Report
Executive Summary
Gender-based Analysis (GBA) is an analytical policy assessment process created by the Government of Canada as an attempt to support greater gender equality in Canada. With the addition of the “Plus,” (GBA Plus) it has grown to encompass not only considerations of gender and sex diversity, but also many other intersecting identity factors such as Indigeneity, race and ethnicity, culture, sexual orientation, and disability, among others.
Various commitments and mandates towards a full implementation of GBA Plus throughout the federal government have been made since gender-based analysis was first introduced in 1995. However, three reports from the Office of the Auditor General of Canada, in 2009, 2016, and 2022, have all identified that implementation remains inconsistent and incomplete across the government.
The Standing Senate Committee on Social Affairs, Science and Technology (the committee) began its study on the role of GBA Plus in the policy process by hearing reflections from the Office of the Auditor General regarding their May 2022 report. The committee then heard testimony from various GBA Plus and intersectional analysis experts, as well as representatives from civil society and community organizations, which also reflected the Auditor General’s findings. While acknowledging the progress of GBA Plus, this report discusses the barriers that continue to limit its implementation in the federal government, and makes 15 recommendations to reduce these barriers and support a more fulsome intersectional analysis.
The intent of GBA Plus is to ensure that various intersecting identity factors are considered throughout the policy design process, from initial problem identification through to implementation and evaluation. The Auditor General’s May 2022 report confirms that significant barriers continue to prevent an effective implementation of GBA Plus within the federal government. If these barriers are not addressed, GBA Plus will remain an afterthought: a simplified, under-utilized tool that is no more than a box-ticking exercise. Performative GBA Plus does not accomplish its purpose in ensuring that none of the diverse people encountering Canadian federal policies and programs are unintentionally harmed by them or excluded from them.
Recommendations
RECOMMENDATION 1
That the Government of Canada, led by Women and Gender Equality Canada, rebrand GBA Plus as Gender and Diversity Analysis.
RECOMMENDATION 2
That the Government of Canada partner with a) Indigenous communities, equity-seeking groups, and expert-advocates; and b) civil society organizations and academics to build the knowledge, tools, and infrastructure required for meaningful implementation and evaluation to improve GBA Plus and enhance its application.
RECOMMENDATION 3
The Standing Senate Committee on Social Affairs, Science and Technology endorses the conclusions of the Office of the Auditor General’s three reports on GBA Plus and therefore recommends that the Government of Canada commit to implementing all recommendations from the Auditor General’s 2009, 2016, and 2022 reports on GBA Plus.
RECOMMENDATION 4
That the Government of Canada improve GBA Plus training and expand the competencies of GBA Plus analysts in all federal departments by:
- partnering with a) Indigenous communities, equity-seeking groups, and expert-advocates; and b) civil society organizations and academics to offer new programs and tools;
- supporting the establishment of interdisciplinary policy professional networks within the federal public service; and
- identifying, documenting and evaluating federal training programs and tools as part of the public reporting put forward by Recommendation 12.
RECOMMENDATION 5
That the Government of Canada identify GBA Plus as a priority in initial policy design, in addition to subsequent policy development, implementation and evaluation.
RECOMMENDATION 6
That the Government of Canada, through Women and Gender Equality Canada, prioritize improving the timeliness of GBA Plus, including by creating a strategic plan identifying measurable outcomes and ensuring that the tools and resources necessary for early GBA Plus consideration are available through the federal government.
RECOMMENDATION 7
That, in order for GBA Plus to be included as a consideration for parliamentarians during the legislative process:
- the Standing Joint Committee on the Library of Parliament study the feasibility of providing GBA Plus of government bills, when relevant data are publicly available;
- the Government of Canada table GBA Plus for all government bills when introduced in either chamber of Parliament;
- parliamentarians are encouraged to include GBA Plus when drafting House of Commons private members’ bills and Senate public bills; and
- Women and Gender Equality Canada establish resources for parliamentary committees to support their use of GBA Plus when considering legislation.
RECOMMENDATION 8
That the Government of Canada ensure adequate funding is provided to a) Indigenous communities, equity-seeking groups, and expert-advocates; and b) civil society organizations and academics to facilitate their engagement and partnership with the government on GBA Plus.
RECOMMENDATION 9
That the Government of Canada ensure identity indicators are built into federal programs in order to provide disaggregated data on program recipients and impacts.
RECOMMENDATION 10
That Statistics Canada, in cooperation with federal departments and agencies, enhance the collection, analysis and dissemination of data useful for GBA Plus.
RECOMMENDATION 11
That the Government of Canada ensure that data is collected using a culturally-relevant approach, developing best practices in consultation with a) Indigenous communities, equity-seeking groups, and expert-advocates; and b) civil society organizations and academics regarding both data collection and use, with a specific emphasis on including qualitative, diverse data.
RECOMMENDATION 12
That Women and Gender Equality Canada report to Parliament annually on the results of the GBA Plus departmental implementation survey, and the use and application of GBA Plus by all federal agencies and departments; and that this report evaluate a) the impact of GBA Plus on policy and program decisions and outcomes and b) federal training programs and tools.
