International Conference at the Vienna University of Economics and Business

Gender Responsive Budgeting: Theory and Practice in Perspective

November 6-8, 2014

LEARNINGS FROM THE EXPERIENCE OF THE BASQUE COUNTRY ON GENDER

BUDGETING: FROM WELL-BEING THEORY TO INSTITUTIONAL PRACTICE

Yolanda Jubeto1
University of the Basque Country

DRAFT
ABSTRACT
The main aim of this paper is to contribute to the discussion on the strengths and weaknesses of
Gender Responsible Budget (GRB) initiatives from the experiences carried out by several
Basque institutions along the last decade.
Since the first experience took place by means of a pilot experience pushed forward by the
Gender Equality Institute of the Basque Government fourteen years ago until the initiative
carried out by the provincial government of Gipuzkoa for the last four years, some more
experiences at the local level have seen the light for a shorter period of time, and some others
have recently started. So we have gathered some relevant information related to the
opportunities, difficulties and challenges that these initiatives have meant for some public
administrations and the diverse departments which have taken part in the processes.
Related to the methodologies followed in those initiatives, in the last years the well-being
approach has been introduced mainly in the experiences implemented in Gipuzkoa.
In short, the communication will try to summarize very briefly the main lessons and challenges
that these experiences have put onto the agenda for equity and social justice within the Basque
public administrations.
Finally we would like to remind that the main experiences from which some lessons have been
extracted have taken place during a hard economic recession in Spain which has strongly
constraint the public budgets and with them the possibilities of introducing quantitative changes
in the policies applied, and sometimes it has been used to weaken some equality policies applied
previously.

1
Lecturer on Applied Economics. Faculty of Economics and Business Administration, Lehendakari Agirre, 83,
480015 Bilbao, Bizkaia, Basque Country. E mail: yolanda.jubeto@ehu.es.

1
INTRODUCTION

Since the first experience of gender budgeting (so forth GB) took place thirty years ago in
Australia2, a bulk of initiatives have spread all around the world, and it has become one of the
most recurrent subject matters related to gender mainstreaming in public policies. The
implication of Europe in this process3 advanced slowly along the 90s and it had to wait until the
beginning of this century to reach the light compromise of the European Union to push forward
its member countries to get involved in it.

In the case of Spain, the first initiative took place within the Autonomous Community of the
Basque Country (ACBC) at the level of the regional public administration from 1999 to 2002.
After a time lap of several years, from 2009 onwards the Basque Government has elaborated an
annual gender impact report of the budget of this administrative level, made by a Gender
Equality technician who works in the institution4. In between the Women’s Institute of the
Basque Government pushed forward several municipalities to implement their own reports, and
from 2005 onwards, the Women’s Policy Department of the Town Hall of Bilbao started to push
forward a training process of the people responsible for the budget at different areas of the local
administration. That experience lasted several years though its public relevance was minimal as
we have seen in most of the experiences carried out in the Basque Country. During those same
years, several attempts of analysing the local administration budgets have been made in diverse
municipalities though most of them haven’t overcome the first steps of civil servants´ and
politicians´ training and at the most some pilot projects have been developed. As far as we
know, only in five cases those initiatives have overcome the first steps and gender budgeting
reports have been elaborated during several years5, including mainly some parts of the budget
not all of it. Finally, in the last four years we have been working with the Provincial Council
(Foral Deputation) of Gipuzkoa and its budget has been analysed taking into account the most
relevant programmes for equality and their links with women´ and men´s well being. In the last
couple of years the capital city of Gipuzkoa, that is, Donostia- San Sebastian, has also started to
analyse their budget and for the second year they are doing nowadays a gender impact report of
their budget.

Thus, in the last ten years as part of a small team of researchers of the University of the Basque
Country I have taken part in the training and the projects which have followed them, in several
places in the Basque Country and also during four years with a Provincial Council outside the

2
At that time it was called Women’s Budget.
3
For a summary of them, see Jubeto (2007): “Experiencias europeas en Presupuestos con Enfoque de Género: una
revisión crítica”, II Congress of Feminist Economics, Zaragoza, Spain.
4
http://riemann.upo.es/personal-wp/congreso-economia-feminista/files/2013/10/JUBETO-LARRA%C3%91AGA.pdf
5
In one of the cases, it lasted just one year though the elaboration process was very relevant for us. That was a
municipality of Bizkaia where a report was asked in order to analyse the local tax system impact on women´s quality
of life and a couple of departments got involved in the process and thus their budgets were also analysed.

