Dr Sue Williamson

Submission:

Independent Review of the APS
3REDACTED

Dr Sue Williamson: UNSW, Canberra: s.williamson@adfa.edu.au

Dr Linda Colley: CQUniversity: l.colley@cqu.edu.au

Ms Natalie Cartwright: UNSW, Canberra: n.cartwright@adfa.edu.au
Contents

1. Introduction ....................................................................................................................... 3
2. Gender equality and APS reform – background and context ............................................. 3
3. The need for gender analysis of government policy .......................................................... 4
4. Need for complementary reforms ..................................................................................... 6
5. Findings from recent research ........................................................................................... 7
6. Innovations and best practice to progress gender equity in the public sector .................. 9
7. Bargaining and gender equality........................................................................................ 11
8. Conclusion ........................................................................................................................ 12
9. Attachments ..................................................................................................................... 12

About the authors .................................................................................................................... 13

Endnotes .................................................................................................................................. 14

2
1. Introduction

We welcome the opportunity to make a submission to the Independent Review of the

Australian Public Service (APS) (the Review). The analysis and comments in this document

reflect the knowledge and considered opinions of the authors, and may not be representative of

our respective universities.
UNSW and CQUniversity acknowledge the critical importance of the Review in ensuring that

the public sector is equipped to serve government and the Australian community, both now and

into the future, including through examining the capability, culture and operating model of the

APS.
We contend however, that while the Australian Government’s review of the APS is significant

for the sector’s future direction, it omits a crucial component in ensuring that the APS is ‘an

employer of choice’1 and ‘exemplar of innovation and adaptability’ 2 — that of ensuring that

gender equality principles, as part of broader gender mainstreaming,3 both drive, and are

embedded in, the Review program of reform.
We note that this Review (and its particular aims to position the sector to meet the increasingly

complex challenges of a globalised world) is the latest development in 40 years of sector reform

to shape and refine the structure, approach and operations of the APS. From our perspective,
the most significant of reforms implemented by the sector, which have had a transformative

impact and whose legacy are key to consider for this review process, are those that increased

women’s access to APS jobs. These include the extensive equal opportunity and diversity

policies that were first implemented across agencies in the 1980s, along with the recent

Australian Public Service Gender Equality Strategy (2016).4

Our submission provides background and context on gender equality reforms that have

critically driven APS performance and productivity, their progress across the sector and

relevance for this review process (Section 2), the need for further gender analysis of

government policy (Section 3), and the necessity for whole of government complementarity

and interlinkages between reforms (Section 4). We also include critical pieces of research that

provide additional evidence on the centrality of gender equity in ensuring a robust, innovative

and forward looking public sector (Section 5), innovations and best practices examples
(Section 6); and analysis on the role of bargaining frameworks in progressing gender equality
(Section 7).
We note that this submission process is, to date, the only mechanism for engagement with the

review. We welcome opportunities for further exchange and we further advocate that the panel

consultation process include engagement with the Australian Government Minister for

Women, the Hon. Kelly O’Dwyer, MP, and the Office for Women.

2. Gender equality and APS reform – background and context

The public sectors are major employers of women, and have been amongst the leaders in

providing gender equitable terms and conditions of employment for women and have long been

seen to be employers of choice5. The development and implementation of gender equity policy

over the past four decades has proactively drawn on the skills and capabilities of all employees,
whilst better representing the diversity of the Australian community.

In the 1970s, less than one in three (28 per cent) of APS employees were women6, by 2018, in

large part due to the reforms from prior decades, that number had more than doubled to 59 per

cent.7 Women are also increasingly represented at all levels across agencies and have been at

3
the forefront of leading policy reform, however, despite the extensive policy frameworks now

in place, women are still more likely to be concentrated in lower level roles. In 2017, less than

half of EL2 and SES positions were held by women (45 per cent and 44 per cent, respectively).8

Women are overwhelmingly represented at the lower levels, with close to 70 per cent of APS4

employees and 60 per cent of APS5 employees being women.9

In addition, women are more likely to be employed in lower level, lower paid and part-time

roles, which are less likely to lead to longer term career pathways.10 Moreover, the occupational

split between men and women in public service occupation classifications is marked. In 2017,
women were concentrated in Health (82 per cent), Service Delivery (74 per cent) and

Communications and Marketing (71 per cent). By contrast, male APS professionals were more

likely to be found in scientific and technical areas (Engineering and Technical at 84 per cent,
Science at 77 per cent and Information and Communication Technologies at 65 per cent).11

Primarily, for these reasons, and as part of an international G20 initiative in 2016, the APS

released Balancing the Future: The Australian Public Service Gender Equality Strategy 2016-
19 (the APS GES).12 The aim of the APS GES is to achieve cultural change across the APS

through harnessing gender equality initiatives to increase agency-wide performance and

productivity.13 In this core aim, the strategy is aligned with the APS Review’s key aim of

driving innovation and productivity in the economy. 14

We applaud agencies in their efforts to definitively enshrine the GES’ principles and aims, and

recommend that the initial work thus far undertaken with the APS GES progress beyond the

life of the strategy, including strengthening gender focused synergies across departments. Such

progress is critical, as is evaluating the legacy of the gender equality initiatives rolled out to

date. Despite the considerable good will from government and agencies, true gender equality

has not yet been achieved, which impacts upon the APS’ ability to establish itself as a

competitive employer of choice and attractor of the best talent.
As detailed in this submission, our research has further found a sectoral legacy of policy reform

and implementation which has not always aligned with the intent and aims of parallel reforms,
(for further detail, see Section 4 – Need for complementary reforms). It is crucial in

considering new tranches of reform to embed gender equality at the core and to specifically

recognise the critical role that gender equality principles play in embedding and

operationalising forward-focused government policy.

3. The need for gender analysis of government policy

The APS has a solid tradition of conducting gender-focused analyses – both within the sector

and beyond, encompassing the totality of government policy platforms. Within the sector, for

close to two decades, and under the remit of the Public Service Act 1999, the Australian Public

Service Commission (APSC) has published the State of the Service Reports. These have

documented the considerable changes experienced by the sector over the past 20 years, and

have further tracked the progress (or progress stalls) of women throughout an era marked by

greater accountability and performance improvements.

This detailed picture has been built upon through the Australian Bureau of Statistics collection

and dissemination of gender-focused data including APS specific information, through its

biannual Gender Indicators, Australia series.15 The Workplace Gender Equality Agency

additionally publishes the landmark annual Gender Equity Insight Series, which focuses on the

gender pay gap and the dynamics that drive this across industries, informing a national

conversation on the inequities between men and women’s pay. 16

4
This information has been a critical resource for both departments and researchers to draw upon

in applying a gender lens to public policy – with the aim of achieving more equitable outcomes

for both women and men – and for eliminating any unintended policy outcomes which may

adversely affect women.

The Australian Human Rights Commission (AHRC) emphasises the necessity of ensuring a

gender perspective is applied across public policy for the ‘very simple reason that ‘[a]ll policies

impact on men’s and women’s lives in one way or another’.17 These considerations have been

critical in assisting to redress major inequities, such as the undervaluation of work traditionally

undertaken by women.18 A gender lens applied to government policy has additionally resulted

in milestone initiatives focused on eliminating family violence, improving access to affordable

childcare, and alleviating and redressing systemic disadvantage and discrimination experienced

by Indigenous women, rural and remote women and women with disability.

In a global context, Australia’s leadership in gender equality policies and the application of

gender analysis to government policy, is mixed. The OECD notes that across member

countries, Australia is a ‘mid-range performer’ across most gender equality outcomes.19

Analysis undertaken in 2017 notes that despite making significant gains in educational

attainment, women continue to earn less than men with a gender pay gap for full-time working

women of 87 cents to every male full-time employee’s dollar (the OECD average is 85.7

cents).20

Australia is additionally marked by a high share of working women engaged in part-time

employment, with part-time work ‘entrenched’ in the Australian economy. Notably, Australia

has the third highest rate of part-time work amongst OECD countries, with levels of close to

40 per cent remaining constant for the last decade.21 This distinctive element of Australia’s

workforce reflects the challenges that women experience in combining caring responsibilities

with full-time work, and gendered expectations, often reflected within organisational culture,
that they continue to do so.

More encouragingly, the OECD commends Australia for leading initiatives on prioritising

violence against women through the ‘National Plan to Reduce Violence Against Women and

their Children’ with its strong focus on prevention and education; the Workplace Gender

Equality Agency’s engagement with business to help close the gender wage gap, and work/life

balance initiatives which include both men and women. 22 However, Australia lags behind other

nations in facilitating initiatives focused on enhancing women’s public sector representation

and impact on decision making. These include reforms such as senior and middle management

accountability for gender diversity within agencies, currently being pioneered by Germany and

Spain, and policies to ensure gender balance in the public service, as being initiated in Canada,
Germany, Iceland and Japan.23

In its consideration of policy mechanisms that the public sector can employ to foster an

inclusive sector that drives policy informed by gender equality considerations, the OECD has

recommended that national agencies: gather and use reliable evidence disaggregated by gender

for informed policy decisions; establish strong and gender-diverse public institutions and

mechanisms to ensure accountability and sustainability of gender initiatives and strengthen

tools for evidence-based policy making, including gender impact assessments.24 Australia was

once a leader in analysing the impact of federal Budgets on women, however, the annual

Women’s Budget Statement is no longer produced by the Australian Government, and

researchers and activists have called for a gender analysis of the Budget to be reintroduced.25

5
Gender analysis of the APS’ structure and functions has been vital in pinpointing areas of

systemic and operational inequities including recruitment and selection and unconscious bias,
career development and flexible work arrangements. 26 As noted, these elements of entrenched

disadvantage, which impact upon women particularly, have detracted from the APS vision to

be an employer of choice with opportunities for all to utilise their talent to achieve inclusive

growth, enhanced productivity and international leadership. The applicability of gender

analysis principles and practices in informing the Review’s areas of scope is clear.

4. Need for complementary reforms

In 2015 and 2016 the Australian Government released two major policy documents: the APS

GES and Unlocking Potential: the Australian Public Service Workforce Management

Contestability Review (Unlocking Potential). Both documents have been informed by an

identified need for the APS to: facilitate high performance, boost productivity, attract talent

and position agency cultures to meet changing needs now and into the future. They

overarchingly accord with the outlined scope areas of the APS Review. Each report has a series

of forward-focused priority areas and actions for change (Table 1).

Table 1: Comparison of priority action areas for the APS GES and Unlocking Potential

Balancing the Future: The Australian Unlocking Potential: the Australian
Public Service Gender Equality Strategy Public Service Workforce Management
2016-19 Contestability Review
Actions Priority areas for change
Driving a supportive and enabling Optimising talent and driving high
workplace culture performance
Achieving gender equality in APS Attracting and recruiting
leadership
Increasing take-up of flexible work Improving flexibility (which extends beyond
arrangements by both men and women flexible working arrangements to include
flexible staffing arrangements and flexible
organisations)

Working innovatively to embed gender Re-designing human resource (HR) delivery
equality in employment practices models and capabilities

Measuring and evaluating actions

Unlocking Potential recommends reforms to progress gender equality, such as ensuring that

job advertisements highlight the availability of flexible working arrangements. From a gender

analysis perspective, however, the table highlights possible tensions between the two

documents’ aims and areas for action. Considering that these two documents were released at

approximately the same time, and therefore likely to have been developed simultaneously, they

are not always aligned, representing a missed opportunity for a gender analysis to be applied

to Unlocking Potential to ensure the best outcomes for women, men and APS agencies.

For example, Unlocking Potential includes a large focus on the area of optimising and

managing talent, noting that the APS is ‘not sufficiently developing talent to prepare the

business for the future’27. Strategies for bolstering the APS talent pool however, include a large

6
focus on quickly drawing people from business for discrete and emerging priorities. Our

research has found women working part-time do not consider that they are as ‘visible’ as those

who work full-time, and therefore are less likely to be chosen for high profile project teams.
As one research participant stated: “visibility is the new selection criteria”.28 Given the

emphasis that Unlocking Potential placed on recruiting talent, the lack of focus on women (and

additional diversity population groups) and calibrated strategies to attract and retain an all-
inclusive population profile, in a competitive environment, is significant.

Policy synergy and alignment can be aided through mechanisms which monitor and evaluate

outcomes. This can be done formally through embedding measurement and evaluation

strategies within departments and cross departmentally. At a more informal level, cross-
departmental networks can be established where agency staff can initiate conversations and

learn from each other.29

As noted in Table 1, the GES includes the priority action of ‘Measuring and evaluating actions.’
This action includes agencies’ monitoring their progress against actions undertaken against the

strategy, adjusting their approach as required and contributing data and reporting on gender

equality progress to the APSC.30 While we support these measures, we further advocate that to

strengthen and embed institutional change, governance measures need to be centred on holding

agencies to account in implementing the APS GES, that outcomes are rigorously measured and

that agencies are adequately resourced to implement initiatives. 31 We also urge that reports on

progress, including supporting data, be undertaken regularly – as may be happening – and be

publicly available.

These actions will both assist cross-departmental efforts in implementing their agency-specific

strategies, while this information can be further benchmarked against other aligned initiatives

focusing on reforming APS culture and operational practice. Significantly, we have not been

able to determine the implementation progress and outcomes following the launch of

Unlocking Potential, and progress against the APS GES is also not easily publicly available.

These issues warrant further consideration as the Review’s six prospective areas of scope are

further developed.

5. Findings from recent research

Findings from a study of 3 APS agencies

We have conducted extensive research into workplace gender equity in Australian public

sectors, including the APS. In 2016, Dr Williamson evaluated the state of gender equity across

three APS agencies and found a high level of commitment to gender equity, some role

modelling of gender equitable practices by senior management, and pockets of innovation, such

as the introduction of ‘all roles flex’.
Dr Williamson also found, however, long-standing and persistent issues, which included

occupational segregation, limited career pathways for some women, the need for men and

women to be able to more effectively balance work and caring responsibilities, and a general

sense that gender has been ‘done’ in the APS 32. Emerging issues were also identified, including

that while managers and APS employees strongly believed in the merit principle, that limited

consideration was given to how merit is achieved and constructed. This finding was strongly

reinforced in subsequent research conducted across four state public sector jurisdictions,

7
discussed below. Given the centrality of the merit principle to public sector, the focus on merit

in Unlocking Potential and the likely focus on merit in the current review, this is an important

area which requires a gender analysis as any reforms and developed and implemented. Further

research findings and recommendations from the study of three APS agencies are at

Attachment 1 Embedding Gender Equality in the Australian Public Service: Changing

practices, changing cultures.

Findings from study of an APS agency

We refer you to the findings in our article entitled “Gender in the Australian Public Service:
Doing, undoing, redoing or done?”, just published in the Australian Journal of Public

Administration (Attachment 2). This research draws from interviews and experiences of staff

in one APS agency – this particular agency being one of the three participating agencies in the

research study mentioned above. In the article the authors considered how gendered norms and

practices are replicated and reinforced, and whether the APS GES is likely to disrupt these

norms.
We found many good practices around knowledge of policies, and leadership support for

gender equality. We acknowledged that the APS GES was enabling conversations around

gender equality to occur33, and is possibly the most significant development since the

introduction of EEO policies and programs in the 1980s. However, we found that APS HR

practices are extremely resistant to change and are path dependent. Our study highlights

pockets of continued resistance on the ground to flexible working. Further, perceptions about

part-time work sometimes reinforced and entrenched gender differences, and it was unlikely

that men would opt to choose to work flexibly until senior role models are in place and working

flexibly is not seen as being inimical to career progress.
We concluded that while the APS GES has the potential to progress gender equality, that

complementary approaches also need to be adopted, which include gender mainstreaming and

strategic interventions to disrupt the replication of gendered norms, within a change

management framework. Finally, while our focus has been on gender, there is scope for more

focus on intersectionalities of gender and age, race, and other demographic categories.

Findings from our ANZSOG study of four jurisdictions

We have conducted research with eight public sector agencies in four jurisdictions on the role

of middle managers in progressing gender equity. A report based on these research findings
(funded by the jurisdictions and the Australia and New Zealand School of Government): The

Role of Middle Managers in Progressing Gender Equity in the Public Sector, will become

publicly available on 1 August 2018 (Attachment 3).
We found:
• Senior executives and the majority of middle managers have a strong, and demonstrated
commitment to progressing gender equity in their agencies,
• The knowledge of middle managers on gender equity policies in their agency is variable
and dependent on a range of factors, including the existence of education and awareness
activities undertaken by their agencies and the opportunity to discuss the policies and
gender equity strategies. Some contrasted this with the more active commitment and
resourcing of White Ribbon and domestic violence awareness training,

8
• Managers welcomed the opportunity to discuss how to implement gender equity in their
daily working practices and requested that senior leaders facilitate such conversations,
• Managers are also largely committed to having these conversations with their staff,
• Many managers are committed to enabling employees to work flexibly, but also seek
greater support on how to manage requests and how to manage employee performance,
• A high level of awareness on how unconscious bias manifests in recruitment and selection
processes was evident in most of the organisations. Managers are committed to addressing
the operation of biases, but would also benefit from further support in this area,
• Most managers had a rudimentary understanding of how the merit principle operates in
relation to gender equity. While all were committed to employing ‘the best person for the
job’, conceptions of how merit is constructed and how merit and gender intersect were at a
low level; and
• Within each agency, we identified examples of innovative good practices to progress
gender equity, spanning the employment cycle.
The report includes recommendations around some key action areas to:
• Increase managers’ and employees’ understanding of gender equity in workplace practices,
through central education and information campaigns, more regular conversations around
gender equity and how it can be progressed.
• Challenge and change recruitment and selection processes, to address hidden biases and
provide career development opportunities to overcome vertical and horizontal segregation.
This would include examination of the intersection of unconscious bias and merit, and
introduction of bias disruptors. This could include conversations around the construction
of merit and the objectivity of the merit principle, and the use of performance and
development frameworks to advance the accumulation of merit for men and women. It also
includes gender equity targets and monitoring of progress towards these targets.
• Increase capacity for managers to manage flexible working arrangements and increase
usage by men and women. This might include guidance to mangers on how to consider
requests. It also includes review of part-time work, from considering whether work
allocations to ensure equal quality work for part-time and full-time staff, to ensuring part-
time staff have opportunities to relieve in higher level roles, and generally enable part-time
employees to accumulate experience and merit necessary for career progress. 34

While this research is specific to state public sector jurisdictions, the findings reiterate many

of those found in our previous research in the APS. Newer findings in this report are also likely

to be applicable to the APS.

