Proposal for a Council Regulation (EC) on integrating gender issues in development co-operation
Date: 1997-06-09
Institutions: European Commission
Subjects: cooperation policy, gender equality, social role, sustainable development, women's rights

COMMISSION OF THE EUROPEAN  COMMUNITIES 

Brussels,  09.06.1997 
COM(97) 265 final 

97/0151 (SYN) 

Proposal  for  a 

COUNCIL REGULATION  fEP 

ON 

INTEGRATING GENDER ISSUES IN DEVELOPMENT CO-OPERATION 

(presented  by the Commission) 

EXPLANATORY  MEMORANDUM 

The  proposed  regulation  on  integrating  gender  issues  in  development  co-operation 
(budget line B7-611) seeks to improve the effectiveness  and sustainability of Community 
development  co-operation  through  facilitating  the  integration  of  proper  attention  to 
gender issues in the development process. 

Gender issues refer to the different  roles, responsibilities and opportunities of women and 
men  in  different  cultures  and  societies.  These  differences  are  increasingly  recognised 
internationally  as  having  vital  implications  for  development.  Women  make  a  crucially 
important economic and social contribution in developing countries, but their potential is 
severely  limited  by  structural  obstacles.  These  obstacles  include  persistent  and  severe 
disparities between women and men in nutrition, literacy, education,  access to  economic 
opportunities  and  control  over  decision-making,  and  they  act  as  a  brake  on  the 
development  of society as a whole. Redressing gender disparities and the  empowerment 
of women are therefore  now considered  as crucial priorities for  development in terms of 
aid effectiveness,  as well as of social justice and respect for human rights. 

Development  interventions  have in the  past  failed  to  address these  issues effectively.  In 
particular,  they  have  often  failed  to  take  accurate  account  of  the  varied  economic  and 
social roles carried  out by women  in project  areas, designing projects  on the basis of an 
incomplete picture of reality and without participation from those most concerned.  Such 
an approach  reduces the effectiveness  and the chances of success at policy,  programme 
and project level. 

The  actions  to  be  taken  under  this  Regulation  come  within  the  framework  of  Article 
13 Ou of the Treaty on European Union, which identifies  sustainable social and economic 
development  as  a  priority  for  Community  development  co-operation.  They  also  refer 
particularly to Article  13 Ou's emphasis on the protection of human rights and on the  fight 
against poverty. 

These actions also form part of the Community's follow-up to its commitments under the 
Nairobi  Forward-Looking  Strategies  (1985)  and  at  the  IV  UN  World  Conference  on 
Women (Beijing,  1995). The Community was a full  participant  at the Conference  and is 
bound  by the Beijing  Declaration  and  Platform  for  Action.  The  Council  Resolution  on 
integrating gender issues in development co-operation noted that its guidelines translated 
into  the  field  of  development  co-operation  the  political  commitments  undertaken  at 
Beijing.  This draft  is also consistent  with the  gender  mainstreaming  strategy  defined  by 
the  Commission's  Communication  on  Mainstreaming  (COM  (96)  67)  and  the  inter-
service  working  paper  on  mainstreaming  a  gender  and  equal  opportunities  perspective 
into all Community policies, of 12 February 1997. 

The role  of the  Community  under this budget  line is  accordingly  to  take  the  necessary 
measures to: 

-  ensure  the  full  and  effective  integration  of  gender  issues  in  its  development  co 
operation, at policy, programme and project levels 

±-

-  facilitate  well-targeted,  strategic  and  large-scale  initiatives  within  Community 
development co-operation to reduce gender disparities in developing countries. 

-  support  sensitisation  and  capacity-building  on  gender  issues  within  developing 
countries. 

This  budget  line  is  not  intended  to finance operational  projects  in  favour  of 
women.  Such an approach would risk marginalising the importance of this issue,  could 
not have an effect  on the scale required, and would have little impact of the quality and 
effectiveness  of mainstream development activities.  On the contrary, the function  of the 
budget  line is  strategic  and catalytic,  seeking to  include both the  integration  of gender 
issues,  and,  where  appropriate,  large  scale  special  interventions  to  reduce  differentials 
between women and men, within the mainstream of the Community's  development  co 
operation.  This accords with the "mainstreaming" approach favoured by the Resolution 
and by the Beijing Platform. 

To  achieve this,  more  emphasis needs to be given to  integrating  the gender  dimension 
into  macro-economic  decision-making  and into the  formulation  and  implementation  of 
sectoral policies and programmes. 

