Progress report from the Commission on the follow-up of the communication: 'Incorporating equal opportunities for women and men into all Community policies and activities'
Date: 1998-03-04
Institutions: European Commission
Subjects: EU employment policy, EU programme, European Social Fund, equal treatment, gender equality

COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 04.03.1998 
COM(1998) 122 final 

Progress report from the Commission 
on the follow-up of the Communication: 

"Incorporating equal opportunities 
for women and men into all Community 
policies and activities" 

(presented by the Commission) 

TABLE  OI  CONTENTS 

Embedding  the  mainstreaming  strategy 
Progress  in terms  of certain  assessment  criteria 

SUMMARY 
Introduction 
Part  I.THE  METHODOLOGICAL  APPROACH 
1.1 
1.2 
1.2.1  High  level  commitment 
1.2.2  Awareness-raising 
1.2.3  The dual  strategy 
1.2.4  Co-operation  structures 
1.2.5  Basing  of responsibilities 
1.2.6  Gender  expertise 
1.2.7  Monitoring  and  evaluation 

Barriers  to progress 

1.3. 
1.3.1  Awareness-raising  activities  targeting  the 

DG  hierarchies 

The  next steps  in terms of methodology 
Introducing  gender  impact  assessment  of policies 

1.4 
1.4.1 
1.4.2  Setting  up gender  proofing  procedures 
1.4.3  Developing  DG-internal  gender  expertise 

3 
5 
6 
6 
7 
7 
8 
9 
9 
10 
10 
11 

11 

11 

12 
12 
13 
13 

14 
14 
14 
16 
16 

The  policy  achievements 

PART  2. THE  OUTCOME  IN TERMS  OF  POLICY: 
ACHIEVEMENTS  AND CHALLENGES 
2.1 
2.1.1.  "Employment:  Acting  together" 
2.1.2 
2.1.3 
2.1.4 

"The  Euro:  Entering  the home  straight  " 
"Agenda  2000:  embarking  on reform  " 
"The  Union  in the  World: 
19 
A position  and  a role  to assert  " 
20 
Policy  challenges 
20 
Employment  and  labour  market policies 
20 
C 'ohesion  and  regional  policies 
EMU,  the  EURO  and  the Single  Market 
21 
Research  Policy,  New  technologies  and  Information  Society\ 
21 
22 
22 
22 

The enlargement  process 
Europe  of the citizens 
Modernising  the  Commission's  administration 

2.2 

SUMMARY 

The new Treaty of Amsterdam, still to be ratified,  substantially  strengthens the legal  basis  for 
Community  action  in  favour of equality between  women and men. Articles 2 and 3 of the new 
Treaty  formalise  the  Community  commitment  to  gender  mainstreaming,  by  establishing 
equality  between  men and women as a specific  task of the Community  as well as a horizontal 
objective  affecting  all  Community  tasks.  The  Treaty  is  therefore  of  major  importance  as  a 
legal basis and incentive to further  develop the gender mainstreaming policy. 

Since  the  adoption,  two  years  ago,  of  the  Commission  Communication  on  "Incorporating 
equal  opportunities  for  women  and  men  into  all  Community  policies  and  activities"1  a new 
structure has been put in place under the aegis of the Group of Equality Commissioners with a 
view  to  systematically  incorporating  the  equal  opportunities  dimension  in  all  Community 
policies  and  activities.  Each  Directorate-General  is  responsible  for  mainstreaming  equal 
opportunities  into  its policy  areas, and  a collaborative  inter-service  structure  of key  officials 
supports the process. 

This Communication  presents the  first  progress  report to date, based  on the contributions  of 
It  indicates  what 
18  DGs  and  horizontal  services  on  their  equal  opportunities  activities. 
barriers  and  shortcomings  remain.  The  outcome  in  terms  of  policy  is  most  tangible  in  the 
field  of external  relations, including development  co-operation  and women's human  rights; in 
the  fields  of  employment  policy  and  the  Structural  Funds;  education,  training  and  youth 
policies; and  in Commission  staff  and  information  policies. This is hardly  surprising,  taking 
into  account  that  these  sectors  have  more  solid  traditions  than  others  for  taking  equal 
opportunities between  women  and men  into account. There has been  a move in these policies 
and sectors  away  from  isolated  measures  in favour  of women to a more  integrated  approach, 
as exemplified  by the Third Action Programme on Equal Opportunities for women and men in 
the European Commission (1997-2000); the Medium-term  Community Action Programme on 
Equal  Opportunities  for  Women  and  Men  (1996-2000);  and  by  the  adoption  and 
implementation  of the Council  Resolutions  on mainstreaming  of equal  opportunities  into  the 
European  Social  Funds  and  on  integrating  gender  issues  in  development  co-operation.  The 
inter-service  co-operation  and  comprehensive  mainstreaming  of  the  equal  opportunities 
dimension  in  the  on-going  revision  of  the  European  Structural  Funds  General  Regulation 
merits special mention. 

Whereas  progress  is  considerable,  the  barriers  and  shortcomings  are  no  less  apparent.  In 
spile  of  the  large  number  of  activities  that  arc carried  on  with  a view  to  promoting  equality 
between  women  and  men,  the  majority  arc  isolated  measures  without  major  impact  on  the 
overall situation with regard to gender equality. Neither do these activities seriously  influence 
the orientation of mainstream Community policies. While specific measures of positive action 
will  remain  crucial  in  the  foreseeable  future,  as  part  of  a  dual  approach,  mainstreaming 
demands  an  altogether  more  comprehensive  approach.  The  main  barriers  to  further 
progress are the following: 

• 
• 
• 

lack of awareness of gender issues at the decision-making levels. 
lack of human and budgetary resources allocated to these tasks; 
lack of gender expertise; 

COM(96)67 final  of 21 February  1996 

The  following  steps  should  be  taken  in  order  to  overcome  the  barriers  and  improve  the 
organisational  and methodological  framework  for gender mainstreaming: 

large-scale training to develop the necessary gender expertise; 

•  awareness-raising, targeting as a priority senior and middle management; 
• 
•  gender impact assessment of policies as a regular procedure; 
•  gender  proofing  to  guarantee  the  quality  of  any  legislative  proposal  and  other  policy 

document or Community  activity, in terms of the equal opportunities objective.2 

Looking  at  the  policy  implications  of  the  political  priorities  set  out  in  the  Commission's 
Work  Programme  1998\  a  number  of  policies  are  singled  out  in  this  Communication  for 
specific attention: 

•  close monitoring of the achievements in the field of employment policies, to ensure that the 
equal opportunities pillar of the Employment Guidelines is fully  implemented, and that the 
equal  opportunities  dimension  is  incorporated  into the  implementation  and  monitoring  of 
the three other priorities; 

•  ensuring that equal  opportunities  in the on-going  reform  of the European  Structural  Funds 
is fully  entrenched and made operational  in the implementation, monitoring and evaluation 
process; 

•  ensuring  that  the  achievements  in  the fields of  education,  training  and  youth  policies  are 
further  developed  and expanded  in the "new  generation" of Community  programmes  that 
are being prepared; 

• 

the equal  sharing of work and family  responsibilities between women and men needs to be 
encouraged  as  part  of  schemes  promoting  part-time  work,  flexibility  and  new  forms  of 
work organisation; 

•  desegregation  of  the  labour  market  to  promote  equal  opportunities  and  the  smooth 
functioning  of  the  Single  Market,  by  eliminating  rigidities  caused  by  vertical  and 
horizontal  gender segregation; 

•  assessing  the gender  impact  of EMU and the EURO with a view to ensuring  that  women 

and men benefit equally; 

•  ensuring that women participate fully  and benefit  equally with men from  the  opportunities 

offered  by new technologies and the Information  Society; 

•  addressing  the  requirements  as well  as the  impact  of the enlargement  process  on  equality 

between women and men; 

•  full  attention  should  be paid  to  equality  between  women  and  men  in the  internal  reform 

programme undertaken by the Commission; 

•  continued  monitoring  of  the  gender  mainstreaming  policy  and  regular  reporting  on  the 

progress achieved. 

