women and girls aged 15 years and older subjected to physical, sexual or psychological violence by a current or former intimate partner in the previous 12 months, by form of violence and by age.

• (5.2.2) Proportion of women and girls aged 15 years and older subjected to sexual violence by persons other than an intimate partner in the previous 12 months, by age and place of occurrence.

5.3 Eliminate all harmful practices, such as child, early and forced marriage and female genital mutilation.

• (5.3.1) Proportion of women aged 20-24 years who were married or in a union before age 15 and before age 18

• (5.3.2) Proportion of girls and women aged 15-49 years who have undergone female genital mutilation/cutting, by age.

5.4 Recognize and value unpaid care and domestic work through the provision of public services, infrastructure and social protection policies and the promotion of shared responsibility within the household and the family as nationally appropriate.

• (5.4.1) Percentage of time spent on unpaid domestic and care work, by sex, age and location.

5.5 Ensure women's full and effective participation and equal opportunities for leadership at all levels of decision-making in political, economic and public life

• (5.5.1) Proportion of seats held by women in national parliaments and local governments1

• (5.5.2) Proportion of women in managerial [leadership2] positions.

5.6 Ensure universal access to sexual and reproductive health and reproductive rights as agreed in accordance with the Programme of Action of the International Conference on Population and Development and the Beijing Platform for Action and the outcome documents of their review conferences.

• (5.6.1) Proportion of women aged 15-49 years who make their own informed decisions regarding sexual relations, contraceptive use and reproductive health care

• (5.6.2) Number of countries with laws and regulations that guarantee women aged 15-49 access to sexual and reproductive health care, information and education

1Although the UN indicators refer to ‘local government’, this Background Paper argues that this measure can be used for all sub-national entities, including provincial legislatures. 2‘Leadership’ is the author’s wording, not the IAEG’s

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Sustainable Development Goal 5 (2015): Achieve gender equality and empower all women and girlsTarget No. Target Indicators

5a Undertake reforms to give women equal rights to economic resources, as well as access to ownership and control over land and other forms of property, financial services, inheritance and natural resources, in accordance with national laws.

• (5.a.1(a)) Proportion of total agricultural population with ownership or secure rights over agricultural land, by sex

• (5.a.1(b)) Share of women among owners or rights-bearers of agricultural land, type of tenure

• (5.a.2) Proportion of countries where the legal framework (including customary law) guarantees women’s equal rights to land ownership and/or control.

5b Enhance the use of enabling technology, in particular information and communications technology, to promote the empowerment of women.

• (5.b.1) Proportion of individuals who own a mobile telephone, by sex.

5c Adopt and strengthen sound policies and enforceable legislation for the promotion of gender equality and the empowerment of all women and girls at all levels.

• (5.c.1) Proportion of countries with systems to track and make public allocations for gender equality and women’s empowerment.

African Union Agenda 2063 (2015)Declaration

Clause 52 Women should occupy at least 50% of elected public offices at all levels

Clause 52 Women should occupy at least 50% of managerial positions in the public and the private sectors

Goal 17: Gender equality in all spheres of life

PA3 1 National • (1) Equal economic rights for women, including the rights to own and inherit property, sign a

contract, save, register and manage a business and own and operate a bank account by 2025. • (2) At least 20% of rural women have access to and control productive assets, including land

and grants, credit, inputs, financial service and information. • (3) At least 30% of all elected officials at local, regional and national levels are Women as well as

in judicial institutions. • (4) At least 25% of annual public procurement at national and sub-national levels are awarded to

Women.• (5) Increase gender parity in decision making positions at all levels to at least 50-50 between

Women and Men. • (6) Solemn Declaration Index (SDI) developed by GIMAG and ECA on Gender is computed

bi-annually and used in making policy / resource allocation decisions. Continental • (1) Increase gender parity in decision making positions at all levels in pan African organizations

to at least 50-50 between women and men.• (2) High Level Panel on Women Empowerment operational by 2016.• (3) Fund for African Women is operational by 2017.

3Priority area


African Union Agenda 2063 (2015)Declaration

PA 2 National (1) Reduce 2013 levels of violence against women and Girls by at least 20%.(2) End all harmful social norms and customary practices against women and girls (e.g. FGM, Child marriages) and those that promote violence and discrimination against women and girls.(3) Eliminate all barriers to quality education, health and social services for Women and Girls by 2020. (4) End all forms of political, legal or administrative discrimination against Women and Girls by 2023. (5) Reduce by 50% all harmful social norms and customary practices against Women and Girls and those that promote violence and discrimination.Continental (1) Fully implement Executive Council Decision on Gender Parity in the African Union by 2020.

Race (SDG Goal 10)Target No. Target Indicators

Goal 10: Reduce inequality within and among countries

10.2 By 2030, empower and promote the social, economic and political inclusion of all, irrespective of age, sex, disability, race, ethnicity, origin, religion or economic or other status.

(10.2.1) Proportion of people living below 50% of median income, by age, sex, and persons with disabilities.

Goal 16: Promote peaceful and inclusive societies for sustainable development, provide access to justice for all and build effective, accountable and inclusive institutions at all levels

16.7 Ensure responsive, inclusive, participatory and representative decision-making at all levels.

(16.7.1) Proportions of positions (by sex, age, persons with disabilities and population groups) in public institutions (national and local legislatures, public service, and judiciary) compared to national distributions.(16.7.2) Proportion of population who believe decision-making is inclusive and responsive, by sex, age, disability and population group.

Goal 17: Strengthen the means of implementation and revitalize the global partnership for sustainable development

17.18 By 2020, enhance capacity-building support to developing countries, including for least developed countries and small island developing States, to increase significantly the availability of high-quality, timely and reliable data disaggregated by income, gender, age, race, ethnicity, migratory status, disability, geographic location and other characteristics relevant in national contexts.

(17.18.1) Proportion of sustainable development indicators produced at the national level with full disaggregation when relevant to the target, in accordance with the Fundamental Principles of Official Statistics.

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DisabilitySDG Goal 1Target No. Target Indicators

Goal 1: End poverty in all its forms everywhere

1.1 By 2030, eradicate extreme poverty for all people everywhere, currently measured as people living on less than $1.25 a day.

(1.1.1) Proportion of population below the international poverty line, by sex, age, employment status and geographical location (urban/rural).

Goal 4: Ensure inclusive and equitable quality education and promote lifelong learning opportunities for all

4.5 By 2030, eliminate gender disparities in education and ensure equal access to all levels of education and vocational training for the vulnerable, including persons with disabilities, indigenous peoples and children in vulnerable situations.

(4.5.1) Parity indices (female/male, rural/urban, bottom/top wealth quintile and others such as disability status, indigenous peoples and conflict-affected, as data become available) for all education indicators on this list that can be disaggregated.

4a Build and upgrade education facilities that are child, disability and gender sensitive and provide safe, non-violent, inclusive and effective learning environments for all.

(4.a.1) Proportion of schools with access to: (a) electricity; . . . (d) adapted infrastructure and materials for students with disabilities; etc.

Goal 8: Promote sustained, inclusive and sustainable economic growth, full and productive employment and decent work for all

8.5 By 2030, achieve full and productive employment and decent work for all women and men, including for young people and persons with disabilities, and equal pay for work of equal value.

(8.5.1) Average hourly earnings of female and male employees, by occupation, age and persons with disabilities.(8.5.2) Unemployment rate, by sex, age and persons with disabilities.