The range of actions envisaged includes the following: 

*  provision  of  high-quality  technical  advice  on  gender  integration  in  Community 
development policies and strategies 
-  provision  of  high-quality  technical  advice  on  gender  integration  in  Community 
programmes and projects during the stages of design,  preparation; implementation, 
monitoring and evaluation 
-preparation and development of methodologies, procedures, manuals and guidelines 
to  support  the  integration  of  gender  issues  within  Community  development  co 
operation 

-research and studies to identify and map gender issues in a geographical or sectoral 
context 
-training  and  sensitisation  activities  aimed  at  key  decision-makers  within 
Community-funded development and within counterparts in developing countries 
-actions  in  support  of  co-ordination  between  the  Commission  and  the  Member-
States to improve the integration of gender issues in development co-operation 
-thematic monitoring and evaluations 
-projects  to  build  up  the  institutional  and  operational  capacities  of  developing 
countries on gender issues 
-reinforcing the catalytic role of national machineries responsible for gender and for 
women in developing countries 
-encouraging  and  supporting  partner  countries  in  the  revision  of  existing  policy, 
administrative and legal frameworks in a gender-sensitive way 

-support  to  the  formulation,  follow-up  and  monitoring  of  national  plans  in 
developing countries designed to implement the Beijing Platform for Action 
-support to the networking and institutional capacities of NGOs and civil society in 
developing  countries to  press effectively  for  government  action to  implement their 
commitments under the Beijing Platform,  and to develop their own programmes to 
complement government efforts. 

- 

l et  -

A specific  strategy will be developed for each region in order to tailor activities as much 
as possible to immediate regional priorities. 

At the end of every budget year, the Commission will submit a report to the Parliament 
and the Council, setting out the activities undertaken and evaluating their results. 

The  scale  and  importance  of  Community  activities  in  the  field  of  development  co 
operation  necessitate  initiatives  by the  Community  to  ensure  its  implementation  of  its 
commitments at Beijing, complementary to those undertaken by Member States. 

-A$r-

Proposai for a 

COUNCIL REGULATION (EC) 

on 

INTEGRATING  GENDER ISSUES IN DEVELOPMENT  CO-OPERATTON 

THE COUNCIL OF THE EUROPEAN UNION, 

Having  regard  to  the  Treaty  establishing  the  European  Community,  and  in  particular 
Article 130w thereof, 

Having regard to the proposal from the Commission, 

Acting in accordance with the procedure referred  to in Article  189c of the Treaty, 

(1)  Whereas  the  importance  of  women's  economic  and  social  roles  in  developing 
countries has led to increasing international recognition that their full participation 
without discrimination is indispensable for sustainable and effective development, 

(2)  Whereas  their  contribution  to  development  is  presently  achieved  in  the  face  of 
formidable obstacles specific to women, which limit the outcome of their work and 
reduce the benefits to society as a whole, 

(3)  Whereas these obstacles include persistent  and severe disparities between women 
and men in access to basic services, control over economic resources and access to 
decision-making; 

(4)  Whereas  development  interventions  have frequently failed  to  adequately  address 
the  differences  between women's  and men's  situations,  roles,  opportunities,  and 
priorities, thereby reducing their overall success, 

(5)  Whereas redressing gender disparities and the empowerment of women are crucial 
for  social  justice,  human  empowerment  and  the  effectiveness  of  development 
efforts, 

(6)  Whereas  development  co-operation  must  encourage  the  necessary  accompanying 
changes  in  attitudes,  structures  and  mechanisms  at  political,  economic,  legal, 
community and household level, 

(7)  Whereas it is  now  recognised  that though  specific  efforts  to  enhance the  role  of 
women  in  development  remain  as  necessary  as  ever,  the  focus  must  widen  to 
encompass  both  men's  and  women's  roles,  responsibilities,  needs,  access  to 
resources and decision-making,  and the inter-relationship between them, known as 
gender issues 

(8)  Whereas  development 

should 
systematically  integrate gender analysis in the conception,  design,  implementation 
and evaluation of all development policies and interventions, 

interventions 

effectiveness 

requires 

that 

(9)  Whereas  the  foregoing  analysis  is  set  out  in  more  detail  in  the  Commission's 
Communication to the Council and the European Parliament on integrating gender 
issues in development  co-operation  of  18th  September  1995*,  and was  endorsed 
by the Council in its Resolution described below, 

1  COM (95) 423 

-3 

(10)  Whereas the Council in a series of Conclusions from 1982 to  93  has stressed the 

importance it attaches to women's role in development, 

(11)  Whereas  the  Community  and its Member  States were  signatories  to  the Nairobi 
Forward-Looking  Strategies  in  1985  and  to  the  Declaration  and  Platform  for 
Action  of  the  Fourth  World  Conference  on  Women  at  Beijing  in  1995,  which 
stressed the need for action against worldwide obstacles to gender equality and to 
ensure that a gender perspective is reflected in all policies and programmes, 

