I've seem some companies with similar measurements before. The question is, will this measurement be valuable to top management, or was it just artificially created to measure something to meet an ISO requirement?
What's really the purpose in the system of empowering employees? Surely that's not the end goal itself. What's the desired outcome of having empowered employees? I'd suggest that you figure that out, then measure it. If the answer is increasing the number of solutions to problems, you may have already found it. If it's something else, keep looking.