2
Basque Country, in the Balearic Island of Mallorca. In all those cases, we have offered training
and technical support to the technicians of those local administrations, and in some cases the
training has also included some politicians (mayors, councillors,..). Whenever they have got
interested in going on with the process and start doing GB annual reports, by means of pilots or
by choosing the main programs of the departments to be analysed in a more stable and depth
way, we have always emphasised that it was very important that the participants became the
main protagonist of the reports to be done. That is, there is a tendency to make a contract to
third parties, thus, gender experts, who lead the process and even elaborate the analysis and the
results, and the civil servants take part in a very limited way in the process. For us, it is very
important to change those dynamics as they aren´t sustainable in time and don´t empower
people to be able to incorporate those equality lends in their everyday work. They know the
administrative procedures, the programs, the collectives and also the inner dynamics of the
administration, so we have considered very relevant that they should get them involved in the
elaboration process of those reports and that the time they needed to make it was included and
visualize within their working time. Besides, our main aim has always been the sustainability in
time of those processes in order to make them one day more autonomous of outsiders (gender
experts, consultancies,...), and to be able to integrate these practices within the annual analyses
made within the budgetary processes by themselves without depending on specific resources to
finance the technical assistance from outside. We know that they will need the technical support
of gender experts in many fields and also the participation of the feminist movement if they
wish to introduce changes in the priorities of the policies as well as in the way of implementing
them, but that is different to rely all the process in people who won´t have any continuity in the
administration.

In that sense, along all this time we have had the opportunity to know very closely the way local
institutions in the Basque and Balearic lands work and the dynamics of their behaviour and the
characteristics of their demands when they have to integrate something new in their routines.
And from that experience we have tried to understand the possibilities and difficulties found at
introducing a rather new equality lens for looking at and acting with public finances. In the
following pages we will underline a few strengths but we´ll put the focus on some weaknesses
that have appear in all the cases, taking into account that the experiences have been inner
experiences within the public administration and that we will put the focus on the responses of
politicians and civil servants to the implemented training and during the elaboration processes of
the GB reports.

3
SOME POTENTIALITIES AND WEAKNESSES OF THE PROCESSES CARRIED
OUT AT THE ACBC SO FAR: A SUMMARY

Working directly with public administrations, there have been many lessons we have learnt
about the inner dynamics of local and regional administrations as we have had the opportunity
to work with some politicians, civil servants and in a fewer cases, with the feminist movement,
in those processes.

Although in this summary I´m not going to enter into the methodologies we have advised to
follow to the different public administrations, in order to make the Gender Budgeting Reports
(GBR)6 they have elaborated, I would like to mention that we haven´t invented any of them.

At the beginning we took the tools offered by our Scottish colleagues, Rona Fitzgerald and Ailsa
Mckay7, and our English colleague Diane Elson, when they made a proposal to the Basque
Government in order to start implementing gender budgeting in the Basque Country (1999).
Afterwards, we have mixed those tools with the ones used by the Junta de Andalucia (G+8), and
the capabilities approach that Tindara Addabbo, Antonella Picchio 9, Cristina Carrasco10 and
Paloma de Villota11 experimented in Italy and Spain, which we have considered very inspiring
in our discussions about the links between the role of public policies and the well being of
women and men of our communities, and its expression on GB reports. Besides, we have had
the chance to debate over all of them with our colleague Angela O´Hagan while she was writing
her highly interesting PhD thesis on this subject matter12.

Finally, trying to adequate those tools to our administrations and their requirements to use
something useful for them but specially something simple to fill in, we have elaborated some
simple factsheets which answer a bit to all those inputs in a very basic way (see the report of the
Provincial Council of Gipuzkoa linked before (1)). We would like also to mention that there
seems to have been a kind of path dependency on this methodological process, as the different
administrations wanted to apply a methodology already implemented somewhere (and specially
in Europe) and that fact has somehow limited the way of thinking about introducing innovations
on the methodological part of the initiatives 13.