(10.2.1) Proportion of people living below 50 per cent of median income, by age, sex, and persons with disabilities.

Goal 11: Make cities and human settlements inclusive, safe, resilient and sustainable

11.2 By 2030, provide access to safe, affordable, accessible and sustainable transport systems for all, improving road safety, notably by expanding public transport, with special attention to the needs of those in vulnerable situations, women, children, persons with disabilities and older persons.

(11.2.1) Proportion of population that has convenient access to public transport, by sex, age and persons with disabilities.

11.7 By 2030, provide universal access to safe, inclusive and accessible, green and public spaces, in particular for women and children, older persons and persons with disabilities

(11.7.1) Average share of the built-up area of cities that is open space for public use for all, by sex, age and persons with disabilities (11.7.2) Proportion of persons victim of physical or sexual harassment, by sex, age, disability status and place of occurrence, in the previous 12 months


SDG Goal 1Target No. Target Indicators

Goal 17: Strengthen the means of implementation and revitalise the global partnership for sustainable development

17.18 By 2020, enhance capacity-building support to developing countries, including for least developed countries and small island developing States, to increase significantly the availability of high-quality, timely and reliable data disaggregated by income, gender, age, race, ethnicity, migratory status, disability, geographic location and other characteristics relevant in national contexts.

(17.18.1) Proportion of sustainable development indicators produced at the national level with full disaggregation when relevant to the target, in accordance with the Fundamental Principles of Official Statistics.(17.18.2) Number of countries that have national statistical legislation that complies with the Fundamental Principles of Official statistics.(17.18.3) Number of countries with a national statistical plan that is fully funded and under implementation, by source of funding.

Incheon strategy on DisabilityTARGET INDICATORS

Goal 1: Reduce poverty and enhance work and employment prospects

1A

1B

1C

Eliminate extreme poverty among persons with disabilities.

Increase work and employment for persons of working age with disabilities who can and want to work.

Increase the participation of persons with disabilities in vocational training and other employment-support programmes funded by governments.

Core indicators1.1 Proportion of persons with disabilities living below the US$ 1.25 (PPP) per day international poverty line, as updated by the World Bank and compared to the overall population.1.2 Ratio of persons with disabilities in employment to the general population in employment.1.3 Proportion of persons with disabilities who participate in government-funded vocational training and other employ ment-support programmes as a proportion of all people trained.Supplementary indicators1.4 Proportion of persons with disabilities living below the national poverty line.

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Goal 2: Promote participation in political processes and in decision-making

2A

2B

Ensure that persons with disabilities are represented in government decision-making bodies.

Provide reasonable accommodation to enhance the participation of persons with disabilities in the political process.

Core indicators 2.1 Proportion of seats held by persons with disabilities in the parliament or equivalent national legislative body.2.2 Proportion of members of the national coordination mechanism on disability who represent diverse disability groups.2.3 Proportion of those represented in the national machinery for gender equality and women’s empowerment who are persons with disabilities.2.4 Proportion of polling stations in the national capital that are accessible with processes in place that ensure confidentiality of voters with disabilities.Supplementary indicators2.5 Proportion of cabinet positions held by persons with disabil ities at the national level. 2.6 Proportion of Supreme Court judges who persons with disabilities.2.7 Availability of legislation that requires the national election authority to conduct the election process in a manner that makes it accessible for persons with diverse disabilities.

Goal 3: Enhance access to the physical environment, public transportation, knowledge, information and communication

3A

3B

3C

3D

Increase the accessibility of the physical environment in the national capital that is open to the public.

Enhance the accessibility and usability of public transportation.

Enhance the accessibility and usability of information and communications services.

Halve the proportion of persons with disabilities who need but do not have appropriate assistive devices or products.

Core indicators 3.1 Proportion of accessible government buildings in the national capital.3.2 Proportion of accessible international airports.3.3 Proportion of daily captioning and sign-language interpreta tion of public television news programmes.3.4 Proportion of accessible and usable public documents and websites that meet internationally recognized accessibility standards.3.5 Proportion of persons with disabilities who need assistive devices or products and have them.Supplementary indicators3.6 Availability of a government access audit programme that requires the participation of experts with disabilities.3.7 Availability of mandatory technical standards for barrier-free access that govern the approval of all designs for buildings that could be used by members of the public, taking into consideration internationally recognized standards, such as those of the International Organization for Standardization (ISO).3.8 Number of sign language interpreters.3.9 Availability of mandatory technical standards for barrier-free access that govern the approval of all ICT-related services, such as websites for the public, taking into consideration internationally recognized standards, such as those of the ISO.



Goal 4: Strengthen social protection

4A

4B

4C

Increase access to all health services, including rehabilitation, for all persons with disabilities.

Increase coverage of persons with disabilities within social protection programmes.

Enhance services and programmes, including for personal assistance and peer counselling, that support persons with disabilities, especially those with multiple, extensive and diverse disabilities, in living independently in the community.

Core indicators 4.1 Proportion of persons with disabilities who use govern ment-supported health-care programmes, as compared to the general population.4.2 Coverage of persons with disabilities within social protec tion programmes, including social insurance and social as sistance programmes.4.3 Availability of government-funded services and programmes, including for personal assistance and peer counselling, that enable persons with disabilities to live independently in the community.Supplementary indicators4.4 Number of government-supported programmes for care services, including for respite care.4.5 Availability of national community-based rehabilitation programmes.4.6 Availability of health insurance for persons with disabilities.4.7 A decrease in the unmet need for assistance and support services.

Goal 5: Expand early intervention and education of children with disabilities

5A

5B

Enhance measures for early detection of, and intervention for, children with disabilities from birth to pre-school age.

Halve the gap between children with disabilities and children without disabilities in enrolment rates for primary and secondary education.

Core indicators 5.1 Number of children with disabilities receiving early childhood intervention. 5.2 Primary education enrolment rate of children with disabilities. 5.3 Secondary education enrolment rate of children with disabilities.Supplementary indicators5.4 Proportion of pre- and antenatal care facilities that provide information and services regarding early detection of disabil ity in children and protection of the rights of children with disabilities.5.5 Proportion of children who are deaf that receive instruction in sign language.5.6 Proportion of students with visual impairments that have educational materials in formats that are readily accessible.5.7 Proportion of students with intellectual disabilities, develop mental disabilities, deafness, blindness, autism and other disabili ties who have assistive devices, adapted curricula and appro priate learning materials.

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Goal 6: Ensure gender equality and women’s empowerment

6A

6B

6C

6D

Enable girls and women with disabilities to have equitable access to mainstream development opportunities.

Ensure representation of women with disabilities in government decision-making bodies.Ensure that all girls and women with disabilities have access to sexual and reproductive health services on an equitable basis with girls and women without disabilities.Increase measures to protect girls and women with disabilities from all forms of violence and abuse.

Core indicators 6.1 Number of countries that include the promotion of the participation of women and girls with disabilities in their national action plans on gender equality and empowerment of women. 6.2 Proportion of seats held by women with disabilities in the parliament or equivalent national legislative body.6.3 Proportion of girls and women with disabilities who access sexual and reproductive health services of government and civil society, compared to women and girls without disabilities.6.4 Number of programmes initiated by government and relevant agencies aimed at eliminating violence, including sexual abuse and exploitation, perpetrated against girls and women with disabilities.6.5 Number of programmes initiated by government and relevant agencies that provide care and support, including rehabilitation, for women and girls with disabilities who are victims of any form of violence and abuse.

