Research report: 31
Developing the Equality Measurement Framework: selecting the indicators Sabina Alkire, Francesca Bastagli, Tania Burchardt, David Clark, Holly Holder, Solava Ibrahim, Maria Munoz, Paulina Terrazas Tiffany Tsang and Polly Vizard
Developing the Equality Measurement Framework: selecting the indicators
Project team: Sabina Alkire, Francesca Bastagli, Tania Burchardt, David Clark, Holly Holder, Solava Ibrahim, Maria Munoz, Paulina Terrazas Tiffany Tsang, and Polly Vizard
OPHI
Oxford Poverty & Human Development Initiative
© Equality and Human Rights Commission 2009 First published Summer 2009 ISBN 978-1-84206-186-2
EQUALITY AND HUMAN RIGHTS RESEARCH REPORT SERIES The Equality and Human Rights Commission Research Report Series publishes research carried out for the Commission by commissioned researchers. The views expressed in this report are those of the authors and do not necessarily represent the views of the Commission. The Commission is publishing the report as a contribution to discussion and debate. Please contact the Research team for further information about other Commission research reports, or visit our website: Research Team Equality and Human Rights Commission Arndale House The Arndale Centre Manchester M4 3AQ Email:
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Contents Acknowledgements List of acronyms used in this report Executive summary Summary of indicators and measures
viii xi xiii xx
1.
Introduction 1.1 What is the Equality Measurement Framework? 1.2 Mapping inequality using the Equality Measurement Framework 1.3 The specialist consultation on selection of indicators 1.4 Next steps 1.5 Organisation of this report Appendix 1.1 The list of central and valuable freedoms for adults Appendix 1.2 Specialist consultation participation list
1 1 5 7 10 11 16 19
2.
Selection criteria 2.1 Principles for selecting indicators 2.2 Selection criteria check-list 2.3 The specialist consultation: feedback, suggestions and recommendations on selection criteria
25 25 28
Human rights Summary of recommendations Appendix 3.1 The CESCR monitoring framework Appendix 3.2 The OHCHR indicators framework Appendix 3.3 Questions tabled during the specialist consultation process as a basis for discussion
35 52 54 57
4.
Life Indicator 1 Indicator 2 Indicator 3 Indicator 4 Recommendations
63 64 68 74 76 83
5.
Health Indicator 1 Indicator 2 Indicator 3 Indicator 4 Indicator 5 Recommendations
85 88 94 96 113 118 119
6.
Physical security Indicator 1 Indicator 2 Indicator 3 Indicator 4 Recommendations
121 123 140 146 151 156
3
i
32
60
Appendix 6.1 Definitions of domestic violence and domestic abuse
158
7.
Legal security Indicator 1 Indicator 2 Indicator 3 Indicator 4 Recommendations
161 163 189 201 208 212
8.
Education and learning Indicator 1 Indicator 2 Indicator 3 Indicator 4 Indicator 5 Recommendations
215 216 223 228 232 234 237
9.
Standard of living Indicator 1 Indicator 2 Indicator 3 Indicator 4 Indicator 5 Recommendations
240 242 247 257 265 275 277
10.
Productive and valued activities Indicator 1 Indicator 2 Indicator 3 Indicator 4 Indicator 5 Recommendations
282 284 287 292 299 302 305
11.
Individual, family and social life Indicator 1 Indicator 2 Indicator 3 Indicator 4 and 5 Recommendations
309 311 316 320 323 325
12.
Identity, expression and self-respect Indicator 1 Indicator 2 Indicator 3 Indicator 4 Indicator 5 Recommendations
328 329 332 336 339 342 344
13.
Participation, influence and voice Indicator 1 Indicator 2
347 349 359 ii
Indicator 3 Indicator 4 Indicator 5 Recommendations
363 368 374 374
14.
International context
377
15.
Conclusions and recommendations: GB and England 15.1 The process of selecting indicators 15.2 Data availability 15.3 Disaggregation of the indicators by equality characteristics 15.4 Population coverage of the indicators 15.5 Geographical coverage of the indicators 15.6 Presentation and interpretation of data 15.7 Continuing development of other components of the EMF 15.8 Domain-specific recommendations
403 403 404 407 411 415 416 421 422
16.
