OECD Public Governance Reviews: Uzbekistan

3. Promoting gender equality and mainstreaming in strategic planning of Uzbekistan

Abstract

This chapter explores Uzbekistan's strategic planning efforts to promote gender equality, focusing on the critical role of a robust strategic framework in anchoring the government's vision and goals, both short- and long-term, for gender equality. By aligning with international standards and embedding gender equality into broader national and sectoral policies, Uzbekistan can ensure comprehensive and sustainable progress. The chapter also highlights the importance of sound institutional co-ordination and reporting mechanisms, legal frameworks, and gender data to support the effective implementation of gender equality goals. Through a detailed analysis of Uzbekistan's gender equality strategies, the chapter identifies both strengths and areas for improvement, concluding with actionable recommendations to enhance the effectiveness of strategic planning for gender equality.

Introduction

In recent years, Uzbekistan has implemented a series of reforms aimed at promoting gender equality. These efforts have been recognised by international reports, positioning Uzbekistan as a country with progress in areas such as equal pay and access to education (World Bank, 2024[1]). To ensure these gains are long-lasting and have a truly transformative impact, a robust strategic framework is crucial.

A robust strategic framework is a powerful tool that can guide government action by anchoring its vision and short-, medium-, and long-terms goals for gender equality, providing a clear roadmap for action. In recent years, OECD member countries have increasingly recognised the importance of effective strategic planning in advancing equality (OECD, 2022[2]). Adopting gender strategies has notably allowed countries to ensure alignment with international standards, enhance transparency and accountability, and build on past experiences to address remaining gaps (OECD, 2019[3]). It has also led to tangible positive outcomes in countries, such as an increase in women’s representation in public life in Australia (OECD, 2018[4]).

In parallel, there is a need to embed gender equality goals into broader government policies and national development objectives, as well as across policy sector strategies (e.g., digital, environment, energy, transport strategies) to ensure a comprehensive approach to gender equality (OECD, 2015[5]). The COVID-19 pandemic further underscored the importance of strategic planning within all governmental frameworks, highlighting how strategic foresight can help effectively mitigate the disproportionate gender impacts exacerbated by a crisis (OECD, 2021[6]).

Such efforts can be maximised if they are supported by legal frameworks outlining institutions’ mandates, as well as proposed actions to advance gender equality goals (OECD, 2021[7]). In addition, the effective implementation of strategic frameworks relies on enablers including formal co-ordination and reporting mechanisms.

This chapter assesses Uzbekistan’s approach to strategic planning for achieving gender equality, while identifying strengths and areas for improvement. It starts by providing an overview of Uzbekistan’s strategies on gender equality, evaluating how they are being designed and implemented. Additionally, it assesses how gender equality objectives are being integrated in and across broader and sectoral strategies. It also assesses the implementation of gender equality objectives. Finally, it offers recommendations to strengthen strategic planning for advancing gender equality in Uzbekistan.

Mapping progress: an overview of strategic planning for gender equality in Uzbekistan

In general terms, Uzbekistan’s efforts are aligned with OECD practice, with the adoption of a range of legal and strategic documents aimed at fostering gender equality. Recently adopted documents include:

• Medium-term decrees and resolutions of the President of the Republic of Uzbekistan, including the National Programme to increase the activity of women in all spheres of economic, political, and social life of Uzbekistan for 2022 – 2026;

• Sector-specific plans, including the Programme for Increasing the Activism of Women in Government Bodies; the Road Map and the National Plan for the Implementation of UN Security Council Resolution No. 1325 “Women, Peace and Security”; the Programme for Increasing the Activity of Women in Public Administration.

The 2030 Gender Strategy is envisioned as an evergreen document supported by monitoring and reporting mechanisms

The Strategy for Achieving Gender Equality in the Republic of Uzbekistan until 2030 (2030 Gender Strategy) was adopted in 2021. It was developed with the aim to underpin the country's efforts in advancing its gender equality commitments over a span of 10 years. Top of Form

It outlines overarching goals, tasks, and expected outcomes for the 10-year period and foresees action plans to be adopted on an annual basis. Box 3.1 outlines the 2030 Gender Strategy’s vision and areas of focus.

Box 3.1. Main areas of focus of the 2030 Gender Strategy

The 2030 Gender Strategy acknowledges recent progress in Uzbekistan, notably regarding women’s representation in the national parliament. However, it also highlights persistent challenges such as the overall limited participation of women in decision-making bodies and economic activities. The 2030 Gender Strategy reports gender disparities in education, healthcare, and media representation. The 2030 Gender Strategy’s overall goal is to “ensure the true equality of women and men, regardless of their race, nationality, language, religion, social origin, belief, personal and social position”. It emphasises 11 key tasks, ranging from expanding women's property ownership to ensuring equal opportunities in public employment. The main areas of the 2030 Gender Strategy, which all contain approximately 10 measures, are:

• Electoral rights;

• Public service;

• Education, science, sports and healthcare;

• Socio-economic fields;

• Prevention of gender-based violence;

• Family relations and child upbringing;

• Planning and budgeting taking into account gender aspects;

• Improving the conduct of gender statistics.

Source: (Senate of Uzbekistan, 2021[8]).

The 2030 Gender Strategy involves a number of entities in its implementation, mainly by assigning specific measures of its first action plan to relevant bodies across sectors. Its adoption represents a timely opportunity to focus Uzbekistan’s efforts effectively in the area of gender equality.

Paving the way: well-designed strategic frameworks for advancing the gender equality agenda

To be effective, a strategic framework on gender equality needs clear rationale, priorities, timelines, as well as realistic objectives, result-oriented measures and measurable targets (OECD, 2021[7]). While designing strategies, it is important that governments keep these elements in mind to ensure their actions effectively address the needs of women and can be implemented with lasting impact over time.