6. Innovations and best practice to progress gender equity in the public
   sector

As noted in this Submission (Section 2) globally, public sectors are both significant employers

of women, while being predominantly viewed as employers of choice. We refer you to the

publication: Women, Government and Policy Making in OECD Countries: Fostering Diversity

for Inclusive Growth (OECD, 2014) which showcases leading examples of international best

9
practice in embedding gender equity principles and gender mainstreaming across all tiers of

public life.
In Australia, our research has identified challenges in embedding gender equity principles in

agencies (see Section 5), but has also uncovered an overall deep commitment from the highest

levels of departmental management to progress gender equality and has identified many

examples of innovation and best practice.
Across APS agencies, we found:
• Managers are committed to tackling unconscious biases. The managers we interviewed
showed high level understanding about the existence and operation of unconscious biases,
and were supportive of agency steps to mitigate those biases.
• Career development strategies are varied and innovative. We found many positive
examples of agencies innovating to provide career development opportunities to staff
including mentoring and sponsorship; leadership training and secondment opportunities
and role sharing between employees at different classification levels.
• Workplace flexibility is supported and valued. Managers expressed support for flexible
work arrangements, and sought to create a culture that embraced flexibility, whilst at the
same time highlighting associated challenges.
• Men need—and want—to work flexibly. Employees strongly supported increasing the
uptake of flexible work among men.
• Agencies are modelling equality from the top down with senior leadership showing strong
commitment to creating inclusive, flexible organisational cultures that foster gender
equality; and agencies are further progressing equality from the ‘bottom up’ with the
establishment of gender and women’s networks that build grassroots support for gender
equity across departments.35

Amongst individual agencies, particular strategies are exemplifying leading gender equality

practices.
The Department of Communication and the Arts’ gender equality plan is outstanding and

incorporates mechanisms to ensure gender equality issues are everyone’s responsibility. One

of this department’s actions is to develop leaders’ understanding of, and commitment to, gender

equality – an action with transformative potential.
The Department of the Prime Minister and Cabinet’s (PM&C) strategy is also a model for

other APS agencies. It goes beyond implementing specific initiatives to progress gender

equality for different groups of women, including those from culturally and linguistically

diverse backgrounds and those with disability. Such a move is at the forefront of implementing

diversity initiatives.
The Department of Social Services also recognises the importance of accommodating and

valuing people’s multiple identities. One initiative focuses on increasing the numbers of male

leaders with disability. In a department which is heavily female-dominated, breaking down

barriers for male employees — particularly those from diversity target groups — is another

form of securing gender equality.
The Department of Employment’s strategy provides a good example of designing gender

equality initiatives to have a cumulative impact. For example, in the first year the department

10
stated it would trial ‘all roles flex’, or a system where flexible working is the default working

arrangement. In the second and third years, this initiative will be embedded within the

department through sharing success stories and the development of training modules to support

the roll-out of all roles flex.
Several of the departments (including the Department of Industry and Innovation, the

Department of Social Services, Treasury and the Department of Employment) have

committed to implementing an all roles flex trial, and PM&C has already undertaken such a

trial.36

We further commend the APSC for the establishment in 2017 of the annual APS Diversity and

Gender Equality Awards to recognise outstanding contributions to workplace diversity across

the APS, with the Gender Equality Award presented to the Department of Foreign Affairs

and Trade for the implementation of the Women in Leadership strategy. The strategy has
“driven deep cultural change in the department…opened up new ways of working to improve

gender equality [to] help staff reach their full potential and enhance productivity”.37

Across state and territory jurisdictions, our research additionally uncovered leading examples

of agencies concretely demonstrating their understanding of, and commitment to embedding

gender equity practice and gender inclusive culture. Amongst the many examples of good

practice we found:
• A high recognition of the need for change with departmental wide conversations
commenced,
• A good understanding of gender equity principles supported through innovative
recruitment and selection practices,
• Unconscious bias training in place and good career development processes, and
• Sound flexible working provisions available, developed by consultation amongst teams,
rather than individual employees and their manager.
Informed by the exemplary work being undertaken by jurisdictions and to further aid

departments in their efforts towards further progressing gender equity, we have compiled a

leading practice guide to assist Middle Managers in embedding gender equity throughout their

teams and agencies (Attachment 4: Middle Managers’ Role in Progressing Gender Equity: A

leading practice guide)
The guide aims to build upon jurisdiction-wide gender equity implementation through

providing a series of actions middle mangers can consider in creating a culture of awareness

and change that progresses gender equity, applies human resource change management

principles, facilitates career development and employs innovative use of technology to support

flexible working arrangements.

7. Bargaining and gender equality

Reforms to bargaining frameworks may have impeded the progress of gender equality in the

APS. Many have argued that decentralisation disproportionately worsened conditions for

women and vulnerable employees, as women were in a weaker bargaining position due to

occupational segregation and the undervaluing of their work38. Issues predominantly affecting

women may also not be included on bargaining agendas and negotiated39. Within the APS,

11
however, gender equitable provisions have been gained through successive waves of

bargaining, until relatively recently40.
The APS centralised bargaining frameworks may have limited the extent to which gender

equality can be achieved. Unlike the private sector, where unions and employers are able to

negotiate for terms and conditions of employment which pertain to the employment

relationship, APS agencies are only permitted to negotiate according to government policy,
where the quantum of wage rises is capped, as are selected employment conditions. From 2014,
the successive APS Bargaining Frameworks have stipulated that agencies were not to bargain

for increases to paid parental leave, in anticipation of an expected increased quantum in 201541.
Even though this increase did not occur, in 2015 the government maintained that conditions of

employment could only be increased in exceptional circumstances and with Ministerial

approval. The only way, then for employees to have increased employment conditions is

through HR policy. Researchers have highlighted that the most effective way to progress

workplace gender equality is through a ‘tripod’ of legislation, bargaining and HR policy42.
Relying solely on unregulated HR policy has the potential to impede gender equality.

8. Conclusion

The Australian Government is to be commended for initiating an independent review of the

APS’ culture, capabilities and operating model, acknowledging the critical role the APS plays,
and will continue to play, in an increasingly complex, competitive world. We noted that the

APS remains committed to the goal of remaining an ‘Employer of Choice’ and our analysis

and commentary have focused on what that might mean – in an era increasingly marked by

principles of equality, diversity and the imperative to attract the best talent.
As we have outlined, however, it is clear that as the APS positions itself to lead in the future;
gender equality principles which intersect at all levels in agencies, and across agencies, will

play a critical role in ensuring a competitive edge on the global stage in the arenas of the

economy, politics and society. In recognition of this we have further advocated that public

sector reform incorporates at its core, principles of complementarity and alignment,
underscored by rigorous measurement and review and public accountability.
Our research further amplifies the need to ensure that gender equality principles frame and

inform the Reviews’ next steps. As the OECD summarises, fully leveraging public sector

women’s skills and leadership is essential to maximise a nation’s competitiveness “since

diverse leadership is more likely to find innovative solutions to foster inclusive growth.” 43

We look forward to the next stages of the Review process.

9. Attachments

Attachments follow.

12
About the authors

Dr Sue Williamson

Sue Williamson is a Senior Lecturer in Human Resource Management at the University of New

South Wales, Canberra. As a member of the Public Service Research Group, Sue’s scholarship

focuses on how organisations can create and sustain gender equitable and inclusive cultures,
with a particular focus on the public sector. Her work has been published widely in academic

journals and media outlets and Sue regularly shares her findings with public sector audiences.
In 2017, Sue was awarded a highly competitive grant from the Australia and New Zealand

School of Government (ANZSOG) to lead the research project which culminated in the report:
The Role of Middle Managers in Progressing Gender Equity in the Public Sector. Sue was also

named a 2017 Telstra Business Women’s Award (Public Sector and Academia) Finalist for the

ACT. Sue is also the President of the Association of Industrial Relations Academics of

Australia and New Zealand.

Dr Linda Colley

Linda Colley is a Discipline Leader in Human Resource Management at CQUniversity. Her

current research examines: public sector employment themes of merit and tenure; gender equity

in pay, progression and superannuation; affirmative action in political parties; and senior

executives in public services. She has received funding from the Australian Research Council

and ANZSOG, and her industry partners include state governments, trade unions and

superannuation funds. Linda is active in national and international research networks, and her

other roles include Vice-President of the International Research Society for Public

Management (IRSPM) and Chair of the Queensland Government Work Health and Safety

Board.

Ms Natalie Cartwright

Natalie Cartwright is a Research and Projects Officer at UNSW Canberra and has two decades’
experience as a research and strategic policy manager across Commonwealth and state

government departments. Milestones include: management of research focusing on women’s

economic security, the National Housing Supply Council and National Disability Insurance

Scheme research programs and delivery of the International Education Sector Strategy for

Victoria. Natalie has received awards from both federal and state government in recognition of

her contributions to government policy outcomes including an Achievement Award (2015)
from the Department of Economic Development, Jobs, Transport and Resources (Victoria).
Natalie’s research interests include women’s social and economic wellbeing across the life

course, and the intersections of women, class and organisational culture.

13
Endnotes

1
‘Employer of choice’ as outlined in the Australian Public Service Commission (APSC) State of the Service

Report 2005-06 comprises attributes such as nature of work, capacity to make a difference, strategic policy

development and service delivery, underpinning values framework, workplace flexibility and access to

developmental opportunities.
2
Australian Public Service Commission (2018) Independent Review of the Australian Public Service,
Commonwealth of Australia, Canberra, https://www.apsreview.gov.au/about.
3
As defined by the United Nations Economic and Social Council, gender mainstreaming is ‘…the process of

assessing the implications for women and men of any planned action, including legislation, policies or

programmes, in all areas and at all levels. It is a strategy for making women’s as well as men’s concerns and

experiences an integral dimension of the design, implementation, monitoring and evaluation of policies and

programmes in all political, economic and societal spheres so that women and men benefit equally, and

inequality is not perpetuated.” United Nations (2002) Gender Mainstreaming – An Overview, United Nations,
New York.
4
These include the establishment of the Australian Human Rights Commission (AHRC) Act 1986, to establish

the AHRC to make provision in relation to human rights and in relation to equal opportunity in employment,
https://www.legislation.gov.au/Details/C2017C00143;The Sex Discrimination Act 1984, including

discrimination in employment, https://www.humanrights.gov.au/employers/good-practice-good-business-
factsheets/quick-guide-australian-discrimination-laws; the Equal Employment Opportunity (Commonwealth

Authorities) Act 1987, an Act to require certain Commonwealth authorities to promote equal opportunity in

employment for women and persons in designated groups and for related purposes,
https://www.legislation.gov.au/Details/C2016C00775 and the Workplace Gender Equality Act 2012 which

replaced the Equal Opportunity for Women in the Workplace Act 1999 through strengthened legislation aimed to

improve and promote equality for both women and men in the workplace, https://www.wgea.gov.au/about-
legislation/workplace-gender-equality-act-2012.
5
OECD (2014) Women, Government and Policy Making in OECD Countries: Fostering Diversity for Inclusive

Growth, OECD Publishing, http://dx.doi.org/10.1787/9789264210745-en/; Corby, (2011), ‘Equality in the

Public Sector: The Sky Darkens’, in Working for the State:Employment Relations in the Public Services,
Palgrave Macmillan: Basingstoke.
6
Australian Bureau of Statistics (2001) ‘Women and Government in Australia’ Year Book Australia 2001, cat.
no. 1301.0,
ww.abs.gov.au/ausstats/ABS@.nsf/94713ad445ff1425ca25682000192af2/3067a337a2f2c855ca2569de001fb2dc
!OpenDocument

7 APSC (2018) APS Statistical Bulletin December 2017 https://apsc.govcms.gov.au/glance-0

8 APSC (2018) ibid

9 APSC (2018) APS Statistical Bulletin 2016-17, ‘Figure 5.2: Distribution of men and women across APS levels

as at 30 June 2017’, https://www.apsc.gov.au/employment-gender.
10
Baxter, J. and Chesters, J. (2008) Perceptions of work-family balance: How effective are family-friendly

policies?, Australian Journal of Labour Economics, 14:2, 139–151; Durbin, S. and Tomlinson, J. (2014) Female

part-time managers: Careers, mentors, and role models, Gender, Work & Organization, 21: 4, 308–320; Grant,
L. (2009) Job design and working hours: Key sources of gender inequality, in Yeandle, S. (ed.) Policy for a

Change: Local Labour Market Analysis and Gender Equity, The Policy Press, Bristol.
11
APSC (2018) APS Statistical Bulletin 2016-17 – Data tables, ‘Table 20: All employees: Job family by gender,
30 June 2017, https://www.apsc.gov.au/employment-gender

12
APSC (2018) Balancing the future: The Australian Public Service gender equality strategy 2016-19,
https://www.apsc.gov.au/balancing-future-australian-public-service-gender-equality-strategy-2016-19

13
Williamson, S. ‘Public service begins long journey back to leading on gender equality’, The Conversation, 28

April, 2016, https://theconversation.com/public-service-begins-long-journey-back-to-leading-on-gender-
equality-58504.
14
Australian Public Service Commission (2018) Independent Review of the Australian Public Service,
Commonwealth of Australia, Canberra, https://www.apsreview.gov.au/about.
15
See: Australian Bureau of Statistics (2018) ‘Gender Indicators, Australia’, cat. no. 4125.0

http://www.abs.gov.au/ausstats/abs@.nsf/Lookup/by%20Subject/4125.0~Sep%202017~Main%20Features~De

mocracy,%20Governance%20and%20Citizenship~9

16
See: Workplace Gender Equality Agency (2018) Gender Equity Insights 2018: Inside Australia’s Gender Pay

Gap, https://www.wgea.gov.au/sites/default/files/97249_Gender-Equity-Insights-2018.pdf

14
17
Chappell, L; Brennan D and Rubenstein K, cited in Broderick, E (2012) ‘Applying a gender perspective in

public policy: What it means and how we can do it better’, International Women’s Day Forum Address,
https://www.humanrights.gov.au/news/speeches/applying-gender-perspective-public-policy-what-it-means-and-
how-we-can-do-it-better#fn7

18
Findings from Fair Work Australia, the Equal Opportunities in the Workplace Agency and the Australian

Human Rights Commission cited in Boderick, E. ibid

19
Organisation for Economic Co-operation and Development (OECD) (2018) The Pursuit of Gender Equality:
An Uphill Battle, ‘How does Australia compare?’ https://www.oecd.org/australia/Gender2017-AUS-en.pdf

20
OECD (2018) ibid.
21
OECD (2018) ibid. and OECD (2016) Part-time employment rate.
22
OECD (2018) ibid.
23
OECD (2014) Women, Government and Policy Making in OECD Countries: Fostering Diversity for Inclusive

Growth, OECD Publishing, http://dx.doi.org/10.1787/9789264210745-en/
24
OECD (2014) ibid.
25
https://theconversation.com/gender-neutral-policies-are-a-myth-why-we-need-a-womens-budget-55231

26
APSC, (2018) Balancing the future: The Australian Public Service gender equality strategy 2016-19 ibid.
27
APSC (2015) Unlocking Potential: the Australian Public Service Workforce Management Contestability

Review, Commonwealth of Australia, p. 24.
28
Confidential report provided by Dr Williamson to APS agency, 2016.
29
Williamson, S. ‘A piecemeal approach to gender equality in the APS’, The Canberra Times, 21 September,
2016, https://www.canberratimes.com.au/opinion/a-piecemeal-approach-to-gender-equality-in-the-aps-
20160921-grl1nq.html

30
APSC (2018), ibid. p. 15, https://www.apsc.gov.au/sites/g/files/net4441/f/FINAL-Balancing-the-future-the-
Australian-Public-Service-gender-equality-strategy-2016-19.pdf,
31
Williamson, S. (2016), The Canberra Times, ibid.
32
Note: These reports were provided to the agencies on a confidential basis and are unable to be supplied to the

committee.
33
Williamson, S. and Foley M. (2017) Embedding Gender Equality in the Australian Public Service: Changing

practices, changing cultures, University of New South Wales, Canberra; Williamson, S. ‘APS gender equality

strategies: one year on’, The Mandarin, 11 May, 2017, https://www.themandarin.com.au/78891-aps-gender-
equality-strategies-one-year/
34
Williamson, S; Colley, L; Foley, M and Cooper, R. (2018) The Role of Middle Managers in Progressing

Gender Equity in the Public Sector, University of New South Wales Canberra.
35
Williamson, S. and Foley M. (2017), ibid.
36
Williamson, S. (2017), The Mandarin, ibid.
37
Australian Public Service Commission (2017) ‘Gender Equality Award’, https://www.apsc.gov.au/gender-
equality-award.
38
Bennett, L (1994) Women and Enterprise Bargaining: the Legal and institutional framework, Journal of

Industrial Relations, /doi.org/10.1177/002218569403600201, first sounded warning about the impact of

bargaining on gender equity.
39
Williamson, S (2012), ‘Gendering the Bricks and Mortar: Building an Opportunity Structure for Equality

Bargaining', Journal of Industrial Relations, 54, 147 – 161.
40
Williamson, (2012), ibid.
41
Williamson, S (2015) ‘A case study of regulatory confusion: Paid parental leave and public servants’, The

Economic and Labour Relations Review, 26, 430 – 447.
42
Dickens, l. (1999) ‘Beyond the Business Case: A three-pronged approach to equality action’, Human

Resource Management Journal, 9:1, 9-19.
43
OECD (2014), ibid.

15
Embedding Gender Equality

in the Australian Public Service:
Changing practices, changing cultures

Sue Williamson

Meraiah Foley
ABOUT THE AUTHORS

Dr Sue Williamson

Sue Williamson is a Senior Lecturer in Human Resource Management at the University of NSW,
Canberra. As a member of the Public Service Research Group, Sue’s scholarship focuses

on how organisations can create and sustain gender equitable and inclusive cultures, with a

particular focus on the public sector. Her work has been published widely in academic journals

and media outlets and Sue regularly shares her findings with public sector audiences. In 2017,
Sue was awarded a highly competitive $60,000 grant from the Australia and New Zealand

School of Government to examine the role of middle managers in embedding gender equity

in State government public sector workforces. Sue was also named a 2017 Telstra Business

Women’s Award (Public Sector and Academia) Finalist for the ACT.

Dr Meraiah Foley

Meraiah Foley specialises in the relationship between gender, work, and organisations. As a

Research Fellow with the Public Service Research Group, Meraiah is currently examining gender

equality in the Australian public sector. Her prior research has focused on the comparative

industrial relations frameworks in the United States and Australia and their relationship to

gendered labour market outcomes, impact of motherhood on women’s careers and self-
employment, the impact of paid parental leave on Australian employers, and employee and

employer attitudes around the introduction of Dad and Partner Pay.

ABOUT THE PUBLIC SERVICE RESEARCH GROUP

The Public Service Research Group (PSRG) was established to partner with organisational

clients to produce new insights into effective public service implementation and evaluation. The

group undertakes timely, high-quality and reliable research into public policy implementation.
PSRG brings a breadth of knowledge and a depth of experience to the work, taking an inter-
disciplinary and inter-methodological approach that recognises the complexity of contexts

and plurality of interests involved in any policy implementation. PSRG research projects build

local practice while advancing global knowledge. PSRG enables independent practice and

collaborative thinking, and provides educational activities that embed new policy and program

implementation insights into practice settings.

i For more information contact s.williamson@adfa.edu.au or m.foley@adfa.edu.au.

The authors would like to thank the senior leadership teams of the case study agencies for

supporting this project. We would also like to thank the many participants who so generously

shared their experiences and knowledge with us. Finally, thanks are due to those who provided

research assistance.