(12)  Whereas  the  UN  Declaration  on  the  Elimination  of  all  forms  of  Discrimination 
against Women (1979)  considers  discrimination  against  women  as  an obstacle  to 
development which parties agree to eliminate using all appropriate means, and the 
UN Declaration  on the Right to Development  (1986)  emphasises the right of all 
persons to participate in and contribute to development  and the need to undertake 
effective  measures to  ensure that women  have  an active  role  in the  development 
process, 

13)  Whereas the European  Parliament  has  emphasised  in numerous Resolutions,  and 
particularly  in  its  Resolution  of  14  May  1992^  on  the  situation  of  women  in 
developing countries and its Resolution of the 15th June 1995 on the fourth Wortld 
Conference  on  Women  in  Beijing^,  the  need  to  integrate  proper  attention  to 
women's roles and priorities in Community development  co-operation and to take 
adequate  measures  to  ensure  active  implementation  of  the  conclusions  of  the 
Beijing Conference, 

(14)  Whereas the resolution of the Council and the Representatives of the Governments 
of  the  Member  States  of  20  December  1995  endorses  the  Commission's 
Communication on the same subject,  requires the full  integration of gender issues 
in  development  co-operation  and  coordination  between  the  Commission  and 
Member  States in this field, and sets  out guidelines which  also translate  into the 
field  of development co-operation the political commitments undertaken at Beijing, 

(15)  Whereas this approach is further endorsed by the resolution of the Council and the 

member states on human and social development of 22 November 1996, 

(16)  Whereas the recognised  importance  of these  issues  to  development  effectiveness 
makes  it  appropriate  to  envisage  specific  activities  aimed  at  ensuring  adequate 
attention  to  gender  issues  across  the  mainstream  of  Community financial 
instruments,  which  should  increasingly  assume  responsibility  for  these  key 
questions, 

2  A3-0146/92 

3  A4-0142/95 

(17)  Whereas  the  most  effective  approach  is  considered  to  be  strategic  and  precisely 
targeted  sensitisation initiatives  capable  of  achieving  a substantial  multiplier  effect, 
rather than the funding of small-scale operational projects, 

(18)  Whereas  the  scale  and  importance  of  Community  activities  in  the  field  of 
development  co-operation  necessitate  initiatives  by  the  Community  to  ensure  its 
implementation  of its commitments  at Beijing,  complementary  to those  undertaken 
by Member States, 

(19)  Whereas  measures  need  to  be  taken  to  finance  the  activities  covered  by  this 

Regulation, 

(20)  Whereas detailed rules for implementation,  and in particular the form of action, the 
recipients of the aid and the decision-making procedures should be laid down, 

HAS ADOPTED  THIS REGULATION: 

Article 1 

1.  The  Community  shall  provide financial assistance  and  technical  expertise  to  support 
the effective  integration of a gender perspective in the mainstream of its development  co 
operation policies and interventions. 

2.  The  assistance  provided  pursuant  to  this  Regulation  shall  complement  and  reinforce 
assistance  provided  pursuant  to  other  instruments  of  development  co-operation  with  a 
view  to  taking  fully  into  account  gender  considerations  in  Community  policies  and 
interventions. 

-5 

3.  For  the  purposes  of  this  Regulation  "gender"  means  the  different  and  interrelated 
roles,  responsibilities  and  opportunities  of  women  and  men  relative  to  development, 
which are culturally specific and socially constructed,  and can change over time, inter alia 
as a result of policy interventions. 

Article 2 

1. The following  are the central  objectives  of activities to be carried  out pursuant to  this 
Regulation: 

(a)  To  support  the  mainstreaming  of  gender  analysis  and  the  adoption  of  a  gender-
sensitive  approach  in  the  conception,  design  and  implementation  of  Community 
development policies and interventions at macro, meso and micro level, as well as in their 
monitoring and evaluation. 

(b) To  support  and facilitate  the inclusion  of  actions  addressing  major gender  disparities 
and  on  an  appropriately  large  scale  in  the  mainstream  of  Community  development 
interventions 

(c)  To  develop  and  promote  endogenous  public  and  private  capacities  in  developing 
countries  which  can  take  the  responsibility  and  initiative  for  mainstreaming  the  gender 
dimension in the development  effort. 

