1. Controlling

The term controlling describes processes and rules which contribute to ensuring and optimizing the achieving of an organization’s aims. It does not mean “control”. Controlling is rather a task for middle and senior management and is part of the area of internal accompanying steering.

Controlling comprises several components.

• Aims to be achieved are fixed according to measurable indicators. The indicators reflect the organization’s aims, which are established in e.g. a model. If, therefore, an administrative organisation is endeavoring to establish gender equality, this fact must be included in the controlling indicators.
• Plans are made as to the measures to be used to achieve these aims.
• Target and actual situation comparisons are systematically made using reporting and evaluation. Thus, and deviations can be picked up at an early stage in the process and countermeasures can be taken accordingly.

The concept of controlling comes originally from the field of business management. It is now also used in the context of modernizing the state and its administration to enhance effectiveness and efficiency. But is has to be adapted to the conditions of public administration. One particular challenge is to translate political and social aims into quantifiable, testable indicators.

Controlling for public administration organizations is “the goal and result-oriented steering of administrative processes by means of planning, analysis, provision of information and control in a process characterized by connections forwards and backwards”, according to Wiltzius (2003).

One example of controlling as part of the “Modern State – Modern Administration” program are the “Controlling Guidelines” issued by the Federal Ministry for Internal Affairs (BMI).


2. Controlling and Gender Mainstreaming

The starting point for the strategy Gender Mainstreaming at all levels and in all policy fields are organisations. There are many factors that are characteristic of organizations and to which attention needs to be paid in implementing Gender Mainstreaming. These include existing knowledge about relevance in terms of gender equality and equal treatment in the promotion of women and of men as the starting point for all stages of work. If an organization is to be changed in this respect, it is important for this process to be given ongoing support. This is where controlling comes in. “Gender Controlling” is sometimes spoken of in connection with gender equality.

Discussions of the tool Gender Controlling are still in their infancy in Germany. The term Gender Controlling has been used in different ways up to now. Wiltzius (2003) gives a few examples:

Ulshofer (2002) understands Gender Controlling to be an evaluation of results at the end of a process. This is also, however, achieved by means of gender equality impact assessments.

Faulstich-Wieland (2000) uses Gender Controlling to describe an analytical perspective without tying it into any developed concept.

Wiltzius herself (2003) defines Gender Controlling as the “Integration of the gender aspect into planning and steering processes of a company or an administrative organization. It complements an existing controlling concept in its functions of planning, analysis and control with the gender aspect.”

It is in particular disputed how close or how different Gender Controlling is to controlling as seen by business management theory.


Two types of controlling and Gender Mainstreaming

We should distinguish between Gender (Mainstreaming) in controlling and controlling of Gender Mainstreaming.

a) Gender (Mainstreaming) in controlling

GM and controlling means integrating gender into the policy field Controlling in a systematic way. Initial questions include:

• Does the existing controlling process do justice to gender? Have aims and indicators been formed in harmony with the strategy Gender Mainstreaming?
• Does controlling contribute to the promotion and equal treatment of women and of men?

A process for improving work processes that already exists is thus optimized to include the aim of gender equality and to make the process into one that takes proper account of gender. Controlling is so to speak “gendered”.

An example: the body responsible for the Swiss trades union project “Gender equality controlling” sees in gender equality controlling not a separate steering tool but the integration of gender equality into controlling processes that already exist:
“Gender equality controlling is the integration of concerns with gender equality into current planning and steering processes in organizations. It complements project thinking in the area of gender equality by including it as a matter of course in institutionalized planning and steering practice in the company or the administrative organisation.”
(The project uses the term Gender Equality Controlling analogously to Gender Controlling and relates equality of treatment also to age, sexual orientation or disability, etc.)