2 in accordance with Article 3 of the new Treaty of Amsterdam 
3 COM (97) 517 final  of  15 October 2997 

INTRODUCTION 

On 21 February  1996 the European Commission adopted a Communication  on "Incorporating 
equal opportunities  for women and men into all Community policies and activities"4,  defining 
the  "mainstreaming"  policy  ,  as  a  policy  "not  restricting  efforts  to  promote  equality  to  the 
implementation  of  specific  measures  to help women,  but  mobilising  all  general  policies  and 
measures specifically  lor the purpose of achieving equality."s 

Systematic efforts  at promoting mainstreaming throughout the Commission services got under 
way  in  early  1997,  as  the  Inter-service  group  on  equal  opportunities  agreed  on  a  Strategy 
Paper  outlining  concrete  steps  for  follow-up  to  the  Commission  Communication  on 
Mainstreaming6.  Following  a  formal  request  by the  Secretary  General  of  the  Commission  to 
the  Directors  General  for  the  implementation  of  the  Strategy  Paper7,  29  services8  have 
nominated  officials  with  the  express  mandate  to  promote  gender  mainstreaming  in  their 
respective  Directorates General. A working group consisting  of these "gender  mainstreaming 
officials"  has  been  set  up  with  a  mandate  to  implement  the  Strategy  Paper  and  serve  as  a 
support  structure  for  the  DGs  in  the  mainstreaming  process.  Among  the  first  tasks  to  be 
achieved by the Group of gender mainstreaming officials was the preparation of a tool for the 
promotion  of gender impact assessment of policies. A Guide to gender impact assessment^ is 
now available in three languages. 

Regular  monitoring  of  equal  opportunities  activities  and  measures  to  integrate  the  equality 
dimension  is crucial  for  the  success  of a mainstreaming  strategy.  Progress  reports  involving 
all the Commission  services  were  foreseen  in the  Strategy  Paper10. This  is the first progress 
report  to  be  made  on  the  follow-up  to  the  Commission  Communication  (COM(96)67)  of 
February  1996. 

The  Report  which  follows  is  in  two  parts.  Part  1 looks  at  how  mainstreaming  works  -  the 
methodology  to  be  adopted.  It  draws  lessons  from  three  areas  of  the  Commission  Services 
where there has been noteworthy progress to date. 

Part  2  considers  the  policy  implications  of  the  mainstreaming  approach.  Using  the 
Commission's  1998  Work  Programme,  it  discusses  areas  of  policy  where  the  gender 
dimension has already been taken into into account or where it could be considered. 

It  should  finally  be mentioned  that  purely  DG-internal  activities  aimed  at  implementing  the 
Third  Action  Programme  for  Equal  Opportunities  for  Women  and  Men  in  the  European 
Commission  are  considered  to  fall  outside  the  scope  of  the  present  document.  Equal 
opportunities  for  men  and  women  Commission  staff  and  a  gender  balance  at  all  levels  of 
decision-making  are important  indicator of how far  we have come towards equality  between 
women and men. Progress in  these areas will  be monitored in a separate reporting exercise. 

Part  l.THE METHODOLOGICAL  APPROACH 

4COM(96)67of2I  February  1996 
5 ibid p.2 
6 COM (96)67 final of 21 February  1996 
7 Doc. SEC(97)692. 
8 SG, CdP, SJ, PP, SC1C, SdT, CCR, DG I, DG IB, DG III, DG IV, DG V, DG VI, DG VII, DG VIII, DG IX, 
DG XC, DG XI, DG XII, DG XIII, DG XIV, DG XV, DG XVI, DG XX, DG XXI, DG XXII, DG XXIII, 
ECHO, OPOCE, OS 
9 Available DG V/D/5 
10  Strategy Paper on Mainstreaming a follow-up  strategy to COM (96) 67 final, agreed by the Inter-Service 
Group on equal opportunities in February  1997 

1.1 

Embedding  the  mainstreaming  strategy 

The  contributions  from  the  services  reveal  that  progress  has  been  made  in  embedding  the 
mainstreaming  policy.  Both  measures  at  the  organisational  level  and  at  the  level  of  policies 
have  been  achieved.  Placing  responsibility  for  the  mainstreaming  process  with  specific 
officials  in  the  services  is  a  significant  step  forward,  as  is  the  regular  contribution  of  these 
gender  mainstreaming  officials  to  the  inter-service  co-operation  on  this  issue 
.  Additional 
steps  taken  in  some  services  or policy  sectors  include  the  allocation  or re-allocation  of  human 
resources  with  a view  to  strengthening  co-operation  inside  the  services  and  strengthening  the 
gender  dimension  in  programmes  and  activities.  Three  examples  merit  special  mention  here, 
because  of  what  they  reveal  of  how  the  methodology  of  mainstreaming  works;  DG  1B/VIII 
development  co-operation;  DG  V employment,  industrial  relations  and  social  affairs;  and  DG 
XXII  education,  training  and  youth  policies. 

Development  co-operation 

Following  Ihe  adoption  in  1995  of  the  Commission  Communication  (COM  (95)  423)  and 
Council  Resolution  (of  20  Dec.  1995) on  integrating  gender  in development  co-operation,  the 
integration  of  gender  issues  in  this  Held  has advanced  considerably.  It  includes  measures  such 
as  the  selection  of  pilot  countries  for  intensive  attention  to  gender  integration;  further 
development  of  existing  procedures  of  gender  impact  assessment;  provision  of  specialist 
personnel  on  gender  integration  at  regional  and  country  levels;  and  programmes  of  internal 
training  and  sensitisation  to  gender  issues,  with  a  view  to  creating  trained  advisory  functions 
paid  to  the 
where  gender  mainstreaming  is  considered  relevant.  Specific  attention  is 
sensitisation  of  civil  servants  dealing  with  issues  such  as  gender  in  structural  adjustment, 
sectoral  and  macro  economic  policies.  Awareness-raising  aims  to  show  the  positive 
relationship  between 
the  effectiveness  of 
the  mainstreaming  of  gender  equality  and 
development  assistance.  New  financial  proposals  as  well  as  ongoing  projects  are  reviewed  in 
DG VIII  and  DG IB  in order to improve their gender  orientation. 

If  adopted,  the  proposal  for  a  Council  Regulation  on  integration  of  gender  issues  in 
development 
gender 
contribute 
mainstreaming  throughout  development  co-operation  policies. 

co-operation"  would 

institutionalising 

further 

to 

Employment,  social  and  industrial  relations 

In  the  field  of  employment  and  social  affairs,  Directorate  General  V  has  launched  an  internal 
pilot  project  on  gender  mainstreaming.  An  awareness-raising  seminar  chaired  by  the  Director 
General,  and  targeted  at  senior  and  middle  management,  was  organised  in  July  and  was  well 
attended.  The  Directors  have  been  given  specific  responsibility  for  the  integration  of  the 
equality  dimension  in  their  respective  policies.  The  work  programmes  of  all  Directorates  are 
being  analysed  with  a view to  determining  the relevance  of the gender  perspective  and  certain 
policies  have  been  selected  for  specific  attention.  Gender-proofing  of  documents  (checking 
their  content  in  view  of  the  gender  and  equality  dimension)  is  on  the  agenda.  Following  the 
new  Treaty  of  Amsterdam,  employment  policy  is  an  obvious  priority  for  the  systematic 
integration  of  equal  opportunities.  The  Guidelines  for  Member  States  Employment  Policies 
for  1998  were  adopted  by  the  Council  on  15  December  1997  following  a  Commission 

C()M(97)265  final 

proposal  which  was  discussed  at  the  Extraordinary  Council  in  Luxembourg  on  20-21 
November  1997.  They  include  equal  opportunities  among  the  four  main pillars  of  action and 
already represent a significant  result in terms of mainstreaming in employment policy. 

Education,  training  and youth  policies 

IX i XXII  has made an organisational  effort  involving  the nomination  of "gender  focal  points" 
in  each  unit  and  involving  both  management  and  executive  staff..  The  idea  is  to  make  the 
equality  dimension  an  issue  of  strategic  policy  planning  and  co-ordination  at  the  DG  level, 
and  to  influence  implementation  at  the  executive  levels.  In  each  unit  an  officer  has  been 
nominated  to be  in charge  of  gender  mainstreaming.  A  network  of  these  gender  focal  points 
further  reinforces  the  organisational  structure.  Hqual  opportunities  are  well  incorporated  into 
programmes  in  the  fields  of  education,  training  and  youth  policies  (SOCRATES  and 
LEONARDO  DA  VINCI,  YOUTH  FOR  EUROPE  and  EUROPEAN  VOLUNTARY 
SERVICE)  The  equality  dimension  is  incorporated  into  the  calls  for  tender,  the  guidelines 
issued and the application  forms, and finally among the selection criteria. 