Goal 7: Ensure disability-inclusive disaster risk reduction and management

7A

7B

Strengthen disability-inclusive disaster risk reduction planning.Strengthen implementation of measures on providing timely and appropriate support to persons with disabilities in responding to disasters.

Core indicators 7.1 Availability of disability-inclusive disaster risk reduction plans. 7.2 Availability of disability-inclusive training for all relevant service personnel. 7.3 Proportion of accessible emergency shelters and disaster relief sites.Supplementary indicators 7.4 Number of persons with disabilities who died or were seriously injured in disasters. 7.5 Availability of psychosocial support service personnel that have the capacity to assist persons with disabilities affected by disasters.7.6 Availability of assistive devices and technologies for persons with disabilities in preparing for and responding to disasters.



Goal 8: Improve the reliability and comparability of disability data

8A

8B

Produce and disseminate reliable and internationally comparable disability statistics in formats that are accessible by persons with disabilities.

Establish reliable disability statistics by the midpoint of the Decade, 2017, as the source for tracking progress towards the achievement of the goals and targets in the Incheon Strategy.

Core indicators8.1 Disability prevalence based on the International Classification of Functioning, Disability and Health (ICF) by age, sex, race and socioeconomic status.8.2 Number of Governments in the Asia-Pacific region that have established, by 2017, baseline data for tracking progress towards achievement of the Incheon goals and targets.8.3 Availability of disaggregated data on women and girls with disabilities in mainstream development programmes and government services, including health, and sexual and reproductive health, programmes

Goal 9: Accelerate the ratification and implementation of the Convention on the Rights of Persons with Disabilities and the harmonization of national legislation with the Convention

9A

9B

By the midpoint of the Decade (2017), 10 more Asia-Pacific Governments will have ratified or acceded to the Convention on the Rights of Persons with Disabilities, and by the end of the Decade (2022) another 10 Asia-Pacific Governments will have ratified or acceded to the Convention.

Enact national laws which include anti-discrimination provisions, technical standards and other measures to uphold and protect the rights of persons with disabilities and amend or nullify national laws that directly or indirectly discriminate against persons with disabilities, with a view to harmonizing national legislation with the Convention.

Core indicators9.1 Number of Governments that have ratified or acceded to the Convention.9.2 Availability of national anti-discrimination legislation to uphold and protect the rights of persons with disabilities.

Supplementary indicators9.3 Number of Asia-Pacific Governments that have ratified the Optional Protocol to the Convention on the Rights of Persons with Disabilities.9.4 Number of amended or nullified laws that directly or indirectly discriminate against persons with disabilities.

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Goal 10: Advance sub-regional, regional and interregional cooperation

10A

10B

10C

Contribute to the Asia-Pacific Multi-donor Trust Fund managed by ESCAP as well as initiatives and programmes to support the implementation of the Ministerial Declaration on the Asian and Pacific Decade of Persons with Disabilities, 2013–2022, and the Incheon Strategy.

Development cooperation agencies in the Asia-Pacific region strengthen the disability-inclusiveness of their policies and programmes.

United Nations regional commissions strengthen interregional exchange of experiences and good practices concerning disability issues and the implementation of the Convention on the Rights of Persons with Disabilities.

Core indicators 10.1 Annual voluntary contributions by Governments and other donors to the Asia-Pacific Multi-donor Trust Fund to support the implementation of the Ministerial Declaration on the Asian and Pacific Decade of Persons with Disabilities, 2013– 2022, and the Incheon Strategy.10.2 Number of donors contributing each year to the Asia-Pacific Multi-donor Trust Fund to support the implementation of the Ministerial Declaration on the Asian and Pacific Decade of Persons with Disabilities, 2013–2022, and the Incheon Strategy.10.3 Annual voluntary contributions by Governments or other donors to initiatives or programmes to support the imple mentation of the Ministerial Declaration on the Asian and Pacific Decade of Persons with Disabilities, 2013–2022, and the Incheon Strategy.10.4 Number of United Nations entities that have regional coop eration programmes, including for South-South cooperation, that explicitly support the implementation of the Ministerial Declaration on the Asian and Pacific Decade of Persons with Disabilities, 2013–2022, and the Incheon Strategy.10.5 Number of sub-regional intergovernmental bodies that have programmes, including for South-South cooperation, which support the implementation of the Ministerial Declaration on the Asian and Pacific Decade of Persons with Disabilities, 2013–2022, and the Incheon Strategy.10.6 Number of regional and sub-regional projects, including for South-South cooperation, in which organizations of and for persons with disabilities participate in order to support the implementation of the Ministerial Declaration on the Asian and Pacific Decade of Persons with Disabilities, 2013–2022, and the Incheon Strategy.10.7 Number of development cooperation agencies operating in Asia and the Pacific that have mandates, policies, action plans and edicated and appropriately experienced focal points on disability-inclusive development, supportive of ratifica-tion and implementation of the Convention and review of follow-up action.10.8 Number of joint activities among the five regional commis sions of the United Nations to support the implementation of the Convention on the Rights of Persons with Disabilities. 10.9 Number of statisticians in the Asia-Pacific region trained in disability statistics, in particular on the ICF approach, by ESCAP and other relevant agencies. 10.10 Number of United Nations country or regional-level development assistance frameworks that explicitly reference disability-inclusive development in line with the United Nations Development Group guidance note on including the rights of persons with disabilities in United Nations programming at the country level.


Youth SDG GoalsTarget No. Target Indicators

Goal 4: Ensure inclusive and equitable quality education and promote lifelong learning opportunities for all

4.3 By 2030, ensure equal access for all women and men to affordable and quality technical, vocational and tertiary education, including university.

(4.3.1) Participation rate of youth and adults in formal and non-formal education and training in the last 12 months, by sex.

4.4 By 2030, substantially increase the number of youth and adults who have relevant skills, including technical and vocational skills, for employment, decent jobs and entrepreneurship.

(4.4.1) Proportion of youth and adults with information and communications technology (ICT) skills, by type of skill.

4.6 By 2030, ensure that all youth and a substantial proportion of adults, both men and women, and achieve literacy and numeracy.

(4.6.1) Percentage of population in a given age group achieving at least a fixed level of proficiency in functional (a) literacy and (b) numeracy skills, by sex.

Goal 8: Promote sustained, inclusive and sustainable economic growth, full and productive employment and decent work for all

8.5 By 2030, achieve full and productive employment and decent work for all women and men, including for young people and persons with disabilities, and equal pay for work of equal value.

(8.5.1) Average hourly earnings of female and male employees, by occupation, age and persons with disabilities.(8.5.2) Unemployment rate, by sex, age and persons with disabilities.

8.6 By 2020, substantially reduce the proportion of youth not in employment, education or training.

(8.6.1) Proportion of youth (aged 15-24 years) not in education, employment or training

8b By 2020, develop and operationalize a global strategy for youth employment and implement the Global Jobs Pact of the International Labour Organization.

(8.b.1) Total government spending in social protection and employment programmes as a proportion of the national budgets and GDP.



(10.2.1) Proportion of people living below 50% of median income, by age, sex, and persons with disabilities.

Goal 11: Make cities and human settlements inclusive, safe, resilient and sustainable

11.2 By 2030, provide access to safe, affordable, accessible and sustainable transport systems for all, improving road safety, notably by expanding public transport, with special attention to the needs of those in vulnerable situations, women, children, persons with disabilities and older persons.

(11.2.1) Proportion of population that has convenient access to public transport, by sex, age and persons with disabilities.

