ࡱ>  Zbjbj 4R*''555555558Q55D5X!7!7777777.>&T> `>WWWWWWW$_W5@<l.>@@W557777WCCC@577577WC@WCCS|T77Þ3|5:Aj&T~WW0X8T`A$`$T`5Th>Z>@C?46?ph>h>h>WWBh>h>h>X@@@@`h>h>h>h>h>h>h>h>h>' 3: CONSULTATION RESPONSE FORM THE PUBLIC SECTOR EQUALITY DUTY Promoting equality through transparency A consultation The consultation closes on 10 November 2010. Please let us have your response by that date. When responding, it would be helpful if you could provide the following information. Please fill in your name and address, or that of your organisation if relevant. You may withhold this information if you wish, but we will be unable to add your details to our database for future consultation exercises. Contact details: Please supply details of who has completed this response. Response completed by (name):Helen Carr Position in organisation (if appropriate):National Head of Equality  Name of organisation (if appropriate): Address:Carlow Street London NW1 7LH  Contact phone number:020 7756 2537 Contact e-mail address:hcarr@ucu.org.uk Date: Confidentiality Under the Code of Practice on Open Government, any response will be made available to the public on request, unless respondents indicate that they wish their views to remain confidential. If you wish your response to remain confidential, please tick the box below and say why. If we receive a request for disclosure of the information we will take full account of your explanation, but we cannot give an assurance that confidentiality can be maintained in all circumstances. An automatic confidentiality disclaimer generated by your IT system will not, of itself, be regarded as binding on the Department. I would like my response to remain confidential (please put a cross in the box if appropriate): Please say why  In what capacity are you responding (please put a cross in the appropriate box)? As an individual  On behalf of a public sector organisation  On behalf of a private sector organisation  On behalf of a voluntary sector organisation x Other (please specify) The University and College Union () is the voice of academic and related staff working in post-16 education in the UK. : represents 120,000 practitioners and professional administrators in further and higher education; has a membership in further and higher education which includes professors, researchers, lecturers, tutors and (in the pre-1992 universities) senior administrators, librarians and IT professionals; is recognised for collective bargaining purposes at more than 150 higher education and 50 further education institutions and at a national level. Note: In addition to the completed pro-forma, you can also send other supporting information if you so wish. Thank you for completing this response form. Question 1: Do you have any comments on our proposals for data reporting? Does the drafting of regulation 2 accurately reflect the aims of the policy described in paragraph 5.2 to 5.9?  Does the drafting of regulation 2 accurately reflect the aims of the policy? Please place a cross in the appropriate box NoNot sure Please explain: has huge concerns about the policy and the regulations.. The aim of the policy is to ensure service users and staff understand how and why an organisation has identified its equality objectives. The policy fails to do this by providing little clarity on * who to consult and its role * how data is linked to outcomes * how people can challenge effectively the direction the organisation is taking on equality. Publishing data may improve transparency and openness but it only allows a reactive challenge rather than influencing policy and service delivery decisions as they are developed. * the requirements do not robustly support the general duty and is not directive enough to be called a specific duty. The EHRC code of practice will need to provide guidance on how employees and service providers can challenge data reporting and what the role of the EHRC is in ensuring this is robust. We do have an additional concern that the cuts to the EHRC will diminish their capacity to enforce the duty. We welcome the need for annual reporting as this is essential to monitor progress but the light touch approach in the rest of the regulation could make annual reporting meaningless. It is important that the EHRC guidance sets out the standard requirements of what should be published and acceptable sources of data. The policy states that employers should take reasonable steps to source and create the data but what will be the test of reasonableness? To make the data meaningful, an action plan needs to be developed. Achieving, promoting and implementing equality is not easy and the challenges and barriers should not be used as an excuse under the test of reasonableness. Question 2: Do you have any comments on our proposals for employment reporting? Does the drafting of regulation 2 accurately reflect the aims of the policy described in paragraphs 5.10 to 5.11?  Does the drafting of regulation 2 accurately reflect the aims of the policy? Please place a cross in the appropriate box YesNoNot sure Please explain: has huge concerns about the policy and the regulations. The employment function of an organisation is integral to its approach to equalities and its service delivery. There is rightly thoughout the policy a focus on involvement of service users but the involvement of trade unions as representatives of staff will create a more informed and developed approach to this aspect of the specific duty. We would want to see all public service organisations covered by the duty reporting on the protected characteristics including pay of their employees. It is not a burden for small organisations to report on this and as many parts of the public sector are delivered by small units such as some education institutions or private and voluntary sector organisations it will give a clearer picture to service users and employees. We recognise that there are confidentiality issues when collecting data in small organisations which must be managed but employers can work with trade unions to ensure confidentiality is maintained. representatives have strong experience of monitoring issues. The reporting is regressive and less than the current gender duty (to consider the need to have objectives that address the causes of any difference between the pay of men and women that are related to their sex). Organisations should be required to undertake comprehensive equal pay audits covering all protected groups. Public bodies have been gathering detailed information to comply with the existing dutues so should be easy to continue and develop across the protected characteristics. The pay gap between male and female employees remains wide. In Higher Education the gender pay gap between the mean average earning of teaching professionals is 15%. In further education it is 10%. In the further and higher education sectors, has national