Enhanced coherence and complementarity between existing gender strategies and plans is essential for sound implementation

As described above, Uzbekistan's efforts to tackle gender inequalities have led to a proliferation of various strategies and plans over the past years. Without alignment between those strategies and plans, challenges including information overload and overlapping measures can arise, potentially diluting strategic focus and responsibilities across the government, which can ultimately affect the effectiveness of these documents (OECD, 2021[7]).

OECD analysis points to potential for greater coherence and complementarity between current plans on gender equality, in particular between the National Programme to increase the activity of women in all spheres of economic, political, and social life of Uzbekistan for 2022 – 2026 and the 2030 Gender Strategy, which have similar yet different specific objectives, timelines, and measures.

Interviews also indicate a diffusion of strategic focus, with different frameworks being referenced for action by various stakeholders. For instance, despite being designed as the umbrella strategy, there is limited and uneven awareness of the 2030 Gender Strategy across the government and references to it for action, possibly reducing its potential to guide gender goals. In addition, interviews suggest an inclination towards developing new strategies rather than implementing existing ones, which may contribute to this diffusion of strategic focus.

According to the latest information shared by Uzbekistan, the Committee on Family and Women is reportedly preparing a roadmap to accelerate the achievement of the SDG 5 for the period 2024-2026. However, it is unclear whether this roadmap will be integrated in the 2030 Gender Strategy or whether it will function as a separate instrument.

OECD countries have taken steps to streamline efforts and ensure complementarity between strategic documents on gender equality. Switzerland, for instance, has incorporated its 2022-2026 National Action Plan to implement the Council of Europe Convention on preventing and combating violence against women and domestic violence, which includes over 40 measures, into its umbrella gender strategy, the 2030 Equality Strategy, to ensure consistency (Swiss Confederation, 2023[9]).

Evidence-based objectives based on consultations with relevant stakeholders is needed to grasp key areas for action

One of the main goals of strategic planning is to help improve decision-making processes by focusing attention on the most crucial issues and challenges (OECD, 2019[3]). As governments operate within resource constraints, it is important that strategies are designed based on comprehensive analyses of a country's gender equality status. This entails using various indicators and targeting insufficiently explored areas (OECD, 2021[7]).

In Uzbekistan, the 2030 Gender Strategy briefly assesses the overall situation at the beginning of the document, but there is limited link between this assessment and the tasks, goals, measures and indicators mentioned in the document. OECD analysis shows potential for improvement to aligning more closely the 2030 Gender Strategy’s goals with Uzbekistan's short-, medium-, and long-term gender equality challenges.

A way to ensure that defined objectives are based on evidence, particularly when gender data is limited, is to conduct in-depth consultations with relevant stakeholders, including civil society organisations and experts. This is essential in gathering insights and informing the state of play on gender equality (OECD, 2021[7]). Noteworthy, Article 15 of the Law on Guarantees with Respect to Equal Rights and Opportunities for Women and Men (2019 Law on Gender Equality) foresees the participation of non-governmental actors in the development and implementation of gender policy, while not specifying the processes to ensure such participation. In this regard, Uzbekistan has reported to have included non-governmental members in the development of the 2030 Gender Strategy. However, evidence points to engagements that primarily concern the initial stages of the development of the 2030 Gender Strategy, such as communicating the overarching gender vision for the document. Overall, there is scope for further action to institutionalise this process by establishing formal mechanisms, and ensuring external stakeholders have the necessary information and access to participate. Interviews with civil society emphasised the significance of this need, particularly in Uzbekistan, where there is a noticeable lack of available information on gender gaps (See Section on Gender Data).

OECD countries have adopted various approaches to ensure robust engagement with external stakeholders in the development of strategic frameworks for gender equality, as discussed in Box 3.2.

Box 3.2. Ensuring gender priorities reflect the needs of the population through extensive consultations

Czechia’s Strategy 2021+

In 2021, Czechia adopted a gender strategy (the Strategy 2021+). It sets out high-level goals, further defined and actionable through a set of concrete measures and corresponding indicators, guiding the government action on gender equality over that period.

The development of the Strategy 2021+ included extensive consultations with various stakeholders, which allowed the strategy to reflect the collective insights and respond to societal needs. Specifically, a two-year consultation phase was held, involving thematic expert groups and roundtable discussions. Through this process, Czechia was able to refine the initial strategy proposal. On this basis, eight thematic chapters addressing key areas, such as women’s equal participation in decision-making, were defined. All these chapters are based on a thorough analysis of the current landscape in Czechia, alongside goals and specific measures to effectively achieve them.

Czechia then observed that this approach had facilitated both the effectiveness of implementing the strategy and the relevance of the established direction.

Mexico’s comprehensive and consultative strategy

Mexico's national Programme for Equality between Women and Men was adopted in 2020, covering the period from 2020 to 2024. This strategy aims to substantively advance in achieving equality between women and men. Its design involved an extensive consultation process engaging over 5,000 women from diverse backgrounds across all states of the country, allowing for a comprehensive overview of the gender challenges, also taking specific local contexts into account.

Based on the consultations, the strategy consists of six priority objectives and 267 specific actions. It is reported to be implemented by all institutions of the public administration, and reflects a collaborative effort from the executive, judicial, and legislative branches of government.

Sources: (OECD, 2023[10]); (OECD, 2023[11]).

Prioritisation of short-, medium-, and long-term measures could boost the effectiveness of the 2030 Gender Strategy

When developing measures as part of their strategies, governments need to assess what actions are the most important to implement first.