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SDG GoalsTarget No. Target Indicators

11.7 By 2030, provide universal access to safe, inclusive and accessible, green and public spaces, in particular for women and children, older persons and persons with disabilities.

(11.7.1) Average share of the built-up area of cities that is open space for public use for all, by sex, age and persons with disabilities.(11.7.2) Proportion of persons victim of physical or sexual harassment, by sex, age, disability status and place of occurrence, in the previous 12 months (i.e. in public spaces).

Goal 13: Take urgent action to combat climate change and its impacts

13b Promote mechanisms for raising capacity for effective climate change-related planning and management in least developed countries, including focusing on women, youth and local and marginalized communities.

(13.b.1) Number of least developed countries and small island developing States that are receiving specialized support, and amount of support, including finance, technology and capacity-building, for mechanisms for raising capacities for effective climate change-related planning and management, including focusing on women, youth and local and marginalized communities.


16.1 Significantly reduce all forms of violence and related death rates everywhere.

(16.1.2) Conflict-related deaths per 100,000 population, by sex, age and cause.

16.2 End abuse, exploitations, trafficking and all forms of violence against and torture of children.

(16.2.3) Proportion of young women and men aged 18-29 years who experienced sexual violence by age 18.

16.7 Ensure responsive, inclusive, participatory and representative decision-making at all levels.

(16.7.1) Proportions of positions (by sex, age, persons with disabilities and population groups) in public institutions (national and local legislatures, public service, and judiciary) compared to national distributions.(16.7.2) Proportion of population who believe decision-making is inclusive and responsive, by sex, age, disability and population group.

Youth: African Agenda 2063 (2015)

Goal 18: Engaged and empowered youth and children

1 Reduce 2013 rate of youth unemployment by at least 25%; in particular female youth.

2 Youth business start-ups including female youth in all business start-ups is at least 15%.

3 At least 50% of youth who cannot go on to have tertiary education are provided with TVET.

4 At least 50% of Youth and Children are engaged in talent based development programmes, leisure and recreation.

5 End all forms of violence, child labour exploitation and child marriage and human trafficking.

6 Recruitment of Child soldiers is ended.

7 At least 20% of Youth and Children are engaged in sports activities.

8 Full implementation of the provision of African Charter on the Rights of the Youth is attained.

9 End all forms of child marriages.


General goals that deal with anti-discrimination (SDGs)Target No. Target Indicators


10.3 Ensure equal opportunity and reduce inequalities of outcome, including by eliminating discriminatory laws, policies and practices and promoting appropriate legislation, policies and action in this regard.

(10.3.1) Percentage of the population reporting having personally felt discriminated against or harassed within the last 12 months on the basis of a ground of discrimination prohibited under international human rights law.


16b Promote and enforce non-discriminatory laws and policies for sustainable development.

(16.b.1) Proportion of population reporting having personally felt discriminated against or harassed in the previous 12 months on the basis of a ground of discrimination prohibited under international human rights law.

3. The National Indicator Framework South Africa does not have a formal system of development targets and indicators in the same way that the United Nations (UN), for example, has set out its Sustainable Development Goals (SDGs) framework. Until September 2015, the country reported on progress towards the Millennium Development Goals (Statistics SA, 2015). In addition, a number of international development agencies report on South African progress towards their own global targets and indicators. Examples of these include the United Nations Development Programme’s Human Development Index, the World Health Organisation’s Country health profiles and UNICEF’s South Africa Development Indicators.

The two most reliable sources of domestic development indicators are the Development Indicators report, published by the Department of Planning, Monitoring and Evaluation (DPME), as well as those found within the national Medium-Term Strategic Framework (MTSF). The latest versions of both these documents are aligned to the National Development Plan (NDP, 2012).

The Presidency began reporting on various targets and indicators since 2007 through the publication of a Development Indicators report (DPME, 2015). Its latest report, published in 2014, states that it has derived its development targets from the NDP and the Medium Term Strategic Framework. According to DPME, these indicators are approved by the South African Cabinet as quantitative markers that track the progress being made towards achieving key policy goals (www.dpme.gov.za). The Department sources its data from official country statistics, government administrative systems, international databases as well as research institutions. Its latest report has 86 indicators, the most relevant of which are captured in the table later in this chapter.

The MTSF was introduced in South Africa as a means of strategically guiding the development of the country’s Medium-Term Expenditure Frameworks (MTEFs). The underlying intention, in other words, was to have policy priorities determine the manner in which government spending would unfold over the medium-term. Both the MTEF and the

4South Africa produced full country reports on progress towards the MDGs in 2005, 2010 and 2013. It also published updates in the interven-ing years. Its final country report was released on 30 September 2015.

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MTSF are five-year plans, which provide a bridge between government’s annual budgets and plans, on the one hand, and its longer-term vision, on the other. MTSFs set out government priorities and actions for the next five years. The latest MTSF covers the period between 2014 and 2019 (RSA, 2014). It is the first MTSF in the country to serve as a five-year implementation plan for the NDP (DPME, 2015).

In addition, it is worth noting that Stats SA publishes an annual General Household Survey which tracks the success of government policies through face-to-face surveys it conducts with a number of South African households. Its latest survey, released in June 2016, was based on interviews with 21 601 households (Stats SA, 2016a).

RaceNational Development Indicators: Department of Planning, Monitoring and Evaluation (DPME)Goal Indicator No. Indicators Sub-indicators

Theme: Economic growth and transformation

To broadly reflect the demographic composition of the country in the management of companies and organisations.

16 Black and female managers.

Percentage of top and senior managers who are Black.Percentage of top and senior managers who are female.

Theme: Social cohesion

To promote social cohesion and eliminate racism while building the nation.

57 Confident in a happy future for all races.

To promote social cohesion and eliminate racism while building the nation. By 2019, 65% of the population should be of the opinion that race relations are improving.

58 Public opinion on race relations.

To promote social cohesion and national identity. By 2019, 60% of the population prefers to associate with their South African identity.

60 Identify based on self-description.

How South Africans describe themselves:As an AfricanAs South AfricanBy race group By language group Other self-descriptions

5Although the South African Development Indicators Report does not specifically mention the impact of contact crime on vulnerable groups such as women, the disabled, youth, etc., the author of this Background Paper has chosen to include this here. This is because the UN’s SDGs do mention the need to disaggregate crime data for vulnerable groups. Its indicator 11.7.2, for example, focuses on the proportion of persons who are victims of physical or sexual harassment by sex, age, disability status and place of occurrence (IAEG, 2016). Many


National Development Indicators: Department of Planning, Monitoring and Evaluation (DPME)Theme: Safety and security

To reduce contact crime by 10% between 2014 and 2019.

65 Contact crime.4 Contact crime rate – per 100 000 of population - disaggregated into statistics for:MurderAttempted murderCommon assaultAssault – grievous bodily harmSexual offencesAggravated robberyCommon robbery.

GenderNational Development Indicators: Department of Planning, Monitoring and Evaluation (DPME)Goal Indicator no Indicators Sub-indicators

Theme: Economic growth and transformation

To broadly reflect the demographic composition of the country in the management of companies and organisations.

16 Black and female managers.

Percentage of top and senior managers who are Black.Percentage of top and senior managers who are female.

Theme: Health

To improve women’s health and reduce maternal and neonatal mortality and morbidity.

38 Maternal Mortality Ratio.

Maternal deaths per 100 000 live births.

