Assessment Framework

International law standards require states to prohibit practices that undermine pluralism, such as hate speech, racial discrimination, and coercive assimilation policies.  These standards also have symbolic value as universal norms that underpin pluralism. Monitoring mechanisms that review state compliance with these standards can be further safeguards for pluralism.

For this question, assessors are asked to consider the extent to which countries have not only ratified the following treaties, but more importantly are also engaging with the monitoring mechanisms for those commitments (if applicable):

• Convention on the Elimination of all Forms of Discrimination Against Women
• Convention on the Prevention and Punishment of the Crime of Genocide
• International Covenant on Civil and Political Rights
• International Covenant on Economic, Social, and Cultural Rights
• International Convention on the Elimination of All Forms of Racial Discrimination
• Convention on the Rights of the Child
• Convention Relating to the Status of Refugees and Protocol Relating the Status of Refugees
• International Convention on the Protection of the Rights of All Migrant Workers and Members of Their Families
• International Labour Organization Convention concerning Indigenous and Tribal Peoples in Independent Countries
• UNESCO Convention for the Safeguarding of the Intangible Cultural Heritage
• UNESCO Convention on the Protection and Promotion of the Diversity of Cultural Expressions

Engagement with monitoring mechanisms may include (but is not limited to) establishing government agencies to conduct monitoring, the level of coordination between the diplomatic service and secretariats of conventions, whether the treaty was ratified with reservations, and timeliness of submissions to monitoring bodies.

Assessors should also consider the country’s engagement with monitoring bodies for regional treaties where they exist.

Laws that recognize, support and/or accommodate diverse groups by enabling them to preserve their culture, express their identities, and participate fully in political, economic and socio-cultural spheres are important. This includes collective rights, such as those providing for territorial autonomy or access to natural resources.

In answering this question, assessors should consider whether there are commitments regarding:

• Right to exist (eg. Recognition of Indigenous groups’ status)
• Right to non-discrimination (eg. Hate speech legislation, equal protection laws, employment equity laws, freedom of religion in the public and private sector, affirmative action)
• Right to the protection of their identity (eg. Minority rights in education, language and cultural rights, recognition of customary law)
• Right to participation (eg. self-government rights)
• Gender inclusion (eg. protection from gender-based violence, right to property, right to inheritance)

Not recognizing some groups as citizens (and thus as “outsiders”) can often be used as a starting point for other kinds of exclusion, whether it be denial of social services or even targeted violence. Pluralism requires that all members of society have a reasonable path to citizenship without insurmountable obstacles.

For this question, assessors should consider the formal and informal mechanisms for accessing citizenship in the country:

• On what grounds are individuals able to acquire citizenship?
• Do all peoples living within the country have access to citizenship?
• Are some groups denied citizenship by law or by other informal means?
• Is it permitted to hold multiple citizenships?

This requires willingness amongst those tasked with implementation of laws and policies, as well as adequate resources and an enabling institutional environment to make implementation possible. Further, it is important that the laws and policies be implemented fairly and equitably across diverse groups.

In answering this question, assessors should consider:

• Do those responsible for implementing legal and policy commitments realize the same in practice?
• Is there adequate funding and other resources available for implementing policy commitments?
• Are there independent monitoring bodies to ensure accountability?
• Are policies implemented and laws enforced equally and fairly across groups?

Effective interventions in the form of laws or policies are only possible if there is recognition of inequalities, and an understanding of the factors driving them. Because of this, data collected by government bodies is often most valuable, as it may already be an indication of the state’s willingness to address group-based inequalities.

To assess the quality of data being collected, assessors should consider the following questions:

• To what extent is data on inequalities disaggregated by group, and collected systematically and regularly throughout the country?
• Is such data made publicly available?
• Are there state-imposed restrictions on the collection of data? Is data collection outlawed?
• What other barriers may exist to prevent the collection of data?
• Is data collected on some groups but not others?
• Is there data on intersectional discrimination or inequality?

Calls for greater representation of a group in the government, demands for more rights, or protests against discriminatory treatment are examples of claims, and may be made through formal means (such as electoral or judicial channels) or through mobilizations and movements (for example, protests or campaigns). There will always be new challenges for pluralism, and a society’s ability to have ongoing dialogue and action to accommodate diversity is indicative of its long-term sustainability.