In Uzbekistan, the 2030 Gender Strategy envisions the use of yearly action plans revised on an annual basis, starting with 35 measures in the 2021-2022 plan, and further measures planned for 2023, and 2024. Each measure has to be implemented by specific entities that are clearly mentioned in the action plans. This annual planning approach can serve as a prioritisation of action, while providing flexibility for more adaptable and swift government responses. Allowing for swift reactions from the government is needed to prevent the exacerbation of gender gaps, in particular in times of crisis. This was exemplified during the COVID-19 pandemic, when the sudden heightened risk of gender-based violence necessitated prompt responses from governments to counter that threat.

At the same time, relying solely on short-term measures can pose challenges to the effective implementation of the 2030 Gender Strategy. Firstly, adopting overly ambitious measures to be implemented in a short period of time can discourage or disrupt implementation (OECD, 2021[7]). This could be the case for a number of measures, in particular those that are not specific and challenging to track, including "ensuring equal rights and opportunities for women and men in the formation of election commissions" to be implemented within a 1.5-year timeframe. Interviews indicate that the decision to adopt short-term action plans might stem from the approach adopted to deliver fast results.

In addition, a short-term plan approach can lead to the alteration of the 2030 Gender Strategy scope and goals over time. This, in turn, necessitates political leadership and ownership of gender equality across the government to continuously adopt measures towards achieving the objectives set out.

In the upcoming action plans, it might be beneficial to consider adopting longer-term plans that prioritise short-, medium-, and long-term specific measures under each priority theme. Importantly, these measures should be result-oriented. To further boost this effort, it could be beneficial to allocate budgets to each measure and sequence budgeting accordingly.

Embedding gender objectives in national and sectoral policy frameworks for a whole-of-government effort

Alongside standalone gender equality strategies, it is crucial for governments to integrate gender equality goals into their broader development and sectoral plans for sustainable impact on gender equality (OECD, 2015[5]).

Further alignment of gender equality goals with overall policy planning is needed

Ideally, the vision for gender equality should be reflected in a country’s development plan to help align policies and show commitment to gender equality. Such alignment is crucial for guiding a whole-of-government approach towards gender equality (OECD, 2021[7]).

OECD analysis underscores the opportunity for Uzbekistan to enhance alignment between gender equality goals and overall policy planning. While the main national development and gender equality strategic documents adhere to the same logic, with a “Development Strategy for New Uzbekistan 2022-2026”, followed by a more recent “2030 Uzbekistan Strategy”, it does not necessarily translate into alignment between the development and gender goals. Despite some specific measures targeting reproductive health and women's participation in leadership positions, the limited gender equality vision in the above-mentioned development strategies suggests a need for improved integration. For example, in practice, while recent reforms target formal jobs, entrepreneurship, and private sector involvement, these efforts often fall short for inclusive growth (World Bank, 2024[1]).

At the same time, the effectiveness of the specific measures outlined in the first action plan of the 2030 Gender Strategy, which specify the entities responsible for their implementation, could be bolstered by their implementation in ministries through dedicated, sectoral plans. While some ministries, such as the Ministry of Justice (MoJ), have adopted gender frameworks, these are typically ad hoc, with limited alignment with the 2030 Gender Strategy, and are limited to achieving specific tasks, such as conducting gender assessments of draft laws.

Overall, OECD analysis, supported by interviews, indicates that the approach to address gender equality in Uzbekistan remains fragmented across sectors. Clear communication from top management, emphasising the value of collaborative action on gender equality issues can help overcome silos and facilitate a shift to a whole-of-government approach. This effort could be supported by establishing a dedicated state body to oversee gender mainstreaming across the government (See Section on Institutional set-up).

OECD countries, including Colombia and Lithuania, provide good examples of integrating gender equality goals into broader planning documents, as exemplified in Box 3.3.

Box 3.3. Gender equality at the centre of policy planning

Colombia’s gender objectives as cross-cutting goals of the National Development Plan 2018-2022

Over the past years, Colombia has aimed to reflect gender equality priorities in its strategic national development document. As a result, Colombia's National Development Plan 2018-2022 embraced a gender perspective for the first time, by introducing the Pact for Women’s Equality, a cross-cutting initiative within the plan. This pact addresses three key dimensions of women's rights: economic (such as overcoming poverty and addressing workplace inequality), political (enhancing women's participation in decision-making roles), and physical integrity (combatting violence and promoting sexual and reproductive rights). Various objectives include strengthening the gender institutional framework for women in Colombia; promoting education and economic empowerment to eliminate gender gaps at work; and committing to articulation and co-responsibility in the care economy. Within each overarching goals, the National Development Plan delineates precise targets, which include for example, “reducing to 16.7% the average monthly income gap between men and women” and “reducing to 15.2% the percentage of pregnancy in adolescents”.

Lithuania’s strategic documents embed gender equality as a foundational horizontal principleTop of Form

Lithuania's Law on Strategic Management mandates the inclusion of gender equality considerations across all stages of planning documents, from development to evaluation, aiming to mitigate potential obstacles or biases. Additionally, the National Development Programme for 2021–2030 prioritises equal opportunities as a fundamental principle, ensuring individuals, regardless of sex, nationality, disability, or age, have equitable access to public participation. Central government bodies have to embed this principle into policymaking and regulations. The Ministry of Social Security and Labour oversees its implementation, integrating it into national development programmes, monitoring progress, providing expertise to other ministries, and fostering cooperation to promote behavioural and attitudinal shifts within the public sector.

Sources: (OECD, 2023[12]); (OECD, 2023[11]).