To reduce the prevalence of HIV and expand the Prevention of Mother-to-Child Transmission (PMTCT) coverage to pregnant women.

39 HIV prevalence. HIV prevalence (disaggregated by gender, age and women attending antenatal care).

Theme: Education

To increase participation in education and to eliminate gender disparities.

45 Enrolment rates: Gender Parity Index (GPI).5

GPI for basic education.GPI for higher education.

Theme: Social cohesion

To increase the participation and representation of women in legislative bodies.

56 Percentage of women who are members of legislative bodies.

Number and percentage of women Members of Parliament and Provincial Legislatures.Number and percentage of women members of municipal councils (disaggregated by ward and proportional representation councillors).

6Definition: GPI is the ratio of Gross Enrolment Rate (GER) for female learners to the GER of male learners regardless of age, in public and independent ordinary schools for a given year. GPI ratio measures the progress towards gender parity in education participation / learning opportunities available for females in relation to those available to males. A GPI of 1 indicates parity between females and males. A value less than 1 indicates disparity in favour of males, while a GPI greater than 1 indicates disparity in favour of females (DPME, 2015).

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National Development Indicators: Department of Planning, Monitoring and Evaluation (DPME)Goal Indicator no Indicators Sub-indicators

Theme: Safety and security


65 Contact crime Contact crime rate – per 100 000 of population - disaggregated into statistics for:MurderAttempted murderCommon assaultAssault – grievous bodily harmSexual offencesAggravated robberyCommon robbery.

To reduce sexual offences. 68 Sexual offences.6 Reported cases and number per 100 000 of population Percentage increase/decrease in reported cases.

YouthNational Development Indicators: Department of Planning, Monitoring and Evaluation (DPME)Goal Indicator No. Indicators Sub-indicators

Theme: Employment

The goal is to cut unemployment by at least half to a maximum of 14% in 20207.

18 Unemployment. Unemployment rate (broad and narrow definitions8).Number of discouraged work seekers by age.Unemployment rate by age (narrow).



65 Contact crime. Contact crime rate – per 100 000 of population - disaggregated into statistics for:MurderAttempted murderCommon assaultAssault – grievous bodily harmSexual offencesAggravated robberyCommon robbery.

7The DPME Development Indicators report does not mention the issue of gender in its discussion of indicator 68; nor does it present data that has been disaggregated by sex. However, the author of this Background Paper has included this indicator here because the question of sexual offences against women is mentioned often in South African anti-discrimination policy and legislation.


DisabilityNational Development Indicators: Department of Planning, Monitoring and Evaluation (DPME)Goal Indicator no Indicators Sub-indicators

Theme: Poverty and inequality

To implement inclusive education and mainstreaming disability in South Africa.

27 People with disabilities. Special school matric pass rateDisability grant recipients.



65 Contact crime. Contact crime rate – per 100 000 of population - disaggregated into statistics for:MurderAttempted murderCommon assaultAssault – grievous bodily harmSexual offencesAggravated robberyCommon robbery.

Performance indicators from the National Gender Framework (2000)Although the National Gender Framework (NGF) was published in 2000, some of the indicators it sets out remain relevant today (OSW, 2000). It should be noted, however, that the generic and short-term performance indicators it proposes are aimed at determining the effectiveness of government structures only. In particular, it focuses on the Office on the Status of Women as well as Gender Focal Points within all three spheres of government. Its long-term performance indicators focus on women in society, more broadly. Many of these indicators are of direct relevance to the Gauteng Legislature and may be used to assess the level of gender mainstreaming within and outside the provincial parliament.

Generic indicatorsAs indicated above, these generic indicators proposed in the National Gender Framework are aimed at assessing the effectiveness of structures within government.

Figure 2: National Gender Framework - Generic indicators

Generic indicators (National Gender Framework: 2000)Development of a national (or institutional) gender action plan.

Inclusion of gender equality principles in vision and mission statements as well as in their strategic plans and goals.

Identification of gender-related targets in business plans.

Training of staff in gender awareness, gender analysis and gender planning.

Development of policies and programmes that address gender issues.

Collection of data disaggregated by gender.

Ability to respond to the needs of both women and men within their respective sectors.

Clear co-ordination and communication network between all the key structures of the National Machinery.

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Generic indicators (National Gender Framework: 2000)Clear monitoring and evaluation frameworks in place.

Gender sensitive indicators for all programmes and projects particularly those considered of high national priority.

Mechanisms in place for implementing obligations under national, regional and international instruments.

Short-term performance indicatorsShort-term performance indicators, according to the National Gender Framework, are aimed at assessing progress towards transformation and policy implementation. In particular, they explore the degree of success or failure in setting up effective structures and mechanisms for institutionalising women’s empowerment and gender equality (OSW, 2000).

The principal changes that the Gauteng Legislature will make to the NGF short-term indicators involve, firstly, changing the focus from the production of disaggregated data to a request for disaggregation from provincial departments, in line with the Legislature’s oversight role. Second, the emphasis will naturally shift from the NGF’s broad scan of all government institutions to one of drilling down into the Gauteng Legislature’s own internal structures. This will have practical implications: for example, it is not likely that there will be multiple structures for dealing with cases of sexual harassment, as the NGF suggests. Instead, if the focus is purely on the Gauteng Legislature, there is likely to be just one structure dealing with these cases, and the legislature will therefore shift away from the number of structures and more towards the question of effectiveness of its singular structure. Thirdly, the NGF’s focus on transformation in programmes would need to be adapted to the legislative context as parliaments do not directly implement development programmes. The first column in the table below outlines the indicators as they are set out in the NGF. The second column interprets these for the Gauteng Legislature. The indicators in the second column informed part of this GPL transversal mainstreaming assessment.

Figure 3: National Gender Framework - Short-term performance indicators

Area of Focus IndicatorCapacity building. The number and quality of gender training programmes introduced to develop staff

gender programming capacity and the number and categories of people trained.The number and quality of in-house programmes (including affirmative action programmes) introduced to enhance women's participation in decision-making structures and the number of women benefiting from such programmes.

Gender sensitive staff recruitment and discipline.

The existence of appropriate guidelines for recruitment committees indicating the desired gender mix.The existence of appropriate guidelines for gender awareness training for all staff responsible for recruitment and selection as well as for newly recruited staff.The number and effectiveness of national, provincial and local level institutions which have developed and utilised gender sensitive policies and guidelines for reporting and disciplining cases of sexual harassment.The number and effectiveness of internal structures established to deal with gender-based discrimination and sexual harassment.

Gender sensitive terms and conditions of service which address practical gender needs.

The extent to which gender sensitive and responsive programmes have been established to enhance the roles of both male and female employees as parents and professionals; e.g. day care centres in the work place.

8Although the phrasing of this goal does not include the question of age, its broader description does. It specifically mentions unemployment rates for youth. Stats SA uses the international definition of youth (15 – 24 years old) for purposes of international comparisons (DPME, 2015).9Narrow (official): Number of people who were without work in the reference week, have taken steps to look for work or start a business and were available to work. Broad (unofficial): Number of people who were without work in the reference week and were available to work (DPME, 2015).


Area of Focus IndicatorWomen's increased access to management and leadership.

Increased proportions of women managers in positions in senior government posts and other public and private institutions (a 50:50 male-to-female ratio is desirable, but in the short-term, an increase to 30% prescribed by the White Paper on Affirmative Action in the Public Service will be a major indicator of commitment to gender equality).Increased levels of skills in gender sensitivity and analysis among all managers.