6
As an example, here is the link to the last report elaborated in Gipuzkoa (I´m sorry that it is only in Basque and
Spanish). http://www4.gipuzkoa.net/ogasuna/presupuestos/2014/Ppto2014/G_IE.pdf
7
We are very grateful to Ailsa to whom we miss so much.
http://www.presupuestoygenero.net/media/fitzgeraldmcKay.pdf
8
http://www.juntadeandalucia.es/economiayhacienda/planif_presup/genero/documentacion/conferencia2/ponencias/Pr
oyecto_G+.pdf
9
http://genderbudgeting.files.wordpress.com/2012/12/gb_a_capabilityapproach.pdf
10
obela.org/system/files/CarrascoC.pdf
11
http://www.inmujer.gob.es/observatorios/observIgualdad/estudiosInformes/docs/017-estrategia.pdf
12
O´Hagan, Angela (2013): A Wheel within a Wheel. Adoption and implementation of Gender Budgeting in the Sub-
State Governments of Scotland, Euskadi, and Andalucia (2000-2009). Phd thesis.
13
Even though paradoxically in some cases they weren´t very happy with any of them.

4
So the first fact to underline about gender budgeting, in my opinion, has been the importance of
having near colleagues 14 who have been working and experimenting with some tools which
have allowed us to adapt them in order to make gender budgeting reports real and somehow
useful. By means of those tools we have had the chance to know what those public
administrations are doing with our financial resources and to try to push forward a
consciousness on civil servants about their potential role on advancing on gender equality.

The experiences we have taken part in have also allowed us to know better the inner dynamics
of the several departments of the public administrations and the need to work together with all
of them under the combined leadership of the Finance Department and of the Equality
Department, in order to push forward the GB initiatives. When they work together they have
enough strength as to make all the rest of the departments get involved in this process and to
work together. That action allows them to know each other better, share information and
programs, what otherwise seems to be rather difficult to attain, and it is not always something
easy to manage. However, that is something that we haven´t always reached, often due to the
resistance of the Finance Department and in other relevant case because of the resistances of the
Gender Equality Department. In the cases where only one of both main departments gets the
main role in the process, the Finance Department is clearly the one with more power and more
influence on the rest of the administration, though if the Equality department doesn´t push
forward the process this weakens it a lot.

These GB initiatives have also been very useful in order to know which are the programs and
projects of the administration which have more relevance for gender equality and to be able to
discuss it with the different people who take part in their development. From that dialogue we
have seen the complexity and the diversity of the different administration departments and thus
the different way we have to tackle them. That means that in some cases they need specific
training related to their specific domains and that it is not easy to get gender equality experts in
all of them. Besides, even when it seems that most people in a department wants to change
power relations between men and women, it is clear that some of the programs that the
administration carries out are very small, partial, developed by third parties (by means of
contracts), so when there is political and social will it is very interesting to analyse where are the
potentials and limits of the local/regional administration job and it is very relevant to choose
well the programs and activities which are drivers of social and economic change in order to
analyse them in depth.

14
The role of the European Gender Budgeting Group´s members has been also very important as we have had the
chance to get more reports and information on ongoing experiences, though I think that we should strengthen this
network.

5
Related to the weaknesses of these initiatives, the first one is the difficulty to change the mind of
many people through this humble tool. Obviously it must be inserted in a global strategy of
change, but when the general strategy is in practice weak, it is very complex to introduce
changes in their minds and practices. As the myth of equality is very much spread, especially in
the collectives with more financial resources, as is the case of many high level staff of the
administration, the changes to be get within the administration are not easy to be implemented if
there isn´t a real presence of feminist people within it and social movements from outside who
demand those changes.