Global transitions provide a timely opportunity for mainstreaming gender considerations across key policy areas

There is increasing recognition that major global transitions, including the green and digital transitions, present timely opportunities to advance gender equality. For example, the transition towards net-zero emissions is expected to increase demand for jobs in the field of renewable energy, which is an opportunity to enhance women’s participation in the labour market and tackle related inequalities (International Energy Agency, 2021[13]). At the same time, ensuring everyone benefits from these new job opportunities calls for promoting attractivity in studying fields like STEM and ICT, where girls continue to be underrepresented (OECD, 2017[14]) (Encinas-Martín and Cherian, 2023[15]). This shows how major global transitions bring about more complex and intertwined policy challenges, highlighting the need for adopting whole-of-government efforts to effectively advance gender equality.

Uzbekistan's transition to renewable energy holds potential to advance efforts towards gender equality. Current efforts include a pilot green mortgage scheme that integrates gender-responsive criteria and targeting, which led to 67 percent of mortgages being secured by women-headed households, illustrating its effectiveness in promoting gender inclusivity within climate finance initiatives (UNDP, 2023[16]). Yet, at the strategic level, there is scope for improved integration of gender considerations in Uzbekistan’s national energy policy framework.

Uzbekistan has also aimed to advance gender equality as part of its digital transformation, notably through digital literacy and skills programmes targeting women and girls, such as “Tumaris Tech”; “IT Women Uz” “One Million Uzbek Coders” (UNDP, 2022[17]). However, limited digital access and a significant gender gap in connectivity continue to hinder women's entrepreneurship and employment in Uzbekistan (World Bank, 2024[1]). This context provides an opportunity for aligning the Digital Uzbekistan 2030 Strategy with long-term gender goals. The Digital Uzbekistan 2030 Strategy outlines five key focus areas: Digital Infrastructure, E-government, Digital Economy, National IT Sector, and IT Education, with more than 220 priority projects. Overall, it would benefit from applying a gender lens. Specifically, adding measures that support women in IT entrepreneurship and address their underrepresentation in STEM education could help ensure alignment with the 2030 Gender Strategy’s goals regarding the inclusion of women in the technology sector (Senate of Uzbekistan, 2021[8]). In addition, by incorporating gender expertise in addressing the challenge of digital skills development1, the Digital Uzbekistan 2030 Strategy could help ensure both men and women have equal access to the opportunities offered by the digital transformation. These opportunities could boost women’s economic empowerment, in particular since digital skills are required in higher-paid jobs (OECD, 2024[18]). Finally, interviews revealed that key sectors are identified each year for prioritisation in the implementation of the Digital Uzbekistan 2030 Strategy. Recognising gender equality as a priority sector could help to ensure that gender equality goals are effectively integrated into this strategy. In addition, facilitating the participation of the main gender equality institutions in the biannual meetings for implementing this strategy could enhance existing efforts and address related challenges more effectively.

OECD countries are taking steps to ensure the systematic integration of gender goals across all sectors, including those related to green and digital transitions. For example, Canada has developed a tool aimed at equipping policymakers across the government with the knowledge to integrate gender equality considerations into their daily tasks. In the context of the green transition, specific efforts have been deployed, as described in Box 3.4.

Box 3.4. Canada’s practice to ensure gender goals are reflected in green frameworks

Gender-Based Analysis Plus (GBA Plus) is an analytical approach aimed at creating policies and programmes that are responsive and inclusive by considering their impacts on men and women. It involves identifying who is affected, adapting initiatives to meet diverse needs, and addressing potential barriers to access or benefit. GBA Plus is mandatory across all policy sectors of the government, including climate and environmental policies.

The Canadian Department of Environment and Climate Change (ECCC) therefore integrates GBA Plus into its work. This includes incorporating GBA Plus into research, consultations, programme design, and reporting. To ensure effective implementation, ECCC has established a dedicated GBA Plus Centre of Expertise within its Strategic Policy Branch, providing tools, guidance, and support to staff. Capacity in GBA Plus has expanded, with the growth of the GBA Plus Branch Advisory Network and the launch of a pilot GBA Plus Interdepartmental Working Group on Environment and Science. These initiatives aim to enhance collaboration, leverage existing efforts, and promote evidence-based, inclusive decision-making within ECCC regarding science and environment-related issues.

Source: (Environment and Climate Change Canada, 2024[19])

Enhancing impact: enablers to boost the implementation of strategic frameworks for gender equality

Adopting strategic frameworks that reflect women’s needs and establish clear goals and measures is crucial. However, the effectiveness of these frameworks heavily relies on successful implementation. Across the OECD, challenges persist in this regard. They include a lack of ownership and gender expertise across line ministries, as well as limited resources and gender data (OECD, 2022[2]). Uzbekistan has taken steps to strengthen its government capacities and establish mechanisms to implement key instruments but it faces similar challenges to those observed in OECD countries.

Empower gender strategies through a robust institutional set-up, with pivotal involvement from the Centre of Government

Establishing institutional frameworks with clear responsibilities and roles across the government is important to ensure the effective implementation of the gender equality agenda (OECD, 2015[5]). To steer this effort, the OECD recommends involving the Central Gender equality Institution (CGI), alongside the Centre of Government (CoG), line ministries, data-collecting bodies, independent oversight institutions, and public administrations at different government levels (OECD, 2021[7]). All OECD countries have established CGIs, although the specific set-up of these institutions can vary among members (OECD, 2022[2]). CGIs’ role typically entails engaging in activities such as administering women's empowerment programmes, co-ordinating efforts for gender equality, issuing guidelines for gender mainstreaming, executing relevant policies, and making policy recommendations.