Transformation in programmes.

The number and quality of sector-related gender analysis training programmes in place and the number of professional staff who have undergone the training.The extent to which sector-based gender analysis and gender disaggregated data are being used effectively in programme design.The extent of technical support and guidelines provided for gender responsive reviews of sector programmes.

Transformation in the allocation of resources.

The level of human and financial resources allocated to programmes to advance women’s empowerment and gender equality.Specifically identified, gender-based expenditure by national and provincial departments (for example, on women’s health programmes or special education programmes for girls).Equal employment opportunity expenditure by such departments on their employees (for example, the training for women managers, and job descriptions which reflect equal employment opportunities).Gender mainstreaming of budget allocations and expenditures (for example, allocations to transformation programmes in the legislature).

Data collection and utilisation.

Effective process of production and utilisation of gender disaggregated data and statistics.Gender disaggregated data collection that reflects the relevant situation, problems and concerns of women and men.Gender disaggregated data and statistics reviewed and updated regularly for use in programme development, planning and implementation.Adequate capacity (human and financial) for the collection, analysis and dissemination of gender-related statistics.

Long-term performance indicatorsThe long-term performance indicators proposed by the NGF are aimed at measuring the impact of the 2000 framework on women and society in general. It argues that a positive policy impact will have been made if it can be shown that the women of South Africa participate fully and on an equal footing in the creation of a non-sexist, non-racist and democratic society (OSW, 2000). The long-term indicators will also measure the changes in those societal attitudes, beliefs and cultural practices which affect women negatively. As will be evident from the table below, the long-term indicators proposed by the National Gender Framework correspond closely to the focal areas of the UN’s Beijing Declaration. These long-term indicators are mainly relevant to the oversight, law-making and public participation mandates of the legislature.

Figure 4: National Gender Framework - Long-term performance indicators

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Focus point IndicatorIncreased representivity through Affirmative Action Programmes.

Increased representivity of women, especially at professional and managerial levels, in all organisations (and specifically government departments).Establishment of effective affirmative action programmes (in line especially with the provisions of the 1996 Constitution, the 1997 Employment Equity Bill and the 1998 White Paper on Affirmative Action in the Public Service).With respect to the Public Service, the targets laid down in the Affirmative Action White Paper (30% of new recruits to the middle and senior management echelons must be women) will be a key indicator of progress. Though at this stage a 50% representation is the appropriate indicator.

Economic empowerment and the reduction in women's poverty.

Equal legal status and capacity in customary law for women including full contractual rights to acquire and hold property, to inherit, to obtain credit and to participate in decision-making processes in the country.

Recognising women’s contribution to the economy.

Full recognition of women's work and contribution to the national economy including in the informal sector and subsistence economy.

Adequate health and social security services.

Measures for protection from violence, sexual abuse or harassment in all places, as well as improved health and safety services in all sectors of women's work.The quality (measured by the level of gender sensitivity) of reproductive health services, and training for women to enable them to make their own reproductive decisions.

Access to basic social services and productive resources.

Improved access to basic resources for all women.For rural women in particular, improved access to basic education, training services and facilities, safe water and sanitation, energy, communication services, housing, health care and social welfare, land and security of tenure.

Participation in political and decision-making structures.

The extent to which mechanisms and structures have been put in place to ensure that women, either as individuals or groups, are able to participate at all levels of decision-making structures and in all levels of political, civic and community life.

Recognition of the principle of Women's Rights as Human Rights.

Translation of this principle into practice.Recognition of women's responsibility and rights in the family by ensuring that women and men have equal rights in the division of property, maintenance and arrangements in regard to the children.Equitable access for women to the financial resources of the household, including adequate maintenance for the children.Customary, cultural and religious practices which subordinate women should be subject to the equality clause in the Bill of Rights.

Protection from violence. The establishment of effective mechanisms and facilities for dealing with all forms of gender-based violence and abuse.Measurement of the quality and number of public education and training programmes established for the police, prosecutors, magistrates, judges and all the categories of institutions involved in dealing with gender-based violence and all forms of abuse.

Positive portrayal of women in the media and improved self-images

The increased frequency with which the diversity of women's lives, experiences and contributions in all spheres of public and private life are positively portrayed by the media.The increase in the number of women who are able to participate as decision-makers in the media.

4. Indicators and Targets for the GPL


Representivity in the political structures of the Gauteng LegislatureThe principal question asked in this section is how the Gauteng Legislature should structure its political structures in a way that promotes PDIs, women, youth and persons with disabilities? The main debate internationally in this regard has been on a quota system for women. The African Union (AU), in its latest Agenda 2063, for example, proposes very clear numerical targets for women in the public sector. In South Africa, a recently withdrawn Bill proposed a quota for women in both the public and private sector. Some of these sentiments have been echoed by legislative institutions such as the South African Legislative Sector (SALS) and the IPU.

The Gauteng Legislature itself makes just one reference to the issue of representivity of political structures. In its Standing Rules, it states that “as far as possible, ensure that women are represented on all Committees” (GPL, 2016, section 140). This is, in fact, a call made to political parties within the Legislature rather than to the institution itself. No numerical quotas are set and there are no prescriptions for the composition and leadership of the provincial Executive, Presiding Officers and so forth.

Indicator Target (both quantitative and qualitative) Source for targetGeneral representivity in the Legislature.

Number and % of MPLs within the GPL who are women, PDIs, people with disabilities and under 35.

IPUSALSSDGs (UN)Agenda 2063 (AU)GEYODI-R index (GPL).

Representivity in leadership.

Number and % of MECs in Gauteng who are women, PDIs, people with disabilities and under 35. Number and % of Office Bearers in GPL who are women, PDIs, people with disabilities and under 35.Number and % of Presiding Officers in GPL who are women, PDIs, people with disabilities and under 35.Number and % of committee chairpersons in GPL who are women, PDIs, people with disabilities and under 35.

IPUSALSSDGs (UN)Agenda 2063 (AU)GEYODI-R index (GPL).

Political party representation.

Number and % of MPLs per political party who are women, PDIs, people with disabilities and under 35.

GPL Transversal Mainstreaming Assessment Sampling Strategy.

Representivity in the Administration of the Gauteng LegislatureSimilar to the discussion on political representivity, the main debate on this issue has traditionally been on quotas for women. This has been raised by key national South African documents such as the 2000 National Gender Framework as well as recent proposed legislation. However, the African Union has also called for quotas for women in the management structures of the public sector. GPL policies do not take a numerical stance on this question beyond statements around the principle of representivity.

Indicator Target (both quantitative and qualitative) Source for targetDisaggregation of the composite (entire) GPL administration.

Number and % of GPL staff within the GPL administration who have been women, PDIs, youth and people with disabilities.

GEYODI-R index.National Gender Framework.

Disaggregation of Programmes 1 – 5.

Number and % of GPL staff within the GPL administration who have been women, PDIs, youth and people with disabilities per programme.

GEYODI-R indexNational Gender Framework.

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Indicator Target (both quantitative and qualitative) Source for targetRepresentivity in each GPL occupational category.

Number and % of GPL staff within the GPL administration who have been women, PDIs, youth and people with disabilities per occupational category.

GEYODI-R indexNational Gender Framework.

Representivity in each GPL salary band.

Number and % of GPL staff within the GPL administration who have been women, PDIs, youth and people with disabilities per salary band.

GPL Human Resource Function.