Conclusions and recommendations: Scotland 16.1 The process of selecting indicators 16.2 Data availability 16.3 Disaggregation of the indicators by equality characteristics 16.4 Population coverage of the indicators 16.5 Geographical coverage of the indicators 16.6 Presentation and interpretation of data 16.7 Continuing development of other components of the EMF 16.8 Domain-specific recommendations
433 433 434 436 441 444 445 449 450
17.
Conclusions and recommendations: Wales 17.1 The process of selecting indicators 17.2 Data availability 17.3 Disaggregation of the indicators by equality characteristics 17.4 Population coverage of the indicators 17.5 Geographical coverage of the indicators 17.6 Presentation and interpretation of data 17.7 Continuing development of other components of the EMF 17.8 Domain-specific recommendations
458 458 459 462 466 469 470 475 476
References
486
Appendices: A1 Mapping of central and valuable capabilities to indicators and measures A2 Index of data sources and associated measures
504 517
A3 A4 A5
Data gaps table for England (spreadsheet) Data gaps table for Scotland (spreadsheet) Data gaps table for Wales (spreadsheet)
iii
Tables 4.1 4.2 4.3 4.4 4.5 4.6
4.7 4.8 4.9
5.1 5.2 5.3 5.4 5.5 5.6 5.7
6.1 6.2 6.3 6.4 6.5 6.6
7.1
7.2
Measure 1.1 Period life expectancy by age, country and gender, 2005-07 Measure 1.1 (EW) Period life expectancy by age, social class and gender, 2002-05 Measure 2.1 (EW) Offences currently recorded as homicide 2007/8 (recorded crime statistics) Measure 2.1 (EW) Ethnic appearance of currently recorded homicide victims, combined data for 2004/5 to 2006/7 Measure 2.2 (EW) Homicides currently recorded for all victims by relationship of victim to principal suspect, 2007-8 Measure 2.2 (EW) Relationship of currently recorded homicide victims to principal suspect by ethnic appearance of victim, combined data 2004/5 to 2006/7 Measure 4.1 (EW) Deaths in or following police custody Measure 4.2 (EW) Self-inflicted deaths in prison by gender and age Measure 4.2 (EW) Self-inflicted deaths in prison by self-identified ethnicity, gender, age and cause of death, 2007/08 Measure 1.1 (E) Percentage reporting limiting long-standing illness or disability Measure 1.2 (E) Percentage reporting poor mental health (GHQ12 score>2) Measure 2.1 (E) Percentage reporting poor self-reported health (self-reported health bad or very bad) Measure 3.1 (E) Percentage not treated with dignity and respect in healthcare services Measure 3.1 (E) Perceptions of treatment with dignity and respect in healthcare services Measure 3.1 (W) Perceptions of treatment with dignity and respect in healthcare services Measure 3.2 (E) Percentage for whom needs for nutritional support are not satisfied during hospital stay Measure 1.1 (EW) Percentage that are victims of violence Measure 1.3 (EW) Percentage that are victims of sexual violence in the last 12 months Measure 1.4 (EW) Percentage that are victims of domestic violence in the last 12 months Measures 2.1-3,5,6 (EW) Victims of hate crime Measure 4.1 (EW) Percentage feeling very unsafe or unsafe being alone at home and in local area (during the day and after dark) Measure 4.2 (EW) Percentage feeling very worried / worried about (a) physical attack (b) intimidation (c) acquisitive crime against the person and property Measure 1.1 (EW) Estimated number of cases of rape, the number of cases reported to and recorded by the police, and the number of legal cases successfully prosecuted Measure 1.2 (EW) Estimated number of domestic violence and iv
66 67 72 72 72
73 79 80 82
90 93 95 102 104 108 111 126 132 138 144 154
155
181
7.3
7.4 7.5
7.6 7.7 7.8
7.9 7.10 7.11 7.12 7.13
7.14
8.1 8.2 8.3 8.4 8.5 9.1 9.2 9.3
9.4 9.5 9.6
domestic abuse cases, reported to and recorded by the police, and the number of legal cases successfully prosecuted Measure 1.3 (EW) Estimated number of cases of aggravated hate crime, the number of cases reported to and recorded by the police, and the number of legal cases successfully prosecuted Recorded crime statistics on racially and religiously aggravated crime Measure 2.1 (EW)The percentage of the population that are stopped in vehicles or on foot, and that are stopped and searched, in the last year Measure 2.2. (EW) Confidence that CJS meets the needs of victims of crime Measure 2.2. (EW) Confidence that CJS respects the rights of individuals accused of committing a crime and treats them fairly Measure 2.3 (EW) Percentage of adults who have lodged an official complaint against the police in past 12 months who are fairly or very satisfied with the handling of the complaint Measure 3.1 (EW) Total population in police cells Measure 3.1 (EW) Adult population (18 or above) in