In recent years, CoGs across the OECD have become more involved in gender-related matters, with CGIs being progressively integrated within the structure of CoGs, as detailed in Box 3.5.

Box 3.5. The increasingly important role of CoG in advancing gender objectives across OECD countries

Since data on institutional set-up for gender equality was first collected in 2011, there has been progressive shift towards placing the CGIs within Units in the CoG, which are, according to the latest OECD data of 2021, the most common arrangement across the OECD. Units working on gender equality in ministries of social affairs (or equivalent) continue to be one of the more common arrangements.

This shift has led to positive developments in various countries, as this centralisation has reportedly improved co-ordination among ministers regarding gender equality issues.

Sources: (OECD, 2022[2]) (OECD, 2021[7]) (OECD, 2019[3]).

Placing CGIs in CoGs can offer advantages, notably by helping to clarify the roles of the line ministries, holding them accountable through mechanisms such as performance management frameworks, and ensuring the adequate integration of a gender lens in their work (OECD, 2021[7]). As CoGs oversee and co-ordinate cross-cutting policies, they are well-positioned to garner broader support within the government, establish clear expectations for line ministries and facilitate accountability and oversight. OECD evidence establishes a clear link between the involvement of CoGs and the promotion of gender equality in public policies (OECD, 2021[7]). Yet, given their overarching role, placing the gender equality portfolio in CoGs can also lead to a dilution of efforts, in particular if this issue is not prioritised on the political agenda.

In Uzbekistan, the governance of gender equality policy appears to be rather decentralised, with various actors responsible for advancing the gender equality agenda, as outlined in the 2019 Law on Gender Equality:

• The Cabinet of Ministers, in charge of ensuring a unified gender equality policy, notably via the development, approval and implementation of state programmes, national action plans and strategies on gender equality;

• The State Committee for Family and Women (State Committee), under the Cabinet of Ministers, mainly in charge of implementing specific measures, notably by allocating funds of programmes;

• The Senate Committee on Women and Gender Equality (Senate Committee), a parliamentary commission, which mainly oversees the implementation of the gender equality policy (and the 2030 Gender Strategy) and formulates policy recommendations to the government;

• The Republican Commission for the Enhancement of the Role of Women in Society, Gender Equality and the Family (Republican Commission), established in 2019 and comprised of 33 members, including government at the Ministerial level and the Head of the Senate, which is notably in charge of implementing a coherent gender equality policy at the state level.

It appears that the State Committee’s mandate is mainly associated with the implementation of specific measures, while policymaking on gender equality is in the portfolio of the Cabinet of Ministers and the Republican Commission (Uzbekistan, 2019[20]). The State Committee was transferred from the Ministry of Employment and Poverty Reduction to the Cabinet of Ministers in December 20232. It is premature to fully assess the impact of this new configuration on the gender equality agenda. However, it could possibly support the Cabinet of Ministers in fulfilling its role to “ensure a unified gender equality policy, develop and fund programmes, facilitate collaboration among governing bodies, and implement temporary measures for gender equality” (Uzbekistan, 2019[20]). Given the high-level representation of the Cabinet of Ministers and the Republican Commission, empowering the State Committee to lead gender mainstreaming efforts across the government could potentially be beneficial to help effective implementation of the 2030 Gender Strategy. Given its history of mandate expansion, further enlargement could potentially be envisioned. While the roles of the above-mentioned bodies are mentioned in the 2019 Law on Gender Equality, in practice, there is a lack of clarity on the roles of each of them and how they co-ordinate action.

Bolster the capacity of relevant bodies for strengthened implementation of gender equality objectives and sustainable impact

The establishment of gender focal points (GFP) across government agencies can facilitate the implementation of a whole-of-government framework on gender equality (OECD, 2015[5]). Yet, across OECD member countries, GFP often face challenges such as the lack of necessary influence, mandate, capacity, and expertise to contribute effectively to sectoral policy formulation.

In Uzbekistan, a notable practice is based on Article 13 of the 2019 Law on Gender Equality. It states that “An authorised official on the issues of ensuring equal rights and opportunities for women and men (hereinafter referred to as the authorised person) shall be determined in state bodies. The fulfilment of the duties of the authorised person shall be assigned to one of the deputy heads of the state body” (Uzbekistan, 2019[20]). While information on the role and mandate of this official is lacking, it appears that their role is similar to the role of a GFP. However, interviews revealed the voluntary nature of this role, as well as a lack of resources and gender expertise. Providing relevant officials with the necessary resources and mandatory training is key to enhancing expertise in gender equality, and it could maximise current efforts. Moreover, addressing the voluntary nature of their role holds potential for mitigating the lack of ownership of the 2030 Gender Strategy observed in interviews, which could potentially facilitate its implementation across various state bodies. Finally, holding senior management accountable for integrating gender equality into daily activities could also help promote full ownership of the 2030 Gender Strategy (OECD, 2023[11]).

In addition, according to the same article of the 2019 Law on Gender Equality, Heads of state bodies may create gender advisory bodies3 (Uzbekistan, 2019[20]) (UNFPA, 2020[21]). Information on how such bodies work in practice and who they include is lacking. The Senate Committee’s first monitoring report of the 2030 Gender Strategy reported that between 2020 and 2022, 42 advisory bodies were established at the local and national levels (Senate of Uzbekistan, 2023[22]). However, the report identified a gap in the operationalisation of these bodies, suggesting the need for targeted efforts towards key gender issues to enhance their effectiveness (Senate of Uzbekistan, 2023[22]). Some interviews confirmed that some key ministries had not set up a gender advisory body. Ensuring the operationalisation of these bodies, notably by clarifying their mandate and providing the necessary resources to their functioning, could boost effective implementation, while also encouraging further ministries and state bodies to establish advisory bodies.