In some of the experiences which haven´t gone very far we have felt resistances from different
collectives within the administration. In some cases, people of the Finance Department think
that the budget is a technical issue, at least what they do with it, and so equality subject matters
are beyond their job; other civil servants feel that they are just following orders, that they cannot
change anything and thus they cannot be creative or push forward any change, and finally some
gender equality experts who work within the administration feel that they don´t know anything
about the budget and then they are afraid of working on a subject where they feel very unsecure
and uncomfortable. Finally in the case of the feminist movement, sometimes we have found
some resistances due to the fact that they have other priorities and have a lack of confidence on
the public administration policies.

Sometimes everybody seems to forget what Debbie Budlender told us some years ago, “Any
budget is intrinsically political. The budget determines from whom the state gets resources, and
to whom and what it allocates them. Each decision is a political one, as is the decision on the
overall size of the budget” (Second Women’s budget,1997).

In order to overcome those resistances, then, awareness rising is always recommended. And in
all the cases that has been the first step of the GB process, the training of the politicians and
technical personnel of the administrations. In most of the experiences we have taken part, we
have felt at the beginning a strong lack of knowledge about “gender mainstreaming” in
theory and in practice, within the political and technical staff of those administrations. Even in
the cases where an Equality Department exists we have found that the personal of that specific
area, experts in gender related subjects, are more used to speak about Positive action than
gender mainstreaming.

The second problem linked to the first one is that the “Equal opportunities action plans” or
whatever name is given to the gender equality planning of that administration is a report that is
kept at the margin of the working of the administration. It is very easily approved in most of the
cases, all the political parties agree with it, (what is rather suspicious) but afterwards it is not a
referential report for the design and implementation of the different policies to be carried out by

6
the administration. And in my opinion that fact is very much linked with the lack of results of
the gender impact assessments of the budget, because when they are elaborated, they are also
located at the margin of the policies, not as a fundamental report for the implementation of
general action. So here it is important to analyse what is the content of the concept of gender
equality used by the different departments of the public administration. We agree with the idea
that gender equality is a contested notion, where there is little consensus among actors from
politics, from civil society and from academia on what actually means and should mean (Verloo
and Lombardo, 2007:22) and that must be tackle directly.

That dispute has a direct link with the way the training sessions on Gender Budgeting for civil
servants are taken and answered afterwards, when it is applied to the real policies that the
different departments of the administrations carry out. And this departure point is very
important, because in our experience the first demand from the civil servants is to have more
training, and then some gender experts give the training highlighting some big issues related to
discrimination and inequalities, but when they are to be applied many people don´t know what
to do as they even think that equality in fact is almost reached in our societies, (specially in
some social classes). Besides, some of the political representatives are women who also believe
somehow in those myths, and there are still many stereotypes which are not easy to change just
with a few sessions. Besides, when people get more power in the administrative scale more
difficult it is to engage them in these training sessions.

Another fact frequently heard is the lack of relevant data//the lack of time to analyse a lot of
data// the lack of crossing data: Once some training has been done, it is usually important to
gather relevant data about the collectives the policies are applied on. In some cases, there is not
enough disaggregated data by sex of the people affected by the policies, and some
administrations take some time to gather it. In the last years with the new regulation about
disaggregated data gathering, part of the problem has been overcome, but still remains the
problem of the sort of data that is relevant. In many cases it is thought that just a disaggregation
by sex gives enough information about the people affected by the policies, and there are many
obstacles to cross that information with age, urban/rural, geographical origin of people, level of
income,...It is also true that many information is required from people by the different
administrations, but in our case there are not the relevant crosses to get relevant data about the
women and men influenced by the policies in some cases, and less about the well-being of that
people.

The resistances due to the inner dynamics of the administrations where each department
works as if it was an independent unit has as a consequence, among other, the lack of
knowledge of the characteristics of the social collectives in an integral way. There is not a sense

7
that the several capabilities of people are intertwined and that they should be analysed in a more
holistic way. We have found that fact very influential when changes want to be applied.

In that sense, many administrations have an incomplete and sometimes very fragmentary
knowledge of the beneficiary collectives of their policies as sometimes they don’t know their
inner composition or the detailed use of the transferred resources. The administration usually
worries about the financial control of the resources to avoid the deviation of them to other
activities, but it doesn’t seem to care so much about the effects of those policies over the
population and the specific needs of the collectives, if there aren´t many complaints about them.