2.  Activities eligible for financing include, in particular: 

-  provision  of  technical  advice  and  support  on  the  integration  of  gender  issues  in 

development interventions,  in particular at macro and sectoral level 

-  research  and  other  activities  aimed  at  including  gender  implications  in  analyses, 

policies, country and sector strategies 

-  schemes  to  build  up  the  institutional  and  operational  capacities  of  developing 

countries on gender issues at national, regional and local level 

-  supporting the collection and dissemination of key data desegregated by sex, 
-  development  of methodologies,  guidelines,  manuals,  procedures,  indicators  and  other 
operational  instruments  seeking  to  improve  the  integration  of  gender  issues  in 
development  activities 
thematic monitoring and evaluations 
training and sensitisation of key decision makers, 

- 
- 
-  support  to  the formulation,  follow-up  and monitoring  of  national  plans  in  developing 
countries designed to implement the Platform for Action of the Beijing  Conference 

-6 

-  providing resources and technical  assistance to  developing  countries in measuring and 
valuing  unpaid  work  for  inclusion  in  GNP  or  for  reflection  in  parallel  satellite 
accounts,  as appropriate and in conformity  with the UN  System of National  Accounts 
(SNA)  1993, 

-  actions  within  the  framework  of  co-ordination  with  Member  States  on  integrating 

gender issues in development  co-operation 

3.  Particular  attention  will  be  given  to  emerging  areas  for  sensitising  development  co 
operation to gender issues,  including  emergency  operations  and crisis prevention,  human 
rights and démocratisation, macro-economic  analysis,  sexual and reproductive  health and 
rights. 

Article 3 

Beneficiaries  of activities carried out under this Regulation may include public  authorities 
and  government  agencies,  decentralised  departments,  regional  bodies,  universities  and 
research  centres,  traditional  and  local  communities,  trade  unions,  co-operatives,  non 
governmental  organisations  and  associations  representing  local  people,  particularly 
women. 

Particular  attention  will  be  given  to  endogenous  structures  that  can  play  a  role  in 
strengthening local capacities with respect to gender. 

Article 4 

1.  The instruments to be employed  in the  course  of the activities  referred  to  in Article  2 
shall  include  studies,  technical  assistance,  education,  training  or  other  services,  supplies 
and works, as well as audits and evaluation and monitoring missions. 

2.  Community financing may  cover both investment,  with the  exception  of the  purchase 
of  real  estate,  and,  since  the  project  must,  if  possible,  aim  at  medium-term  viability, 
recurring expenditure (including administrative,  maintenance and operating expenditure). 

However,  with the  exception  of training,  education  and research  programmes,  operating 
costs  may  normally  be  covered  only  during  the  start-up  phase  and  on  a  gradually 
decreasing basis. 

3.  A  contribution  from  the  partners  defined  in  Article  3  shall  be  sought  from 
beneficiaries.  Their  contribution  shall  be  requested  according  to  their  means  and  the 
nature of the operation concerned. 

-7 

4.  Opportunities  may  be  sought  for  cofinancing  with  other  donors,  especially  with 
Member States and the international organizations concerned. 

5. The necessary measures shall be taken to  emphasize the Community  character  of the 
aid provided pursuant to this Regulation. 

6. In order to  attain the objectives  of consistency  and complementarity  laid down  in the 
Treaty  and  with  the  aim  of  guaranteeing  optimum  efficiency  for  the  totality  of  these 
operations, the  Commission  may take  all  coordination  measures  necessary,  including in 
particular: 

(a)  the  establishment  of  a  system  for  the  systematic  exchange  and  analysis  of 
information  on  operations  financed  or  being  considered  for  financing  by  the 
Community and the Member States; 

(b)  on-the-spot  coordination  of  these  operations  by  means  of  regular  meetings  and 
exchanges  of  information  between  the  representatives  of  the  Commission  and 
Member States in the beneficiary countries. 

7.  In  order  to  obtain  the  greatest  possible  impact  globally  and  nationally,  the 
Commission,  in  liaison  with  the  Member  States,  shall  take  any  initiative  necessary  for 
ensuring proper  coordination  and  close collaboration  with the beneficiary  countries and 
the  providers  of  funds  and  other  international  agencies  involved,  in  particular  those 
forming part of the United Nations system. 

Article 5 

Financial support pursuant to this Regulation shall take the form of grants. 

- 8-

Article 6 

1.  The  Commission  shall  be  responsible  for  appraising,  deciding  and  administering 
operations  covered  by this Regulation  according  to  the budgetary  and  other  procedures 
in force,  and  in particular  those  laid  down  in the  Financial  Regulation  applicable  to  the 
general budget of the European Communities. 

2.  Decisions  relating  to  grants  of  more  than  ECU  2  million  for  individual  operations 
financed pursuant to  this Regulation  shall  be  adopted  under the  procedure  laid  down  in 
Article 7. 