Establish formal co-ordination mechanisms to enhance and streamline national efforts

Robust co-ordination across bodies at all levels of government is essential to ensure consistent implementation of a country’s gender equality agenda (OECD, 2015[5]).

In Uzbekistan, current efforts could benefit from formal horizontal and vertical co-ordination mechanisms for the implementation of the 2030 Gender Strategy. The establishment of a Republican Commission, functioning as an inter-ministerial body and including external stakeholders, tasked with the implementation of the 2030 Gender Strategy, can be considered a good practice. However, in practice, it could benefit from a more formalised structure with, for example, clear roles for each stakeholder, regular meetings, and follow-up mechanisms. In addition, while the involvement of high-level members in the Commission can streamline decision-making processes, enhancing its effectiveness could be achieved by complementing it with a co-ordination mechanism at the technical levelTop of Form

. Such a technical group could, for example, mirror the model of an inter-agency group established explicitly to monitor and fulfil international commitments (The Food and Agriculture Organization, 2019[23]).

Moreover, establishing vertical co-ordination mechanisms is essential for the effective implementation of a gender framework within a country. In Uzbekistan, Interviews revealed that existing practices, such as meetings held by the Senate Committee on Gender Equality with regional entities, could be leveraged and formalised to improve the flow of information back to the national level, where policies are formulated. Furthermore, in Uzbekistan, local communities (“Mahallas”) could potentially support gender equality efforts and further facilitate the flow of information from the local level to the national level, given their proximity to families and communities. However, a recent report highlights that traditional or conservative views on gender roles among Mahallas leadership may pose challenges and act as barriers to advancing gender equality (World Bank, 2024[1]).

As elaborated in Box 3.6, OECD countries, including Switzerland, have put in place a co-ordination mechanism dedicated to implementation of gender strategies.

Box 3.6. Switzerland’s cross-departmental committee for the implementation of their 2030 Equality Strategy

In 2020, Switzerland adopted the 2030 Equality Strategy. The action plan of this strategy includes measures to be implemented by all federal departments, as well as the Federal Chancellery. The Federal Office for Gender Equality (FOGE) is responsible for co-ordinating the implementation of the strategy and its action plan. This plan includes 281 measures aimed at advancing gender equality across various sectors at the national, regional and local level.

Each state body is responsible for executing the measures outlined in the action plan. These entities work in close collaboration with FOGE, ensuring regular communication and reporting on the progress and outcomes of the measures. To ensure co-ordinated implementation of measures and alignment with strategic objectives, a cross-departmental committee, led by FOGE, has been established. It gathers representatives from relevant governmental agencies at the decision-making level and convenes regularly, usually twice a year.

Source: (Government of Switzerland, 2024[24]).

Improve monitoring for tracking performance on gender equality

Monitoring and reporting mechanisms are essential for successfully implementing policies and tracking progress over time (OECD, 2019[3]). Clear targets and indicators should inform the foundations of these efforts, serving as benchmarks to guide policymakers in defining expectations and enforce accountability (OECD, 2021[7]). OECD members identified the lack of clear monitoring frameworks in strategic plans on gender equality as a key barrier to effective implementation (OECD, 2022[2]).

In Uzbekistan, Chapter 6 of the 2030 Gender Strategy envisions a monitoring system, which entails regular reporting of measures by relevant governmental bodies and other stakeholders, including civil society, through reports. These reports are reviewed during meetings of the Republican Commission and Senate Committee. To facilitate implementation, 61 indicators were identified to assess the execution of the objectives set out in the 2030 Gender Strategy, with interim targets set for 2022, 2025, and 2027. In addition, the text of the 2030 Gender Strategy specifies that the Cabinet of Ministers is responsible for “ensuring timely and high-quality performance of the tasks outlined in the action plan”. It is mandated to provide updates on progress to Parliament quarterly, along with regional entities. Interviews indicated that the government is tasked with providing quarterly reports to the Cabinet of Ministers, presenting a proactive approach. However, in a context of limited resources, it could be advantageous to opt for yearly reporting to avoid overburdening the entities responsible for implementing the measures.

A Resolution of the Senate, published in December 2022, reported on measures of the 2021-2022 action plan of the 2030 Gender Strategy, and outlined additional measures for the period 2023 (Senate of Uzbekistan, 2023[22]). While reporting progress, it underscores that a number of measures were not achieved, and not all measures outlined in the action plan were addressed in the report. In addition, OECD analysis also revealed room for more consistency between the measures outlined in the 2021-2022 action plan and those incorporated in the subsequent 2023 action plan, noting that unattained measures from the 2021-2022 period are omitted from the subsequent action plan.

OECD analysis also points to limited systematic performance assessment against targets, despite the presence of interim targets for 2022. This could be exacerbated by the current limitations related to gender data (See Section on Gender Data).

Overall, a more formalised monitoring process could help enhance the effective tracking of progress on gender equality over time. For example, it could be beneficial to clarify the involvement of non-governmental actors in the monitoring of the implementation of the 2030 Gender Strategy.

Some OECD countries have sought to improve their monitoring and reporting systems for tracking gender equality performance through a variety of approaches, as illustrated in Box 3.7.

Box 3.7. Performance evaluation approaches across OECD countries

Austria’s practice in evaluation of gender objectives

Austria has implemented a comprehensive performance management process that includes strategic planning and internal evaluation procedures. Ministries and supreme bodies are required to define medium-term gender-related outcome objectives, indicators, and measures. These are translated into a performance mandate, guiding actions related to gender equality. Self-evaluations and monitoring processes culminate in a standardised gender report submitted to Parliament and the public.