Public Service
Research
Group
KEY FINDINGS

1. The Australian Public Service Gender Equality Strategy has started an important
   conversation about the nature of equality, how it is achieved, and the opportunities and
   challenges it represents.
2. Managers are committed to tackling unconscious biases. The managers we
   interviewed showed a high level of understanding about the existence and operation of
   unconscious biases, and were supportive of agency steps to mitigate those biases.
3. Career development strategies are varied and innovative. We found many positive
   examples of agencies innovating to provide career development opportunities to staff,
   but part-time workers still perceived lower opportunities for mobility, development, and
   career progression.
4. Workplace flexibility is supported and valued. Managers expressed support for flexible
   work arrangements, and sought to create a culture that embraced flexibility. In practice,
   however, some forms of flexibility were perceived to be more manageable than others.
5. Men need—and want—to work flexibly. Employees strongly supported increasing the
   uptake of flexible work among men. However, many male employees perceived a strong
   cultural stigma against men working flexibly.
6. Agencies are modelling equality from the top down…with senior leadership showing
   strong commitment to creating inclusive, flexible organisational cultures that foster
   gender equality.
7. …and from the bottom-up, with the establishment of gender and women’s networks that
   build grassroots support for gender equality within agencies.

1
GENDER EQUALITY CAN BE EMBEDDED IN

PUBLIC SECTOR ORGANISATIONS BY…

1. Creating waves of change which spread from senior managers
   through all levels of the organisation, and from employee
   networks to other employees.
2. Focusing on changing culture as well as changing the numbers.
   While having gender parity in senior leadership is essential,
   organisational stories, symbols and behaviours also contribute to,
   and reflect, a gender equitable culture.
3. Ensuring that individual initiatives — such as unconscious bias
   training — are ongoing, reinforced, repeated over time and evaluated.

2
INTRODUCTION

Achieving gender equality within public sector workforces is a focus

nationally and internationally for political, economic, educational, and

employment reasons. The business case for gender equality is well

recognised: it can contribute to economic growth, workplace innovation

and creative thinking¹. Gender equality is particularly important in the

public sector, which has traditionally been considered a model employer

for women2.

The Australian Public Service (APS) has a long history of providing terms and conditions of

employment which have enabled women and men to integrate work and caring responsibilites,
to have a career, and to reach leadership positions.

The Australian Government has continued this tradition, adopting a strong policy position to

advance gender equality in the APS. In April 2016 the government released Balancing the

Future: The Australian Public Service Gender Equality Strategy 2016-2019. This three-year

program aims to improve gender equality in the APS, partially fulfilling Australia’s commitment to

the G20 to boost women’s workforce participation by 25 per cent by 20253.

While gender inequality in the workplace has long been a focus of academic research, less

research has been conducted on how equality can be achieved: what it means, what it looks

like, and how it is done. Drawing on rich qualitative data derived from hundreds of hours of

interviews with APS employees, managers, and senior executives, this report identifies some of

the opportunities and challenges APS agencies have faced in their efforts to progress — and

embed — gender equality.

The following report presents the findings on the major areas we examined. Namely, how the

Gender Equality Strategy has promoted conversations within the APS about gender equality;
managers’ commitment to reducing unconscious bias; innovations to progress women’s

careers; the importance of, and access to, flexible work arrangements, including for men, and,
lastly, but perhaps most importantly, how to progress gender equality from the top to the bottom

of an organisation. Each section contains quotes from those we interviewed, to highlight our

findings. Next the report details how we conducted the study.

1
Wood, R. (2012) Building a Business Case for Diversity, http://genderequity.ahri.com.au/docs/
GEP-Building_a_Business_case_for_Diversity.pdf, 4.

2
OECD (2014) Women, Government and Policy Making in OECD Countries: Fostering diversity for

inclusive growth, http://www.keepeek.com/Digital-Asset-Management/oecd/governance/women-
government-and-policy-making-in-oecd-countries_9789264210745-en#, 1.

3
Australian Government (2016) Balancing the Future: The Australian Public Service Gender

Equality Strategy 2016 – 2019, http://www.apsc.gov.au/__data/assets/pdf_file/0017/80117/FINAL-
Balancing-the-future-the-Australian-Public-Service-gender-equality-strategy-2016-19.pdf.

3
HOW WE CONDUCTED THE STUDY

In the second half of 2016, shortly after the release of the APS Gender

Equality Strategy, we examined the progress of gender equality initiatives

in three APS agencies. We aimed to identify the barriers and enablers to

progressing and embedding gender equality in the APS. We asked about:

• the need for gender equality to be progressed in the APS,

• participants’ knowledge about their organisation’s gender equality initiatives, and

• specific human resource practices, including recruitment and selection processes,
access to training and development opportunities and flexible working arrangements.

We conducted 150 interviews and 24 focus groups totalling over 250 participants. We spoke

with Senior Executive Service (SES) officers and employees at the Executive Level 2 (EL2),
who are line managers. We conducted focus groups with APS and Executive Level 1 (EL1)
employees in Canberra and in regional areas. All interviews and focus groups were audio-
recorded, transcribed, and de-identified. The data was coded and clustered using NVivo11 to

create an integrated thematic analysis.

We do not claim that the three organisations which participated in the study are representative

of the entire APS. However, the findings may be useful to other workplaces, or serve as a

benchmark in assessing popular perceptions of gender equality at the commencement of the

APS Gender Equality Strategy’s implementation.

‘I absolutely believe that the APS should be a model
workplace…I think it’s still our role; that we should be
demonstrating tolerance, that we should be demonstrating
inclusiveness, we should be demonstrating all the things that
all make for a healthy society’. – SES, Female

‘I think the public service should be at the forefront of initiatives
like [the APS Gender Equality Strategy] to set an example for the
private sector and for citizens in general . – EL2, Male

4
1. The APS Gender Equality Strategy
has sparked an important conversation

We asked participants whether they believed the APS Gender Equality

Strategy was necessary and, if so, why. Many participants explained that

the implementation of the strategy had placed gender equality firmly

on the agenda, enabled people to speak freely about the issue, and

opened a constructive organisational dialogue about the opportunities

and challenges embedded in progressing gender equality.

5
WHY IS GENDER EQUALITY IMPORTANT?

Participants believed that gender equality was important for the APS in order to:

• Create a ‘level playing field’ which would enable men and women to have the same
opportunities, at work and at home,

• Better reflect communities served,

• Benefit the organisation with a diversity of perspectives, and

• Set the bar or be ‘a beacon’ for gender equality.

‘I actually do think we have a responsibility to reflect society
and we have a responsibility to ensure that occurs and overcome
the barriers that stop it occurring’. – EL2, Female

WHAT IS GENDER EQUALITY?

Understanding what gender equality ‘looks like’ can inform support for strategies and policies

designed to create equality. In our interviews, we found that understandings around what

constitutes gender equality were varied, and had different implications for the long-term

strategies applied.

• Some participants defined gender equality in terms of parity, such as achieving 50% of
women in the SES.

• Other participants were less concerned with parity, and more concerned with ensuring
that men and women have equal access to career development and promotion
opportunities, irrespective of gender or caregiver status.

• Others believed that gender equality is enabling both women and men to work flexibly.

Many participants were strongly supportive of the APS Gender Equality

Strategy, but some held the view that gender equality had already been
‘achieved’ in the APS, and was no longer an urgent priority.

Managers who expressed this view commonly pointed to the higher proportion of women in

senior management roles within the APS relative to the private sector. These managers did not

see gender inequality as a ‘burning platform’ demanding immediate action. This indicates a need

to more clearly articulate the rationale for pursuing gender equality strategies and initiatives, to

realise the Australian Government’s commitment to increasing women’s workforce participation.

6
2. Managers are committed to
tackling unconscious biases

The APS Gender Equality Strategy directs agencies to raise awareness

about the operation of unconscious biases in employment processes,
and to mitigate the effects of those biases, in order to ‘create an

environment in which merit is applied properly and fairly’4.

All three agencies were in the process of implementing unconscious

bias awareness and mitigation strategies, including training for managers

and senior executives, and promoting an organisation-wide conversation

about the effects of hidden biases on employment decisions.

7
Many of the managers we interviewed were increasingly aware of the

effect of unconscious biases on their decisions, and were supportive of

agency measures to mediate the effects of those biases.

‘I do think there’s this unconscious bias that comes into
the way that we recruit, we recruit like-for-like… so I think
it’s good to break those’. – EL2, Female

The long-term effectiveness of unconscious bias training is still undetermined. Research

suggests that for it to be effective in the short to medium term, the training must be reinforced

on a regular basis. Agencies should also monitor the outcomes of bias training in order to

determine whether it is effective over the longer term.

Reportable gender targets are a key element of the APS Gender Equality Strategy. Whilst

targets were largely supported by the SES, widespread resistance from lower level employees

was evident. Although some participants saw gender targets as a necessary, but unfortunate,
step to overcome biases, many others considered gender targets to be fundamentally in tension

with the merit principal.

While participants resoundingly agreed with the notion that positions and opportunities

should be based on merit, limited consideration was given to how merit is achieved and

constructed, from opportunities arising from educational qualifications, to networking and to

how roles and jobs are assigned in the workplace. Further education is required around what

constitutes ‘merit’ and how it is achieved.

‘I really do think you’ve got to get in and do the unconscious
bias training and the education about how to think about these
things at multiple and different levels… but for anybody who’s in a role
where they’re in a management role they really should be getting the
skill sets and how to think about these things’. – SES, Female

4
Australian Government (2016) Balancing the Future: The Australian Public Service Gender

Equality Strategy 2016 – 2019, 3.

8
3. Career development strategies
are varied and innovative

The APS Gender Equality Strategy directs agencies to innovate their

recruitment, retention and performance management practices to embed

gender equality throughout the employment life cycle. This step requires

agencies to be more nimble in their approach to human resource

management to establish the APS as a competitive employer of choice.

9
We found many positive examples of agencies innovating to promote career development

for women. Reports of formal and informal mentoring and sponsorship were widespread, and

training opportunities and leadership courses were ample. Secondments to other agencies

were also widely utilised and considered to be valuable to career progression.

In one notable example, one agency facilitated a job sharing arrangement between two

employees of different classification levels, an EL2 and an EL1. This arrangement provided

greater flexibility for the more senior employee, an EL2 who converted from full-time to part-time

employment, whilst providing supervisory experience for the more junior employee, an EL1 who

assumed the responsibilities of the EL2 two days per week.

‘The opportunities you get here, they pop up every week’. – EL2, Male

However, many part-time staff we interviewed perceived a lower level of

opportunity, mobility, and career development.

Perceived barriers included:

• A strong organisational attitude that full-time employees were more committed to their
agencies and careers,

• A widespread belief that part-timers were less visible in the workplace and, therefore,
not as likely to be considered for acting opportunities or encouraged to seek
promotions, and

• An underlying cultural assumption that part-time employees were less available or able
to undertake urgent or challenging work.

‘I think there’s a very strong unconscious bias towards giving
interesting, complex work to men over women that goes on.
And I think a bit of that is tied to the fact that women are more
likely to work part-time’. – APS Employee, Female

Some participants, in particular at the SES and EL2 levels, held progressive ideas about job

design, and working creatively within budget and staffing allocations to make the most of

talent and resources. Examples include creating jobs around projects to be completed,
rather than on a per-person basis.

10
4. Workplace flexibility is
supported and valued

Flexible work arrangements include options about how, when, and where

work is conducted, with a focus on results and outcomes, rather than

on hours spent in the office. Flexible work arrangements can include

changes to the hours of work, the patterns of work (e.g. job sharing or

compressed work weeks) and locations of work.

11
At the time of our interviews, the implementation of 'All Roles Flex' — or 'flexibility by default' —
was in its early stages. The main enablers for default flexibility were deemed to include:

• Enabling team members to shadow each other, to ensure work was completed if an
employee was not working on a particular day,

• Utilising a pool of people who could circulate around the workplace, backfilling where
teams were working flexibly and required support, and

• Being organised and establishing guidelines. For example, requiring all team members
to be present on a certain day, but enabling flexibility on other days.

‘Do you need this person here with you until 10:00 at night just in
case you need them? Can they not do this part of the work from home?
You just have to think outside the box’. – SES, Female

Most of the managers we interviewed expressed support for flexible work

arrangements and sought to create a culture that embraced flexibility.
In practice, however, managers perceived some forms of flexibility to be

more manageable than others.

We found little support for home-based work, for example, even though the APS Gender

Equality Strategy and the agencies’ human resource policies expressly allowed it. In some

cases, the lack of support was underpinned by the limitations of technology or the need to

protect confidential data. In other cases, managers allowed trusted employees to work from

home on an informal or occasional basis, subject to operational requirements, but remained

sceptical of formalised home-based work arrangements, fearing the potential for abuse.

Managerial use of flexible work provisions also appeared to be limited. Many managers we

interviewed believed that the operational or supervisory requirements of their jobs precluded

them from working part-time, for example. The lack of SES officers — or even EL2s — working

part-time sent a strong message that senior roles were incompatible with part-time work.

Managers who had worked part-time, however, were often seen as positive

role models within the agency.

‘I used to have people who came to me and said "you couldn’t
have anyone at the EL2 level part-time because they’re managers."
And I said: "I did it as a Band 1. Of course you can have EL2s
who do it"… When you’ve had people who have done it
themselves, it makes a real difference’. – SES, Female

12
5. Men need — and want — to
work flexibly

The APS Gender Equality Strategy aims to make flexibility for men and

women business as usual. Specifically, the strategy directs managers to

challenge long-held assumptions about the nature of work and establish

mechanisms to improve the uptake of flexible work among men.

13
‘If we’re advocating rights and opportunities for women, then we
need to be ensuring that men have those same rights and opportunities
as well. I think the role of men sharing caring arrangements… that’s really
important, and so being able to work flexibly as well’. – EL2, Female

Employees strongly supported increasing the uptake of flexible work among men.
Many male employees, however, perceived a strong cultural stigma against men

working flexibly. Although we heard many incidences of managers approving flexible work

arrangements, and providing employees with the necessary supports and resources, we

also heard instances where male employees believed that their managers would not support

their requests for flexibility. Approval of flexible work arrangements was also perceived to be

dependent on managerial prerogative.

Some men reported using flexible work arrangements on an occasional or ad-hoc basis, but

expressed concern that formalising these arrangements could affect their career progression.
For this reason, some male employees were hesitant to even ask for flexible work arrangements

on a formal basis.

These perspectives reflected the persistence of the ‘ideal worker’ norm, which favours

employees that can work long full-time hours, and do not have commitments or caring

responsibilities outside of work. While these views were apparent in some pockets, we also

saw strong evidence that managers were committed to challenging these assumptions,
inside and outside their workplaces.

‘One thing I want people to realise is that it’s not all about family,
it can be sports, education... whatever they see is their priority in
life to work flexibly. It’s just getting people’s minds around the idea
that these issues aren’t just women’s only issues’. – EL2, Male

‘Men have different expectations on them still to maybe not be as
family friendly, to not do the part-time for the children, and that’s
something we really, really need to work on’. – EL1, Female

14
6. Agencies are modelling equality
from the top down…
Our interviews and focus groups revealed a strong commitment to

gender equality from the senior leadership cohort. Most employees

were aware of their senior leaders’ commitment to progressing gender

equality. Many participants spoke of changing workplace cultures,
with an emphasis on increasing the numbers of women in the SES and

commitment to enabling employees to work flexibly.

15
‘Unless you demonstrate it through your action, there’s really
no incentive. It’s easy to talk, but I think you need to model what
you’re saying before other people will take the lead’. – SES, Female

Participants provided many examples of managers and SES officers who role modelled positive

behaviours. Examples included:

• Male employees who left work early for family reasons,

• Fathers who used the carer’s room to look after sick children,

• SES officers who publicly shared personal highlights with their teams,

• SES who let staff know about their morning exercise commitments, and

• EL2s who left early to spend time with their children in the afternoon,
logging on later in the evening.

'Sometimes our senior executives in particular, do not want
to see themselves being used [as role models], because it
appears to be self-promotion. And so one of the challenges for
us is to try and work with the SES to say: we know you don’t want
to put yourself out there, because you don’t want to be seen to
be saying, ‘Look at me, how great I am’. The flip side is, the
way people will see that is: if it’s OK for them, it’s probably
OK for me’. – SES, Male

‘I spend a lot of time trying to say to EL2s: you’ve got to
model the behaviour that says it’s OK to go home… Because
EL2s are the future of the department, and the role model for
the generation after that… the next generation are taking their
lead from them’. – SES, Female

16
6. …and from the bottom up

The commitment from senior leadership was complemented by a
‘bottom up’ approach, where employee networks were established

within the agencies.

Each of the three agencies in our study had a gender network, or a

women’s network. These appeared to be highly effective. Employees

were engaged and the networks conducted widespread consultation

with employees throughout the organisation.

17
The level of involvement from employees appeared to be very high. Additionally, the networks

seemed to be very well organised, with sophisticated governance structures and strategic

plans to progress gender equity.

The gender and women’s networks were complemented by gender champions from the SES.
These champions role modelled behaviours and also increased awareness about the gender

equality initiatives in their organisations.

The employee networks also had the potential to progress intersectionality. This enables

organisations to recognise that some employees may experience compound disadvantages

and, consequently, have a range of needs.

We found some evidence of the women’s and gender networks working with other employee

networks, such as the Lesbian, Gay, Bisexual, Transgender, Queer and Intersex (LGBTQI) networks

and the Indigenous networks, building awareness of the impact of intersectional disadvantage.

‘I think the introduction of the Women’s Network has been a
good thing… I think it has really given gender equality a
voice, probably, or a platform on which to talk about it.
I think the next generation is going to benefit from all
the work that is being done now’. – EL2, Female

18
CONCLUSIONS AND WAYS FORWARD

It is clear that managers and employees in the three agencies we partnered with recognised the

importance of gender equality. They acknowledged the opportunities for improved performance

and increased productivity derived from a workforce reflective of Australian society.

We found many good initiatives underway in the three agencies. Some of the known factors to

progress gender equality were present, such as commitment from senior leadership and the

rolling out of gender equality initiatives throughout an organisation. We also found, however, that

there is still room for improvement in terms of managers’ embracing flexibility for themselves,
encouraging men to take up flexible work, and ensuring part-time workers have the same

opportunities as full-time employees.

Research tells us that gender equality can be achieved when human resource practices are

examined and modified to benefit both women and men; when a ‘gender lens’ has been applied

to practices that may be taken for granted5. Changing human resource practices can lead

to changing cultures. We also know that culture change occurs when the underlying stories,
narratives and ways of working together change6.

Such change can be achieved by applying systemic workplace interventions, which are

based on shared learning throughout an organisation. This is more likely to result in changed

attitudes and behaviours, and ultimately, a changed culture, than a sole reliance on adapting

and implementing new human resource policies and practices. Such an approach may result in

gender equality being embedded throughout the APS.