agreements based on EOC guidance calling on employers to undertake regular equal pay reviews. Very few employers have complied and the pay gaps in each sector remain too wide. Numerous national pay agreements have required employers to take steps to address the disparity in pay between male and female employees. The voluntary approach is not working. We would want more detailed monitoring requirements as contained within the current equality duties and for the introduction of mandatory pay audits. Employers should be required to publish the pay gap figure for each pay grade or pay band and to set out steps to address any identified disparity in pay and career progression. The policy guidance mentions that many organisations will not have achieved a culture where staff will disclose information on sexual orientation or religion or belief. Instead of stating that employers will not have a requirement to collect this information, employers should be compelled to evaluate the culture of their organisations, take steps to ensure that their cultures are inclusive and report on progress made. Cultural change is difficult and unless organisations confront the norms of their workplaces, full equality will never be achieved. The EHRC code of practice must support and advise organisations on developing evidence across the protected characteristics. If public bodies do not monitor across the protected characteristics there will be no benchmark and no demonstration of how the equality duty and positive change is being met. Question 3: Do you have any comments on our proposals for transparency in public service provision? Does the drafting of regulation 2 accurately reflect the aims of the policy described in paragraphs 5.12 to 5.14?  Does the drafting of regulation 2 accurately reflect the aims of the policy? Please place a cross in the appropriate box YesNoNot sure Please explain: has huge concerns about the policy and the regulations To ensure transparency, organisations need to make it clear how they have gathered evidence to inform their objectives. This should include a duty to gather evidence for each of the protected characteristics and to use this evidence to assess their decisions. There should also be a requirement to demonstrate how the involvement of protected groups and consultation with trade unions has helped inform the development of the objectives. Often in higher and further education establishments the processes are unclear and impact assessments not undertaken which creates seriously flawed decision making and skewed outcomes. The policy and regulation requires none of the above. Publishing data is not enough and organisations need to make it clear how they gathered the evidence, who they involved and how theses processes informed their equality objectives. Publishing data may also seem meaningless to the public and any data needs to be accompanied by a narrative which informs the reader of how the data was collated, the sources, its date and what it demonstrates. The EHRC code of practice needs to include this detail. does not want organisations to carry out tick box exercises but we do still think it is necessary to have the process and prescribed forms as part of the specific duty and reinforced in the Code of Practice. 5.14 of the policy description says the publishing of data will enable citizens to judge and challenge public bodies where they are failing. Any code needs to state how public bodies can be challenged. The current role of the EHRC in challenging public bodies in complying to the current equality impact assessments is under resourced and so resources need to be made available to ensure this process is robust. We would also want to avoid situations where the challenge comes at the end of the process it is much more efficient to have the challenge during the process and this can be achieved by involving staff and service users during the development of objectives. Question 4: Do you have any comments on our proposals for setting equality objectives to achieve transparency about impact on equality? Does the drafting of regulation 3 accurately reflect the aims of the policy described in paragraphs 5.15 and 5.16?  Does the drafting of regulation 3 accurately reflect the aims of the policy? Please place a cross in the appropriate box YesxNoNot sure Please explain: has huge concerns about the policy and the regulations. The new proposals on consultation are a regression from the current requirement within the gender equality duty to consult with trade unions and the requirement within the disability equality duty to involve disabled people. We welcome the fact that protected groups and service users are to be consulted but should be explicitly stated in the regulations along with the requirement to consult employees and their representatives including trade unions.. An organisations employment is part and parcel of how it approaches equality and the services it delivers. If there is not an explicit requirement to do this, it will dilute the outcomes that the Government is so keen to improve. is extremely concerned about the proposals that public bodies should not be required to set equality objectives in respect of each protected characteristic. We welcome the extension of the general duty to cover age, religion and belief and sexual orientation. However if employers choose it will significantly weaken the impact. Some areas of equality are difficult and should not be lost. The Government is keen to cut down bureaucratic accountability and it should be business as usual organisational planning. It is our experience that progressing and promoting equality is not business as usual for many higher and further education institutions and without a prescribed legal framework there will be no progress on equality in employment or service delivery practices. It needs to be made clear that this is a legal duty and not an aspirational exercise. Our experience in higher and further education can demonstrate that even the current system with a legal framework and enforcement, including equality impact assessments, institutions are not complying. This light touch approach will seriously damage any progress on equalities that has been made. The EHRC must make it clear in the code of practice what steps organisations need to take in developing their objectives including consultation. Reviewing objectives every four years is not enough and does not fit with any other review cycles around business and organisational planning. Four years is a long time in the cycle of any organisation in terms of structures, personnel and service users so objectives should be kept subject to scrutiny and review on a more regular basis. Question 5: Do you have any comments on the changes proposed in Chapter 5 under the section Reducing the burdens on public organisations?  