Encouraging Diversity and Representivity through Law-Making This element asks how the Gauteng Legislature should undertake its law-making in a way that promotes PDIs, women, youth and people with disabilities. There are two aspects to this enquiry, however. The first concerns the law-making process, whilst the second looks at the content of existing legislation.

The content of existing laws is important because, as the UN’s SDGs and the African Union’s Agenda 2063 reveal, biases are often found in existing laws. Whilst earlier debates on this topic remained at the level of broad anti-discrimination legislation, the current discourse generated by the post-2015 development agenda, pays equal attention to the impact that sectoral legislation has on the vulnerable in society. The SDGs, for instance, have numerous recommendations on how transport, built environment, planning, ICT and related laws can be redrafted in a way that makes the city (or province) safer and more accessible for women, youth, people with disabilities and so forth. The African Union’s Agenda 2063, on the other hand, places huge emphasis on how health, education and economic legislation can fundamentally change the lives of the vulnerable both by outlawing harmful practices (child marriages and female mutilation, for example) as well as by enabling empowerment (by granting women access to tenure, changing inheritance laws and so forth). National legislation in post-apartheid South Africa has followed these trends relatively closely.

There is a caveat to the discussion on the content of provincial laws, of course. It is circumscribed by the exclusive and concurrent provincial competencies set out in Schedules 4 and 5 of the South African Constitution (RSA, 1996). Appendix 1 of this report provides a summary of the current suite of Gauteng provincial laws, providing the readers with quick reference to the sectoral legislation that the province is able to influence significantly. While the Gauteng Legislature cannot do very much to create an enabling labour rights regime, it can significantly influence education and health outcomes in the province through the laws it enacts.

The Law-Making ProcessIndicator Target (both quantitative and qualitative) Source for target Accessibility of proposed legislation (Bills).

Publication of Bills: Multiple languages, diverse media and geographical spread.Sufficient time allowed for public input.

Audit sampling strategy (Product of this assessment).


Indicator Target (both quantitative and qualitative) Source for target Participation of vulnerable (citizen) groups in the law-making process.

Number and frequency of GPL invitations for written submissions, public hearings and other outreach initiatives on Bills.Channels used by GPL to invite written and oral written submissions.Active targeting of women, youth, the disabled and PDIs by the GPL in respect of proposed legislation. Volume and content of written submissions.Volume and content of oral submissions.Distinctive inputs, if any, by women, youth, the disabled and PDIs on proposed legislation.

Audit sampling strategy (Product of this assessment).

Participation of parliamentarians (from vulnerable groups) in the law-making process.

Number, positions (e.g. committee chair) and influence of women, PDIs, etc. in committee deliberations on Bills.

GEYODI-R (source for indicators) – product of this assessment.

Transversal mainstreaming during committee deliberations on Bills

Internal GPL committee deliberations on Bills include transversal mainstreaming issues.

Standing Rules.

Committee reporting to the House on deliberations on Bills.

Regular and detailed committee reporting to the House on all Bill deliberations.Committee reports include summary of issues raised by (citizen) women, PDIs, youth and people with disabilities.Committee reports to the House include section on how transversal mainstreaming issues were actually incorporated into the legislative drafting process (if at all).Level of House engagement with issues raised by (citizen) women, PDIs, youth and people with disabilities through the Bill process.

Committees’ reports.

Content of final version of Bills and Laws passed.

Incorporation of public inputs (especially those of women, etc.) into final Acts.Are the final Acts gender (race/youth/ disability)-blind, gender-aware or gender-neutral, based on Naila Kabeer’s methodology for the gender classification of policy.

Naila Kabeer’s methodology for the gender classification of policy.

The Content of Provincial LawsBased on the suite of exclusive and concurrent provincial competencies outlined in the South African Constitution, do the following legal frameworks exist in Gauteng?

Indicator Target (both quantitative and qualitative) Source for targetEnabling (general) anti-discrimination legal framework.

Existence of laws to promote enforce and monitor equality and non-discrimination on the basis of gender, race, age, disability and other grounds mentioned in the South African Bill of Rights.

SDGs (UN)IPU

Updating of any equality laws that are over 10 years. IPU

Removal of discriminatory legislation.

Repeal of discriminatory laws still in place, including apartheid provincial ordinances.

SDGs (UN)IPU

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Indicator Target (both quantitative and qualitative) Source for targetEnabling sectoral legislation to promote rights of vulnerable groups in society.

Eliminate all harmful practices, such as child, early and forced marriage and female genital mutilation.

SDGs (UN)Agenda 2063 (AU)

Existence of provincial legislation that grants women equal rights to economic resources, land, other forms of property, financial services, inheritance and natural resources – and repeal of discriminatory (including customary) law that works against these principles.


Existence of provincial legislation that grants rural women equal rights to productive assets, including land, grants, credit, inputs, financial service and information (At least 20% of rural women).

Agenda 2063 (AU)

Existence of applicable provincial legislation that provides mandatory technical standards for all public buildings in the province in terms of access for persons with disabilities (taking into consideration internationally recognised standards, such as those of the International Organization for Standardization (ISO) as well as national policy standards).

Incheon Strategy

Existence of legislation in the education sector that promotes equal access to, and reduces disparities in, all levels of education and vocational training for the vulnerable (particularly women, PDIs, youth and persons with disabilities).


Enforce labour rights that promote safe working environments for all workers, particularly the vulnerable such as women, PDIs, youth and persons with disabilities.

SDGs (UN)

Existence of legislation in the transport sector that provides access to safe, affordable, accessible and sustainable public transport systems, with special attention to the needs of those in vulnerable situations (such as women, PDIs, youth and persons with disabilities).

SDG 11Incheon Strategy

Existence of legislation in the planning or built environment sector that provides access to safe, inclusive, accessible green and public spaces with special attention to the needs of the vulnerable (particularly women, PDIs, youth and persons with disabilities).

SDG 11Incheon Strategy

Existence of applicable provincial legislation that provides mandatory technical standards for all public ICT-related services in the province in terms of access for persons with disabilities (taking into consideration internationally recognised standards, such as those of the International Organization for Standardization (ISO) as well as national policy standards).

Incheon Strategy

Encouraging Diversity and Representivity in the Legislative Processes of


Oversight and Scrutiny This section explores how the Gauteng Legislature should undertake its oversight and scrutiny processes in a way that promotes PDIs, women, youth and people with disabilities. The principal implication of the post-2015 agenda for legislative oversight is its extremely strong call for disaggregated data. The UN’s SDGs outline several grounds for special focus and these include the criteria of race, gender, disability, age (both youth and the elderly).

Indicator Target (both quantitative and qualitative) Tracking ProgressOversight visits. Rationale for choice.

Are women, PDIs, youth and persons with disabilities affected by the specific issue in question?Types of issues raised by women, PDIs, youth and persons disabilities.Is the GPL processing and taking forward of the issues raised by (i) communities in general and (ii) women, PDIs, youth and persons with disabilities?

To be reflected in committees oversight reports and tracked through research analysis and performance assessment reports.

Focused intervention studies (FIS).

Rationale for choice.Are women, PDIs, youth and persons with disabilities affected by the specific issue in questions?Types of issues raised by women, PDIs, youth and people with disabilities.Is the GPL processing and taking forward of the issues raised by (i) communities in general and (ii) women, PDIs, youth and persons with disabilities?