The  LEONARDO  DA  VINCI  programme  merits  particular  mention,  as  the  equality 
dimension  is  visibly  integrated  at  all  levels  of  the  programme  objectives,  as  defined  in  the 
Council  Resolution,12  in  the  horizontal  regulations,  as  well  as  among  the  specific  (vertical) 
objectives of the programme. 

1.2 

Progress in terms of certain  assessment  criteria 

As  these  examples  show,  mainstreaming  entails  a comprehensive  approach to ensure  that the 
Community  objective of promoting equality  between women and men  in all its tasks is met. 

It  is  crucial  to  keep  in  mind  that  certain  elements  are  indispensable  and  certain  conditions 
need to be in place for a successful  outcome. Among^these are the  following: 

•  high-level  commitment 
•  awareness-raising 
•  a  dual  strategy:  programmes,  positive  action  measures  and  budget 

allocations  specifically 
mainstreaming approach 

targeted  on  equal  opportunities 

should  complement 

lines/budgetary 
the 

•  co-operation  structures 
•  clear assignment  of responsibilities, 
•  gender expertise (gender impact assessment and gender  proofing) 
•  monitoring  and evaluation. 

1.2.1  High level  commitment 

The  Community  mainstreaming  approach  is  comprehensive  and  systematic.  It  involves,  in 
principle,  all  the  services  and every  Community  policy  or activity.  This  would  not have  been 
possible  without the strong commitment of the EU institutions and Member States. 

12 Council  Decision of 6 December  1994 establishing an action programme for the implementation  of a 
European community vocational training policy. 

The  proactive  role  of  Member  States  and 
the  European  Community  at  the  Fourth  World 
Conference  on  Women  in  Beijing,  1995,  in  successfully  advocating  the  mainstreaming 
approach 
to  equality  between  women  and  men,  is  an  important  factor  to  explain  the 
subsequent  Community  commitment. 

The  European  Parliament  has  played  an  instrumental  role  in  pressing  for  more  systematic 
integration  of  equality  issues  in  Community  policies.  In  its  resolution11  on  the  Commission 
Communication  on  Mainstreaming  the  European  Parliament  is  very  much  in  line  with  the 
steps  taken  by  the  Commission  to  implement  to  gender  mainstreaming,  both  in  terms  of 
institutional  measures  and  the  selection  of  priority  policy  areas.  The  resolution  (paras  7  and 
39)  recommends  that  proper  co-ordination  structures  are  set  up  to  further  the  mainstreaming 
process  in  the  Commission  services.  Paras  14, 43  and  45  mention  the  need  for  guidelines  for 
gender  impact  assessment  and  to  make  sure  that  all  future  legislative  proposals  take  account 
of  the  gender  dimension  (gender  proofing).  The  need  for  a  dual  strategy  is  highlighted  (para 
11 ).  The resolution  also  points  to some  specific  policy  sectors  that  need  strengthening  in  terms 
of gender  mainstreaming,  inter  alia  the enlargement  process  (para 46), the  internal  market  and 
EMU  (para  31 ) and  the  need  for  improved  sex-disaggregated  data and  statistics (para 38). 

The  commitment  of  the  Commission  is  manifest  at  the  level  of  the  College,  and  in  the 
continued  vigilance  of  the  Group  of  Commissioners  on  Equal  Opportunities,  initiated  and 
chaired  by  the  President  of  the  Commission.  The  adoption  in  February  1996  of  the 
Commission  Communication  on  Mainstreaming  was  a  strong  signal  of  the  intention  and  will 
of  the  European  Commission  to  promote  equality  between  women  and  men,  not  only  by 
means of isolated  measures,  but by  making  all  general  policies  work  towards  this end.14 At  the 
the 
level  of  the  Commission  services,  the  intervention  of  the  Secretary  General 
Commission,  requesting  the  appointment  by  all  Directors  General  of a high-level  official  who 
would  carry  the  main  responsibility  for  developing  gender  mainstreaming  in each  DG,  further 
testifies  to this solid  commitment". 

to 

1.2.2  A  wareness-raising 

Awareness-raising  is  crucial  as  a  means  to  achieving  commitment.  A  Commission-wide 
seminar  on  gender  mainstreaming  was  organised  in April  1997 and  was addressed  by  external 
experts  presenting  the  experiences  of  other  international  bodies  and  Member  States16.  As 
mentioned  in para  1.1, internal  awareness-raising  activities  were undertaken  in DG5. 

At  the  level  of  the  Commission,  International  Women's  Day  is  being  used  as  an  opportunity 
to  sensitise  Commission  staff  to  gender-relevant  issues  beyond  those  relating  purely  to  equal 
opportunities  for  Commission  staff,  including  the  field  of international  solidarity. 

The  publications  of  the  DG  X  Women's  Information  Section;  the  Women  of  Europe 
newsletter  and  the  Women  of  Europe  dossier  reach  a  wide  audience  throughout  the  EU  and 
world-wide. 

13 m* résolution  A4-0251/97 of  16 September  1997 on the Commission  Communication  COM(96)67: "Incorporating  equal 
opportunities between  women and men into all Community  policies and activities". 

14 COM(96)67 final, p.2 
15 Doc. SEC (97) 692 
16 A draft  report of the seminar has been drawn up, and is available from WD/5. 

Internal awareness-raising and training activities need to be given high priority  by the Gender 
mainstrcaming  officials,  who,  are  expected  to  play  a  pivotal  role  in  terms  of  gender 
sensitisation  in their own DGs. 

1.2.3  I 'he dual s I rat eg v 

Il is argued  by some thai «mainstrcaming»  has been used as an excuse  for eliminating  specific 
budget  lines  or  withdrawing  human  resources  with  a  specific  mandate  to  promote  the 
advancement of women. 

In the field of higher education  the commitment  to gender mainstreaming  existed  on the one 
hand  in  the  framework  of  the  SOCRATES  programme17  and  on  the  other  hand  in  a  target 
allocation  under  a special  budget  line18 Until  1996 this  budget  line  gave the possibility  for 
specific  equality-oriented  projects,  such  as  gender  sensitisation  in  the  field  of  education, 
addressing  the gender  stereotypes  of school  materials and promoting  non-typical  educational 
choices  of  girls  and  boys/women  and  men. 
In  the  wake  of  the  new  emphasis  on  a 
mainstreaming approach, the specific  allocation  in favour of equal opportunities in this budget 
line was deleted. 

Special  mention  of  the  obligation  to  respect  the  principle  of  equal  opportunities  for  women 
and  men  was  introduced  in  the  1998  Guidelines  for  applicants.  No  specific  provisions 
however, appear  to have been  made in order to ensure that the overall  effect  of these changes 
is positive  from  an equal  opportunities  standpoint.  Careful  evaluation  of  the  impact  of these 
new  developments  need  to  be  undertaken  with  a  view  to  implementing  any  necessary 
adjustments. 

It is crucial  to keep in mind that mainstreaming  should mean a strengthening  of efforts  and 
an enhancing  of the scope and impact  of equal  opportunities policies.  Specific  measures and 
budgets may be necessary. This may entail, as appropriate, the reallocation of resources. 

1.2.4  Co-operation structures 

The  Inter-service group was set  up in  1995 to support  the Group of Commissioners on  Equal 
Opportunities, as a preparatory  body  for the Group and as a vehicle  for gender  mainstreaming 
in  the  Commission  services. This Group  has considerably  strengthened  the  awareness  in  the 
services  of  Community  policies  on  equal  opportunities  and  facilitated  the  agreement  of 
follow-up  actions to the Commission  Communication  on Mainstrcaming1*'. The Group  further 
serves as a forum  for exchange of information  and best practice in the  field  and for discussion 
on equality-relevant Community policies. 

Inter-service  co-operation  on  equal  opportunities  was  further  strengthened  in  1997  by  the 
setting up of the Group of gender mainstreaming  officials.  This is a working group, reporting 
to  the  Inter-service  group  on  equal  opportunities,  with  a  specific  mandate  to  develop  and 
implement the  mainstreaming policy. 

17 Decision  no. 819/95/FC of the European  Parliament and of the Council of  14 march  1995 establishing the 
Community action  programme "Socrates"- OJ No. 1.87/10 of 20.4.1995.. 
Ix B3  1000 Preparatory  measures  for reinforcing  co-operation  in the Held of education 
'" COM(96)67  final 

10 

Additional  sub-groups,  along  the  lines  of  the  Working  Group  on  Equal  Opportunities  in  the 
European  Structural  funds,  may  be  set  up  in  the  framework  of  the  inter-service  co-operation 
on  equal  opportunities,  when  appropriate.  The  ad-hoc  working  group  on  Community 
preparations  in  advance  of  each  annual  meeting  of  the  UN  Commission  on  the  Status  of 
Women  (CSW)  is  another  example.  These  smaller  and  more  focused  working  groups  are 
extremely  useful  for  accomplishing  concrete  objectives  or tasks. 