A shared learning approach relies on managers and employees being responsible for

designing and implementing their own change management activities, sharing these lessons

with colleagues, then learning from their experiences as the cycle starts again. Research has

shown that this cyclical approach not only contributes to changed behaviours throughout an

organisation as more and more people become involved, but works to embed the behaviours,
leading to equitable outcomes7.

Since we conducted this research, all 18 APS departments have released their own gender

action plans — a significant milestone. The evaluation of the implementation and outcomes

of these strategies will assist agencies to build upon their successes and showcase the

progression of gender equity in the APS.

The PSRG is in a unique position to undertake such work, and we look forward to entering into

further partnerships with APS agencies. Email Dr Sue Williamson at s.williamson@adfa.edu.au

to discuss possible opportunities.

5
Mastracci, S and Bowman, L (2015) ‘Public Agencies, Gendered Organizations: The future of gender studies in public

management’, Public Management Review, 17:6, 857-875: OECD (2014) Women, Government and Policy Making in OECD

Countries: Fostering Diversity for Inclusive Growth, OECD, Paris.

6
Ely, R. J., & Meyerson, D. E. (2000). ‘Theories of Gender in Organizations: A new approach to organizational analysis and

change’, Research in Organizational Behavior, 22, 103-151.

7
Nelson, Sa and Yeo, RK (2012) ‘Action Learning for Middle Manager Development: The case of an Australian state-based large

organisation’, International Journal of Human Resources Development and Management, 12:4, 292-307.

19
'I think gender equality is about people of all genders
feeling that they have the same opportunities as
everyone else’. – APS Employee, Female

‘I think gender equality is about men and women in the workplace

having equal opportunity to contribute, participate, feel comfortable in
doing that, particularly in leadership positions’. – EL1, Female

‘I think it’s not about creating a level playing field, it’s about getting
everybody at the same level. So I guess sometimes different people
need a bit more of a step-up’. – EL2, Female

‘My definition of gender equality would be
selecting the best person for the job
regardless of gender’. – EL2, Male

‘For me it is really around [having’ the environment that enables people

to operate to optimum without it being, “Oh, you’re a female therefore
you’ve got carer responsibilities”’. – SES, Female

‘My definition of gender equality? Equal opportunities,
despite gender … women or men not being disadvantaged
by taking time out to have kids, and having to look after kids,
and things like that. And having flexible work arrangements
not disadvantage you’. – EL2, Female

20
Public Service
Research
Group

Cricos Provider Code 00098G • 172084
Australian Journal of Public Administration, vol. 00, no. 0, pp. 1–14 doi:10.1111/1467-8500.12267

Special Issue Article

Gender in the Australian Public Service: Doing,
Undoing, Redoing or Done?

Sue Williamson

UNSW Canberra

Linda Colley

Central Queensland University

Attention to gender equity has waxed and waned in public services but, by the 1980s, a
series of policy changes placed public services among the leaders in working conditions for
women. Conversely, New Public Management reforms since the 1980s focused on leaner,
more efficient government and resulted in the gradual downgrading or stagnation of em-
ployment conditions for female public sector employees. In the Australian Public Service
(APS), occupational segregation remains, as does under-representation of women in senior
management. In 2016, the Australian government announced its commitment to progressing
gender equality with the release of an APS gender equality strategy. Drawing on frameworks
for ‘doing’ and ‘undoing’ gender at work, this research uses data from interviews and focus
groups to first, identify staff experiences in one large APS agency to examine how gender
is done, and second, consider the transformative potential of this strategy to lead to work-
places where gender has been redone or undone, and third, consider the implications for
women’s equity.

Key words: public sector, gender equality, doing gender, undoing gender, liberal feminism

Introduction equity, but the lack of progress suggests they
do not provide a sustainable approach. At na-
Women’s progress in the labour market has tional level, policies such as child care, parental

been uneven, with large strides forward in leave, and flexible working hours support work-
women’s workforce participation and progress force participation by potentially reducing the

until the 1980s (ABS 2016; WGEA 2016), but clash between domestic and work obligations

much slower progress since. This stalling of (Gornick and Jacobs 1998; Mandel and Shalev

progress arguably mirrors developments in the 2009). However, such policies have not lead to

feminist movement, which began as a strong any fundamental reordering of gender roles in

collectivist movement in the 1960s and 1970s the home or the primacy of the male breadwin-
but evolved into more moderate forms that ner model.
reflected the neoliberal focus on individual This article casts a feminist lens over gen-
action (Rottenberg 2014). Rottenberg (2013, der policy within public services. Public ser-
2014) suggests that neoliberalism ‘hijacked’ vices’ long-term emphasis on equality has not

the feminist agenda and entrenched neoliberal necessarily resulted in equity, amidst contra-
rationality. dictory policies to support the participation
Current political and organisational strate- and advancement of women (Colley 2013) and

gies can appear to be targeted towards gender reforms that deprivileged public employment

C 2017 Institute of Public Administration Australia
2 Gender in the Australian Public Service xxxx 2017

and downgraded employment conditions for leadership roles by becoming more like men

women (Fairbrother et al. 2012; Pollitt and (Ely and Meyerson 2000: 105–107). The

Bouckaert 2011). second approach is valuing and celebrating
This study provides an in-depth look at the feminine, achieved through consciousness-
progress towards gender equality in public ser- raising interventions. Women’s ‘special’ at-
vices today, in the context of a newly introduced tributes are celebrated, fitting into a diversity

Australian Public Service (APS) policy: Bal- management framework where structural bar-
ancing the Future: the Australian Public Ser- riers to equality are largely unrecognised. Such

vice Gender Equality Strategy 2016–2019 (the an approach is essentialist, and can result in

APS GES) (APSC 2016b). It begins with an strengthening and reinforcing sex categories

outline of the conceptual framework. Ely and and stereotypes (Ely and Meyerson 2000: 109).
Meyerson (2000) critique liberal feminist ap- The prevalence of sex categories in these ap-
proaches to addressing gender inequality, and proaches results in the ‘doing of gender’. West

suggest an alternative framework. Their frame- and Zimmerman (1987: 137) identified gen-
work assists to position the APS GES. We com- der as a social construct that legitimises the

bine theories of liberal feminism with concepts assignment of different roles and maintains in-
of ‘doing gender’, a term first coined by West stitutional and social structures that subordi-
and Zimmerman (1987: 137) which refers to nate women. Doing gender results in systems
‘creating differences between . . . women and that continually remake gender in organisations

men, differences that are not natural, essen- and explains the reproduction of essential mas-
tial or logical’. We apply this framework to an culine and feminine traits, where the so-called

examination of staff experiences in one APS masculine traits are privileged. The gendering

agency. We argue that, while the APS GES is of individuals and interpersonal relations, jobs,
to be welcomed, it is limited by its gendered lib- organisations, work processes, and social struc-
eral feminist approach and evidences a lack of tures entrenches gender in organisations (Acker

a deep understanding of how to achieve gender 1990: 146–147).
equity. A third approach critiqued by Ely and Meyer-
son is the creation of equal opportunity policy-
based interventions that eliminate barriers to

Doing Gender in Organisations recruitment and advancement and include af-
firmative action measures. This approach has

This section combines theories of liberal fem- improved women’s working lives, but is also

inism and ‘doing gender’ in organisations, problematic. For example, flexible working ar-
which developed simultaneously and with rangements (FWAs) are seen as accommoda-
points of cross-over such as the development tions to women and can reinforce stereotypes.
of sex role theories. Whereas feminist theorists Ely and Meyerson (2000: 112) note that each of

identified different types of feminism, the ‘do- these feminist interventions ‘attempt to change

ing gender’ theorists examined how women, structures that produce inequality without cor-
men, and organisations create and reinforce responding interventions into beliefs that legit-
gender roles (see, e.g. Abrahamsson 2014; imate the inequality’. This is strongly evident

Charles 2014; West and Zimmerman 1987). in the APS GES, which aims to transform HR
Ely and Meyerson (2000) critique the three processes, but not the underlying organisational

usual approaches for examining gender eq- culture.
uity and change in organisations. All stem ‘Doing gender’ researchers note that the pro-
from a liberal feminist framework that pursues cesses to ‘undo’ gender paradoxically serve to

equality for women within the current insti- re-establish the gender order in the workplace

tutional structures. The first approach seeks (Charles 2014), reinforcing the limitations of

to ‘fix’ individual women, assuming essen- a liberal feminist approach. It may not be

tial ‘male’ and ‘female’ characteristics and possible to ‘undo gender’, as gender is not

providing women with the tools to attain fixed and stable (West and Zimmerman 2009).

C 2017 Institute of Public Administration Australia
Williamson and Colley 3

Instead, gender can be ‘redone’, which recog- were often considered to be model employers,
nises the continuing existence of sex categories providing good wages and working conditions
(the biological assignment to a sex). Mech- (Fairbrother et al. 2012) but, until the 1960s,
anisms to redo gender include an organisa- this employment relationship largely bene-
tion dismantling occupational segregation and fitted men. Early public service legislation

FWAs (Abrahamsson 2014: 129; Charles 2014: excluded women from most occupations and

378). These initiatives are liberal feminist in every form of advancement, and provided

nature, but also enable a broader expression of that women would be deemed to have retired

masculinity and hence can be seen to redo gen- from the Commonwealth Service upon their

der. In essence, the redoing gender approach marriage (Sawer 1996). The prohibition of the

has subsumed liberal feminist goals and activ- recruitment or retention of married women

ities. was justified on multiple grounds, such as
A new approach is needed, which goes be- their lesser financial needs and perceived

yond liberal feminism and the doing/undoing lower productivity due to their higher levels

gender approaches. A radical feminist ap- of absenteeism (Anker 1997; Cohn 1985). Or-
proach would see the restructuring of the ganisations also enjoyed the artificial turnover,
bureaucracy, with the removal of hierarchies recruiting young girls on the condition they

in favour of consensus and participation retire upon marriage, and channelling them
(Ferguson, cited in Billing 1994: 181). Increas- into dead-end jobs to ensure more fluid

ing understanding of gendered power and col- promotion paths for men (Cohn 1985).
lective organisation among feminists within the From the 1960s, a series of policy initiatives

bureaucracy and women’s groups aligns with a led to some undoing of gender within public

collective feminism (Conley and Page 2015: services. The marriage bar was finally removed

114, 117, 120). Such a vision of social change after decades of lobbying, albeit the even-
opens up space for feminists to generate new tual catalyst for change was the policy prob-
knowledge and new conceptions of a workplace lem of labour market shortages rather than a

which is both gender equitable and progresses clear goal of promoting equality (Colley 2017;
equity for women. Sheridan and Stretton 2004). To support the
As an interim approach on the way to this retention of married women, paid maternity

feminist utopia, Ely and Meyerson (2000) leave was introduced in the 1970s (Williamson

propose a framework that ‘disrupts’ gender 2015).
through systemic workplace interventions From the 1980s, further initiatives included

in which workplace participants critique the introduction of recruitment reforms and

gendered organisational practices, reflect, equal employment opportunity (EEO) laws.
and experiment with new ways of working. EEO policies recognised the need to go be-
This disruption of gendering in organisations yond individual remedies under antidiscrimi-
needs to include a common understanding of nation legislation (Strachan et al. 2007). Early

what ‘gender equality’ means, long-term and EEO policies were usually comprehensive,
short-term plans for change, with feedback with analysis to identify systemic issues and ex-
loops, active involvement of all parties, and tensive planning of remedial strategies. These

experimentation (Benschop and Verloo 2011; policies, together with the expanding welfare

Eriksson-Zetterquist and Renemark 2016). state, supported an influx of female employ-
ees and placed public services among the lead-
ers in working conditions for women (Colley

Gendered Traditions of Australian Public 2013).
Employment These EEO programmes were a step forward
and supported by appropriate governance struc-
The APS has a long history of being a gendered tures. Sawer (2014) studied the trajectory of

industry since its establishment by male bu- gender equality architecture in Australia, which

reaucrats in 1901 (Caiden 1965). Governments was at its most effective in the 1980s. Bodies

C 2017 Institute of Public Administration Australia
4 Gender in the Australian Public Service xxxx 2017

such as the Department of Labour’s Working subsumed feminist activism inside and outside

Party on Women were tasked with development the bureaucracy (Conley and Page, 2015: 126).
and monitoring of the Australian Women’s Em- From 1996, the Liberal/National Party Coali-
ployment Strategy, to foster women’s employ- tion government lead by John Howard contin-
ment and training programmes and tie them ued these reforms, and attempted to align public

into a robust national agenda. Sawer (2014) sector employment arrangements with the pri-
notes that the strategies were managed by sub- vate sector. Howard changed the primary em-
stantial policy agencies in each participating ployment relationship to being between the em-
jurisdiction, and employment ministers often ployer and employee at agency level, with only

included the initiatives in election platforms. general concepts of engagement, promotion,
‘Overall, the Working Party was credited with and transfer retained within the APS framework

keeping women on the agenda when Australia (Macdonald 1998). Managerialism brought

was heading into a recession and persuading increased managerial prerogative, and ‘equity

labour ministers of the significance of issues based programs, such as Affirmative Action,
relating to women’s employment’ (Sawer 2014: were downgraded in the interests of efficiency

367). and effectiveness’ (Macdonald 1998: 44). The
Howard government also stymied the formal
influence of the interjurisdictional Working

Gender and NPM Party on Women and the Workforce (Sawer
(2014)).
These advances were undermined by New Pub- By the 2000s, despite extensive procedural

lic Management (NPM) reforms in the 1980s change to include EEO processes, many of the

and 1990s. Institutional reforms reduced the underlying issues were not resolved. Bryson

strong central oversight of employment prac- (1987: 259) explains that EEO programmes

tices, as personnel operations were increas- were ‘couched in managerial terms’ and that

ingly devolved to agencies, functions such as ‘this technocratic approach is very masculine

industrial relations distributed across a num- in style and largely requires assimilation to the

ber of central agencies, and a new Public dominant male form of management’. She sug-
Service Commissioner became responsible for gests that the focus on formal organisational

merit, recruitment, promotion, and monitoring issues leaves no room for attention to values

of EEO progress (Alford 1993; Enfield 1989; and other institutions such as the family and,
Macdonald 1998). NPM arguably changed as such, EEO can be undermined by its own

the configuration of dominant masculinities design.
to redefine competence in terms of the ‘ag-
gressive, workaholic, analytic, calculative, and The 2016 Gender Equality Strategy

competitive individual’ (see sources and argu-
ments summarised in Davies and Thomas 2002: In early 2016, the Australian government joined

464). international governments and released the
NPM redid gender in new ways. Departments APS GES. The Minister noted that this was es-
became responsible for their own workforces sential to support Australia’s G20 commitment

and left to manage equity with little central to boost women’s labour market participation

oversight, which created a disconnection be- by 25% by 2025 (APSC 2016b). While a

tween central policy formulation and local im- detailed critique of the strategy is beyond the

plementation (Corby 1999). EEO policies were scope of this article, we observe that the strat-
replaced with diversity policies, moving the fo- egy combines tenets of liberal feminism with

cus from systemic to individual issues and re- a combination of doing, undoing, and redoing

ducing the capacity to address deep-seated in- gender. It aims to be transformative and hints

equalities (Bacchi 2009; Strachan et al. 2007; at addressing the social construction of gender

Walby 2005), an approach which currently (such as enabling men to access FWAs). It

prevails. This shift effectively negated and encourages agencies to review their human

C 2017 Institute of Public Administration Australia
Williamson and Colley 5

resource (HR) practices, particularly around re- This approach – of considering social re-
cruitment and selection and learning and devel- lations inside and outside of organisations –
opment. Elements of liberal feminism include makes their framework ideal for our study,
programs to support women’s progression into which questions whether current strategies

senior roles to achieve parity (APSC 2016b: can deliver sustainable change towards gender

9). Significantly, the language of ‘gender’ is equity.
more prevalent than discussions or recommen- The research is situated in the APS, which

dations that focus on women, even those which is a complex structure of 98 agencies and

would benefit women more than men, such as 160000 employees, predominantly women who

developing a domestic violence policy. are disproportionately represented at lower
In contrast, other elements of the strategy classification levels (APSC 2016a, 2016c). The

reinforce a gendered APS. Drawing on Ely and case study is a large APS agency we refer to

Meyerson’s framework, the strategy is high as ‘PublicOrg’. PublicOrg released an compre-
on rhetoric, but lacks the formal policies and hensive gender equality strategy subsequent to

procedures for implementation. For example, the case study being undertaken, and this study

developing training on unconscious bias and therefore does not comment on the strategy or

gender mainstreaming (‘making visible the newer initiatives being implemented.
gendered nature of assumptions, processes, Kitay and Callus define the case study as

and outcomes: Walby 2005: 321) may be ‘a research strategy or design that is used to

useful, but the strategy lacks a mechanism to study one or more selected social phenomena

evaluate the impact of such initiatives. Gender and to understand or explain the phenomena by

mainstreaming is also not defined in the strat- placing them in their wider context’ (Kitay and

egy, and is a term with multiple and contested Callus 1998: 103). Case studies are particularly

meanings (Walby 2005: 322). The strategy also useful when researching workplaces and organ-
evidences a circumscribed understanding of isations. They allow for an in-depth examina-
culture change, with the change actions tion of the events, processes, and relationships

centred on governance, messaging, or creating within an organisation, including the interrela-
a ‘respectful’ culture. The strategy does not tionships and the context in which these occur

recognise that culture change needs to be a (Kelly 1999). Here, we report on a single case

staged, ongoing, and reiterative process. at a single point in time. Prior (2016: 116) high-
lights that a single case can ‘inform us about the
essential features of a much larger category’.
Method and Approach
This single case can inform the appropriate-
ness of the method to be used in other cases. A

We adopt Ely and Meyerson’s (2000) analytical
limitation of this study is that it is confined to

framework, which focuses on social practices
one case and therefore the findings may not be

within organisations and potentially broadens
applicable to the APS as a whole.
accepted definitions and practices of masculin-
Given that the premise of the research is

ity and femininity. In their framework:
that gender inequality is embedded in social
practices, the appropriate research method was
. . . gender is neither an individual characteris- talking to staff to identify their issues. Data
tic nor simply a basis for discrimination. Rather were collected from 68 employees in 2016,
it is a complex set of social relations enacted soon after the release of the APS GES. Thirty-
across a range of social practices that exist both
three employees were interviewed, consisting
within and outside of formal organisations that
of 15 Senior Executive Service officers (senior
includes (1) formal policies and procedures; (2)
informal work practices, norms and patterns of managers) and 18 Executive Level 2 officers
work; (3) narratives, rhetoric, language and other (EL2s) (middle managers). Interview questions
symbolic expressions; and (4) informal patterns focused on organisational culture, FWAs, ca-
of everyday expression (Ely and Meyerson 2000: reer development and promotional opportuni-
114). ties, leadership, recruitment and selection, and