In answering this question, assessors should consider both the legal and political environment for claims-making as well as how these movements are generally perceived as legitimate or not by wider society.

Political parties of all kinds, be they broad coalitions or parties representing the interests of specific groups, have a responsibility to articulate their agendas in ways that are respectful of difference, and not rooted in divisive rhetoric. This extends to the policies that parties support.

In answering this question, assessors should consider the following:

• Is news media available in diverse groups’ native languages?
• Is there news media created by and for minorities?
• Does news media’s coverage reflect the country’s diversity?

Pluralistic societies require a media environment where the most prominent voices are those that reinforce attitudes of respect and inclusion for diverse groups. Media actors that embrace divisive rhetoric or otherwise portray issues related to diverse groups in a negative light can undermine efforts to broaden inclusive norms.

In answering this question, assessors should consider the following:

• How are diversity issues portrayed by publicly funded national news broadcasters?
• Are group stereotypes reinforced?

Civil society can often be the catalyst for change, whether through grassroots social movements or organizations directly lobbying the government. However, civil society actors can also be a source of division when they adopt discriminatory practices and exclusionary messaging. Organizations committed to the concerns of particular groups are invaluable for ensuring that all people in society have a voice, but espousing pluralism means situating groups’ concerns within a broader environment of respect and recognition of others’ right to the same.

For this indicator, assessors are asked to consider the prominence of civil society actors who champion inclusion and respect for diversity.

In societies where stark group-based economic and social inequalities exist, the private sector can be a leader in breaking intergenerational cycles of exclusion for groups that have not had equitable access to gainful employment or a living wage in the past.

In answering the question, assessors are asked to consider whether large private companies have representation from diverse groups both in the workforce as well as in companies’ leadership and decision-making roles.

Inequalities in the political domain, particularly along lines of group difference, are markers of a pluralism deficit.

In answering this question, please use available data on economic inequalities by group, including the following areas:

• Income and wealth, including wage gaps
• Access to public and private-sector employment
• Access to land and natural resources, including benefits of natural resources
• Land and property inheritance
• Inclusion in finance, such as savings and credit cooperatives, both formal and semi-formal

In answering this question, assessors should consider the following:

• Access to education and educational attainment (primary and higher levels)
• Access to healthcare, including sexual and reproductive health, that address the particular needs of diverse groups
• Access to welfare and social protections

Cultural inequalities occur when certain cultures are not recognized as deserving public recognition, or are seen as subordinate to cultural norms dictated by the dominant groups in a society.

While all societies have cultural norms and practices that could be seen as dominant in that society, a pluralistic society is distinguished by a concerted effort to ensure that all cultures are treated with equal levels of respect.

Furthermore, the justice system must be easily available to all who need it, and must not involve onerous bureaucratic or financial obstacles. Pluralistic societies require that all individuals, regardless of identity, can defend their rights and be empowered to challenge exclusionary practices.

In answering this question, assessors should consider the following:

• Is there a strong and independent judiciary?
• Can people afford and access civil and criminal justice?
• Is civil and criminal justice subject to unreasonable delays?
• Are there effective and accessible alternative dispute resolution mechanisms, including informal justice systems?
• Is there funding for national human rights organizations or other institutional mechanisms to address grievances? Are these mechanisms effective?
• Is there differential treatment towards certain groups by law enforcement?

Not all protracted violence in a country can necessarily be traced back to diversity issues, and so the links between violence and political/economic/cultural exclusion by group must be made clear in the assessment.

In answering this question, assessors should refer to available perception survey data on intergroup trust and attitudes toward diversity. This could include:

• Level of trust towards diverse groups
• Level of comfort with intergroup marriage
• Level of comfort with having a boss who is from a different group

In answering this question, please consider levels of trust among diverse groups towards institutions such as:

• Public health
• Public education
• Law enforcement
• Judiciary

In answering this question, please refer to relevant and available survey data related to:

• Feelings of inclusion
• Feelings of acceptance
• Personal experiences of discrimination based on identity markers

Some groups may feel they are accepted but do not assert or claim specific rights or accommodations for fear of backlash. Belonging means feeling a sense of shared ownership and the right to participate as a legitimate and full member of society.