Gender  mainstreaming  essentially  requires  an  integrated  policy  approach  and  the  co-operation 
of the  services.  The  successful  development  of  DG-internal  gender  mainstreaming  means  that 
equality  between  women  and  men  should  regularly  appear  on  the  policy  agenda  of  the  DGs 
management  team,  and  that  there  should  be  more  or  less  formal  networks  or  co-operation 
structures.  The  role of  these  structures  is to train  and  motivate  the  "gender  focal  points",  who 
will  increasingly  serve  as  spearheads  for  gender  mainstreaming  at  the  levels  of  Directorate 
and  unit.  The example  of  IXi  XXII  (see  1.1)  is pertinent  here.  Similar  networking  activities, 
also  involving  gender  focal  points  operate  in  the  fields  of  development  co-operation  and  staff 
policy  (DG  IB, DG  VIII  and  DG  IX),. 

1.2.5  Assignment  of  responsibilities 

In  29  Directorates  General  and  horizontal  services,  gender  mainstreaming  officials  have  been 
appointed.  A  number  of  them  are  sufficiently  high  level  to  be  able  to  influence  decision 
making  processes  in  their  own  DGs.  The  next  step  would  be  to  decentralise  responsibility 
inside  DGs,  by  allocating  responsibilities  to  gender  focal  points  in  all  relevant  Directorates 
and  units,  and  defining  the  responsibilities  of  the  middle  and  senior  management.  The 
examples  cited  from  DG  XXII,  DG  V and  DGs  IB and  VIII  are  relevant. 

Those  very  few  remaining  services  that  do  not  take  part  in  the  inter-service  co-operation  on 
equal  opportunities  are being encouraged  to nominate a DG  representative. 

1.2.6 

( lender  expertise 

Mainstreaming  means  that  each  and  every  service  carries  a  responsibility  for  analysing  the 
implications  for  women  and  men  respectively  (gender  impact  assessment)of  their  policies  and 
activities,  and  for  amending  their  policies  where  necessary.  Policy  proposals  need  to  be 
checked  at  the  various  levels  of  the  decision-making  process  in  order  to  ascertain  that  the 
gender  dimension  has  been  duly 
into  account  (gender  proofing).  The  Gender 
mainstreaming  officials  are key  personnel.  Their efforts  are needed  to adapt  and  disseminate 
the  measures  agreed  at  the  inter-service  level  to  the  conditions  and  needs  of  each  DG  and 
policy  area.  In  order to  fulfil  their  tasks, they  need,  as discussed,  the  support  of  management, 
including  the  necessary  time,  human  and  budgetary  resources.  In  addition,  t  need  training  in 
the use of relevant tools, such as gender impact  assessment  and gender  proofing. 

taken 

Training  in  gender  analysis  of  relevant  staff  has  already  been  accomplished  in  DGs  IB  and 
VIII  the  field  of development  co-operation  policies. 

External  expertise  may  be  drawn  upon  in  certain  instances,  in  order  to  undertake  studies  of 
gender  relevance  in  policy  areas  where  this  is  not  well  understood,  or  where  the  potential 
impact  is  considered  particularly  complex  or  important.  DG  V  launched  in  1997  a  call  for 
expression  of  interest  for  expertise  and  consultancy  in  its  various  areas  of  concern,  indicating 
gender-relevance  in each  area. 

1.2.7  Monitoring  and  evaluation. 

Regular  monitoring  is  indispensable  to  ensure  progress,  evaluate  results  and  adjust  the 
strategy where necessary.  In the Strategy  Paper of  February  1997, regular reporting  involving 
all the services is prescribed. This Report  is the first such policy  review. 

At  the  level  of  specific  policies,  evaluation  and  monitoring  is  also  being  carried  out.  In the 
framework  of  the  implementation  of  the  Council  Resolution  on  integrating  gender  in 
development,20  DG  IB and VIII  have prepared a first progress report which clearly  sets out the 
measures taken at an institutional  level  and the results  in terms of gender  integrated  projects in 
the field. 

An  assessment  is  being  carried  out  of  the  ESPRIT  programme  (DG  III) 
to  evaluate  the 
current  level  of  participation  of  men  and  women.  Assessment  of  the  impact  on  equal 
opportunities  for  women  and  men  is  also  a priority  for  the  mid-term  evaluation  of  the  rural 
development programmes of the Structural Funds. 

Through the Targeted Socio-economic  Research Programme  a research project on  "Predicting 
the  impact  of policy:  gender auditing  as a means of assessing  the probable  impact  of  policies 
initiatives  on  women"  is  being  financed  by  DG  XII.  The  objective  of  this  two  year  research 
project  which  started  in  December  1997  is  to  develop  a  procedure  for  gender-auditing  of 
policies. 

1.3 Barriers  to  progress 

Several  of  the  contributions  to  this  report  mention  the  lack  of  high-level  backing  as  an 
important  obstacle  to  progress  in the  field  of  gender  mainstreaming.  A  much  higher  level  of 
awareness-raising  is  crucial  to  the  future  success  of  the  gender  mainstreaming  strategy,  as 
pointed  out  by  DG  VIII  in  their  contribution.  They  also  point  to  the  related  constraints  in 
terms of: 

• 
• 
• 

internal gender expertise being a  limited resource; 
limited budgets for hiring external expertise; 
lack of awareness of gender issues in policy  decision-making. 

The role of Directors General, Directors and Heads of Unit is crucial  as they have the mandate 
and power  to ensure that a gender perspective  is  incorporated  from  the  very  beginning  of  the 
policy-making  process  and to ensure that necessary  resources are allocated.  Measures  need to 
be taken to ensure the full  and active support of higher management. 

1.3.1 Awareness-raising 

targeting  the  DG  hierarchies 

The  gender  mainstreaming  officials  were  nominated  at  the  formal  request  of  the  Secretary 
General  to  the Commission  addressing  all  the  Directors  General.  The  Directors  General  were 
called  upon  to ensure  sufficient  time  and  human  and  budgetary  resources  are  allocated  to  the 
gender mainstreaming  process  in each  DG. Their  further commitment  can only  be counted  on 
if they  are convinced  of  the potential  of  gender mainstreaming  for  improving  the  quality  and 

Council  Resolution of 20 December  1995 on integrating gender in development co-operation 

12 

efficacy  of policies.  Their  commitment  and  support  may be further  developed  by awareness-
raising activities, which should draw on the best expertise available in the field. 

Awareness-raising  activities  should  aim  at  increasing  knowledge  of  gender  relations  and 
Community  policies  aimed  at  "eliminating  inequalities  and  promoting  equality  between 
women and  men."21  Both the fairness  and quality  aspects of gender-integrated  policies should 
be  addressed.  Once  convinced  of  their  obligations  and  of  the  potential  of  gender 
mainstreaming for improving the quality and efficacy  of policies, the DGs' management teams 
may  be expected  to instruct the middle and  lower  level  management.  The DG V initiative of 
incorporating  gender  mainstreaming  in  the  (voluntary)  work  contract  of  Directors  is  an 
example of good practice. 

1.4 

The next steps in terms of methodology 

On  the  basis  of  this  review,  it  may  be concluded  that  the  process  of  embedding  the  gender 
mainstreaming  strategy  is  on  track.  It  needs,  however,  to  be  consolidated  and  further 
developed, and to encompass services and policy sectors that so far have remained  untouched. 
It should  further  be noted  that  progress to date  is rather  piecemeal.  Numerous activities  have 
been  carried  out,  but  the  overall  impression  is that  isolated  measures  are  still  the  norm. An 
altogether  more  systematic  approach  is  needed,  including  the  application  of  gender  impact 
assessment  of  policies,  gender  proofing  procedures  and  a  large-scale  training  programme  to 
develop  gender  expertise.  The  dual  approach  must  not  be  abandoned.  Specific  measures  of 
positive  action  will continue  to play a vital part  in the promotion  of equality  for  women and 
men in the foreseeable  future. 