prison establishments at June 2007 Measure 3.1 (EW) Population in prison establishments under sentence Measure 3.3 (EW) Number of restricted patients detained in hospital at end 2008 Measure 4.1 (EW) Percentage of civil justice problems where respondents gave up or did nothing as opposed to other outcomes, January 2006-January 2009 Measure 4.2 (EW) Percentage of civil justice problems where respondents obtained advice, January 2006-January 2009 Measure 1.1 (E) Percentage with functional literacy and numeracy skills Measure 1.2 (EW) Percentage who can speak, read and write English or Welsh very or fairly well Highest qualification level Measure 3.1Percentage who have participated in formal or informal learning in the last 12 months Measure 5.1(EW) Whether treated with respect Measure 1.2 (EW) Percentage who were a victim of domestic burglary/vandalism in the last 12 months Measure 2.1 Percentage of individuals living in households below 60 per cent of median income, after housing costs, UK Measure 2.1Percentage of individuals living in households below 60 per cent of median income by occupational class, after housing costs, UK Measure 2.1 (S) Percentage of individuals living in households below 60 per cent of median income, after housing costs Measure 2.1 (W) Percentage of individuals living in households below 60 per cent of median income, after housing costs Measure 2.2 Working-age families with or without children, above 60 per cent median income poverty threshold v
185
187 188
191 196 197
200 202 203 204 207
210 211
218 221 226 231 236
246 253
254 254 255 256
9.7 9.8 9.9 9.10 9.11 9.12
10.1 10.2 10.3 10.4 10.5 10.6
11.1 11.2 11.3
12.1 12.2
13.1 13.2 13.3 13.4 13.5 13.6 13.7 13.8
Measure 3.1 (E) People aged 50+ who have difficulties with activities of daily living or instrumental activities of daily living Measure 3.1 (S) People who have some illness or disability and have difficulty with at least one activity Measure 3.2 (S) Parents' satisfaction with childcare Measure 4.1 (S) Average number of 13 problems mentioned by respondents about their local area Measure 4.1 (W) Average number of 6 problems mentioned by respondents about their local area Measure 4.2 (S) Whether or not a car is needed to make a certain journey Measure 1.1 Percentage of working age population employed or self-employed Measure 2.1 Percentage of employees earning less than 60 per cent median hourly earnings, excluding unpaid overtime Measure 2.2 Median hourly earnings of employees, excluding unpaid overtime Measures 3.2 and 3.3 Average prevalence of work-related illness and non-fatal work related injury Measure 4.1 Percentage of workers experiencing unfair treatment, bullying or harassment at work Measure 5.1 People aged 50+ who spend some time caring for another person (grandchild, spouse, or someone else)
259 260 264 268 270 273
286 290 291 297 301 303
Measures 1.1 and 1.2 Availability of support Measure 1.2 (S) Availability of support Measure 2.1 (EW) Percentage of 16-59 year olds that are victims of domestic abuse (emotional and financial) in the last 12 months
314 315
Measure 1.1 (EW) Respondents who say they have some religion Measure 1.1 (EW) Percentage who agree that people with different backgrounds get on well together in the local area
331
Measure 1.1 Percentage who voted in 2005 General Election Measure 1.2 Political representation in Parliament or National Assembly Percentage of councillors belonging to various strand groups (sex; ethnicity/race; disability; age; occupation) Measure 2.1 (EW) percentage who agree they can influence decisions affecting the local area Measure 3.1 (EW) Percentage taking part in political activity in the last 12 months Measure 4.1 (EW) Percentage active in local decision-making body in last 12 months Measure 4.1 (S) Percentage active in local or national group in the last 12 months Measure 4.1 (W) Percentage active in local or national group in the last 3 years
vi
318
335 352 355 356 361 366 370 372 373
14.1 14.2 14.3 14.4
Dimensions of major national household surveys and as presented in search engines Dimensions of deprivation - Syntheses of participatory experiences and EMF dimensions Dimensions and indices of multidimensional poverty and well-being Domains, indicators and OPHI modules
382 386 388 390
Figures 1
The ‘substantive freedom matrix’
6
Boxes 1 2 3 4
Aspects of inequality: Outcomes, process and autonomy The equality measurement framework: Key building blocks Indicators and measures Status of the data tables included in this report
vii
3 4 12 13