C 2017 Institute of Public Administration Australia
6 Gender in the Australian Public Service xxxx 2017

awareness of gender equality initiatives. Thirty- PublicOrg: Formal Policies and Procedures

five other employees at lower levels partici-
pated in six female-dominated focus groups. PublicOrg has a suite of HR policies which
Enabling employees to participate in focus includes FWAs, working hours, performance

groups incorporates a feminist approach which management, and domestic violence leave. Re-
enables participants to share and discuss searchers undertook a gender analysis of these

experiences, thereby subverting a traditional policies, but the findings are beyond the scope

masculinist approach where power is solely of this article.
invested in the researcher (Smithson 2009). Previous researchers have argued that a con-
The same topics were discussed in the focus sensual and non-hierarchical organisation is

groups as in the interviews. Interviews and part of a radical feminist approach to achiev-
focus groups were de-identified, transcribed, ing equality for women. PublicOrg displayed

and thematically coded using Nvivo software. these elements in one small, but important

The coding frame was initially based on the way. PublicOrg had formal procedures in place

open-ended questions used by the interviewer, to progress gender equality. In particular, its

but as analysis deepened, new themes were extensive employee networks represented em-
coded and analysed. The focus groups and ployees’ interests, provided input into policies

interview questions followed the employment and raised awareness throughout the agency.
life cycle, however, the coding enabled a more Reflecting conversations occurring across the

fine grain categorisation to be conducted, re- wider APS, PublicOrg’s Women’s Network

flecting participants’ responses. For example, members discussed whether the network should

participants were asked about recruitment have been a ‘gender network’ or a ‘women’s

practices and the coding frame listed relevant network. The role of men was questioned:
issues, such as ‘unconscious bias’ and ‘blind

recruitment’ (whereby names and any other . . . some other agencies are sticking with
Women’s Network because they say the majority

details which could identify a person’s gender
of the issues that are dealt with are for women.
are deleted). Similarly, participants were asked And but then you have other networks that are

about the organisational culture. Based on saying, “Well, men have to have an active role

responses, the coding frame was expanded to create parity or equality” (Women’s Network

to include items such as ‘male-dominated’, member).
‘female-dominated’, ‘entitlement’ (referring

to some participants describing a ‘culture The Women’s Network had a sophisticated

of entitlement’). The detailed coding frame governance structure, a wide membership (of

enabled the stories and experiences of the mostly women) and high levels of interactions
(mostly female) interviewees to be represented across the agency. While the Network had a

more holistically. nominal leader, it was consensual in nature. It
also had direct access to the head of the agency

Research Findings (Women’s Network member), subverting hier-
archy, and the dominant power model. The net-
Using Ely and Meyerson’s analytical cate- work may not be sustainable, however, with

gories, we examine staff experiences of how members often having to do associated work

gender is done in PublicOrg, and the implica- outside standard working hours (Women’s Net-
tions for the APS GES. Ely and Myerson argue work member). Others critiqued it for focus-
that ‘gender as difference’ is central to repro- ing too much on mothers or potential leaders

ducing gender relations and entrenches a uni- (female, EL2).
versal truth of male privilege. Organisational . . . there’s a lot of showcasing of brilliant, amaz-
policies and practices are therefore seen as gen- ing women that have achieved everything, but

der neutral, whereas, in fact, they can lead to how does someone that’s working at [a lower]
gendered outcomes. The following four areas level relate to that when they’re also in a really

illustrate these points. hard situation of juggling day care and child care

C 2017 Institute of Public Administration Australia
Williamson and Colley 7

commitments, in a role where they have zero au- employees to complete work, assuming they
tonomy? (female, EL2). would be unavailable (female, EL2). This man-
ager reported that her assumptions had been
Nonetheless, the network provides a voice to challenged:
allow input into the policy and strategy pro-
cess, to identify initiatives for undoing gen- . . . just because you’re part-time doesn’t mean

der, and potentially displace hierarchies. While you’re not willing to come in on the weekend. In

the operation of the Network may act to sub- fact, someone else with a family said, “Well the

vert gender binaries, the issues dealt with fur- week-ends might actually be easier because I’ve
got a partner at home and I’m a bit more flexible,
ther entrench gender norms. For example, the
whereas during the week I actually have to go

Women’s Network encouraged men to work home and be there” (female, EL2).
flexibly, which can result in a range of mas-
culinities being displayed in the workplace Participants related instances of managers

and begin to address deeper social percep- being reluctant to enable employees to work

tions around women’s roles and careers. Para- part-time and explicitly informed employees

doxically, however, focusing on men serves to that the work was required to be undertaken

entrench gender norms, simultaneously undo- full-time. The lack of SES – or even EL2s –
ing and redoing gender, as argued by Charles working part-time also sent a powerful message
(2014). that senior roles were unable to be undertaken
part-time.
PublicOrg: Informal Work Practices, Norms Participants had mixed experiences with the

and Patterns of Work use of other FWAs. Many staff made favourable
comments, such as using flexible working

While the APS GES requires organisations to hours for caring tasks. Others, however, related

review their HR practices to progress gender instances of managers who would not accom-
equality, current practices largely conform to modate their needs, particularly when male em-
tradition, as evidenced in an examination of ployees requested flexible working hours. As

FWAs and the long hours culture. one participant stated, while the senior leader-
ship team advocated flexible work, men asking

Flexible working arrangements for FWAs remained ‘outside of the norm for

Many employees believed that a strong per- some managers’ and men often would not ask to

ception existed that full-time employees were work part-time or flexibly (Women’s Network

more committed to their work and career than member). There remained a perception that fe-
were part-time employees. Participants consid- male employees were the main users and bene-
ered that part-time work limited an employee’s ficiaries of FWAs, thereby perpetuating gender

career and led to fewer opportunities. They re- roles.
ported an underlying assumption that part-time PublicOrg was implementing an ‘all roles

employees were not available or able to under- flex’ initiative with the aim of embedding,
take urgent or challenging work, and were less increasing, and destigmatising workplace flex-
invested in career development. Participants ibility. ‘All roles flex’ means that all positions

who had returned from maternity leave spoke are flexible by default, whether it be temporal

of the need to return full-time, with a common or spatial. It can destigmatise flexibility by

comment being: ‘if I had have come back part- encouraging men to access FWAs, and expand

time, like, three days a week, I wouldn’t be in conceptions of flexibility. It is therefore

this [managerial] job’ (female, EL2). potentially transformative and could undo
Some managers confirmed perceptions that gender in the workplace. While many par-
part-time working was incompatible with a ca- ticipants supported this initiative, it was also

reer in the agency, particularly in policy areas considered difficult to implement. Some man-
that required long hours. One reported working agers did not believe that it would work in their

on the weekend rather than asking her part-time area due to perceptions about the need to be

C 2017 Institute of Public Administration Australia
8 Gender in the Australian Public Service xxxx 2017

physically present in the office. There was on senior staff to have ‘honest’ conversations

a lack of understanding about how all roles about the pressure for constant response. One

flex could be translated into practice, with participant summed up these views:
it generally perceived as women working

part-time, or staff working fewer hours, which . . . one of the strongest messages that came
through was this constant pressure to be respon-
managers considered inimical to completing
sive, responsive, responsive and a lot of us, we’re

work. One participant, however, highlighted actually not saving lives . . . The biggest pres-
the need to keep challenging long-held beliefs: sure we get from our leadership . . . is everything
has to be done yesterday, everything has to be
Do you need this person here with you until 10:00
perfect, we say ‘yes’ to everything, everything,
at night just in case you need them? So can they
everything and that’s crazy . . . (female, EL2).
not do this part of the work from home? (female,
SES). PublicOrg had almost achieved parity in the
Some participants provided positive stories numbers of women in the SES, which served

around group work to cover absences, and eas- to undo gender and disrupt traditional gen-
ier transition from part-time to full-time as der roles. Gender roles were being remade,
workloads changed and all roles flex was im- however, through a long hours culture where

plemented (female, SES). One manager dis- presenteeism was evident. Policy jobs, which

cussed how members of her team ‘shadowed’ were considered high profile and required long

each other, so when a part-time employee was hours, were seen as ‘male’ jobs. Other jobs,
not in the office another team member was such as those in program delivery or corpo-
able to undertake the work. This demonstrates a rate services, were seen to be more ‘female’ as

move from focusing on an individual’s work, to they had a lower profile, even if they required

conceptualising how the team completes work, long hours. Despite a high level of awareness

which has been shown to be successful in im- about gender equality, the conception of jobs

plementing ‘all roles flex’ (Perlow and Kelly was highly gendered:
2014). Because those policy roles are kind of . . . men’s
The operation of FWAs and the introduc- expectation that you come in, you don’t have an

tion of ‘all roles flex’ accords with Ely and outside interest. You come in, you work really

Myerson’s (2000) framing to create equal op- long hours. So I think we’ve included women, and

portunities. The system recognises categorical more women are in those roles, but they’re trying

sex differences and goes some way towards to do them from a gendered language perspective,
structurally reconfiguring hours and location in a man’s way. As opposed to saying, “I can
do the policy job but I can also do it flexibly”
of work to undo gender. These work processes
(female, SES).
stop short, however, of degendering the work-
place, as the processes of cultural change are Sex stereotyping of jobs effectively deters

missing. Without processes to ensure the active many from seeking work in high tempo, pres-
engagement and sharing of lessons, systemic tigious areas. Among middle managers and

culture change towards a degendered work- lower level staff was a widespread perception

place is unlikely to occur (Benschop and Verloo that working at this agency involved long hours

2011: 284; Ely and Myerson 2000: 107). and sacrifice, including not having children un-
til an employee either left or became an EL2.
Long working hours and presenteeism Overall, the long hours entrenched a masculine

Many participants spoke of a long hours cul- culture where it was more difficult for women

ture where employees were required to be to fit in. It also led to a hierarchical gendering

available at night and on weekends. While of jobs, where what was considered ‘masculine’
the work tempo was high, some participants was valued more than the ‘feminine’.
described a culture of presenteeism and self- Long working hours is a working prac-
importance. They questioned whether the work tice which is ‘oppressively gendered’ (Ely and

was urgent and the deadlines real, and called Myerson 2000: 116). Long hours not only serve

C 2017 Institute of Public Administration Australia
Williamson and Colley 9

to mask the operation of gender, but privi- told of not speaking in meetings, due to their

leges traditional masculine ways of working. own lack of confidence and the more confi-
The sexual division of labour is reinforced at dent and assertive speaking manner of some

both an organisation and individual level, where men. Other women recalled stories of being the

it has become internalised, reflecting wider so- only woman in a meeting and being expected to

cial structures (Acker 1990: 146). make the tea and coffee, even though they were
the most senior person present (female, EL2).
PublicOrg Narratives, Rhetoric, Language, The following incident highlights the dis-
and Other Symbolic Expressions tance between the commitment and practice of
implementing gender equality:
Narratives, symbols, language, and everyday
I sat in on a meeting where I’ve got the informa-
expression – Ely and Meyerson’s third and
tion, I’m the only female – they’ve spoken to my

fourth categories – contribute to gender being male boss. In the same meeting it’s about some-
done in PublicOrg, and contain lessons for the thing quite tricky, they’ve gone, “wish someone

rest of the APS. Messages from PublicOrg’s se- would just grow some balls and man up” . . . With

nior leadership were strong and supportive, but all of this rhetoric and the best intentions of the

these messages did not always filter through world, we’ve been flooding the messages about

to lower level employees. Many participants this is a real issue and important in our workplace

knew of the agency head’s commitment to pro- and that’s happening . . . (female, EL2).
gressing gender equality and culture change,
These examples confirm the existence of a

learned through regular online messages and
gendered organisation, even one that is progres-
staff meetings. However, some SES were like
sive and committed to implementing equality
‘vaults’ where messages were not passed on
initiatives. As both Ely and Myerson (2000) and
(female, SES). Hierarchical forms of messag-
Acker (1990) note, language, conduct in meet-
ing entrench gender hierarchies and, as Charles
ings, who speaks and who listens, strengthen
(2014) suggests, a more collaborative form of
the dominant gendered power hierarchies in or-
communication may serve to redo this particu-
ganisations. Individual behaviours, narratives

lar aspect of gender.
which reinforce male supremacy not only mir-
Many men and some women perceived that
ror society, but also constructs organisational

gender equality had been ‘done’, and there was
reality and logics (Acker 1990: 147; Ely and

no need for further action. The rhetoric of gen-
Meyerson 2000: 117).
der equality was used in PublicOrg, but the

dominant narrative of gender hierarchies and
PublicOrg Informal Patterns of Everyday

binaries underpinned the rhetoric. Even where
Expression

participants understood messages about gen-
der equality, they often equated this to imple-
While PublicOrg was trialling new methods

menting FWAs or increasing the numbers of
of recruitment which could potentially reduce

women in the SES. This exemplified the diffi-
unconscious bias, participants provided exam-
culties of envisioning what a gender-equitable
ples of bias in the recruitment and selection

culture could look like, and, as Ely and Myerson
processes at organisational and individual lev-
argued, it is not yet possible to envisage a
els. While many participants believed the merit

gender-equitable culture in a gendered system
principle was observed in theory, in practice

which constantly remakes itself (2000: 132).
it was more complex. The following example
Participants noted that the residual cul-
highlights the difficulties of translating skills

ture was ‘male’, and was overly assertive in
to an APS context:
certain settings, such as meetings. One partic-
ipant described how the most confident male . . . I don’t think people are very good at mea-
employees provided hasty or impractical policy suring the non-Public Service experience. So if I

solutions, which were then tempered by others take my personal experience . . . I’d worked in the

to arrive at a more reasonable position. Women not-for-profit sector for a long time [and] thought

C 2017 Institute of Public Administration Australia
10 Gender in the Australian Public Service xxxx 2017

I had very relevant experience. But to get into the believed that opportunities should be based
Public Service I had to consciously make a deci- on previous performance, not on potential that
sion to take a $20,000 pay cut, and that’s from a may favour high profile, visible men.
not-for-profit pay (female, SES). Some women recognised that career ad-
Participants identified how selection pro- vancement to senior levels required net-
cesses can mask unconscious biases. One inter- working and visibility rather than just good

viewee retold how she was required to demon- performance. As one noted:
strate that she was already working at a higher

level, whereas her male colleague was judged I struggled with this at understanding why, like,
on potential. Participants mentioned percep- it felt really fake, like somebody saying “you’ve

tions of favouring men over women for some got to build profile” . . . why do I want or need
to get known? But then I started to realise that

positions. One participant noted:
so many people are so time poor, and they’re not
I think I see gender inequality quite often . . . I’ve necessarily going to notice people that work hard
seen or been aware of decisions being made, and get stuff done. But if you want to work with
based on whether a senior manager likes someone other core people you need to strengthen those
or based on sometimes . . . on the male/female relationships (female, SES).
type, gender type thing . . . Some people I think
prefer girls in a role and I think some people Some female interviewees noted gender
prefer males (male, EL2). differences in approaches to promotion. For
These examples confirmed that individual example:
interactions uphold gendered structures and

perceptions, and simultaneously do and redo We were both acting and we applied for the per-
gender. manent round. He [colleague] was also applying
for other agencies at the same time, and actually
While recruitment and selection processes
got offered a job in another agency. And his ap-
can lead to gendered outcomes, career pro-
proach to it was totally different to mine. I was

gression can also be gendered. Participants sitting there going, “I hope I get the job, I hope

described many positive experiences of career I get the job. All I care about is that I get this

development, including being mentored and promotion and I get this job”. And he was like,
appointed to high profile projects. Many “So I’ve got this offer. If I get this offer, even if

participants described a very flexible career, I don’t, I’m going to pit those two against each

undertaking various roles in PublicOrg as other. I’m going to go for the highest salary point

well as being seconded to other agencies for in this department’ (Women’s Network member).
short periods. As one female SES officer

stated, PublicOrg actively engaged in talent This example highlights gendered percep-
management and mobility programs, which tions and attitudes and the obvious hierarchy,
broadened people’s experiences and careers. with the female employee content with only

This has the potential to undo gender, as it being promoted.
disrupts a linear career trajectory, aligning Once again, these examples in the above

it more with careers traditionally associ- two sections highlight the binaries of gender,
ated with women, of moving in and out with the masculine being privileged under the

of the workforce. This then, again escalates guise of gender-neutrality (Ely and Myerson

undoing gender from the level of the individual, 2000: 117). Reliance on the concept of merit,
to an organisational level. in particular, is grounded in supposed gender
While participants resoundingly agreed that neutrality, and acceptance of this concept high-
positions and opportunities should be decided lights the masking operations of gendered ide-
on merit, little consideration was given to ologies and policies within the workplace.
how merit is constructed, from educational Here, we can see the interaction of individual

qualifications, to networking, to how jobs and organisational gendering, compounded by

are assigned in the workplace. Participants apparently APS gender-neutral policies.