Below are listed some priority steps that need to be taken 

1.4.1  Introducing gender impact assessment of policies 

Gender  impact  assessment  is  used  to  establish  whether  a policy  proposal  is  likely  to  affect 
either  sex  adversely,  and  how,  conversely,  a  given  policy  could,  for  example, 
impact 
positively on the overall objective of equality between women and men. The assessment could 
show  that  specific  measures will  be needed to address existing inequalities, or that the policy 
proposal  needs  to  be amended  or  changed  in order  to accommodate  the equality  dimension. 
Gender  impact  assessment  of  all  forthcoming  legislative  proposals,  by  analogy  with  the 
existing  impact  assessments  on  SMEs  and 
the  environment,  has  been  recommended  by 
Parliament.22 

The availability  of good  comparative  sex-disaggregated  statistics and  gender relevant  data is 
indispensable  for the implementation  of gender impact assessment. The Statistical  Office  has 
a crucial  role to play  in providing  such statistics in all relevant  areas. It is envisaged  that the 
necessary  steps  will  be  taken  to  ensure  the  collection  and  analysis  of  such  data  at  the 
European level. 

A Guide to gender  impact assessment  was developed  by the Group of gender  mainstreaming 
officials  in  1997. The  Guide  may  be  further  developed  by adding  concrete  examples  from  a 
wide spectrum  of policy fields and  sectors, to facilitate  the identification  of gender  relevance 

21  Treaty of Amsterdam, Article 3. 
22 BP Resolution  A4 0251/97 (paras 43 and 45) on the Commission  Communication  - Incorporating equal 
opportunities for women and men  into all Community  policies and activities - "mainstreaming" (COM(96)0067) 

13 

in policy areas that have traditionally  been considered  gender  neutral. The Guide would  be a 
useful  tool  for all Commission  officials  who are involved  in policy-making.  The development 
of gender expertise  in the services would  facilitate  its use. External expertise may be useful  in 
some instances. A database or list of relevant gender experts could be established  by each DG. 

1.4.2  Setting up gender proofing procedures 

(a  gender  impact 
Gender  proofing  means  ensuring  that  before  any  decision  is  taken, 
assessment) has been made. The idea is to make sure that no policy is proposed that may have 
a negative  effect  on the overall  objective  of gender  equality.  The long-term  objective  would 
be  that  all  legislative  proposals  and  other  policy  documents  of  the  Commission  are 
"proofed"checked  in advance. Each DG will need a procedure to do this internally.  Whenever 
the  gender  proofing  has  a  negative  outcome,  for  example,  if  gender  relevance  has  not  been 
considered  or  taken  into  account  as  appropriate,  the  proposal  should  be  returned  to  the 
responsible  service  for  revision;  if necessary,  external  gender  expertise  should  be  consulted. 
Those  in  charge  of  the  gender  proofing  will  need  some  training  to  enable  them  to  exercise 
their  functions. 

1.4.3  De ve loping DG-internal gender expertise 

Training  in gender analysis and gender  impact assessment  will  be organised  in the course of 
1998  by  DGIX  for  key  personnel,  such  as  the  gender  mainstreaming  officials  and/or  their 
assistants.  The  aim  will  be  to  facilitate  the  identification  of  gender  relevance,  inculcate 
knowledge  of  gender  relations  and  equal  opportunities  policies,  and  to  develop  an 
understanding  of  how  general  policies  impact  on  gender  relations  and  equality  between 
women  and men. Each  DG may  need  more than one gender  expert.  Hopefully,  a multiplier 
effect  of  this  training  can  be  expected.  The  longer  term  objective  is  to  enable  all  officials 
working on policy-preparation  and implementation/evaluation to assess gender relevance and 
contribute to making Community policies gender-sensitive. 

PART 2.  THE OUTCOME IN TERMS OF POLICY: ACHIEVEMENTS AND 
CHALLENGES 

The  following  section  examines  the  degree  to  which  gender  issues  can  be  seen  as  being 
integrated  in the priorities of the Commission  Work Programme for  1998". After  listing the 
achievements, a list of sectors and policy priorities  where the gender perspective may need to 
be given more attention has been drawn up. 

2.1 

The policy achievements 

2.1.1.  "Employment: Acting together "24 

•  In the  Guidelines for Member States'Employment Policies which were adopted by the 
Council  in  December  1997, equal  opportunities  for  women  and  men  is  listed  among  the 
four  main pillars. The equal  opportunities  dimension  will  likewise  form  an  integrated  part 

" T he  Commission's  Work  Programme  for  1998. The  political  priorities  (COM(97)517  final)  of  15  October 
1997. 
24 A ll  the  headings  marked  in  cursory  in chapter  2 are copied  directly  from  The  Commission's  Work 
Programme  lor  1998. 

14 

the 

implementation  and  evaluation  of  results 

of 
The 
implementation  of  the  employment  guidelines  by  the  Member  States  will  be  reviewed 
annually  by  the  Commission  and  by  the  Council.  A  detailed  analysis  of  the  current 
Mulliunnunl  employment  programmes  of  Member  States  has  revealed 
that  equal 
opportunities  need  to be given  a much  higher  profile  in  the  future.  The  high  profile  of  equal 
opportunities  in the  new  Employment  Guidelines  is a result  of  this. 

in  the  three  other  pillars. 

Equal  opportunities  for  women  and  men  has  been  promoted  within  the  framework  of  the 
European  Social  Fund  since  1993,  with  a particular  emphasis  on:  the  areas  where  women 
are  under-represented;  women  without  vocational  qualifications,  and  women  returners  to 
the  labour  market.  Among  the  specific  measures  targeting  women,  are  various  kinds  of 
training,  apprenticeships,  employment  aids  and  recruitment  subsidies,  promotion  of  female 
entrepeneurship,  continuous  learning  in  SMEs,  guidance,  counselling  and  placement 
services,  and,  in  some  countries,  child-care  and  other  measures  aimed  at  facilitating  the 
reconciliation  of  family  and  work  responsibilities.  Member  States  have  either  taken  a 
mainstreaming  approach  or have adopted  specific  equal  opportunities  measures. 

• 

The  role  of  the  European  Social  Fund  within  the  revised  Structural  Funds  will  take  as  its 
starting  point  the  new  Employment  Chapter  of the  Amsterdam  Treaty  and  the  Employment 
Guidelines  for  Member  States.  Within  the  framework  of  the  proposal  for  a  new  regulation 
from  2000  onwards,  it  is  foreseen  that  ES F activity  will  concentrate  on  live policy  fields25, 
including  improving  participation  of  women  in 
the  labour  market,  career  development, 
access  to  new  job  opportunities  and  entrepreneurship  and  desegregation  (vertical  and 
horizontal)  of 
labour  market.  In  addition,  a  mainstreaming  approach  will  be 
implemented  through  all  policy  fields.  To  facilitate  the  implementation  of  this  dual 
approach, the Commission  services are preparing  appropriate tools and  training. 

the 

In  the  Commission  proposal  for  a  new  regulation  of  the  European  Regional  Development 
Funds  (ERDF)  the  promotion  of  equality  between  women  and  men  is  foreseen,  and  will 
give  priority  to business  creation  and  the reconciliation  of work  and  family  life. 

The  1997  Employment  in  Europe  Report  addressed  aspects  of  the  promotion  of  equal 
opportunities  for  women  and  men  and  the  reduction  of  women's  unemployment,  and  other 
follow-up  to  the  European  Council  (Essen)  recommendations.  Equal  opportunities  are  also 
treated  in  the  annual  "Tableaux  de  Bord"  prepared  in  collaboration  with  the  European 
Employment  Observatory  which  reviews all  national  labour  market  policies and  measures. 

The  Green  Paper  on  Partnership  for  a  new  organisation  of  work26 
discusses  the 
integration  of  an  equal  opportunities  perspective  and  how  to  adapt  the  social  infrastructure 
to promote  a better reconciliation  of work  and family  responsibilities. The Commission  and 
the  Luxembourg  Presidency  jointly  organised  a  conference  in  October  1997  on  the 
integration  of  equal  opportunities  in  the  organisation  of work.  These  issues  will  be  further 
developed  in the coming  year. 

2S active labour market policy, promotion  of social  inclusion, lifelong  learning, anticipating and  facilitating 
economic and social change and equal opportunities for men and women. 
'" "Partnership  for a new organisation  ol'work (C()M(97)I2S  final) 

15 

In the  framework  of the  Social  Dialogue  the most  important  recent  developments  are the 
framework  agreements  leading to the  Directives  on parental  ieave/7  and  part-time  work28. 
The  aims  of  the  Directive  on  part-time  work  are  to  prevent  any  form  of  discrimination 
against  part-time  workers;  to  improve  the  quality  of  part  time-work;  and  to  facilitate  the 
development  of  part-time  work  on  a  voluntary  basis  and  in  doing  so  to  contribute  to  a 
flexible  organisation  of  working  lime.  It  will  be  important  in  this  respect,  to encourage a 
more  equal  distribution  of  part-time  employment  between  women  and  men,  in  order  to 
avoid that economic inequalities between women and men are further  entrenched. 