3.  The  Commission  shall  be  authorized  to  approve,  without  seeking  the  opinion  of  the 
Committee  referred  to  in  Article  7,  any  extra  commitments  needed  for  covering  any 
expected  or  real  cost  overruns  in  connection  with  the  operations,  provided  that  the 
overrun or additional  requirement  is less than or equal to  20% of the  initial  commitment 
fixed by the financing decision. 

4.  All  financing  agreements  or  contracts  concluded  pursuant  to  this  Regulation  shall 
provide  for  the  Commission  and  the  Court  of  Auditors  to  conduct  on-the-spot  checks 
according to the usual procedures laid down by the Commission under the rules in force, 
in  particular  those  of  the  Financial  Regulation  applicable  to  the  general  budget  of  the 
European Communities. 

5. Where operations are the subject of financing agreements between the Community and 
the recipient  country,  such agreements  shall stipulate that the payment  of taxes,  duties or 
any other charges is not to be covered by the Community. 

6. Participation in invitations to tender and the award of contracts shall be open on equal 
terms  to  all  natural  and  legal  persons  of  the  Member  States  and  of  the  recipient 
countries. It may be extended to other developing countries. 

7.  Supplies  shall  originate  in  the  Member  States,  the  recipient  country  or  other 
developing  countries.  In  exceptional  cases,  where  circumstances  warrant,  supplies  may 
originate elsewhere. 

8. Particular attention will be given to: 

- 

the pursuit of cost-effectiveness  and sustainable impact in project design, 

- 

the clear definition  and monitoring  of objectives  and indicators  of  achievement  for all 
projects. 

9-

Article 7 

1.  The  Commission  shall  be  assisted  by  an  advisory  committtee  made  up  of 
representatives  from  the  Member  states  and  chaired  by  a  representative  of  the 
Commission: 

-in the  case  of  African,  Caribbean  and  Pacific  countries,  the  EDF  Committee  set  up by 
Article  21  of  Internal  Agreement  91/401/EEC  on  the  financing  and  administration  of 
Community  aid  under  the  fourth  Lomé  Convention,  adopted  on  16  July  1990  by  the 
representatives of the Member States meeting within the Council, 

-in the  case  of the Mediterranean  countries,  the MED  Committee  set  up by  Article  6  of 
Council Regulation (EEC) No  1762/92 (1) of 29 June 1992, 

-in the  case  of the  Asian  and Latin  American  countries,  the  ALA  Committee  set  up by 
Article  15 of Council Regulation (EEC) No  443/92  (2) of 25 February  1992. 

2.  The  representative  of  the  Commission  shall  submit  to  the  Committee  a  draft  of  the 
measures to be taken.  The  Committee  shall deliver its opinion  on the  draft  within  a time 
limit  which  the  chairman  may  lay  down  according  to  the  urgency  of  the  matter,  if 
necessary by taking a vote. 

The  opinion  shall be  recorded  in the  minutes; in addition  each Member  State  shall  have 
the right to ask to have its position recorded in the minutes. 

The  Commission  shall  take  the  utmost  account  of  the  opinion  delivered  by  the 
Committee.  It  shall  inform  the  Committee  of  the  manner  in which  its  opinion  has  been 
taken into account. 

Article 8 

An  exchange  of views  shall take  place  once  a year on the basis  of  a presentation  by the 
representative  of  the  Commission  of  the  general  guidelines  for  the  operations  to  be 
carried  out  in  the  year  ahead,  in  the  framework  of  a joint  meeting  of  the  Committees 
referred to in Article 7(1). 

10 

Article 9 

1. After  each budget year, the Commission shall submit an annual report to the European 
Parliament  and  the  Council  giving  an  account  of  the  activities  financed  under  this 
Regulation relative to integrating gender issues in Community development  co-operation 
and of their outcome, together with: 

- a summary of other operations financed under this Regulation in the course of that year 

-  a  list  of  the  projects  indicating  the  names  of  the  implementing  partners  and  the 
percentage of the operational cost financed by the Community 

- an evaluation, complete with figures, of the implementation of this Regulation over that 
period. 

2.  The Commission  shall regularly  assess operations financed by the Community  with  a 
view  to  establishing  whether  the  objectives  aimed  at  by  those  operations  have  been 
achieved and to providing guidelines for improving the effectiveness  of future  operations. 
The Commission shall submit to the Committee referred  to in Article 7 a summary of the 
assessments  made  which,  if  appropriate,  may  be  examined  by  the  Committee.  The 
assessment reports shall be available to any Member States requesting them. 

3.  The financing guide  indicating  guidelines  and  criteria  for  project  selection  shall  be 
published  and  distributed  among  interested  parties  by  the  Commission's  services, 
including its delegations in the recipient countries. 

Article 10 

This Regulation  shall enter into force  on the third day following  that  of its publication in 
the Official  Journal of the European Communities. 