C 2017 Institute of Public Administration Australia
Williamson and Colley 11

Discussion and Conclusions (2000). The historical context has led to a path
dependence from which it is difficult to depart.
This research has examined the issues and ap- As discussed earlier, previous gender equity

proaches in PublicOrg, and summarised these initiatives have been firmly based within

in terms of Ely and Meyerson’s categories. managerialism and the masculine culture.
PublicOrg has been relatively successful in While containing many good initiatives, the

the first category of policy and procedural GES continues this trajectory.
change. The Women’s Network enabled a con- The APS GES actions aim for ‘increased

sultative and collective identification of issues take-up of flexible work arrangements by men

and solutions, in contrast to traditional indi- and women’ (APSC 2016b: 13). However, the

vidualised approaches. Further, leadership sup- case study of PublicOrg suggests that resistance

port for gender equality was evident. However, to flexible working is evident. As shown in this

changes to informal work practices, narratives, case study, this view of part-time work redoes

and informal patterns have been less successful, rather than undoes gender; while it supports

and gender continued to be done. Reiterating women to participate in work, it also further

Acker (1990), gender was inscribed on the or- entrenches gender differences. While encour-
ganisation (such as the long hours culture), jobs aging men to work flexibly has the potential
(such as lack of job redesign), and employees to undo gender, this is unlikely to be a widely
(internalising their gender roles), entrenching accepted option until senior role models are in

a masculine culture. We found that the infor- place and working flexibly goes beyond sym-
mal work and HR practices in PublicOrg redo, bolic tokens. This goes to the gendered nature

rather than undo, gender. of jobs and work, and without systemic change
In light of this study of staff experiences in to alter the conception of work – which we see

one major agency, we now consider the likeli- in its infancy with the ‘all roles flex’ initiative

hood of success of the APS GES. This strategy – HR processes are likely to continue to gender

signals a major change in public policy dis- jobs and workplaces.
course around gender equality – it is now back Narratives, and language contribute to

on the agenda, possibly the most significant de- gender being done in PublicOrg and contain

velopment since the introduction of EEO poli- lessons for the rest of the APS. Even new nar-
cies and programs in the 1980s. Organisations ratives are being communicated within tradi-
are again discussing how to progress gender tional public service hierarchies. Reforms such

equality, legitimising such conversations. This as devolution have moved responsibilities and

may yield significant flow on effects, paral- decisions to lower levels (Pollitt and Bouckaert

leling the introduction of the right to request 2011), but often without disrupting these steep

FWAs. This right was introduced in the Fair hierarchies and thereby creating more silos at

Work Act 2009 and aimed to change perceptions lower levels. Centralised messaging, such as

and ‘normalise’ requests, as had occurred in the APS GES, need to be communicated down

the United Kingdom (Himmelweit 2007: 254). through these hierarchies and silos, where

It can be argued that this normalising process managers have the autonomy to accept or reject

has also occurred in Australia, and the conver- the message. As Charles (2014) suggests, a

sation has now moved on to discussing how more collaborative form of communication

all roles flex can operate effectively. The same may serve to redo this aspect of gender and

process may follow the implementation of the employee networks may be a step in the right

APS GES. direction if women at lower levels become
To a significant extent, however, the APS is involved.
constrained by its history and its HR practices A collective form of feminism is needed

are extremely resistant to change. Changes to subvert gendered hierarchies and identities,
to ‘accommodate’ women have been rela- which also needs to be combined with main-
tively recent and superficial, using the three streamed gender equity. While a detailed dis-
approaches critiqued by Ely and Meyerson cussion of mainstreaming is outside the scope

C 2017 Institute of Public Administration Australia
12 Gender in the Australian Public Service xxxx 2017

of this article, it is worth noting that gender include ‘women’ in the initiatives, rather than

mainstreaming has transformative potential – sublimation under the mantle of ‘gender’.
the aim is to change the mainstream, rather The category of ‘women’, however, needs

than individual women (Walby 2005: 323), to be dismantled while simultaneously being

hence subverting individualistic liberal femi- strengthened. This category needs to be de-
nism. Such an approach also aligns with the constructed to recognise the intersectionalities

processes of cultural change found necessary of identities, a project not included in the

to disrupt gender (Benschop and Verloo 2011). APS GES. While equality for different groups
Gender mainstreaming as a feminist theory of women is a necessary precursor, gender

and praxis can be overlaid on Ely and Myer- equity also requires the dismantling of binary

son’s framework to examine how gender is done conceptions of gender. Such an approach

and redone in PublicOrg, through an examina- would render the categories of ‘male’ and

tion of formal and informal work practices and ‘female’ irrelevant, recognise the fluidity of

procedures, narratives, and social interactions. gender, and dismantle the gendered construc-
As stated earlier, gendered differences form tion of jobs and organisations. The APS GES

the foundation of these gendered work prac- provides the opportunity to have these conver-
tices, symbols, narratives, and interpersonal re- sations, while implementing some necessary

lations. While gender mainstreaming can be initiatives.
applied to working practices to achieve organi-
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C 2017 Institute of Public Administration Australia
The Role of Middle Managers
in Progressing Gender Equity
in the Public Sector
Produced by

Dr Sue Williamson, Dr Linda Colley, Dr Meraiah Foley, Professor Rae Cooper
August 2018
2
Contents

Executive Summary...................................................................................................................5

Main Findings..............................................................................................................................7

Actions........................................................................................................................................... 8

1. Introduction.............................................................................................................................10
2. Gender Equity Policy Frameworks...............................................................................12
3. Findings................................................................................................................................... 14

   Understanding and recognition of gender equity............................................ 14

   Recruitment and selection: The concept and role of biases and merit.....16

   Targets................................................................................................................................ 17

   Career development.....................................................................................................18

   Flexible work arrangements......................................................................................19

   Part-time work.............................................................................................................. 20

   Flexibility and productivity...................................................................................... 22

   Innovations in flexible working................................................................................23

4. Conclusion............................................................................................................................ 24

   Appendix A: Middle Managers Role in Progressing Gender Equity:
   A leading practice guide...................................................................................................... 26

   Appendix B: Research Design............................................................................................ 29

   Table 1: Middle Managers and Gender Equity in the Public Sector:
   Interview Themes for Senior Executives................................................................ 30

   Table 2: Middle Managers and Gender Equity in the Public Sector:
   Interview Themes for Middle Managers...............................................................32

   About the Authors...................................................................................................................34

   Endnotes.................................................................................................................................... 36

   3
   4
   Executive Summary

Governments in Australia have expressed deep commitment to progressing gender equity for

their workforces, and have developed gender equity strategies, in line with a worldwide trend1.
Despite the expressed commitment and actions to support gender equity in most jurisdictions,
progress towards gender equity in the workplace has been uneven. There remains a gap between

expectations and the lived experience of women in public sector workplaces, potentially due to a

mismatch between policy and practice. We identified that middle managers, who are responsible

for many of the decisions around policy implementation, might be the key to understanding this.
Our aim was to talk to middle managers about their role in progressing gender equity.

Further aims of the project included to:

1. Identify systemic and structural impediments, and workplace management reforms and
   policy levers which may be utilised to counter these barriers,
2. Examine the different approaches of the jurisdictions in implementing gender equity and
   share lessons,
3. Support the development of best practice, providing reports and workshops to discuss
   the research findings and convert them into policy and strategies for implementation,
4. Develop teaching and case study resources, so that Australia and New Zealand School
   of Government (ANZSOG) students can become ambassadors for best practice and
   contribute to policy and practice solutions back in their workplaces; and
5. Deepen our understanding of the role of managers in relation to gender equity in
   particular, public sector employment and good governance in general.

This report draws together our findings from four Australian public sector jurisdictions: New South

Wales, Queensland, South Australia and Tasmania. We conducted fieldwork from November 2017

to February 2018, to gather information from eight agencies, which included 40 focus groups with

273 middle managers and 21 interviews with senior executives and human resource (HR) staff, for

a total of 294 participants. We acknowledge the support of ANZSOG, and the four jurisdictions

to undertake and complete the research.

Based on a wealth of experience from the participants, we have identified practices and processes

to facilitate progress toward embedding gender equity in public sector organisations. We provided

each jurisdiction with a report containing findings on their two agencies and suggested actions.
This report synthesises the findings from the four jurisdictional reports and contains suggested

actions agencies and managers can take. It also contains a leading practice guide which middle

managers can use to progress gender equity as part of their daily work (see Appendix A).

Funding for this publication has been provided by the Australia and New Zealand School of

Government Research Program.

5
6
Main Findings

• Senior executives and the majority of middle managers have a strong, and demonstrated
commitment to progressing gender equity in their agencies,

• The knowledge of middle managers on gender equity policies in their agency is variable
and dependent on a range of factors, including the existence of education and awareness
activities undertaken by their agencies and the opportunity to discuss the policies and
gender equality strategies. Some contrasted this with the more active commitment and
resourcing of White Ribbon and domestic violence awareness training,

• Managers welcomed the opportunity to discuss how to implement gender equity in their
daily working practices, and requested that senior leaders facilitate such conversations.
Managers are also largely committed to having these conversations with their staff,

• Many managers are committed to enabling employees to work flexibly, but also seek
greater support on how to manage requests and how to manage employee performance,

• A high level of awareness on how unconscious bias manifests in recruitment and selection
processes was evident in most of the organisations. Managers are committed to addressing
the operation of biases, but would also benefit from further support in this area,

• Most managers had a rudimentary understanding of how the merit principle operates in
relation to gender equity. While all were committed to employing ‘the best person for the
job’, conceptions of how merit is constructed and how merit and gender intersect were
at a low level; and

• Within each agency, we identified examples of innovative good practices to progress
gender equity, spanning the employment cycle.

7
Actions

Action area: Increasing managers’ and employees’ understanding of gender

equity, to embed gender equity in workplace practices.
Suggested actions:

• Central agencies to develop education and information campaigns around the different
elements of gender equity and inequity, and how these manifest,

• Agencies to encourage senior executives to lead routine conversations around gender
equity; and

• Agencies to make opportunities available for managers and employees to discuss what
gender equity means and how it can be progressed.

Action area: Challenging and changing recruitment and selection processes to

mitigate against hidden biases; providing career development opportunities to

overcome vertical and horizontal segregation.
Suggested actions:

• Central agencies to examine the intersections between unconscious bias and merit, how
this manifests in the workplace, and how ‘bias disruptors’ can be effectively utilised,

• Agency leaders and senior executives to lead a conversation challenging the presumed
objectivity of the merit principle and encouraging managers to see how recruiting for
equity and diversity can improve agency performance,

• A cross-jurisdictional approach to increase understanding of the construction of merit,
the operation of the merit principle, merit and targets be cascaded throughout all levels
of the public sector,

• Central agencies to consider innovative approaches to increase mobility, including
enabling departments to combine their mobility experiences into a central database,
accessible to employees across the public sector,

• Central agencies to engage managers in a dialogue about the need for targets, evidence
of their effectiveness, and how targets interact with the merit principle and other legal
frameworks governing public sector employment; and

• States and departments to monitor progress on their respective gender equity targets,
and regularly publish results to ensure accountability.

8
Action area: Increasing capacity for managers to manage staff working flexibly;
increasing usage of flexible working arrangements by both men and women.
Suggested actions:

• Central agencies to provide guidance to assist managers who are considering requests
to work flexibly; also develop training and guidance for managers to increase their
capability to manage employees working flexibly,

• Managers to routinely conduct an analysis of work allocation to identify whether part-
time staff are being provided with lesser quality work, and accordingly make appropriate
changes in work allocation,

• Agencies to formalise arrangements for staff to ‘act-up’ in roles on a part-time job-share
basis,

• Agencies to examine ways to empower managers to create and reform positions as
employees move in and out of part-time work, including through amalgamating ‘left-over’
portions of positions which have become part-time, to form new positions and additional
jobs,

• Agencies to enable their part-time employees to accumulate experiences necessary to
advance in the organisation while working reduced hours,

• Senior leaders to pro-actively role model flexible working. Agencies to actively promote
examples showing not only that it is possible to hold a senior executive position while
working flexibly or part-time, but demonstrate how senior executive roles can be attained
following a part-time or flexible career path,

• Agencies to develop job-share registers to assist employees to find job-share partners,

• Agencies to undertake workforce planning which realistically reflects actual staffing
levels and the necessary resources be provided to enable such planning; and

• Agencies to encourage a ‘safe-to-fail’ culture, to enable managers to try innovations and
not be burdened with fears of reprisal.

The report includes a examples of leading practice by managers to progress gender equity
(Appendix A) and the research design used (Appendix B).

9
1. Introduction

Governments in Australia have expressed their strong commitment to

progressing gender equity for their workforces and have developed various

strategies to advance their equity goals2. These strategies have complex

and multi-faceted aims, including: increasing the number of women in

leadership positions; breaking down barriers to allow both women and men

to combine paid work with caring responsibilities; and reducing occupational

segregation to enable people to work in areas best suited to their needs and

talents, rather than according to gendered social and organisational norms.

10
Much of the extant research has focused on employees’ needs for, and perceptions of, gender equity

in their workplaces, and has highlighted significant gaps between their aspirations and expectations

and their lived experience at work. With a gap between policy and practice, leaders have a critical

role in supporting the implementation of gender equity policy. Prior research has focused on the

influence and role of the senior leaders in organisations and of supervisors3. Surprisingly little

attention, however, has been paid to the role of middle managers in enabling and constraining

gender equity strategies in the workplace. This is an omission that needs to be addressed in order

to build knowledge and to understand the levers for change toward equity at work.

Our research targeted this gap, examining the role of middle managers in progressing gender

equity in four Australian public sector jurisdictions: New South Wales, Queensland, South Australia

and Tasmania. A team of researchers from the University of New South Wales, Canberra,
CQUniversity and the University of Sydney worked together to produce individual reports for the

jurisdictions and this synthesised national report.

The researchers would like to acknowledge the financial and logistical support from ANZSOG and

the New South Wales, Queensland, South Australian and Tasmanian governments. We particularly

thank the New South Wales Public Service Commission, the Office of the Commissioner for

Public Sector Employment (South Australia), the Public Service Commission in Queensland and

the Tasmanian State Service Management Office for their support and invaluable assistance

in organising access to the case study agencies, their leadership and support of this project.
We also thank the individual agencies for their cooperation, and participating executives and

managers for generously sharing their perspectives.

11
2. Gender Equity Policy Frameworks

All four jurisdictions have a solid policy framework to progress gender equity.
Each state draws on data analysis of their workforce profile to support their

case as to why the public sector needs to continue to progress gender equity.

12
KEY THEMES INCLUDE:
(a) Horizontal and vertical segregation in occupation and position level remains an ongoing
feature of public sector employment. Horizontal segregation refers to the tendency for
men and women to work in different industries or occupations, while vertical segregation
refers to the tendency for men to be disproportionately represented in senior roles
relative to women. In many of the agencies studied, there remained pockets of horizontal
segregation, especially in specialised fields such as Information and Communication
Technology (ICT) and finance, which tend to have a majority male workforce, and areas
such as HR and support services, which have a majority female workforce.

(b) There was significant evidence of vertical segregation. While each jurisdiction has a
majority-female workforce, women remain over-represented in lower employment
classification levels and are not proportionately represented in leadership positions. For
example, the Queensland Public Service Commission noted the slow increase in the
percentage of women in Senior Executive Service positions, from 29 per cent in 2003
to 34 per cent in 2014, and noted ‘(a)t this rate of change it will take until around 2045
to achieve gender parity’4. Similarly, women comprised between 35 and 48 per cent of
senior leadership in other jurisdictions studied (35 percent in Tasmania as at August
2016; 37 per cent in New South Wales in 2015; and 48 percent in South Australia in 2017.5

Women are more likely to work part-time due to their caring responsibilities, which further
limits their career opportunities. The South Australian government noted: ‘In 2011, the
Executive Feeder Group Survey found that the belief that [women] could not access
flexible work arrangements as an executive was a significant deterrent to respondents
aspiring to executive levels for both genders, but women chose this reason more
frequently than men’6.

Three jurisdictions (Queensland, South Australia and Tasmania) have a gender equity strategy;
New South Wales does not have a written policy focused specifically on gender equity, but has

broad aims detailed on the New South Wales Public Service Commission website. While the

approaches differ slightly between the jurisdictions – some focus on leadership while others

focus on gender equity more broadly – there are similarities in approaches. Common elements

across jurisdictions include a commitment to:

• making leaders accountable and visibly committed to progressing gender equality,

• changing workplace cultures and HR processes to overcome biases; and

• supporting flexible working arrangements for both women and men.

These strategies are complemented by a range of other policies and resources, including on

flexible working7 and encouraging women to work in majority male occupations8.

13
3. Findings

UNDERSTANDING AND RECOGNITION OF GENDER

EQUITY

The aim of promoting gender equity in the workplace is to remove barriers

to the full and equal participation of women in terms of equal pay for work

of equal or commensurate value; access to leadership roles, and removal

of gender discrimination, particularly in relation to family and caring

responsibilities9.

14
Participants in all 40 focus groups discussed their understanding of gender equity concepts.
Many defined gender equity as a phenomenon where fair and equal access to opportunity was

available irrespective of gender or family commitments. However, many participants equated

gender equity with numerical parity; that is, they said that gender equity would be achieved when

women comprised 50 per cent of senior leaders. Consequently, many managers considered

that gender equity was not a high priority for their departments, or had already been achieved,
due to the relatively high representation of women in senior leadership roles, particularly when

compared to the private sector. Comments such as the following were typical:

It’s not something I’ve come across here…
gender is not an issue in this Department.

It could be argued, however, that women holding 50 per cent of leadership positions10 is not an

equitable outcome when women hold around two-thirds of all public sector positions. Indeed,
some managers argued that despite the overall representation of women in the public sector,
forms of gender inequity remain embedded in the service, but are often overlooked. These

include: gendered cultures and behaviours, limited opportunities for individuals (mainly women)
with caring responsibilities or working part-time, horizontal and occupational segregation and

entrenched sex role stereotyping. In general, managers working in agencies where concerted

conversations had taken place around the aims of their respective gender equity strategies were

more likely to hold these more nuanced views of gender equity.

Our research suggests that middle managers’ understanding of gender equity is contingent on

agencies actively engaging their employees in a continuous dialogue about what gender equity

means, and how it can be achieved. Many participants believed this dialogue was lacking in their

organisations, and contrasted this with their agencies’ more active commitment to the resourcing

of other strategies, such as White Ribbon and domestic violence awareness training.

While some participants stated that they had discussed gender equity with their staff, many said

they did not have the resources or capability to engage in such conversations. However, many

participants welcomed the opportunity provided by this project to discuss with their peers the

meaning of gender equity and how to progress equity in their daily work. Further, our research

highlights the importance of strong agency leadership in promoting conversations about gender

equity, particularly in employment contexts where numerical gender parity (or near parity) may

mask more subtle sources of inequity.

• Suggested actions: Central agencies to develop education and information campaigns
around the different elements of gender equity and inequality, and how these manifest; and

• Agencies to encourage senior executives to lead routine conversations around gender
equity. Agencies to make opportunities available for managers and employees to discuss
what gender equity means and how it can be progressed.

15
RECRUITMENT AND SELECTION:
THE CONCEPT AND ROLE OF BIASES AND MERIT

All executives and HR staff who participated in our study indicated a desire for equitable

recruitment and selection processes. However, awareness of biases and other impediments

to gender equity in recruitment and selection processes varied across agencies, especially

with regard to the operation of unconscious biases. Many participants confirmed that they had

undertaken selection panel training, but generally as a one-off initiative. Most managers in our

sample had not undertaken any form of unconscious bias training, but many said that departments

should take greater steps to educate managers about the existence of unconscious biases, and

to mitigate the operation of such biases in recruitment and selection processes.

Research has shown, however, that in order for bias training to be successful, it must be part of

a continuous and sustained effort11. There is considerable scope for recruitment and selection

training to be followed up, to ensure managers recognise unconscious biases, and are given

opportunities to use ‘bias disruptors’12, such as senior leaders reviewing applicant shortlists, and

managers taking time out during the recruitment and selection processes to reflect on any biases

that may have been unintentionally triggered13.

The operation of unconscious biases is strongly linked to the current understanding of ‘merit’,
which is a deeply ingrained principle in the public sector. The intention of the merit principle is

to ‘guard against patronage, bias, and other undue influence’14 by allowing for competitive entry

into the public service. Recent academic research has shown that managers in organisations

that explicitly promote themselves as ‘meritocracies’ – recruiting, rewarding and promoting the
‘best’ people based on their individual skills and capabilities – are counter-intuitively more likely

to exhibit gender biases in favour of men over equally qualified women15. This so-called ‘paradox

of meritocracy’ occurs because managers rely on the belief that their decisions are objective16,
and consequently do not examine the role that biases may play in shaping their decisions.

Although many managers said they believed in the existence and operation of unconscious

biases, there was little recognition of the various ways in which implicit biases have been shown

to disadvantage women and some demographic minority groups in merit-based recruitment

and promotion systems17. Opportunities need to be provided to increase middle managers’
understanding of how biases can shape perceptions of merit.

Merit has increasingly come to be interpreted as ‘getting the best person for the job’18, a framing

that emerged strongly in every focus group undertaken in the project:

…you’re just taking the best person. It doesn’t matter what their
race, their gender, their colour, whatever, it’s the best person…

The tension between the ideal of merit and the goal of gender equity was widely discussed in

focus groups. Overall, there was substantial confusion about how the merit principle interacts

with organisational goals around equity and diversity. Some participants expressed concern that

recruiting to achieve diversity or equity – by appointing a women to meet a (formal or informal)

16
gender target, for example – could be construed as violating the merit principle. A smaller

number of managers, however, recognised that recruiting for diversity or equity could contribute

to broader organisational goals – such as expanding the creativity or decision-making power

of teams, or making departments more representative of the constituents they serve – and was

therefore consistent with merit.