RECOMMENDATION 13
That the Clerk of the Privy Council be a Champion for GBA Plus, leading the Privy Council Office, and working with the Treasury Board Secretariat and Women and Gender Equality Canada to support GBA Plus implementation throughout the federal government.
RECOMMENDATION 14
That by 31 December 2023, each federal department and agency appoint a GBA Plus Champion who will work to:
- develop a centre of excellence with resources and tools specific to the needs of their work;
- implement best practices for GBA Plus; and
- improve departmental performance on GBA Plus, as measured by Women and Gender Equality Canada’s annual implantation surveys and reported as per Recommendation 12.
RECOMMENDATION 15
That the Government of Canada factor the quality of departmental implementation of GBA Plus into senior management performance evaluations.
Ottawa – The federal government has not fully implemented intersectional analysis, known as GBA Plus, into its policy process, the Senate Committee on Social Affairs, Science and Technology said in a report released Thursday, March 30, 2023.
The report reveals that the government has not been able to fully consider the diverse needs and experiences of marginalized and equity-seeking groups, including women, Indigenous people, racialized communities and 2SLGBTQI+ individuals.
While the government has made some progress toward integrating GBA Plus into its policy process, the committee found significant gaps in implementation. Witnesses who appeared before the committee expressed concerns about the lack of resources and training for policy makers to effectively incorporate GBA Plus into their work. Others shared concerns that GBA Plus does not adequately consider many Canadians’ lived experiences and advocated for the addition of culturally relevant analytical frameworks.
The committee recommends rebranding GBA Plus as Gender and Diversity Analysis to recentre the focus of this important intersectional analysis. The report also makes a number of additional recommendations to ensure that diverse communities and people in Canada are not negatively affected by or excluded from federal programs, policies and initiatives.
Quick Facts
- Gender-based analysis was first introduced by the federal government in 1995 through the development of the Federal Plan for Gender Equality. This was a commitment to implement gender-based analysis throughout federal departments and agencies, and to conduct gender-based analysis on all future legislation, policies, and programs. In 2011, the framework of gender-based analysis was expanded to include other marginalized and equity-seeking groups, and rebranded as GBA Plus.
- The Office of the Auditor General of Canada has released three reports — in 2009, 2016 and 2022 — all of which highlight the inconsistent and incomplete implementation of gender-based analysis across the federal government.
- The report highlights some GBA Plus success stories. For example, witnesses noted that GBA Plus had a real impact in the policy design process for the COVID-19 emergency response.
Quotes
“GBA Plus is about recognizing the diverse needs and experiences of all Canadians to ensure that our policies and programs reflect that diversity. By doing so, we can create a more equitable and just society for everyone.”
- Senator Ratna Omidvar, Chair of the committee
“Without a robust intersectional analysis, government policies risk being ineffective or even harmful to marginalized groups. It’s time for our policy makers to prioritize inclusive decision-making.”
- Senator Patricia Bovey, Deputy Chair of the committee
“Witnesses called for greater accountability and leadership from the government, because the status quo is failing. A renewed determination toward intersectionality is necessary if policies are to benefit all Canadians.”
- Senator Rosemary Moodie, member of the committee
“GBA Plus needs to be implemented earlier in the policy process. While there are success stories, the analysis must be conducted more systematically to more effectively benefit women and other equity seeking groups.”
- Senator Donna Dasko, member of the committee
Associated Links
- Read the report
- Learn more about the Senate Committee on Social Affairs, Science and Technology.
- Follow the committee on social media using the hashtag #SOCI.
- Subscribe to email alerts for Senate committees.
- Sign up for the Senate eNewsletter.
For more information
Amely Coulombe
Communications Officer | Senate of Canada
343-575-7553| amely.coulombe@sen.parl.gc.ca
Senators who participated in this study
Ratna Omidvar
ISG - Ontario
Patricia Bovey
PSG - Manitoba
Wanda Thomas Bernard
PSG - Nova Scotia (East Preston)
Sharon Burey
CSG - Ontario
Donna Dasko
ISG - Ontario
Stan Kutcher
ISG - Nova Scotia
Frances Lankin, P.C.
ISG - Ontario
Marilou McPhedran
Non-affiliated - Manitoba
Rosemary Moodie
ISG - Ontario
Flordeliz (Gigi) Osler
CSG - Manitoba
Chantal Petitclerc
ISG - Quebec (Grandville)
Rose-May Poirier
C - New Brunswick (Saint-Louis-de-Kent)
Ex-officio members of the committee: The Honourable Marc Gold, P.C., or Raymonde Gagné, The Honourable Donald Plett or Yonah Martin
Other Senators who have participated in the study: The Honourable Patrick Brazeau, The Honourable Andrew Cardozo, The Honourable Bernadette Clement, The Honourable Jane Cordy, The Honourable Brian Francis, The Honourable Nancy J. Hartling, The Honourable Tony Loffreda, The Honourable Yonah Martin, The Honourable Mary Jane McCallum, The Honourable Marie-Francoise Mégie, The Honourable Kim Pate, The Honourable Dennis Patterson, The Honourable Josée Verner, P.C
Government Reponse