This  Regulation  shall  be  binding  in  its  entirety  and  directly  applicable  in  all  Member 
States. 

Done a t. .. 

For the Council 

The President 

11 

FINANCIAL STATEMENT 

Item B7-611 : Women's role in development 

1.  Title of operation 

Integrating gender issues in development cooperation. (It would be advisable to propose 
that, in the next preliminary draft budget, the budget item should be replaced by the title 
"Item B7-611:  Integrating gender issues in development cooperation",  in line with the 
name of the operation.) 

2.  Budget heading involved 

B7-611 

3.  ïjyflh—it 

Proposal  for  a  Council  regulation  on  integrating  gender  iaaues in 

development cooperation 

4.  Deffiripikffl  of operation 

4.1 General objective 

This  budget  heading  is  intended  to  finance  schemes  to  integrate 
gender issues, and promote full  and equal participation by women, 
in the development process.  This objective fits into the context of 
promoting  sustainable  economic  and  social  development  in  the 
developing  countries  and  involves  launching  new  methods  and 
policies,  with  a  knock-on  effect  upon  all  the  development 
cooperation financed by the Community. 

As  pointed  out  on  a  number  of  occasions  by  the  Council  and 
Parliament,  the  integration  of  gender  issues  in  the  development 
process  is  recognized  as  essential.  This  means  promoting  the 
participation  of  women  and  recognizing  their  active  role  as  full 
partners  in  all  development  activities,  from  design  to  evaluation 
(mainstreaming). 

4& 

The  Commission,  as  a  full  participant  in  the  IVth  World 
Conference  on  Women  (Beijing,  1995),  must  ensure  that  the 
results of this Conference  are followed up and implemented in the 
context  of  its  own  development  cooperation,  in accordance  with 
the Resolution of 20 December 1995. 

This  objective  and  the  implementation  of  the  Resolution  of 
20 December 1995  require  closer  coordination  with  the Member 
States in accordance with Articles 13 Ou,  13 Ox,  and  130y of the 
Treaty on European Union. 

Within  the  context  of  the  OECD  Development  Aid  Committee 
(DAC), the Commission has been invited to take part in a number 
of  studies  on  the  application  of  the  guidelines  laid  down  by the 
DAC on the participation of women in  development. 

The types of action planned are described below. 

Operations  to  inform  and  sensitize  decision-makers  and 
administrators  of  the  development  programmes financed by 
the  Community,  at  headquarters  and  in  the  developing 
countries  (training  courses,  instruction  manuals,  appropriate 
technical assistance, research and studies). 
Operations to promote the integration of gender issues  in the 
design, programming, financing, execution, monitoring and/or 
evaluation  of  the  projects  and  programmes financed by  the 
Community in the developing countries. 
Strategic  operations  to  inform  and  raise  awareness  among 
those  involved  in  the  governmental  and  regional  decision 
making  process  in  the  developing  countries  so  that  greater 
account is taken of women's requirements in the development 
process. 
Operations as part of coordination with the Member States on 
gender issues. 
Operations to include schemes aimed at reducing gender-based 
disparities  in  the  developing  countries  in  the  mainstream  of 
projects and programmes financed by the Community. 

4.2 Period covered and arrangements for renewal. 

The policy is for an indefinite period.  Individual schemes are for a 
year and can be renewed until adoption of this regulation. 

5. 

Classification of expenditure/revenue 

Non-compulsory expenditure/ Differentiated appropriations. 

"3 

6. 

Type of expenditure/revenue 

Grant of up to 100 % of the costs.  However: 

systematic  efforts  are  made  to  seek  a  contribution from the 
project beneficiaries; 

opportunities  for  cofinancing  are  sought  with  the  Member 
States and multilateral, regional or other organizations. 

7. 

Financial impact 

7.1 Method of calculating cost of operation: 

The main expenditure is made up of the remuneration and travel costs of 
experts highly specialized in gender and development who have to visit 
the  developing  countries  to  work  with  the  administrations,  EC 
Delegations and project staff in order to integrate gender analysis. 

In addition  there  is  expenditure  resulting from the  cost  of  training  or 
information  sessions  for  EC  personnel  and/or  decision-makers  in  the 
developing 
for  development 
projects/programmes,  the  aim  being  to  increase  their  ability  to  take 
account of the roles and requirements of men and women and to include 
this dimension throughout the project cycle. 

countries  who  are  responsible 

There  are  also  the  costs  of  studies,  training  manuals,  research  and 
bulletins/reports  which  are  intended  to  inform  staff  of  the  specific 
requirements  and  priorities  of  women  in  the  ALA/MED  and  ACP 
countries. 