Committee inquiries. Rationale for choice.Are women, PDIs, youth and Are women, PDIs, youth and persons with disabilities affected by the specific issue in questions?Types of issues raised by women, PDIs, youth and people with disabilities. Is the GPL processing and taking forward of the issues raised by (i) communities in general and (ii) women, PDIs, youth and persons with disability?


Debates, motions, resolutions and questions to the Executive.

Inclusion of a specific component dealing with transversal mainstreaming.Insertion of transversal mainstreaming issues into GPL debates, motions, resolutions and questions.Specialised input from dedicated transversal mainstreaming structures within GPL (the TMFP, MPWC, etc.) into these debates, motions, resolutions and questions?

To be reflected in committees’ oversight reports, debates, motions, questions, resolutions and tracked through research analysis and performance assessment reports.

Responses from the Executive (to motions, resolutions and questions from the Legislature).

Inclusion of a specific components dealing with transversal mainstreaming.

Standing Rules (GPL).

Encouraging Diversity and Representivity in the Legislature’s Public

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Participation Processes The principal question that this section attempts to address is, again, a normative one: How should the Gauteng Legislature undertake its public participation in a way that genuinely promotes the interests of PDIs, women, youth and persons with disabilities?

Indicator Target (both quantitative and qualitative)

Source for target

Sector parliaments (youth, women and people with disabilities).

Nature of target audienceTypes of issues are raisedVariations of issues raised, attendance levels, etc. across stakeholder groups, geographical areas.GPL processing of these issues (e.g., management of resolutions), etc.Existence of disaggregated data.Status of feedback mechanisms and feedback to participants.

GPL Transversal Mainstreaming Report Recommendations.GPL Transversal Mainstreaming Policy.To be reflected in committees oversight reports and tracked through research analysis and performance assessment reports.To be reflected in Administration reports.Public engagement and stakeholder registers.GPL Transversal Mainstreaming Training Material (Resource Section).

Public education initiatives (including public education workshops, accredited civic education programmes, etc.).

Nature of target audience.Types of issues are raised.Variations of issues raised, attendance levels, etc. across stakeholder groups, geographical areas.GPL processing of these issues (e.g., management of resolutions), etc.Existence of disaggregated data.Status of feedback mechanisms and feedback to participants.


Bua le Sechaba. Nature of target audience.Types of issues are raised.Variations of issues raised, attendance levels, etc. across stakeholder groups, geographical areas.GPL processing of these issues (e.g., management of resolutions), etc.Existence of disaggregated data.Status of feedback mechanisms and feedback to participants.



Indicator Target (both quantitative and qualitative)

Source for target

People's Assembly. Nature of target audience.Types of issues are raised.Variations of issues raised, attendance levels, etc. across stakeholder groups, geographical areas.GPL processing of these issues (e.g., management of resolutions), etc.Existence of disaggregated data.Status of feedback mechanisms and feedback to participants.


Citizen responsibility campaign.



Committees’ Engagements with the public.



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Encouraging Diversity and Representivity in the Exercise of Cooperative GovernanceThe main question addressed is how the Gauteng Legislature should exercise its cooperative governance function in a way that promotes PDIs, women, youth and people with disabilities.

Indicator Target (both quantitative and qualitative) Source for targetThe Gauteng Legislature’s relationship with ISDs.

Form of engagement taken (formal and informal meetings, information exchange, joint advocacy on issues of mutual concern, etc.).Key thematic issues between the institutions.Level of influence on each other.Impact on transversal mainstreaming within the GPL.


The Gauteng Legislature’s relationship with local government in province



Implementation of sector standards.




GPL Policies, Strategies and ProcessesIndicator Target (both quantitative and qualitative) Source for targetA review of GPL policies and strategies.

Transversal mainstreaming content generally.Reflect international and national norms and standards.

GPL Transversal Mainstreaming Report Recommendations.GPL Transversal Mainstreaming Training Material (Resource Section).To be reflected in Administration reports.National and international best-practice standards (e.g. SDGs).

Human Resource Management.

Transversal mainstreaming content generally.Recruitment targets and how they relate to women, PDIs, persons with disabilities and youth within the institution.Promotion and succession planning targets and how they relate to women, PDIs, persons with disabilities and youth within the institution.Re remuneration principles and how they relate to women, PDIs, persons with disabilities and youth within the institution.Training and development objectives and how they relate to women, PDIs, persons with disabilities and youth within the institution.Performance management process and how it relates to women, PDIs, persons with disabilities and youth within the institution.

GPL HR policies that address these areas of discussion.National and international best-practice standards (e.g. SDGs).

Financial Management.

Transversal Mainstreaming sensitivity in policy frameworks and strategies.Transversal Mainstreaming sensitivity in operational procedures and daily practices. Ethos behind resource allocation decisions within the GPL administration. Disaggregation of data in financial reporting.

Financial Management of Parliament and Provincial Legislature.PFMA.Other relevant financial management prescripts.National and international best-practice standards (e.g. SDGs).

Supply Chain Management.

TM sensitivity in policy frameworks and strategiesOperational procedures and daily practice within the Unit Supplier database: number and % listed on the GPL supplier database who are women/PDIs/ disabled/youth? How many are SMMEs (because that might tell us something about youth participation, for example)Appointment of service providers: number and % who are women/PDIs/disabled/youth/SMMEs – and the respective (bands) of the value of the contracts?Nature of the procurement process itself

SCM policy (2017)PFMA.National and international best-practice standards (e.g. SDGs). Other relevant financial management prescripts.

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Footnotes1. Although the UN indicators refer to ‘local government’, this Background Paper argues that this measure can be used

for all sub-national entities, including provincial legislatures. 2. ‘Leadership’ is the author’s wording, not the IAEG’s 3. Priority area4. Although the South African Development Indicators Report does not specifically mention the impact of contact

crime on vulnerable groups such as women, the disabled, youth, etc., the author of this Background Paper has chosen to include this here. This is because the UN’s SDGs do mention the need to disaggregate crime data for vulnerable groups. Its indicator 11.7.2, for example, focuses on the proportion of persons who are victims of physical or sexual harassment by sex, age, disability status and place of occurrence (IAEG, 2016). Many of these imperatives are also related to the broader goal of making cities and human settlements safe and inclusive (SDG 11).

5. Definition: GPI is the ratio of Gross Enrolment Rate (GER) for female learners to the GER of male learners regardless of age, in public and independent ordinary schools for a given year. GPI ratio measures the progress towards gender parity in education participation / learning opportunities available for females in relation to those available to males. A GPI of 1 indicates parity between females and males. A value less than 1 indicates disparity in favour of males, while a GPI greater than 1 indicates disparity in favour of females (DPME, 2015).

6. The DPME Development Indicators report does not mention the issue of gender in its discussion of indicator 68; nor does it present data that has been disaggregated by sex. However, the author of this Background Paper has included this indicator here because the question of sexual offences against women is mentioned often in South African anti-discrimination policy and legislation.

7. Although the phrasing of this goal does not include the question of age, its broader description does. It specifically mentions unemployment rates for youth. Stats SA uses the international definition of youth (15 – 24 years old) for purposes of international comparisons (DPME, 2015).

8. Narrow (official): Number of people who were without work in the reference week, have taken steps to look for work or start a business and were available to work. Broad (unofficial): Number of people who were without work in the reference week and were available to work (DPME, 2015).

Mainstreaming Gender, Race, Disability and Youth in the Gauteng Legislature: A Manual for Management38

Notes

g a u t e n g l e g i s l a t u r e multi - party w men’s ...... · 1.3 norms, standards, targets...

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