The social dialogue has been selected as one of the DG V policies for particular  attention 
in  connection  with  this  DG's  pilot  project  on  gender  mainstreaming.  The  Commission 
supports  equality-relevant  social  dialogue  also  at  the  sectoral  level,  through  studies  and 
conferences.  In  the  framework  of  the  Medium-term  Community  Action  Programme  on 
Equal  Opportunities  for  Women  and  Men,  the  participation  of  the  Social  Partners  is 
encouraged, and an information  meeting was  organised in Brussels on 5th February  1998, 
with  UNICE,  ETUC  and  CEEP -  the  Union  level  employer  and  labour  organisations  -
with a view to encouraging joint  proposals for equal opportunities  activities.  A study on 
"Women's  working conditions  in different  sectors of the  European  economy"29,  focusing 
on  the  reconciliation  of  work  and  family  life,  has  been  commissioned,  with  a  view  to 
stimulating debate in the sectoral social dialogue. 

The  1997 Demographic Report30 has developed a comprehensive analysis on the renewal of 
the population of working age. Demographic effects  coupled with differences  in  economic 
activity  between  the  sexes  are  clearly  marked.  In  this  context  a  study  on  the  future  of 
European labour supply has been undertaken which focuses  on the potential  for  increasing 
the female activity rate31. 

The 1997 Communication from the Commission on modernising and improving social 
protection  in the European Union emphasises the need to make social protection more 
employment-friendly  and to adapt it to the new gender balance in working life and to 
changes in family  structures.32 

The  Commission  has  issued  a  Report'"  on  the  state  of  women's  health  in  the  European 
Community,  linking  women's  health  inter  alia  to  socio-economic  factors  particularly 
affecting  women. As required by Directive 92/85/EEC guidelines are being prepared on the 
assessment  of  the  chemical,  physical  and  biological  agents  and  industrious  processes 
considered  hazardous  for  the  safety  and  health  of  pregnant  workers,  workers  who  have 
recently  given  birth or are breast-feeding.  A Commission  report on the implementation  of 
the Directive on pregnant workers (92/85) will be published in 1998. 

27 Council Directive 96/34/EC of 3 June  1996 on the framework  agreement on parental leave concluded by 
UNICE, CEEP and the ETUC 
28 "Council  Directive 97/81 /EC of  15 December 1997 concerning the Framework Agreement on part-time work 
concluded  by UNICE,  CEEP and CES. 
2'' An information  collection  study by Ecotec research and Consulting Ltd. 
30 Demographic Report  1997 COM(97) 361 final  of 9 July  1997 
31 "The future  of European labour supply" by Jill Rubery and Mark Smith, European  Work and Employment 
Centre, Manchester  School of Management, UMIST November  1997 
32 COM (97)  102 final 
33 Report to the Council, to the European  Parliament, the Economic and Social Committee and the Committee of 
the Regions of 22 May  1997 (COM(97)224  final) 

2.1.2  "'The Euro: Entering the home straight " 

•  Since  1996 the Commission  has been organising a communications programme on the euro 
as part of the PRINCE/Priority  Information  Actions. This has been aimed  at all  sections of 
society  including consumers, thus benefiting  women at least as much as men. A number of 
actions  have been  taken  to ensure a harmonious  changeover  to the euro. The  Commission 
will,  for  example,  make  recommendations  on  fair  banking  charges  and,  to  help  with 
familiarisation,  dual  display  of  prices.  Lastly,  two  conferences  entitled  L'Euro  et  les 
Femmes  and  Femmes - Europe - Information have been held  recently  in Italy  and  France 
respectively.  A  publication  entitled  Women and  the  EMU: Information, experience and 
perspectives was co-financed  by the Finnish  EU Representation. 

2.1.3 

"Agenda 2000:  embarking on reform " 

"Making the single market operate more smoothly" 

•  A Study  has been  undertaken  on the  Impact of the  Single  Market  on the  Development  of 
Women's Employment14. According to its conclusions, active policies to promote the equal 
sharing  between  women  and  men  of work  and  family  responsibilities  are needed  to avoid 
that women  are harder hit than men by the cuts in public spending caused  by  convergence 
policies  in  Member  States,  increased  competition,  added  pressure  on  wages  and  social 
standards and the deregularisation of employment. 

A Commission  Communication  "Action  Plan  for the Free Movement of Workers"" has been 
adopted  which  addresses the gender balance in the labour market and offers  an assessment of 
the impact of free movement on families and children. 

"A competitive economy as the foundation for growth " 

The  promotion  of  women's  entrepreneurship  is  incorporated  as  an  objective  of  the  Third 
Multiannual  Programme  for small  and  medium-sized  enterprises16 (SMEs)  in the  European 
Union (1997-2000). Among the issues which have been addressed  are access to  financing  and 
training  of  women  entrepreneurs.  In  The  European  Observatory  for  SMEs  Report  for  1996 
certain  conclusions  are  drawn  with  regard  to how  the representation  and  situation  of  women 
entrepreneurs  and  assisting  spouses  of  the  self-employed  may  be  improved.  The  need  to 
develop  statistics  regarding  both  women  entrepreneurs  and  assisting  spouses  is argued,  with  a 
view  to enable the  Commission  to  base the policy  of  equality  between  women  and  men  on a 
sound  statistical  analysis  of the  situation.  As regards  assisting  spouses, the  need  for  adequate 
social security provisions  and a reform of the relevant laws is stressed. 

"Promising sectors for  the future " 

Community  programmes  in the field  of education, training and youth have a long  tradition 
of  promoting  equal  opportunities  for  women  and  men  and  this  aspect  has  been  further 
strengthened  in  recent  years,  as  attested  to  above,  in  para.  1.1.  Young  women  are, 
increasingly,  equally, or even  better,  educated  than young men, and their  potential  should  be 
fully  used.  It is however  necessary  to make an effort  to improve the access of women  to the 

34  V/1734/96 
•" COM(97)586  final 
16 Council  Decision  of 9  December  1997 

17 

opportunities and  benefits  offered  by new technology  and  The Information  Society.  One of 
the objectives of the Commission  Communication  "The Social and Labour Market Dimension 
of  the  Information  Society:  People  First  -  Next  Steps""  is  to  raise  awareness  of  the  gender 
dimension  The  use  of  new  technologies  tend  to  be  highly  gender  segregated,  with  women 
making  tip  the  majority  among  the  home  workers  and  teleworkers  in  routine  and  low-paid 
jobs, 
,H.  Further  research  into  this  and  related  areas  is  currently  being  conducted  by  the 
Institute  for  Prospective  Technological  Studies  (JRC).  The  Commission  will  initiate 
consultations  with  the  Social  Partners  on  the  possible  need  for  Community  action  on  the 
protection  of teleworkers, the majority  of whom are women. Further research will be done on 
the working conditions of teleworkers. 

A  number  of  activities  related  to  sensitising  women  to  the  opportunities  offered  by 
Information  Society  have  been  organised.  Under  the joint  DGIII/XIII  Information  Society 
Project  Office  (ISPO)  a  number  of  projects  addressing  women-specific  issues  related  to 
Information  Society  and  working  life  were  funded  in  1997.  Concern  was  expressed  by  the 
European  Parliament19  that  the aims  and  objectives  of  gender  research  were  not  spelled  out 
among  the  priorities  of  the  proposal  for  a  Fifth  Framework  Programme  of  the  European 
Community  for  Research,  Technological  Development  and  Demonstration  Activities  (1998-
2002).  The modified  proposal adopted  by the Commission on  14.01.1998 (COM (98) 5 final) 
addresses  this  concern  and  states  in  one  of  its  recitals  that  the  Community  policy  on  equal 
opportunities  must  be  taken  into  account  in  the  implementation  of  the  Fifth  Framework 
Programme. 