Acknowledgements We are very grateful to a large number of people who have helped us with this project. Consultation participants in England, Scotland and Wales, and on-line, gave freely of their time and expertise, and helped enormously to improve the final selection of indicators. Clare Bosley, Jenny Chanfreau, Heather Dean, Juliet McGhee, Helen McGuigan and Claire Wallace assisted with organisation and notetaking at consultation events, without which we would not have had such a complete record of what was discussed. We are very grateful to Giovanni Razzu, who, assisted by Antonino Barbera Mazzola, has expertly steered the project from the Government Equalities Office; including co-ordinating a cross-government Policy and Analysis Group, which has provided constructive scrutiny of the project throughout. David Darton directed the project for the Equality and Human Rights Commission and Liz Speed dealt with project management efficiently and cheerfully. An EHRC/GEO project steering group, including Wayne Vincent and Morag Patrick, also provided valuable input. In addition, our one-to-one discussions with, amongst others, Lorna Brown, Ravi Chand, Patrick Grattan, John Hills, Francesca Klug, Steve Marshall, Peter Matejic, Jessica McQuade, Katherine Rake, Sarah Tipping, Amanda Tuke, Sylvia Walby, Alison Walker and Sue Warner have been immensely beneficial to us. Last but not least, Anita Bardhan-Roy, Tanvi Desai, Jane Dickson, Joe Johannes, Alexander Lembcke, Anna Tamas and Nic Warner provided first-rate administrative, IT and statistical support. Data sources acknowledgements The following datasets were accessed via the UK Data Archive at Essex University during the course of the project. We are very grateful to the Archive and to the original collectors and depositors for making these data available. However, neither the Archive nor the original collectors or depositors of the data bear any responsibility for the analyses or interpretations presented in this report. British Crime Survey SN 33174 Deposited by Home Office, Research, Development and Statistics Directorate. Material from Crown copyright records made available through the Home Office and the UK Data Archive has been used by permission of the Controller of Her Majesty's Stationery Office and the Queen's Printer for Scotland. British Household Panel Survey SN 5151 Deposited by University of Essex, Institute for Social and Economic Research. Copyright: ISER.
viii
Citizenship Survey SN 5739 Deposited by Communities and Local Government. Crown copyright material is reproduced with the permission of the Controller of HMSO and the Queen’s Printer for Scotland. English Longitudinal Study of Ageing SN 5050 Deposited by National Centre for Social Research. The data were made available through the UK Data Archive (UKDA). ELSA was developed by a team of researchers based at the National Centre for Social Research, University College London and the Institute for Fiscal Studies. The data were collected by the National Centre for Social Research. The funding is provided by the National Institute of Ageing in the United States, and a consortium of UK government departments coordinated by the Office for National Statistics. The developers and funders of ELSA and the Archive do not bear any responsibility for the analyses or interpretations presented here. Family Resources Survey SN 6079 (group 33283) Deposited by Department for Work and Pensions. Crown copyright material is reproduced with the permission of the Controller of HMSO and the Queen's Printer for Scotland. Health Survey for England SN 6112 Deposited by National Centre for Social Research. Crown copyright material is reproduced with the permission of the Controller of HMSO and the Queen's Printer for Scotland. National Patient Survey Programme (England) SN5167 (group 33348). Deposited by Healthcare Commission. Quarterly Labour Force Survey SN 5851 (group 33246) Deposited by Office for National Statistics, Social and Vital Statistics Division. Crown copyright material is reproduced with the permission of the Controller of HMSO and the Queen's Printer for Scotland. Scottish Crime and Victimisation Survey SN 5784 Deposited by Scottish Executive. Crown copyright material is reproduced with the permission of the Controller of HMSO and the Queen's Printer for Scotland. Scottish Household Survey SN 5608 Deposited by Scottish Executive. Crown copyright material is reproduced with the permission of the Controller of HMSO and the Queen's Printer for Scotland. ix
The Living in Wales Survey was supplied by the Local Government Data Unit (Wales). We are very grateful to the Unit and to the original collectors and depositors for making these data available. However, neither the Unit nor the original collectors or depositors of the data bear any responsibility for the analyses or interpretations presented in this report.