There  is  further  expenditure  linked  with  thematic  and  follow-up  studies 
which may be requested in the context of closer coordination with the Member 
States and the OECD/DAC, and the costs of strategic schemes and projects to 
raise  the  awareness  of  decision-makers  in  the  developing  countries  so  that 
greater account is taken of women's specific requirements. 

7.2 Itemized breakdown of cost 

Equal distribution between eligible geographical  regions is  sought, and 
this may vary according to demand and/or priority. 

BREAKDOWN 

Technical assistance 
Training 
Projects 
Research 

1997 

1.6 
0.8 
2.0 
0.6 

5£ 

1998 

1.6 
0.8 
2.0 
0.6 

5.0 

41 

7.3  Indicative schedule by theme in 1997 

THEMES 

Development of methodologies and instruments 

Mainstreaming in project cycle 

Mainstreaming in policies and strategies 
Sectoral and/or geographical research/studies 

: 

Sensitization  of  decision-makers 
countries 

in 

the  developing 

Capacity-building in the developing countries 

% 

10 

20 

20 
10 

20 

20 

7.4 Indicative schedule of commitment appropriations (ECU million) 

1997 

PDB 1998 

B7-611 

8.  Fraud prevention measures 

Technical  checks  by  Commission  officials,  assisted  by  independent 
experts. 

The Commission, prior to payment, checks the grants and the receipt of 
services  and  preparatory  studies,  feasibility  studies  and  evaluation 
reports  requested,  taking  into  account  contractual  obligations  and 
applying recognized principles of economics and sound  financial/general 
management. 

Fraud  prevention  measures  (audits,  submission  of  reports,  etc.)  are 
included  in  all  agreements  or  contracts  concluded  between  the 
Commission and payment recipients. 

9.  Elements of cost-effectiveness  analysis 

9.1  Specific and quantified objectives;  target population 

Specific objectives : 

This action ties in more generally  with the objective  of sustainable 
development, the role of women being essential  as a key economic, 
political and social factor. 

4J 

To  give  support  to  government  organizations  and  Community 
institutions in taking decisions on the integration  of gender issues in 
development  cooperation  policies  and  programmes.  This  support 
takes the  form  of  strategic  guidelines,  methodologies  and  working 
instruments, the provision of high-level technical assistance, training 
and  awareness-raising  schemes,  at  headquarters  and 
the 
Delegations  and  for  the  local  partners  in the  developing  countries, 
support  for  particularly  strategic operations, notably those intended 
to  strengthen  capacity  in  the  developing  countries  for  integrating 
gender issues in development. 

in 

Target population 

In  order  to  create  multiplier  effects,  the  two  target  groups  chosen 
are  designers  and  administrators  of  development  policies  and 
programmes in the developing countries and within the Commission 
itself. 

In addition to these target  groups,  all women and local  populations 
in the developing countries are targeted. 

9.2  Grounds for the operation 

Need for Community financial aid. 

A new  aspect  of development  aid which  could  improve the  quality 
and  viability  of  all  Community  development  cooperation  is  being 
taken into consideration.  In view of the lack of experience available 
in the approach to gender issues, we have to concentrate our  efforts 
on this type of operation. 

Budget  heading  B7-6110  (ex  B7-5051  and  B7-5052)  was 
established  in  1992  at  the  initiative  of  the  European  Parliament, 
which,  like  the  Council  in  many  conclusions  and  recently  in  the 
Resolution  of 20 January  1995, has pointed to the need to  integrate 
women  and  development  issues  in  development  cooperation.  The 
Resolution  specifically  stresses  the  need  to  earmark  sufficient 
funding  for  a  strategic,  catalytic  approach,  with  the  drawing-up  of 
policies  and  methodologies,  training,  research,  monitoring  and 
evaluation. 

In  acting  upon  "The  run-up  to  2000"  and  the  Resolution  of 
20 December  1995,  the  Community  is  also  required  to  improve 
coordination  between  the  Community  and  the  Member  States  in 
integrating  gender  issues  in  development.  This  budget  heading  is 
also intended to step up the degree to which operations financed  by 
the  Community  dovetail  with,  and  complement,  those financed by 
the Member States. 

It is therefore  necessary to have an appropriate financial instrument 
to  enable  the  Commission  to  conduct  the  proposed  operations. 
That is the reason for this budget heading, which, with an amount of 
ECU 5 million  for  1997,  is  not  intended  to  finance  operational 
development  projects  for  women,  since larger  amounts  are  needed 

*€ 

to  promote  their  cause  (principle  of  mainstreaming),  in  accordance 
with the Resolution of 20 December  1995. 