With  a  view  to  promoting  equal  opportunities  for  men  and  women  in  research,  the 
Commission will convene  a conference on "Women and Science, in Brussels on April 28 and 
29,  1998  in  conjunction  with  the  European  Parliament.  Beyond  the  promotion  of  equal 
opportunities for men and women in the research sector, where women are traditionally under-
represented,  there  are  two  specific  reasons  for  seeking  greater  involvement  of  women  in 
research activities in Europe : 

•  The benefits  to be derived  from  harnessing the enormous potential  of half the population 

for research and scientific excellence; 

•  The  key  contribution  which  women  can  make,  given  the  growing  trend  to  focus  the 
European  Union's and  Member  States' research  policies on  meeting  economic  and  social 
needs. 

"Adapting in order to advance " 

Equal  opportunities  for  women  and  men  are  to  some  extent  already  incorporated  into 
Community  economic  and  social  cohesion  as  it  has  been  an  explicit  objective  of  the 
European  Structural  Funds  since  1993.  Equal  opportunities  for  women  and  men  were 
incorporated  in  1996 into the Commission  guidelines  for  the adjustment  of  Structural  Funds 
programmes (to the end of 1999); into the second phase of objective 2 programming, and have 
since been  incorporated  also  in objectives  1, 5b and 6 programmes.  Support  for  the  creation 
and development of SMEs and co-operatives by women figure  among the concerns. Resource 
in  regional  development  and  women  and 
centres  for  women,  women  as  players 

"COM(97)390 
18 V/641/96 Teleworking and Gender' 
39 European  Parliament Opinion of 24 September  1997 from  the Committee on Women's rights to the 
Committee on Research, Technological  Development and  Energy. 

entrcpreneurship  are  among  the  central  issues  in  this  regard.  Evaluation  criteria  and  a  new 
monitoring  mechanism 
in  Structural  Funds 
interventions  are  being  developed,  the  intention  being  to  set  up  the  framework  for  a 
monitoring report, including indicators of success. An internal  assessment guide for  European 
Structural  Funds programme managers will be prepared  before  summer  1998. 

rnainstreaming  equal  opportunities 

for 

Â  European  level  conference  on  the  "Structural  Funds  and  Equal  opportunities"  will  be 
organised  jointly  by  the  Commission  and  the  Portuguese  authorities  in September  1998. The 
focus will be on: 
- the state of play on Structural  Funds implementation 
- the assessments undertaken  (European and national  level studies and evaluations) 
- the current reform  of the structural  policies 

The  follow-up  to the  Madrid  Council  commitment  to  equal  opportunities,  the new Treaty  of 
Amsterdam  and  the  Council  resolution  of  2  December  199640  have  all  called  upon  the 
Commission  and  on  Member  States  to  make a continued,  deepened  and  determined  effort  to 
mainstream  the principle of equal opportunities  for women and men into operations supported 
by  the Structural  Funds.  In the preparation  of the proposal  for the  new  General  Regulation 
one of the goals is to eliminate inequalities and to promote equality  between women and men 
in  economic  and  social  activity  through  a  rnainstreaming  approach.  The  rnainstreaming 
strategy  will  permeate  the  whole  implementation  process,  from  the  programming  phase  to 
reporting.  Additional  specific  actions  for  women  or  men  may  still  be  needed  to  redress 
particular disparities. 

At all  levels and stages of the process,  evaluation  and reporting on gender equality  objectives 
-  including  the  collection  and  use  of  pertinent  information  desegregated  by  gender  and 
commonly  agreed  indicators - will be required. At all phases of decision making the aim is to 
have  a  balanced  participation  of  women  and  men  and  to  ensure 
the  commitment  of 
competent authorities and bodies to promoting equality between women and men. 

In agriculture, women's  situation  as  farmers  or assisting  spouses  has been  analysed,  and a 
study  has  been  launched  on  the  remuneration  of  women  in  the  sector.  Among  numerous 
information  and awareness-raising events, a European  Women  Farmers Conference,  including 
policy  workshops  and  exhibitions,  was  held  in  Brussels  in  September  1996,  which  was 
attended  by  Commissioner  Fischler  and  the  Council  of  Agricultural  Ministers.  Training  for 
women  in new technologies  and innovation  and  public relations  has been  carried  out within 
the  framework  of  the  rural  development  programmes.  Under  the  LEADER  initiative  many 
projects  have  been  launched  by  women  in  the  fields  of  tourism,  small  and  medium-sized 
enterprises,  crafts  and  regional  products.  Experience  to  date  under  the  various  rural 
development programmes indicates that the participation of women is crucial to the success of 
the Community's rural  development  policies. The launch of a 20 Million ECU tender for pilot 
and  demonstration  projects,  focused  on  encouraging  and  developing  the  role  of  women  in 
rural  areas,  underlines  the  Commission's  commitment  to  securing  greater  participation  of 
women. 

The importance  of  equal  opportunities  was  also  is  underlined  in  the  mid-term  evaluation  of 
the  rural  development  programmes  of  the  Structural  Funds..  In  the fisheries  sector,  a  pilot 

40 Council resolution  on rnainstreaming equal opportunities for men and women  into the European  Structural 
Funds (96/C 386/1) 

19 

programme  was  launched  in  1997  in  favour  of  small-scale  fisheries  in  the  coastal  regions. 
Appr.  50  per  cent  of  the  project  proposals  and  of  the  selected  projects,  embracing  business 
crealion  or  the  "social  economy"  (co-operatives,  associations  etc),  training  activities  and 
exchange of best practices, relate to fishermen's  wives. 

2.1.4  "The  Union in the World: A position and a role to assert " 

The  promotion  and  safe-guarding  of  equal  opportunities  for  women  and  men  is  part  of  an 
integrated  approach  to  external  relations,  including  the  human  rights  dimension  and 
development  co-operation.  The  European  Community  has  a  long-standing  commitment  to 
the  promotion  of  human  rights  and  fundamental  freedoms,  and  has  intervened  in  various 
international  forums  in  support  of  the  principle  of  non-discrimination  and  equality  of  all 
human  beings. This is in keeping with the United  Nations Charter and the principles set out in 
the Universal  Declaration  of  Human  Rights and other  international  and regional  human  rights 
instruments, and  with the reaffirmation  of the World Conference  on Human  Rights in  Vienna 
in  1993  that  the  fundamental  rights  of  women  and  girls  are  an  inalienable,  integral  and 
indivisible  part  of  universal  human  rights.  This  principle  guided  the  European  Union's 
position  at  the  Fourth  World  Conference  on  Women  in  Beijing  in  1995. The  Commission 
Communication  of November  1995 on the  EU and the External  Aspects of its Human  Rights 
Policies4'  was an  important  achievement  and  serves as a basis  for  Commission  activities  for 
the  promotion  of  women's  and  girls'  human  rights.  The  Communication  specifically 
mentioned  women  among  the  vulnerable  groups  in  need  of  special  protection,  but  also 
highlighted  the dynamic potential  of women as indispensable  actors in the promotion  of true 
democracy. Equal opportunities for women and men, with a particular focus on increasing the 
representation  of women  in decision-making  positions, form  part of most bi-lateral and multi 
lateral dialogues and agreements entered  into by the EU. The advancement and  empowerment 
of women are key concepts  in Community development co-operation  policies and are pursued 
both by a mainstreaming approach and by specilic targeted actions. 

As part of  EU efforts  "to bring peace, stability  and  prosperity  to the continent of Europe and 
the  world  at  large  schemes  aiming  at  promoting  the  participation  of  women  in  the  peace 
process  in  the  Balkan  region  are  being  supported.  The  bringing  together  of  women  thinkers 
from  warring countries with  European  politicians  and members of international  organisations 
and  the  establishment  of  networks  and  discussion  of  conflict-resolution  through  non-violent 
means, are supported.  Women's needs as victims to war and armed conflict  are equally  being 
addressed.  Gender-sensitivity  is  in  the  process  of  taking  centre-stage  in  the  activities  of  the 
Humanitarian Office  of the European Community (ECHO). 

Community  activities  combating  gender  based  violence  and  organised  crime,  such  as 
trafficking  in  human  beings,  mainly  in  women  and  children  for  sexual  exploitation,  are 
being  reviewed  in  the  Community  preparations  for  the  42nd  session  of  the  United  Nations 
Commission  on  the  Status  of  Women  and  the  UN  monitoring  of  the  implementation  of  the 
Global Platform  for Action adopted at the Beijing  Fourth World Conference  on Women. 