Wiltzius (2003) summarizes thus: “The fundamental point to note is that Gender Controlling uses the basis of the controlling concept from business management and functions towards realization of the objective of the Gender Mainstreaming principle.”

b) Controlling of Gender Mainstreaming

The implementation of the strategy Gender Mainstreaming is itself a process which has to be supported with accompanying steering mechanisms. So there is also controlling of GM. Initial questions include:

• How can the aim of implementing Gender Mainstreaming step-by-step be measured and evaluated?
• What information is needed to make a serious evaluation of GM and if necessary to adjust course?

It is not being assumed here that controlling is going to be applied anyway and that the gender aspect can simply be integrated into it. Rather, controlling is seen as a systematic evaluation to which a Gender Mainstreaming process (or a certain phase of it, e.g. implementation) is subjected:

“As an element of GM, Gender Controlling is a process with which it can be checked whether gender relations have adequately been taken into account and incorporated into planning, and whether it has been possible to achieve the aims that have been set for taking proper account of gender.” (Ulshofer, 2002)

Stiegler (2000) summarizes: “In this sense, Gender Controlling is therefore part of the Gender Mainstreaming process, namely evaluation.”


3. Controlling and Gender Mainstreaming – a practical approach

In order to be able to use controlling successfully as a tool for Gender Mainstreaming, the following conditions (after Wiltzius 2003) are important:

• The gender aspect is integrated into the controlling functions of planning, analysis and control.
• The “top-down” approach is guaranteed.
• The implementation of controlling has a firm legal and political basis.
• Those in charge of controlling and top management possess Gender competence.
• There are consequences (meaning sanctions) linked to the controlling.

Müller and Sander propose the following steps for gender equality controlling, which are set out here by way of example.

1. Diagnosis of the status of gender equality (or of selected topics) in the organization
2. Establishing strategic aims by top management as policy for the next 2 to 5 years
3. Drawing up necessary data and indicators for this to enable permanent monitoring
4. Agreement of gender equality targets with management and employees in a normal target agreement process
5. Providing the indicators necessary for the annual targets for each member of management (“gender equality management cockpit”)
6. Implementation of measures by management
7. Interim monitoring after six months with adjustment of measures if necessary
8. Monitoring of achievement of targets after one year, non-achievement of targets having consequences (effect on bonuses, agreement of new annual targets and measures, etc.)
9. Annual review of premisses for strategic aims and evaluation of experience gained; after 2 to 5 years drawing up new strategic aims and establishing them as policy

Wiltzius (2003) has developed a checklist which can be used to check whether controlling is being carried out to take systematic and consistent account of gender.

1. Responsibility for Gender Controlling is with top management.
2. The gender perspective is explicitly part of the strategic guiding principle.
3. The “engine” for implementation is the management level (“top-down”) and not e.g. the equal opportunities commissioner.
4. A clear set of objectives exist with fixed indicators.
5. Data are provided that are differentiated in terms of gender.
6. There is a consistent system of evaluation (e.g. internal – reporting, external – Gender Impact Assessment)
7. The management staff or controlling steering group have competence in Gender (Mainstreaming)
8. Continual expansion training is offered at all levels.

Bundesministerium des Innern: Leitfaden zum Aufbau und Betrieb eines operativen Controllings in den Behörden des Geschäftsbereichs, 2001.

Müller, Catherine / Sander, Gudrun: Gleichstellungs-Controlling in der Praxis,

Müller, Catherine / Sander, Gudrun: Gleichstellungs-Controlling in Unternehmungen und öffentlichen Verwaltungen , 2003.

Faulstich-Wieland, Hannelore: Gender Mainstreaming , 2000.

Projekt Gleichstellungs-Controlling

Stiegler, Barbara: Wie Gender in den Mainstream kommt: Konzepte, Argumente und Praxisbeispiele zur EU-Strategie des Gender Mainstreaming, 2000.

Ulshöfer, Petra: Gender Mainstreaming – Ziele sicher erreichen, 2002.

Wiltzius, Martine: Gender Controlling – Eine Methode zur Umsetzung von Gender Mainstreaming in öffentlichen Verwaltungen, Unveröffentlichte Magistra-Arbeit HU Berlin 2003.