Measuring gender pay gaps in public administrations

Understanding gender pay gaps is a prerequisite for identifying inequalities and designing corrective action. Public administrations are uniquely positioned to lead by example by systematically tracking and analysing pay differences between women and men. Measurement provides evidence-based insights into structural barriers, supports equality objectives, and strengthens trust through transparency.

Most public administrations already hold the core data required to calculate gender pay gaps: earnings, grade, contract type, working time, and demographic characteristics. Centralised HRMIS or payroll systems provide high‑quality datasets that enable simple average-based calculations as well as more advanced analysis. Even basic measures, such as comparing mean earnings for men and women, offer valuable insights for policymakers and can be implemented quickly. 

Gender pay gaps can be calculated using monthly, annual, or hourly earnings; mean or median values; full populations or selected groups (e.g., only full‑time staff). Administrations may choose simple comparisons or more detailed analyses that consider job classification systems, segregation, working hours, or career progression patterns. These choices influence the size of the reported gap and should be transparent to ensure credibility.

Persistent gender pay gaps in public administrations often stem from horizontal and vertical segregation, unequal representation in senior roles, and career interruptions linked to caregiving. By reporting gaps, identifying their drivers, and adjusting recruitment, promotion, and pay practices, administrations can meaningfully shift workplace equality. They also set expectations for other public sector bodies to adopt evidence‑based and transparent pay practices.

Directive 2023/970 requires employers (public administrations included) to disclose pay structures, ensure gender‑neutral criteria, and report pay gaps annually from 2027. Where gaps exceed 5% without objective justification, joint assessments and corrective measures become mandatory. This aligns national practices with EU‑wide commitments and encourages candidate countries to start measuring early. 

Belgium, Finland, Estonia, and other EU Member States regularly measure gender pay gaps within their central administrations. Their experiences show that even when job classification data is limited, meaningful analyses can be produced, informing internal reforms and ministerial policy papers. These practices demonstrate feasibility and provide models for administrations beginning this work.

Clear public reporting (whether through annual updates, dashboards, or detailed analytical notes) helps administrations track progress and understand the factors driving gender pay differences. Transparency also encourages dialogue with employees, trade unions, civil society, and policymakers, reinforcing equality as a core public sector value.