Spain’s obligation of evaluation of all policies' gender implications

Since 2015, Spain’s Annual Regulatory Plan has included ex post gender analysis as necessary, ensuring ongoing evaluation of the gender implications of policies. Consequently, the Strategic Plan for Equal Opportunities 2014-2016 underwent ex post gender analysis, and a similar evaluation is planned for the current Strategic Plan for Equal Opportunities between Men and Women 2022-2025.

Sources: (OECD, 2023[11]), (EIGE, 2022[25]).

Integrate gender budgeting practices to drive the implementation of gender equality plans

Robust gender budgeting is a key step to transform a 10-year vision and plans like the 2030 Gender Strategy into a practical roadmap with a clear financial path for achieving its goals. Most OECD countries (61%) use a budgeting tool used to help achieve gender goals (OECD, 2023[26]).

The Uzbek government is aiming to transition towards a result-oriented budgeting. The Ministry of Economy and Finance (MEF) established a strategic planning unit in that regard. A resolution on developing budget programmes has been issued in that regard. It is intended to align with Uzbekistan's main development strategies. However, interviews indicate that it does not specifically address gender issues, in practice.

In parallel, the MEF has been working to develop a gender budgeting methodology, a key objective of the 2030 Gender Strategy. A first draft of the methodology has been developed, reportedly aiming for implementation by 2030. Further analysis is required to provide a comprehensive assessment of current efforts on gender budgeting.

However, for the next gender strategy, it will be key to develop clear objectives. Indeed, well-defined gender equality goals highlighting clear priority areas for government action can help ensure that resources are allocated to initiatives that effectively address gender inequalities. In addition, it will be key to establish clear institutional arrangements to support a robust strategic framework for gender budgeting, including by identifying the most appropriate government authority to lead practices (OECD, 2023[26]).

Reinforce legal frameworks for further impact

The legal framework of a country anchors a strategic framework for gender equality by establishing mandates, requirements, and actions to support the achievement of gender equality goals (OECD, 2021[7]). OECD countries have increasingly turned to legislation to reinforce the implementation of gender equality objectives (OECD, 2022[2]).

Uzbekistan has made advancements in the adoption of laws to boost progress on gender equality goals. In particular, the 2019 Law on Gender Equality delineates the state bodies' mandates. To amplify the impact of this legislation, Uzbekistan could further clarify mandates with the aim to, for example, ensure the systematic integration of the measures from the 2030 Gender Strategy into sectoral plans.

Another practice outlined in the 2019 Law on Gender Equality is the provision for “temporary special measures to ensure the implementation of gender policy”, enabling prompt responses to mitigate potential gender-disproportionate impacts of policies (Uzbekistan, 2019[20]). Further analysis is needed to provide a comprehensive assessment of the impact of this measure on the advancement of gender goals.

This law also introduces the gender assessment of draft laws. State bodies are tasked to conduct the assessment of laws, then verified by the MoJ. Such assessments are aimed to “assess the draft laws against the principles outlined in the law”. To do so, a "Plan for gender and legal expertise of regulatory legal acts" is adopted at regular intervals. The plans outline the items that will be assessed, with, for example, 109 items for the 2022-2023 period. There is limited clarity regarding the criteria used to select the draft laws for inclusion in such plans. In practice, it seems that one discriminatory provision was removed from a draft resolution (Paragraph 27 of Annex No. 2 and paragraph 5 of Annex No. 3 of the Resolution of the Cabinet of Ministers No. 408 of May 3, 2018). In addition, the 2019 Law on Gender Equality does not outline any procedures if draft laws fail to comply with its principles, potentially hindering the law’s effectiveness. To maximise the potential of this practice, it could be beneficial to extend it to all relevant draft policies and programmes. Moreover, providing adequate training for policymakers across the government to develop the necessary expertise in gender equality for conducting and verifying such assessments would be key to ensure the effective implementation of this practice. Also, a clear framework for undertaking these gender assessments could help facilitate and ensure consistency of the assessments. For example, Estonia adopted an “Impact Assessment Methodology” to ensure the consistency and robustness of the gender impact assessments conducted by the government agencies (OECD, 2023[11]).

OECD countries have employed legislation in diverse ways to advance gender equality goals. For example, the UK has leveraged legislation with the aim to enhance the mandate of public servants in advancing gender equality objectives, as described in Box 3.8.

Box 3.8. The United Kingdom’s law to legally mandate the consideration of gender equality in public servants’ daily work

The Equality Act 2010 introduced the public sector Equality Duty, which came into force in 2011, mandating all public bodies to consider how their policies or decisions impact individuals protected under the Act. These protected characteristics include age, disability, gender reassignment, marriage and civil partnership, pregnancy and maternity, race, religion and belief, sex, and sexual orientation. It requires all public bodies to eliminate discrimination, harassment, victimisation, and other prohibited conduct, promote equality of opportunity among individuals with and without protected characteristics, and foster good relations between them. Additionally, public authorities have specific duties under the Equality Act to aid compliance with the public sector equality duty, such as publishing equality information.

Source: (OECD, 2023[11]).

Bolster the systematic generation and use of gender-sensitive data to support evidence-based policymaking

Access to reliable data on gender equality in a country is essential, not only for accurately assessing the situation, identifying priorities, and effectively integrating gender equality considerations into all policies, but also to track the gender results against targets, and, more largely, to monitor progress over time (OECD, 2021[7]). Yet, the limited availability of gender statistics remains one of the main challenges identified by OECD countries in achieving gender equality goals (OECD, 2022[2]).