Agency leaders and senior executives may wish to lead a conversation challenging the presumed

objectivity of the merit principle and encouraging managers to see how recruiting for equity and

diversity can improve agency performance. Such conversations are already underway in some

public sector organisations and could provide a model for departmental leaders to open this line

of dialogue19.

• Suggested actions: Central agencies to examine the intersections between unconscious
bias and merit, how this manifests in the workplace, and how ‘bias disruptors’ can be
effectively utilised,

• Agency leaders and senior executives to lead a conversation challenging the presumed
objectivity of the merit principle and encourage managers to see how recruiting for
equity and diversity can improve agency performance; and

• A cross-jurisdictional approach to increase understanding of the construction of merit,
the operation of the merit principle, merit and targets be cascaded throughout all levels
of the public sectors.

TARGETS

Further misunderstandings in relation to merit emerged in discussions of gender targets, which

were largely considered to be incompatible with the merit principle. Targets and other affirmative

action initiatives are used to drive gender equity in many public sector organisations, including

those participating in the research agencies. Targets are a mechanism used to counter women’s

under-representation in the senior ranks and over-representation in lower levels of public sector

organisations, a phenomena which has been well documented20.

Overall, in focus group conversations we encountered widespread resistance to the idea of

deploying targets. While some participants considered that targets could be effective in some

areas, such as in ICT for example, most participants argued that a stigma may be attached to

women who were perceived to have been promoted to meet a target, rather than on the basis of

having the required skills, competencies and attributes:

I don’t know that the target is necessarily the right thing
because I would hate for a woman to get a job just because she’s
a woman when there were more qualified applicants out there.

17
Some female focus group participants were concerned that targets might subject women to

claims of ‘tokenism’ and raise claims of reverse discrimination, leading to a backlash against the

broader goal of gender equity. As noted in the previous section on merit selection, managers who

expressed support for the goal of gender targets were also uncertain about how recruiting to

meet such targets fits within the rules governing public sector employment. Our findings suggest

that while many central agencies are actively pursuing gender targets, managers have a number

of concerns which may inhibit the achievement of those targets.

Academic research shows both positive and negative impacts in workplaces where targets have

been implemented. In Australia and internationally, targets have contributed to an increased

number of women in leadership positions21. Some negative aspects do attach to the concept

of targets, however, including the possibility that women appointed under this system may be

viewed as less competent than the male applicants who were not appointed22. We recommend

that overall targets be set at the state-wide level – as has been done in New South Wales, for

example – and that all departments set appropriate gender targets to contribute to achievement

of the state-wide objectives.

• Suggested actions: Agencies to engage managers in a dialogue about the need for
targets, evidence of their effectiveness, and how targets interact with the merit principle
and other legal frameworks governing public sector employment; and

• States and departments to monitor progress on their respective gender equity targets,
and regularly publish results to ensure accountability.

CAREER DEVELOPMENT

Mobility23 experiences, such as giving staff the opportunity to move into other positions or another

agency to fulfil a short-term vacancy, is an excellent form of development. Mobility experiences

can be a way of addressing vertical segregation, by allowing women to gain necessary skills

to advance up the ladder, and horizontal segregation, by allowing women to gain experience

needed to transition across roles. While many of the agencies that participated in the research

offered formal training opportunities for employees, access to informal development opportunities

was more varied. Generally, mobility was limited in many areas and for different groups of

employees, particularly those working part-time and in regional areas. Many managers noted a

lack of ‘backfilling’ positions (replacing a staff member on leave for example, with another staff

member) which reduced the opportunities for staff to broaden their work experience and to work

temporarily in higher graded positions.

Scope exists for greater clarity around the processes for mobility and relieving opportunities.
A recurring theme within the focus groups was a lack of transparency in relation to access to

these opportunities. Some managers argued that informal practices such as ‘tapping on the

shoulder’ did not always lead to equitable – especially gender equitable – access to opportunities.
Furthermore, some managers expressed that access to such experiences was strongly contingent

on the support of individual managers. Jurisdictions need to develop creative approaches to

mobility and backfilling to progress gender equity. Allowing employees to access and apply

directly for such roles would increase the transparency and equity of the process. It would also

18
enable employees to gain access to skills and experiences required to advance vertically within

the organisation, or to shift horizontally into areas where they may have lacked prior experience.

• Suggested action: Central agencies to consider innovative approaches to increase
mobility, including enabling departments to combine their mobility experiences into a
central database, accessible to employees across the public sector.

FLEXIBLE WORK ARRANGEMENTS

Flexible work arrangements are often seen as essential to the development of gender equitable

workplaces, because they enable employees with caregiving responsibilities to reach their full

potential24. Research has shown that middle managers are critical to enabling employees to access

flexible working arrangements, as they determine which employees can and cannot access non-
standard working arrangements. Middle managers also mediate work group responses to those

who work on a flexible basis25.

Participants in our eight case study organisations demonstrated a strong commitment to enabling

employees to work flexibly, in a variety of organisational settings, including for customer-facing

staff and those working in other operational areas. Some organisations were also implementing
‘all roles flex’ or ‘flexibility by default’, where there is a reverse onus on requests for flexible

working, so that requests are considered on an ‘if not, why not’ basis.

However, while commitment was strong, managers also discussed the operational difficulties

flexible working can bring and many requested additional support in both approving requests and

managing the performance of employees who worked remotely or from home. Many managers

spoke of being uncertain of when they could refuse a request for an employee to work flexibly,
and requested additional guidance around how to adjust or revoke a flexible working arrangement

in the case of poor performance (such as that provided by the South Australian jurisdiction26).
Additionally, managers were uncertain of the link between working remotely and performance.
Managers also stated that they needed more training, and more conversations around how to

manage employees working remotely or from home:

…we’re learning that on the job because we don’t sort of
really, never really sat down and thought about how we
will manage with people who are working from home.

In agencies where remote working was uncommon, managers noted strong pockets of resistance

to the practice based on a perceived lack of trust, or concern about the ability to manage

underperformers. In agencies where working from home was more commonplace, managers

also expressed concern about underperformance, and requested guidance about to manage

these staff. Interestingly, managers’ concerns seemed to relate to the maturity of these policies.
For example, in agencies where working from home was a relatively new phenomenon, managers

generally reported that employees worked hard to ensure they could keep accessing the flexibility.

19
In agencies where remote working was more entrenched, however, managers were more likely

to report mixed experiences regarding the reliability and productivity of remote workers. Central

agencies therefore need to provide training and guidance to assist managers who are considering

requests to work flexibly and to increase their capability to manage employees working flexibly.

• Suggested action: Central agencies to provide guidance to assist managers who are
considering requests to work flexibly; also develop training and guidance for managers
to increase their capability to manage employees working flexibly.

PART-TIME WORK

Part-time work is a key mechanism by which Australian women combine work and caring

responsibilities, with Australia having the third highest rate of part-time work amongst countries

in the Organisation for Economic Cooperation and Development27. Requests to work part-time

or reduce hours were also the most common formal flexible working arrangement request made

to managers in Australia in 2012-1328. Research in Australia and abroad has shown, however,
that part-time work is associated with a lack of career progression, often due to perceptions

regarding part-time workers’ commitment and a general reluctance in many organisations to

further promote part-time workers29. There can also be perceptions that senior roles cannot be

done in a reduced hours format. An additional challenge is that men are both less likely to request

flexible working arrangements and are more likely to be refused when they do so30.

The managers in our study reported widespread use of part-time work in their agencies. This

was particularly true for women, consistent with broader employment patterns. Participants held

mixed views on part-time work and career opportunities. Some managers reported that working

part-time could be a career barrier for their employees or themselves, while other managers

proactively found career development opportunities for their part-time staff. Some participants

noted that certain jobs could not be done part-time, and that working part-time could limit access

to mobility experiences (such as temporarily filling a more senior position) or promotions. The

importance of being able to access good quality part-time jobs with promotion potential was a

major theme that emerged in nearly all of the focus groups. Many managers argued that part-
time workers were not given the types of complex projects necessary to advance within their

organisations:

I just feel like you get better opportunities by being available
five days a week. You might get a high priority project because
they know you’re going to be here, they know that you can
commit full-time and possibly more to delivering something.

One way to improve career development opportunities for part-time staff would be to enable

job-sharing of higher duties. For example, if a manager were to take a role at 0.6 full time

equivalent (FTE), a staff member at the next lowest level could ‘act up’ in that position at 0.4 FTE,
receiving higher pay and training opportunities for those two days. Another innovation involved

20
amalgamating ‘left-over’ portions of positions which had become part-time, to form new positions

and additional jobs across divisions. Further, part-time employees would benefit from accessing

such opportunities.

• Suggested actions: Managers to routinely conduct an analysis of work allocation to identify
whether part-time staff are being provided with lower quality work, and accordingly make
appropriate changes in work allocation,

• Agencies to formalise arrangements for staff to ‘act-up’ in roles on a part-time job share
basis,

• Agencies to examine ways to empower managers to create and reform positions as
employees move in and out of part-time work, including through amalgamating ‘left-over’
portions of positions which have become part-time, to form new positions and additional
jobs; and

• Agencies to enable their part-time employees to accumulate experiences necessary to
advance in the organisation while working reduced hours.

Leaders working part-time

The presence of female role models in senior leadership is an important factor in women’s

mid-career progression. However, research examining the experiences of part-time managers

suggests that the sex of senior leaders may be less important than the work-life patterns they

model. Female leaders who have no children or work long, full-time hours with the support of

full-time childcare can be seen as impressive career women but lacking in work-life balance, a

perception which may discourage some women from seeking senior roles31. Male leaders who

champion flexibility can assist in ‘normalising’ the practice, for both men and women. We heard

many positive stories of both male and female senior leaders role modelling flexible working

arrangements, including a very few who worked part-time. Many participants stated that the lack

of part-time leadership opportunities was a prime impediment to women being able to participate

in senior roles. The lack of male role models working part-time compounded managers’ beliefs

that senior roles were incompatible with reduced hours.

Job-sharing was perceived to be one of the more viable ways to combine a senior executive

role with reduced hours. Participants noted that the burden to organise and negotiate the terms

of a job-sharing arrangement was often placed with the individual seeking the arrangement.
Managers argued that this limited the supply of job-share positions and made the process

difficult and stressful to navigate for individuals. Some managers argued that their organisations

might make job-sharing opportunities, including in senior roles, more widely known including at

the recruitment stage, or create a centralised database where employees of similar skills and

qualifications could ‘match themselves’ and apply for positions jointly.

• Suggested actions: Senior leaders proactively role model flexible working. Agencies to
actively promote examples showing not only that it is possible to hold a senior executive
position while working flexibly or part-time, but demonstrate how senior executive roles
can be attained following a part-time or flexible career path; and

• Agencies develop job-share registers to assist employees to find job-share partners.

21
FLEXIBILITY AND PRODUCTIVITY

One theme that emerged from focus groups in two jurisdictions was that flexibility has the potential

to compromise responsiveness and productivity. Managers requested that reduced capacity be

reflected in realistic deadlines and also in business planning. Participants stated that their senior

leaders expected that the same amount of work would be completed, even when staff worked

part-time. Participants stated that at times, flexibility had compromised responsiveness and

output. A lack of staff to backfill had also exacerbated this situation and consequently, budgetary

constraints were seen to impede on flexibility. Managers requested conversations occur about

what work they were not going to do when employees reduced their hours. Work plans also

need to reflect FTE. This needs to occur in the business planning cycle, as well as on a daily

basis. Agencies may benefit from access to resources on workforce planning, such as has been

developed by the Office of the Commissioner for Public Sector Employment in South Australia32.

Some participants, however, reported that their senior manager recognised that this was an issue

and that delivery of projects may be delayed:

But we’ve had this conversation at the leadership group just
recently and we’ve actually now extended that to a three year
plan acknowledging that we have a lot of part-time staff and
flexible working arrangements and the scope of the work that
we had planned for the two years was actually quite ambitious.

Such an approach needs to be widespread across public sector jurisdictions to enable outcomes

to be met with appropriate resourcing.

• Suggested action: Agencies to undertake workforce planning which realistically reflects
actual staffing levels and the necessary resources be provided to enable such planning.

22
INNOVATIONS IN FLEXIBLE WORKING

As the public sector generally transforms to become more agile, this will include increasing

support for flexibility. Our study identified innovative solutions in addition to those mentioned

previously. One was ‘flexible flexibility’, where an employee could move easily in and out of part-
time work, such as employees who worked part-time for most of the year but worked full-time for

two months a year during the team’s busiest period. Yet others used technology, with one team

using shared document editing programs, so multiple authors could work on one document.
Others had developed a buddy system and shadowing to manage flexible workers. Another

department had moved to ensure that at least two employees had shared responsibility for single

tasks or policy areas, to minimise disruptions when one employee could not be present.

Several agencies in our study were trying broader workplace innovations that supported flexible

working. ‘All roles flex’ or ‘flexible by default’ and activity based working (such as not having a

fixed desk position and having workspaces dedicated to specific activities) were trialled in some

of the agencies we studied. To date, there does not seem to have been evaluation of how these

initiatives are working in terms of productivity or gender equity.

Further examples of good practice are in Appendix A and agencies could also share such

examples internally and across the public sector. This may indeed be occurring. Agencies also

need to encourage a ‘safe-to-fail’ culture, as is occurring in the South Australian public sector33,
to enable managers to try such innovations.

• Suggested action: Agencies to encourage a ‘safe-to-fail’ culture, to enable managers to
try innovations and not be burdened with fears of reprisal.

23
4. Conclusion

24
This synthesis report draws on insights from the reports provided to each state government,
and provides suggestions for actions that are likely to have the most impact to progress gender

equity in these four jurisdictions, as well as other public sectors in Australia and internationally.
Organisations and middle managers are encouraged to use what will work for them, which is

dependent on the current level of gender equity in their organisations.

Our research has shown that middle managers are committed and utilise both formal and

informal policies and procedures to progress gender equity. These managers are also innovative,
developing solutions tailored to their team which could be shared more widely. One of the aims

of this project was to share good practices, and the participants generously provided a wealth of

experiences and practices which can be utilised across the public sector.

This report has contributed to filling the gap in knowledge around how middle managers are

progressing gender equity, yet more remains to be done. Public sector organisations are at the

forefront of implementing gender equitable initiatives, and emerging areas include the increasing

adoption of ‘all roles flex’, activity based working, an increasing recognition of the role that

unconscious biases play in human resource practices, as well as of the operation of the merit

principle. These are all rich areas deserving ongoing conversations and further research.

For further information

To find out more about this project or to discuss future research partnerships, email the project

leader, Dr Sue Williamson at s.williamson@adfa.edu.au.

25
Appendix A: Middle Managers Role

in Progressing Gender Equity:
A leading practice guide

This leading practice guide has been developed after almost 300 middle managers, senior

leaders and human resource professionals participated in research to examine how managers

can progress gender equity in their organisation.

CREATE A CULTURE OF AWARENESS AND CHANGE
• Recognise the powerful role that middle managers play in promoting and progressing
gender equality,

• Encourage conversations about gender equality, the merit principle, unconscious bias
and working flexibly. Use resources provided by your agency to assist you,

• Include gender equity topics on the agenda at team meetings, instigate discussions in
the lunch room and be part of developing an inclusive culture. Establish momentum and
initiate a program of activities together. This will be more successful than a stand-alone
event,

• Include men in conversations about gender equity. Explain the business benefits of
gender equity to everyone, and encourage men to attend gender equity events,

• Celebrate early wins publicly and share successful stories about positive gender equity
figures and new approaches to working flexibly. This will enable employees to see how
gender equity benefits them personally; and

• Create a culture where people are recognised for promoting gender equity and feel safe
to ‘call out’ others who may not be behaving according to the organisation’s values of
respect and equality.

26
ADAPT HUMAN RESOURCE PROCESSES TO PROGRESS

GENDER EQUITY

Job design
• Use portions of part-time positions to create new positions for acting, higher duties or
backfilling opportunities for others,

• Design jobs around a collection of tasks, not necessarily around making up one new
full-time position; and

• Implement and analyse job-sharing arrangements to identify the productivity of a six day
week (as a job-share) over one full-time equivalent position.

Recruitment & selection
• Have conversations around merit – what it means, what it looks like and how targets and
merit are not mutually exclusive. Consider how recruitment can be undertaken by looking
at merit in a different way,

• Consider attracting different genders to non-traditional roles. Identify blockages in
recruitment pathways and ask questions about why different people are not applying,

• Go outside of the standard avenues when advertising and searching for candidates. Try
different recruitment methods such as: blind recruitment, work tests, presentations, role
plays and activities that challenge how candidates respond in different situations,

• Review job descriptions whenever there is a vacancy. Assess for gendered language
and inclusiveness. State that flexible hours will be considered and women and those
with caring responsibilities are encouraged to apply. Articulate the organisational values,
behaviours and competencies, not just the technical skills required for the role; and

• Aim for shortlists to have an even gender split of applicants. If this is not possible,
consider revising the job description, advertising and search mechanisms.

Career development
• Find and encourage mobility opportunities for all staff to increase their experience,

• Cross-train employees to broaden their skills, but to also enable them to move around their
agency, other agencies, to backfill or be an additional resource in times of need; and

• Plan work so that everyone – including part-time staff – have the opportunity to work on
interesting and prestigious projects.

27
TECHNOLOGY & SUPPORT
• Insist on appropriate technology to support staff who work flexibly. Provide laptops,
shared calendar access, shared document editing platforms and remote meeting options,

• Use a shared calendar to track leave and employees working flexibly, even if they’re just
going to be in later,

• Discuss office communication requirements, standards of work and expectations on
output. Provide guidelines on working from home; and

• When putting project teams and workplans together, consider those working flexibly and
accurately forecast resource needs and deadlines.

FLEXIBLE WORKING ARRANGEMENTS
• Make it clear that flexibility is not just a ‘women’s’ issue, it is good business practice - a
mutually beneficial arrangement where home and business priorities are met,

• Encourage men and those at higher levels to access flexible arrangements, and promote
this as positive case studies,

• Make decisions on workplace flexibility by consulting with the team, so it’s a shared
response, not just the responsibility of the manager and employee,

• Be flexible across the year and negotiate with part-time staff who might be available to
work full-time for the busiest time of the year,

• Cross-train staff and implement shadowing arrangements to broaden employees’ skills,
to allow them to move around departments and backfill roles; and

• Create an environment where those who are acting, backfilling or working in new roles
feel ok to try new things. Support them to make decisions in the absence of others.

This leading practice guide is available as a separate document. It can be downloaded from the

Public Service Research Group website [https://www.unsw.adfa.edu.au/public-service-research-
group/research-projects/middle-managers%E2%80%99-role-progressing-gender-equity-leading-
practice-guide] and is available in hard copy by calling +61 2 6268 8074.