In a few cases, we have found anyway that the data didn´t show the differences between women
and men that we expected, and that reality was rather different to what in general can be true at a
planet level. So that we have felt that we also use some stereotypes about reality and that we
need to contrast our analysis with the real women who live in that place, what is not always easy
to be done. But some data really is very useful to see that changes society is living and the
dynamics of social and economic relations, though it is not easy. Thus, these GB initiatives
show that it is necessary to look further and know also the way the collectives interact with the
administration and detail who gets the benefits and who doesn’t, and the effects of those benefits
on people´s behaviour.

The civil servants are also very conscious of the inner dynamics of the administrative work and
the lack of habits to plan and think about the programmes they implement. Once they have been
established, the force of habits drives them to just go on and implement them in a routine way.
That is why we would like to think about the clues of the behaviour of people who work in the
public administrations, and the role of social movements in changing those routines, as we
should understand the roots of the resistances that usually appear in these experiences, and have
also influenced the Basque process.

8
SOME IDEAS FOR THE DEBATE

1. When we try to analyze the role of governments related to gender disparities, it is important
to know to what extent economics are linked with politics and how the understanding of
economic policies require the comprehension of the political procedures, structures and
dynamics that configure those decision making processes.

a. It is not new to say that political will is a matter of political compromise with
gender equality and social justice, but it means something more than writing it in
the agenda of the governments as a priority.

b. The time logic of many administration reflects that they need results in the short
term and then they don’t very often see the utility of these exercises as they require
at least four years to start giving results and introducing some modifications in the
budgetary planning.

2. One thing is to remark the main facts of reality where problems exist (what is not always
easy, anyway) and another one to make proposals for change and measure the results of
them as a way to improve our lives.

3. How to overcome the resistances: In public administrations structures, habits of thought

and routines are a very powerful element. Very often, it is necessary to overcome not only
the resistance of the finance minister or department, that is a very important hindrance, but
also the resistance of civil servants to apply it because they consider it an extra load of work
(time). Some may also consider it as a way of controlling their work, not of improving it.

a. Thus, training is necessary and sometimes monitoring and very specific

assistance work along the process is also required, and that takes time, but it is not
a sustainable strategy to leave all the process and protagonism in the hands of
outsiders.

b. It should also include training of women’s movements who may contribute to put
the priorities of women into the public budgetary agenda.

c. From the side of the data, it usually takes time to start gathering it in a
disaggregated way, setting a methodology and choosing the indicators which
answer to that specific reality, as well as to cross those indicators which are relevant
for the case study as it may imply changes in the software used by the
administration and it cost money.

4. In summary, these exercises need time, political will and direct implication in the
process. Once the firsts steps have been followed, time-continuity is required to carry on the
analysis of the measures included in the programs and the evaluation of results, together

9
 with the changes to be introduced in the policies when it is considered necessary in a
feedback way. We dare to say that to be effective these practices should become part of
the common and routinized way of planning, implementing and evaluating budgets.

5. The incorporation of the capability approach to this analysis and proposals for change has
also given way in some cases to analyse the budget from a more social and integrated
approach, though we are at the beginning of that process.

6. In general, those main challenges also show the long way Gender Budgeting has in front of
it, if it is to be implemented in depth and be considered a valuable tool of analysis and
improvement of living and working conditions of women and of disadvantaged men. If
gender mainstreaming may help to increase the capabilities of women and thus improve
social well being, and this means also enhancing social participation in the public sphere, it
is essential that the collectives implicated in gender equality take part in these processes in
an active way. Anyway, we don´t know very well how to do it (encourage them) if there
isn´t an effort from both parts, especially from the administration part, but not only. That
might be done by embedding these experiences within social participatory budget
systems.

7. Finally, it is required that governments consider these initiatives as a long-term exercise,

within their medium and long term economic planning. They should become part of the
dynamics of doing budgets and planning policies, as a valid tool, though not obviously the
only one, to improve the knowledge and the options women have to develop their
potentialities and capacities in a free and equalitarian way. However, the risk to be avoid is
that it became a routine tool without any incidence for change.

10
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