Uzbekistan has aimed to make progress in this area, particularly with the establishment of an online portal that includes some data (e.g., number of girls and boys enrolled in school), publicly accessible on a website (Uzbekistan, 2022[27]). In addition, Uzbekistan reported introducing a new digital system aimed at gathering input from each ministry for producing relevant statistics, including some statistics on gender equality. The production of gender statistics is also mandated by Article 8 of the Law on Gender Equality, which mentions that “State bodies shall collect, analyse and disseminate gender data and generate gender indicators based on various types of data, including administrative ones” (Uzbekistan, 2019[20]).

Despite these efforts, OECD analysis indicates a pressing need for a more systematic approach to the collection, dissemination, and use of gender data in Uzbekistan. Currently, it appears that a client-based approach is employed, wherein statistics are provided by the statistical agency upon request, making access to relevant data difficult, in particular for civil society organisations. In addition, interviews revealed the absence of mandatory training in the field of gender statistics, for both data producers and policymakers.

In practice, the limited availability of gender data can hinder the effectiveness of the 2030 Gender Strategy, in both identifying the main areas for action and in tracking progress. The use of standardised methods across the government, coupled with enhanced horizontal and vertical co-ordination mechanisms, and adequate training on gender equality could significantly improve the availability of gender data.

Across OECD membership, including in Australia, Portugal and Spain, various measures have been implemented to improve the collection and dissemination of gender-disaggregated data (Box 3.9).

Box 3.9. Countries’ approaches to collecting and disseminating data on gender equality

Australia’s strategy for gender statistics

Australia's strategy for gender statistics involves the collection of sex-disaggregated data sets by the Australian Bureau of Statistics (ABS) through more than 20 national surveys. These data sets support the Australian Government in shaping public policies across a range of areas including public safety, justice, healthcare, infrastructure, housing, socio-economic factors, and economic affairs. Moreover, the ABS annually publishes the Australian Gender Indicators, featuring 56 key indicators and an additional 96 related or detailed data series spanning six domains: economic security, education, health, work-life balance, safety and justice, and democracy, governance, and citizenship. These Gender Indicators draw from various ABS resources and statistics from other sources, including the Workplace Gender Equality Agency.

Portugal’s National Statistics System on Gender Equality project

In 2019, Statistics Portugal initiated the National Statistics System on Gender Equality project. This project aims to review, update, and enrich the content and scope of the Gender Database (GDB). The objective is to create a more comprehensive system of gender statistics, providing information on various dimensions of equality and inequality between women and men. The enhanced GDB is intended to serve policymakers and society by offering valuable insights into gender-related issues. It will monitor a range of actions and strategic instruments, facilitating a deeper understanding of the status of women and men in Portugal. Ultimately, the updated indicators on Gender Equality derived from the GDB will form the basis for informed political and economic decision-making in the country.

Spain’s collection and dissemination of indicators on gender equality

In Spain, the Institute of Women operates independently within the Ministry of Equality, focusing on gender equality initiatives. One of their projects is the "Women in Figures" database, which provides valuable insights into gender dynamics. In 2022, the Institute adopted a new approach to information sharing. Instead of traditional reports, they now offer interactive content, including videos and infographics, to engage audiences. These monthly releases present statistics in a more accessible format, facilitating broader understanding. Additionally, the Institute has collaborated with the National Institute of Statistics on "Women and Men in Spain", an online publication that provides curated insights into gender issues across various socio-economic sectors.

Source: (OECD, 2023[11]).

Recommendations to promote gender equality in Uzbekistan’s strategic planning

To enhance the strategic approach towards a whole-of-government effort for the achievement of gender equality in Uzbekistan, could:

Enhance policy coherence for gender equality.

• Ensure the coherence and complementarity among various gender strategies and offer clear communication to policymakers about their complementary objectives.

• Ensure the integration of gender equality goals in cross-sectoral strategic plans as well as in sector-specific strategic plans including, for example, those in the fields of green and digital transitions.

• Consider the extension of the obligation to conduct gender impact assessments to policies, using a sound and systematic approach to conduct such assessments.

Consider strengthening the mandate of the State Committee for Family and Women.

• Assign the State Committee a broader role in co-ordinating gender mainstreaming efforts across the government, potentially accompanied by adequate resources to fulfil its mandate.

Reinforce the capacity of gender focal points (or equivalent) as well as gender advisory boards to fulfil their role.

• Provide a clear mandate, mandatory training on gender equality to enhance expertise, as well as adequate resources.

Strengthen the implementation of the Strategy for Achieving Gender Equality in the Republic of Uzbekistan until 2030.

• Adopt long-term action plans with evidence-based, result-oriented, resourced measures.

• Establish formal horizontal and vertical co-ordination mechanisms.

• Adopt clear relevant criteria for the monitoring of the strategy and reinforce tracking of the implementation in light of relevant indicators.

Systematise the production of gender data.

• Provide mandatory training across the government related to gender data production and use.

• Enhance horizontal and vertical co-ordination mechanisms to produce relevant gender data.

References

[25] EIGE (2022), Spain, https://eige.europa.eu/gender-mainstreaming/countries/spain?language_content_entity=en#:~:text=Gender%20impact%20assessment%20and%20gender,the%20practice%20of%20gender%20budgeting.

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[1] World Bank (2024), Women, Business and the Law 2024.

Notes

← 1.  Highlighted in interviews as one of the main challenges.

← 2.  The State Committee was under this Ministry for one year, before which it was under the Ministry for the Mahalla and Family Support.

← 3.  “Gender advisory body” is one of the translations found in the main sources used for developing this chapter; some further sources refer to other terminology such as “advisory boards”.