Indicators as a Tool for Strengthened Monitoring

Chapter 3 is dedicated to a discussion of the concept of indicators, since the use of such an instrument is not uncontroversial. To address critics of the concept, the chapter analyses not only the purposes for which indicators can be used and their related advantages, but also discusses the limitations and pitfalls connected with their use. This chapter also introduces the division into structural, process, and outcome indicators that measure the progress of implementation in different phases of the life cycle of a norm. It further looks at the use that is made (or not made) of indicators in monitoring procedures carried out by the Commission in the pre-accession phase to show that, to date, the concept has been used rather inconsistently. On the basis of the foregoing, it develops criteria for the development of indicators in the area of equality and non-discrimination. The main purpose of these indicators is to support consistent monitoring of the transposition and implementation of the EU non-discrimination acquis. They can, however, also be used as a tool in the political dialogue between the European Commission, civil society actors, and state institutions, as well as by policy makers to analyse the situation in view of evidence-based law and policy making.