The STOP  Programme and the DAPIINE Initiative implemented  by the Task  Force on Justice 
and  Home  Affairs  deserve  mention.  In  this  context,  the  STOP  Programme,  a  multi-annual 
programme  (6,5  Million  Ecu  over  5  years  (1996-2000)  aims  to  encourage  practical  co-

41 Communication  from  the Commission to the Council and the European  Parliament (COM (95) 567 final  "The 
European  Union and the external dimension of human rights policy 

-•  20 

operation  between  Member  Stales  authorities  for  action  against  trafficking  in  human  beings 
and 
the  .sexual  exploitation  of  children.  Il  finances  activities  involving  judges,  public 
prosecutors,  police  departments,  immigration  officials,  civil  servants  and  other  concerned 
public  services.  Foeussed  on  NGOs  rather  than  the  Member  State  authorities,  the  DAPHNE 
initiative  (3  Million  Ecu  each  year  in  1997  and  in  1998)  emphasises  prevention  of  violence, 
protection  against  violence  and  rehabilitation  of  victims,  including  those  who  have  been 
subject  to  trafficking. 

2.2 

Policy  challenges 

This  review  based  on  the  Commission  Work  Programme  for  1998  demonstrates  that  gender 
issues  are  already,  to  some  extent,  incorporated  in  many  of  the  political  priorities  for 
Community  action  in  1998.  The  high  gender  profile,  most  noticeably  in  employment  and 
structural  policies,  in  the  Held  of  external  policies,  and  the  Commission-internal  management 
reform  programme  should  be  continued  and,  indeed,  further  developed  and  expanded..  The 
review  reveais,  on  the  other  hand,  that  there  remain  significant  gaps  -  core  policies  and 
sectors  which  are  hardly  touched  by  the  gender  mainstreaming  policy.  These  gaps  need 
special  attention  in  the  coming  year  In  conclusion,  a number  of policies  are  listed  which  merit 
special  attention  from  an equal  opportunities  point  of  view: 

Employment  and  labour  market  policies 

•  The  achievements  in  the  field  of  employment  policies  need  follow-up;  ensuring  that  the 
equal  opportunities  pillar  of  the  Employment  Guidelines  is fully  implemented,  and  that  the 
equal  opportunities  dimension  is  incorporated  into  the  implementation  and  monitoring  of 
the three other  priorities; 

a  The  equal  sharing  of work  and  family  responsibilities  between  women  and  men  needs  to be 
encouraged  as  pari  of  the  new  schemes  promoting  part-time  work,  flexibility  and  new 
forms  of  work  organisation; 

Cohesion  and  regional  policies 

Vigilance  is  needed  to  ensure  that  the  high  profile  of  equal  opportunities  in  the  on-going 
reform  of  the  European  Structural  Funds  is  fully  entrenched  and  made  operational  in  the 
implementation,  monitoring  and  évaluation  process. 

EMU,  the  EURO  and  the Single  Market 

It is argued  in the  EP  resolution42  on  the  Commission  Communication  on Mainstreaming,  that 
"women's  position  and  situation  in  society  should  be  taken  more  into  consideration  when 
advancing  policies  to  support  the  internal  market,  and  not  least  policies  to support  EMU".  All 
necessary  steps  should  be  taken  to  ensure  that  EMU  and  fiscal  consolidation  have  a  positive 
impact  on  equality  between  women  and  men. 

An  effort  is  needed  to  ensure  that  the  establishment  of  a  single  market  that  "boosts  growth, 
the 
competitiveness  and  employment", 
entrenched  patterns  of job  segregation  in  the  labour  market.  Dedicated  measures  should  be 

inflexibilities  caused  by 

is  not  hampered  by 

12 Id* resolution  A4-0251 of  16 September  1997 on the Commission  Communication  COM (96) 67; 
incorporating equal opportunities between  women and men  into all Community  policies and activities", 
'Mainstreaming" para. 31 

21 

taken to speed  up the desegregation  process, in particular promoting diversity and the full  use 
of  women's  capacities  and  potential  in  management  positions  and  decision-making43  in  the 
public and  private sectors. 

In view of  the demographic  changes associated  with  the ageing  of the population  in  Europe, 
the  future  labour  supply  becomes  increasingly  important44  It  is  stated  in  the  Commission's 
Work  Programme  for  1998  that  "existing  tax  arrangements  have  a  negative  effect  on 
employment"  and that "the Commission  will propose initiatives aimed  at gradually  correcting 
these  shortcomings".  It  could  be  relevant  to  consider  individualisation  of  taxation  as  an 
employment  incentive.  As  women  are  increasingly  equally,  or  even  better,  qualified  as 
compared  to men, this would  increase the pool  of qualified  labour  supply  and could  enhance 
the smooth functioning  of the Single Market. 

Research Policy, New technologies and The Information Society 

It is of vital  importance  that women are not left  behind  in the process of fostering  knowledge 
and skills. Women's  full  participation  is needed  in the shaping of an Information  Society  that 
is  gender-sensitive  and  benefits  women  and  men  equally.  Numerous  more  or  less  one-off 
Community-sponsored  activities  are  being  undertaken.  Nevertheless,  men  and  a  male 
perspective  still  prevail  in this field. Women  continue  to be under-represented  at the  highest 
academic levels and in the field of research and innovation. A coherent gender approach to the 
implementation  of the Fifth  Framework  Programme of the European Community  for research, 
to  other 
technological  development  and  demonstration  activities  (1998-2002),  and 
Community  action  in  this  field  is  needed.  There  are  important  benefits  to  be  derived  from 
harnessing  the  full  potential  of both women and  men  for research and scientific  development, 
with a view to  the enrichment and synergy of the combined  male and  female  perspectives on 
scientific  research and the development and use of new technologies. Given the growing trend 
to  focus  the  EU and  Member States' research  policies on meeting economic  and social needs, 
women can make a key contribution. 

The enlargement process 
There  is a strong need to address more systematically  the requirements as well as the impact, 
in terms  of equality  between  women  and  men, of  the enlargement  process.  The  Community 
aquis  in  the field of equal  opportunities  between  women and men must  be fully  incorporated 
in the strengthening  of the present pre-accession  strategy.  Equality  between women  and men 
should  be made an explicit issue  by: 

• 

incorporating  a  gender  perspective  into  mainstream  programmes,  in  addition  to  ear 
marked  means for equal opportunities objectives, where needed; 

•  encouraging  the  participation  of  the  applicant  countries  in  Community  programmes 
addressing  equal  opportunities  for  women  and  men,  including  the  Medium-term  Action 
Community Programme on Equal Opportunities for Women and Men (1996-2000). 

43 Cfr. the Council  Recommendation  on the balanced participation of women and men in the decision-making 
process (96/694/EC) 
44 Demographic  Report  1997 (COM (97) 361 final  of 9 July  1997. See also Jill Rubery and  Mark Smith "The 
future  of European  Labour supply, European  Work and Employment  Research Centre, Manchester School of 
Management,  UM1ST, November  1997. 

Europe  of the  citizens 
Eurobarometer  Surveys  reveal  that  women  and  men  perceive  issues  surrounding  European 
integration  differently.  Women  arc  in  general  more  sceptical  than  men.  The  full  implications 
of  these  gender  disparities^  need  to  be  analysed,  with  a  view,  if  necessary,  to  adjusting 
Community  policies..  The  equal  support  of  women  and  men  respectively  should  be  a  yard 
stick  for  assessing  the success of  European  integration. 
Modernising  the  Commission's  administration 
The  promotion  of  equal  opportunities  is  an  important  element  of  the  Commission's  on-going 
programme  to  modernise  its  administration  and  decision-making  machinery  (MAP  2000). 
Work  efficiency  and  organisation  are  and  will  be  addressed  as  a  means  inter  alia  to  improve 
the  reconciliation  of  work  and  family  commitments.  A  Third  Action  Programme  for  Equal 
Opportunities  for  Women  and  Men  in  the  European  Commission  (1997-2000)  has  been 
adopted  and  aims  to  develop  a  gender-sensitive  work  culture  which  takes  account  of  female 
and  male  values,  of  differences  in  attitudes,  priorities,  working  methods,  as  well  as  of  gender 
specific  needs.  The  setting  of  annual  targets  for  the  recruitment  and  the  appointment  of 
women,  as  well  as  the  monitoring  of  women's  representation  at  all  levels  of  the  Commission 
structure  form  part of this  exercise 

4:1 Eurobarometer 44.3 of December  Î996 

ISSN 0254-1475 

COM(98) 122 final 

DOCUMENTS 

EN 

05  04  06  16 

Catalogue number  : CB-CO-98-142-EN-C 

ISBN 92-78-31864-7 

Office  for Official  Publications of the European Communities 

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