By  choosing 
for 
project/policy  designers  and  administrators,  the  highest  possible 
multiplier effect  is sought. 

target  operations  on  capacity-building 

to 

*  Advantages over possible  alternatives 

Strategic  awareness-raising  schemes,  aimed  at  integrating  gender 
issues  into  the  mainstream  of  development,  are  regarded  as  more 
effective  than  a  plethora  of  small-scale  microprojects  for  women, 
which are often very limited in their impact. 

*  Explanatory reference to  similar Community or national  operations 

Certain Member  States  have  a very  active  policy  in this  sphere,  but 
a major  commitment  by the  Commission  should  act  as  an  incentive 
for the other Member States or suppliers of funds. 

The  Community,  for  its part,  must  act to  ensure that the  operations 
which  it  finances  are  of  good  quality  and  will  provide  sufficient 
return,  and  take  the  utmost  possible  account  of  gender  issues  as 
they affect  development  as a whole. 

9.3  Monitoring  and evaluation of the operation 

Monitoring  and evaluation indicators are selected and applied in the case  of 
each operation. 

Under  the  terms  of  the  Council  Resolution  of  20 December  1995,  the 
results  obtained  will  be  evaluated  and  presented  to  the  Council  every  two 
years (first  presentation:  November  1997). 

A  study  was  commissioned  in  1996  on  the  implementation  of  the  Council 
Resolution,  and  in  particular:  1)  the  effects  of  the  training  of  decision 
makers (Commission  and local); 
2)  the introduction  of gender  analysis 
into the project  cycle; 3) an increase in the number of  projects/programmes 
which include a gender approach. 

The study identified five priorities for implementing the Resolution: 

the  development  of 

instruments  and  methodologies 

-  training  in  gender  analysis  and  gender  planning  for  decision-makers  and 
planners; 
- 
mainstreaming at macro and sectoral  levels; 
-  monitoring  of  the  mainstreaming  of  gender  issues  in  the  design  and 
implementation of strategies for different  countries; 
-  wider  involvement  of  staff  in  the  promotion  and  monitoring  of  the 
mainstreaming  of gender issues; 
- greater coordination with the Member States in certain pilot countries. 
The priorities identified  for the budget heading reflect  these indications. 

for  gender 

">4 

9.4 Coherence with financial programming 

Is the operation incorporated in the DG's financial programming for 
the relevant years? 

Yes 

in  the  DG's financial 
To  which  broader  objective  defined 
programming  does  the  objective  of  the  proposed  operation 
correspond? 

The  proposed  operation  ties  in  with  the  general  objectives  laid 
down  in  within  the  framework  of  sustainable  social  and  human 
development  (Article 13 Ou of the Treaty on European Union). 

10.  Administrative expenditure 

The  actual  mobilization  of  the  administrative  resources  required  will 
depend on the annual Commission decision on the allocation of resources, 
account  being  taken  of  any  additional  amounts  or  staff  allowed  by  the 
budgetary authority. 

10.1  Impact on the number of posts 

Operations  already conducted  in the  form  of  pilot  schemes  by DG  IB  et 
DGVni staff. 

Type of post 

Staff to be assigned to 
management of the 
operation 

Permanent 
posts 

Temporary 
posts 

of which 

Duration 

by  recourse  to 
additional  staff 

using 
by 
existing 
staff 
in  the  DG  or 
service 
concerned 

Officials 
or 
temporary  staff 

2 

A 

B 

C 

1 

0.75 

2 

1 

0.75 

Other resources 

Total 

1.75 

2 

3.75 

' 

1<g 

10.2 Overall financial impact of the additional staff 

Amounts 

Method of calculation 

Officials 

Temporary  staff 

Other 
budget heading) 

resources 

(indicate 

Total 

For  information,  the  indicative  cost  of  the  existing  human  resources  is 
estimated at ECU 397 500/year (3.75 officials  at an estimated average cost 
of 

ECU 106 000/official/year): grades Al, A2, A4 and A5. 

10.3 Increase in other operational expenditure resulting from the operation 

The necessary resources are obtained by redeploying existing resources. 

Budget heading 

Amounts 

Method of calculation 

(No and title) 

Total 

For  information,  the  indicative  costs  of  the  meetings financed under  heading  A-2510 
would be approximately ECU  31 275. 

(Method of calculation:  average cost ECU 695/Member State's representative/meeting x 
15 representatives x 3 meetings/year.) 

/\0) 

ISSN 0254-14' 

COM(97) 265 final 

DOCUMENTS 

EN 

05  11  06  04 

Catalogue number  :  CB-CO-97-252-EN-C 

ISBN 92-78-20659-8 

Office  for Official  Publications of the European Communities 

L-2985 Luxembourg