28
Appendix B: Research Design

The aim of this project was to understand the role of middle managers in progressing gender

equity in public service workplaces.

The first phase of the research project involved understanding the context and developing the

sample. The research team analysed key policies and strategic documents pertaining to gender

equity, which were provided by the central agencies from each jurisdiction. The research team also

interviewed key executives, such as Public Service Commissioners, Assistant Commissioners,
Deputy Commissioners and their representatives, to further understand the key priorities and

strategic initiatives being undertaken to progress gender equity in each state. Central agencies

in each jurisdiction34 identified two agencies to participate in the study based on a range of

criteria, which might provide interesting comparisons because of seeming dissimilarity. Criteria

were also used to identify which employees were ‘middle managers’, to ensure comparability

across jurisdictions. This approach yielded a diverse sample of eight case agencies, each at

different stages in their progress toward gender equity.

The second phase of the research involved interviews and focus groups within these eight

selected agencies from November 2017 to February 2018. Within each agency, the researchers

conducted interviews with at least two senior staff to gain a strategic view of the organisation’s

gender equity initiatives, and conducted at least four focus groups with middle managers. In total,
the study involved 294 participants, including 21 interviews with senior executives and human

resource staff, and 40 focus groups with 273 middle managers.

Each focus group involved 90 minutes of broad-ranging and natural conversation around key

themes to gain insight into how middle managers were experiencing gender equity strategies

in their local context. The interviews and the focus groups focused on the general themes as

presented in Tables 1 and 2 below.

Interviews and focus groups were transcribed and the research team analysed text to draw

out key themes within and across organisations. Each jurisdiction was provided with a report

containing findings and suggested actions for stakeholders at different levels, including whole-
of-government initiatives; senior managers within agencies, senior HR managers, in conjunction

with their teams; and middle managers themselves.

29
TABLE 1: MIDDLE MANAGERS AND GENDER EQUITY IN

THE PUBLIC SECTOR: INTERVIEW THEMES FOR SENIOR

EXECUTIVES

Gender Equity Objective: To understand the main priorities and challenges in
progressing gender equity in the organisation.

Key themes:

• Main priorities for the organisation

• Main challenges

• Key blockages/inhibitors

• Key enablers

Career Objective: To understand the mechanisms and/or blockages in the
Development organisation for developing and promoting women’s careers.

Key themes:

• Unconscious bias

• Recruitment and selection

• Training and development

• Targets/Affirmative Action

Flexibility Objective: To understand how flexibility operates in the organisation.

Key themes:

• Flexible work arrangements policies and usage

• Sources of support

• Sources of resistance

• Accessibility (by role, job characteristics, seniority, etc.)

30
Role of Middle Objective: To understand the role of middle managers within the

Managers organisation and engagement with the agency’s broader gender
equity agenda.

Key themes:

• Role and responsibility of middle managers

• Engagement with gender equity

• Sources of support

• Sources of resistance

Measurement and Objective: To understand how gender equity is monitored and

Reporting evaluated in the organisation.

Key themes:

• Monitoring and evaluation mechanisms

• Accountability mechanisms (Key Performance Indicators
linked to gender equity, etc.)

31
TABLE 2: MIDDLE MANAGERS AND GENDER EQUITY IN

THE PUBLIC SECTOR: INTERVIEW THEMES FOR MIDDLE

MANAGERS

Gender Equity Objective: To understand how middle managers perceive gender
equity in the organisation, and degree of engagement with gender
equity issues.

Key themes:

• Gender equity in the organisation: current state

• Perspectives on the organisation’s approach to gender
equity

• Key blockages/inhibitors to gender equity

• Key enablers

• Rationale for progressing gender equity

Implementation Objective: To understand how middle managers engage with and
implement the organisation’s gender equity agenda/strategy.

Key themes:

• Challenges in implementation

• Sources of support

• Sources of resistance

Career Objective: To understand middle manager perspectives on the
Advancement mechanisms/blockages in the organisation for developing/promoting
women’s careers.

Key themes:

• Unconscious bias

• Recruitment and selection

• Performance management

• Career development

• Targets / Affirmative Action

32
Flexibility Objective: To understand middle managers perspectives on access
to flexibility in the organisation.

Key themes:

• Experiences/challenges managing requests for flexibility

• Workforce/operational impediments to flexibility

• Cultural impediments to flexibility

• Experiences role modelling flexibility

• Views on the implications for career progression of
accessing flexible work arrangements (for men and women)

• Accessibility (by role, job characteristics, seniority, etc.)

33
About the Authors

Dr Sue Williamson

Sue Williamson is a Senior Lecturer in Human Resource Management at the University of New

South Wales, Canberra. As a member of the Public Service Research Group, Sue’s scholarship

focuses on how organisations can create and sustain gender equitable and inclusive cultures,
with a particular focus on the public sector. Her work has been published widely in academic

journals and media outlets and Sue regularly shares her findings with public sector audiences.
In 2017, Sue was awarded a highly competitive grant from the Australia and New Zealand School

of Government to lead the research project which culminated in this report. Sue was also named

a 2017 Telstra Business Women’s Award (Public Sector and Academia) Finalist for the ACT. Sue

is also the President of the Association of Industrial Relations Academics of Australia and New

Zealand.

Dr Linda Colley

Linda Colley is a Discipline Leader in Human Resource Management at CQUniversity. Her current

research examines: public sector employment themes of merit and tenure; gender equity in pay,
progression and superannuation; affirmative action in political parties; and senior executives in

public services. She has received funding from the Australian Research Council and ANZSOG,
and her industry partners include state governments, trade unions and superannuation funds.
Linda is active in national and international research networks, and her other roles include Vice-
President of the International Research Society for Public Management (IRSPM) and Chair of the

Queensland Government Work Health and Safety Board.

34
Dr Meraiah Foley

Meraiah Foley specialises in the relationship between gender, work, and organisations. As a

Research Fellow with the Public Service Research Group, Meraiah is currently examining gender

equality in the Australian public sector. Her prior research has focused on the comparative industrial

relations frameworks in the United States and Australia and their relationship to gendered labour

market outcomes, impact of motherhood on women’s careers and self-employment, the impact

of paid parental leave on Australian employers, and employee and employer attitudes around the

introduction of Dad and Partner Pay.

Professor Rae Cooper

Rae Cooper is Associate Dean (Programs), the University of Sydney Business School and Co-
Director of the Women, Work and Leadership Research Group. Rae is a leading researcher

on the world of work and has a particular interest in gender and work, women’s careers and

flexible employment. She has received grants from the Australian Research Council, from state

and federal governments and has worked in collaboration with leading organisations including

the Australian Human Rights Commission, the Australian Institute of Company Directors and

the Australian Council of Trade Unions through her research. Rae uses her research expertise

to contribute to public debates about work and careers and is a key Australian commentator on

workplace matters in television, radio and print media.

35
Endnotes

1 See for example, State Service Management Office (2016) Gender Diversity in the Tasmanian State Service,
Tasmanian Government: Hobart; Public Service Commission (2015) 50/50: On equal footing, Queensland
Government, Brisbane; Government of South Australia (n.d.) Gender Equality in Leadership: A strategy for gender
equality in leadership in the South Australian Public Sector, Government of South Australia.
2 See for example, State Service Management Office (2016) Gender Diversity in the Tasmanian State Service,
Tasmanian Government, Hobart; Public Service Commission (2015) 50/50: On Equal Footing, Queensland
Government, Brisbane; Government of South Australia (undated) Gender Equality in Leadership: A strategy for
gender equality in leadership in the South Australian Public Sector, Government of South Australia.
3 Cooper, R. and Baird, M. (2015) Bringing the ‘right to request’ flexible working arrangements to life: From policies
to practice, Employee Relations, 37:5, 568–581; McDonald, P. and Cathcart, A. (2015) A Manager-Centred
Perspective on Work-Life Integration, in Wilkinson, A., Townsend, K. and Suder, G.(eds.) Handbook of Research
on Managing Managers, Edward Elgar Publishing, Cheltenham, 245–263.
4 Queensland Public Service Commission, ibid, 7.
5 Tasmanian State Service Management Office, ibid, 4; New South Wales Public Service Commission (n.d.) Diversity
and Inclusion: Gender equity, https://www.psc.nsw.gov.au/workplace-culture---diversity/diversity-and-inclusion/
gender-equity/gender-equity; Office for the Public Sector (2017) Workforce Information Report 2016-17, https://
publicsector.sa.gov.au/wp-content/uploads/20171221-Workforce-Information-Report-2017.pdf, 19. These dates
per jurisdiction reflect latest available data.
6 Office of the Commissioner for Public Sector Employment, South Australia , ibid, 10.
7 Office of the Commissioner for Public Sector Employment, South Australia, ibid; Queensland Public Service
Commission, ibid.
8 New South Wales Public Service Commission, ibid.
9 Workplace Gender Equality Agency (WGEA) (2016) The Business Case for Gender Equality, Australian Government,
Sydney.
10 Note: The New South Wales public sector refers to ‘roles’, not ‘positions’, but for the sake of consistency, the term
‘positions’ in used throughout this report.
11 Devine, P., Forscher, P.S., Austin, A.J. and Cox, W.T.L. (2012) Long-term Reduction in Implicit Race Bias: A Prejudice
Habit-Breaking Intervention, Journal of Experimental Social Psychology, 48:6, 1267-1278.
12 Bohnet, I. (2016). What Works: Gender Equality by Design. Cambridge: The Belknap Press of Harvard University
Press.
13 Foley, M and Williamson, S (2018) Managerial Perspectives on Implicit Bias, Affirmative Action, and Merit, Public
Administration Review. DOI: 10.1111/puar.12955.
14 Australian Public Service Commission (2015) Unlocking Potential: APS Workforce Management Review,
Commonwealth of Australia, Canberra.
15 Castilla, E.J. and Benard, S. (2010) The paradox of meritocracy in organizations, Administrative Science Quarterly,
55:4, 543–676.
16 Uhlmann, E.L. and Cohen, G.L. (2007) I think it, therefore it’s true: Effects of self-perceived objectivity on hiring
discrimination, Organizational Behavior and Human Decision Processes, 104:2, 207–223.
17 Castilla, E. J. (2008) Gender, Race, and Meritocracy in Organizational Careers; Heilman, M.E. and Eagly, A.H.
(2008) Stereotypes are Alive, Well, and Busy Producing Workplace Discrimination. Industrial and Organizational
Psychology, 1:4, 393-398.
18 Godwin, A. (2011) Merit and its merits in the Public Service: Are we confusing the baby with the bathwater?
Australian Journal of Public Administration, 70:3, 318–326.
19 Chief Executive Women and Male Champions of Change (2016) In the Eye of the Beholder: Avoiding the Merit
Trap, Chief Executive Women and Male Champions of Change, Sydney.
20 Evans, M, Edwards, M, Burmester, B and May, D (2015) Not yet 50/50’ – Barriers to the Progress of Senior
Women in the Australian Public Service, Australian Journal of Public Administration, 73:4, 501–510; Rabovsky,
Thomas, and Hongseok Lee (2017) Exploring the Antecedents of the Gender Pay Gap in U.S. Higher Education,

36
Public Administration Review, n.p; Riccucci, N. (2009) “The Pursuit of Social Equity in the Federal Government: A
Road Less Traveled?” Public Administration Review; 69:3, 373–382, 369, OECD.
21 Terjesen, S, Aguilera, R, and Lorenz, R (2015) Legislating a Woman’s Seat on the Board: Institutional Factors
Driving Gender Quotas for Boards of Directors, Journal of Business Ethics, 128:2, 233-251; Whelan, J. and Wood,
B. (2012) Targets and Quotas for Women in Leadership: A Global Review of Policy, Practice, and Psychological
Research, University of Melbourne, Melbourne; Klettner, A, Clarke, C and Boersma, M. (2016) Strategic and
Regulatory Approaches to Increasing Women in Leadership: Multilevel Targets and Mandatory Quotas as Levers
for Cultural Change, Journal of Business Ethics, 133:3, 395-419.
22 Whelan, J. and Wood, B. (ibid).
23 While mobility can refer to moving between agencies, in this report the term is also used to refer to staff moving
within an agency.
24 Ely, R. J. and Meyerson, D. E. (2000) Advancing gender equity in organizations: The challenge and importance of
maintaining a gender narrative, Organization, 7:4, 589-608.
25 Cooper, R. and Baird, M. (2015) Bringing the ‘right to request’ flexible working arrangements to life: From policies
to practice, Employee Relations, 37:5, 568–581.
26 Office of the Commissioner for Public Sector Employment (n.d.) Flexibility at Work: Information for Managers
and Employees, https://publicsector.sa.gov.au/wp-content/uploads/August2017Flexibility-at-Work-information-for-
Managers-and-Emplo.._.pdf.
27 OECD (2016) Part-time Employment Rate, Accessed 21 February 2017: https://data.oecd.org/emp/part-time-
employment-rate.htm.
28 Skinner, N., Pocock, B. and Hutchinson, C. (2015) A qualitative study of the circumstances and outcomes of the
National Employment Standards Right to Request provisions, https://www.unisa.edu.au/PageFiles/34117/FWA%20
report%20-%20NES%20flexibility%20-%20final.pdf.
29 Baxter, J. and Chesters, J. (2008) Perceptions of work-family balance: How effective are family-friendly policies?,
Australian Journal of Labour Economics, 14:2, 139–151; Durbin, S. and Tomlinson, J. (2014) Female part-time
managers: Careers, mentors, and role models, Gender, Work & Organization, 21: 4, 308–320; Grant, L. (2009) Job
design and working hours: Key sources of gender inequality, in Yeandle, S. (ed.) Policy for a Change: Local Labour
Market Analysis and Gender equity, The Policy Press, Bristol.
30 Skinner, N., Pocock, B. and Hutchinson, C, ibid.
31 Durbin, S. and Tomlinson, J. (2014) Careers, mentors, and role models for female part-time managers, Gender,
Work & Organization, 21:4, 308–319.
32 Office of the Commissioner for Public Sector Employment, South Australia (2017) Working It Out: A workforce
planning guide, https://publicsector.sa.gov.au/wp-content/uploads/28062017-Working-it-Out-Workforce-Planning-
Guide-Final.pdf.
33 Office of the Commissioner for Public Sector Employment, South Australia (n.d.) Gender Equality in Leadership: A
strategy for gender equality in leadership in the South Australian Public Sector, 9.
34 New South Wales Public Service Commission, the Office of the Commissioner for Public Sector Employment, South
Australia, the Queensland Public Service Commission and the Tasmanian State Service Management Office.

37
Notes

38
39
Public Service
Research
Group

Cricos Provider Code 00098G • 180884

40
Middle Managers’ Role in
Progressing Gender Equity:
A leading practice guide

Linda Colley, Sue Williamson, Meraiah Foley, Rae Cooper
This guide has been developed as a product of a 2017-18 research project

between UNSW Canberra, the University of Sydney, CQUniversity and

the New South Wales, Queensland, South Australian and Tasmanian

governments. The project examined how middle managers can progress

gender equity at work and was based on conversations with 300 middle

managers, senior public sector leaders and human resource professionals

in the four jurisdictions.

CREATE A CULTURE OF AWARENESS AND CHANGE
• Recognise the powerful role that middle managers play in promoting and progressing gender equality.
• Encourage conversations about gender equality, the merit principal, unconscious bias and working
flexibly. Use resources provided by your agency to assist you.
• Include gender equity topics on the agenda at team meetings, instigate discussions in the lunch
room and be part of developing an inclusive culture. Establish momentum and initiate a program of
activities together. This will be more successful than a stand-alone event.
• Include men in conversations about gender equity. Explain the business benefits of gender equity to
everyone, and encourage men to attend gender equity events.
• Celebrate early wins publicly and share successful stories about positive gender equity figures and
new approaches to working flexibly. This will enable employees to see how gender equity benefits
them personally.
• Create a culture where people are recognised for promoting gender equity and feel safe to ‘call out’
others who may not be behaving according to the organisation’s values of respect and equality.

ADAPT HUMAN RESOURCE PROCESSES TO

PROGRESS GENDER EQUITY

Job Design
• Use portions of part-time positions to create new positions for acting, higher duties or backfilling
opportunities for others.
• Design jobs around a collection of tasks, not necessarily around making up one new full-time position.
• Implement and analyse job-sharing arrangements to identify the productivity of a six day week (as a
job-share) over one full-time equivalent position.

Recruitment & Selection
• Have conversations around merit – what it means, what it looks like and how targets and merit are not
mutually exclusive. Consider how recruitment can be undertaken by looking at merit in a different way.
• Consider attracting different genders to non-traditional roles. Identify blockages in recruitment
pathways and ask questions about why different people are not applying.
• Go outside of the standard avenues when advertising and searching for candidates. Try different
recruitment methods such as: blind recruitment, work tests, presentations, role plays and activities
that challenge how candidates respond in different situations.
• Review job descriptions whenever there is a vacancy. Assess for gendered language and
inclusiveness. State that flexible hours will be considered and women and those with caring
responsibilities are encouraged to apply. Articulate the organisational values, behaviours and
competencies, not just the technical skills required for the role.
• Aim for shortlists to have an even gender split of applicants. If this is not possible, consider revising
the job description, advertising and search mechanisms.

Career development
• Find and encourage mobility opportunities for all staff to increase their experience.
• Cross-train employees to broaden their skills, but to also enable them to move around their agency,
other agencies, to backfill or be an additional resource in times of need.
• Plan work so that everyone – including part-time staff – have the opportunity to work on interesting
and prestigious projects.

TECHNOLOGY & SUPPORT
• Insist on appropriate technology to support staff who work flexibly. Provide laptops, shared calendar
access, shared document editing platforms and remote meeting options.
• Use a shared calendar to track leave and employees working flexibly,
even if they’re just going to be in later.
• Discuss office communication requirements, standards of work and expectations on output.
Provide guidelines on working from home.
• When putting project teams and workplans together, consider those working flexibly and accurately
forecast resource needs and deadlines.

Flexible Working Arrangements
• Make it clear that flexibility is not just a ‘women’s’ issue, it is good business practice - a mutually
beneficial arrangement where home and business priorities are met.
• Encourage men and those at higher levels to access flexible arrangements, and promote this as
positive case studies.
• Make decisions on workplace flexibility by consulting with the team, so it’s a shared response, not just
the responsibility of the manager and employee.
• Be flexible across the year and negotiate with part-time staff who might be available to work full-time
for the busiest time of the year.
• Cross-train staff and implement shadowing arrangements to broaden employees’ skills, to allow them
to move around departments and backfill roles.
• Create an environment where those who are acting, backfilling or working in new roles feel ok to try
new things. Support them to make decisions in the absence of others.

This research project was funded by the Australia and New Zealand School of Government and

the four state governments. The full report is available at

https://www.unsw.adfa.edu.au/public-service-research-group/research-projects/role-
middle-managers-progressing-gender-equity-public-sector

For further information, please contact Dr Sue Williamson at s.williamson@adfa.edu.au

June 2018
Public Service
Research
Group

Cricos Provider Code 00098G • 181243

This text has been redacted: Date redacted