x
List of acronyms used in this report ACPO ADR AHC ANOVA APACS APS ASHE BCS BERR BES BHC BHPS BME CASE CESCR COPFS CPS CRC CS CVD DEFRA DoH DV DWP EHRC ELSA EMF ENCAMS EQ5D FRS FTW GB GEO GHQ GHS HBAI HESA HLSES HMIP HO HRA HSE ICESCR IHS LFS LGB LIW LOS
Association of Chief Police Officers Annual Data Requirement After housing costs Analysis of Variance Assessments of Policing and Community Safety Annual Population Survey Annual Survey of Hours and Earnings British Crime Survey Business, Enterprise and Regulatory Reform British Election Study Before housing costs British Household Panel Survey Black and Minority Ethnic Centre for Analysis of Social Exclusion UN Committee on Economic, Social and Cultural Rights Crown Office and Procurator Fiscal Service Crown Prosecution Service Convention on the Rights of the Child Citizenship Survey Cardio-vascular disease Department for Environment, Food and Rural Affairs Department of Health Domestic Violence Department for Work and Pensions Equality and Human Rights Commission English Longitudinal Study of Ageing Equality Measurement Framework Environmental Campaigns Instrument to measure health outcomes Family Resources Survey Fair Treatment at Work survey Great Britain Government Equalities Office General Health Questionnaire General Household Survey Households Below Average Income Higher Education Statistics Authority Higher Level Summary of Equality Statistics Her Majesty’s Inspectorate of Prisons Home Office Human Rights Act Health and Safety Executive International Convenant on Economic, Social and Cultural Rights Integrated Household Survey Labour Force Survey Lesbian, Gay, Bisexual Living in Wales Survey Life Opportunities Survey xi
LSC LSE MoJ MP MQPL MSP NCTT NGOs NICL NMIS NOMs NPIA NPM NSIR ODI OECD OHCHR ONS OPCAT OPHI OPM PF prechr PSA PSE SCJS SCVS SEPA SHS SPI SPR SRAs SSAS UKHLS WAG WAVES WHO
Learning and Skills Council London School of Economics Ministry of Justice Member of Parliament (Westminster) Measuring the Quality of Prison Life team Member of Scottish Parliament National Community Tension Team Non-Governmental Organisations National Incident Category List National Management Information Systems National Offender Management Service National Police Improvement Agency National Preventive Mechanism National Standard for Incident Reporting Office for Disability Issues Organisation of Economic Cooperation and Development Office of the High Commissioner for Human Rights Office for National Statistics Optical Protocol to the Convention against Torture Oxford Poverty and Human Development Initiative Office for Public Management Procurator Fiscal Programme of Research on Equality, Capability and Human Rights Public Service Agreement Poverty and Social Exclusion survey Scottish Crime and Justice Survey Scottish Crime and Victimisation Survey Scottish Environmental Protection Agency Scottish Household Survey Statutory Performance Indicator Standard Prosecution Reporting (document) Specialist Reporting Agencies Scottish Social Attitudes Survey UK Household Longitudinal Survey Welsh Assembly Government Witness and Victim Experience Survey World Health Organisation
xii