Please place a cross in the appropriate box YesxNo Comments: has huge concerns about the proposals in this section. Progressing equality should not be seen as a burden and changing the outcomes for those covered by a protected characteristic cannot be a quick fix and needs to be supported by clear processes and procedures. Outcomes are critical but the process and narrative of how the outcomes are achieved will give them more credibility. We want the concept of the equality impact assessment retained as this does give rigour and transparency to the process of assessment. We welcome the intention of the EHRC to produce guidance on the ways to assess impact and we strongly want this to be detailed and directive. We are concerned with the proposal of there being no national priorities set by the Secretary of State as it assumes without evidence that local objectives will be robustly set. There will be less of a national picture on progress, less national accountability or benchmarking and the ability to share good practice but if there is directive guidance on setting local objectives this will be less of a concern. We do believe that public procurement should include equality criteria. All those delivering public services should be able to demonstrate a practical commitment to equality. Not including procurement in this new duty seriously weakens the requirements under the general duty particularly as this Government is encouraging a diversity of provider. This is a serious weakening of previous requirements. Including equality issues should not be seen as a burden. We strongly believe that public bodies should set out the steps they propose to take in order to achieve equality objectives (action planning). This makes the process transparent and ensures that the decisions made are understood by employees and service users. There is also no mention of staff training which represents a regression from race equality duty. We would want the disability reporting duty on certain Secretaries of State to be maintained to ensure that there is accountability and transparency on progress made to improve disabled peoples inclusion in national initiatives and programmes. Question 6: Do you have any comments on our proposals for transition from the existing duties relating to race, disability and gender to the new public sector Equality Duty, as described in paragraphs 6.1 and 6.2?  Please place a cross in the appropriate box YesxNo Comments: We welcome the widening of the duty to include all protected characteristics. This has been the approach of in developing equality schemes to include all groups. But we are extremely concerned by the proposal that public bodies should not be required to set equality objectives for each protected characteristic. It is unacceptable and seriously weakens the legislation and the purpose behind the extended the general duty. Service users and employees are facing extremely challenging times in terms of the continuity of service provision and job security and the single equality duty should provide a robust mechanism for holding institutions to account. The Government and any guidance produced by EHRC needs to be clear on the transitional arrangements for moving to the new regulations. The statutory powers that the EHRC has in enforcement of the specific duty must be resourced to enable the Commission to act on non compliance. This is critical when the development of objectives including consultation procedures are not being prescribed. For services and employees to have confidence in the duty, there needs to be backed up by an effective enforcement from EHRC. Our current experience of the compliance role of EHRC has been disappointing. The EHRC has not been able to intervene in many individual institutions due to lack of resources in undertaking this role. A strategic role for the Commission is not enough and we would like clarity on what strategic enforcement means in practice. Question 7: We would welcome your views on the proposed list of public bodies for Part 1 and Part 4 of Schedule 19, as described in paragraphs 7.7 to 7.12?  Comments: Question 8: We would welcome your views on the bodies that we do and do not think should be subject to the specific duties, as described in paragraphs 7.13 and 7.14  Comments: The list of bodies must be kept under review to ensure it reflects the organisations and the structures that are delivering public services. Question 9: Do you have any other comments on the drafting of the Statutory Instrument? If yes, please explain.  Please place a cross in the appropriate box YesNoX Comments: Question 10: Do you have any evidence or data that you can provide or direct us to which would help us to develop our regulatory impact assessment?  Please place a cross in the appropriate box YesNo Question 11: Are you aware of any other benefits resulting from the proposal that have not already been described in the consultation document or the regulatory impact assessment?  Please place a cross in the appropriate box YesNox If yes, please explain: Question 12: Are there any other comments you would like to make in relation to this consultation that have not already been covered by this form? If yes, please explain. Please place a cross in the appropriate box YesxNo Comments: The research undertaken by the Government Equality office in 2008, found that around 97% of respondents reported either significant or some improvement in a least one specific outcome under the previous duties. The research also indicated that the specific duties had been a catalyst for a positive shift in culture which brought equalities into the mainstream. The proposed policy and duty will seriously undermine the progress made through the previous duties. It is too early to move towards such a light touch approach and although the current processes may seem bureaucratic and burdensome by many employers, they do provide a rigorous and neutral framework to work within. Without a framework unintentional bias and assumptions can come into play which prevents progress being made. For these proposals there would need to be a comprehensive training programme for staff to counteract this. This also reinforces the need for comprehensive consultation processes to ensure the perspectives of all groups including trade unions is included. Trade unions have a wealth of experience and knowledge of equality issues and this could be lost in these current proposals. We are also concerned by the assumption that the new duty will be a low cost exercise involving a few staff and perhaps a one off research exercise. Objectives will take time to develop and should involve not only the leadership of the organisation but the protected characteristic groups plus trade union involvement. If an organisation is going to pick challenging objectives, it may not be a low cost exercise. 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