Opinion of the European Economic and Social Committee on ‘The role of women's organisations as non-state actors in implementing the Cotonou Agreement’
Date: 2004-09-15
Institutions: European Economic and Social Committee
Subjects: ACP countries, cooperation policy, gender equality, participation of women, position of women, sexual discrimination, women's movement

23.3.2005

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Official Journal of the European Union

C 74/39

The EESC supports the proposal to make the European
5.8
Parliament
the main body responsible for the Community
budget in the sense that the Parliament would become respon-
sible for the whole (obligatory and non-obligatory parts) of the
budget.

5.9
The EESC also thinks it necessary to point out that,
despite the clear challenges created and the necessary initiatives
presupposed by the Lisbon Strategy, the Commission text does
not appear to propose specific measures likely to give rise to
economic development initiatives in the EU. The only specific
idea put forward in the text is the foundation of a special
(IV. The new financial framework:
‘growth adjustment fund’

C. Flexibility). However, the funds envisaged under this chapter
are regarded as completely inadequate. The application of the
Lisbon strategy was based on a framework of average annual
economic growth of 3 %, whereas the forecasts for the coming
years do not exceed 2.3 % for a 27-member EU. In addition,
the anaemic economic growth experienced by the EU since
2000 does not enable it to make up for this ‘economic growth
deficit’.

5.10
Thus it is necessary to revise these sums upwards in
order to meet the basic condition for promotion and success of
the Lisbon Strategy, which amounts to changing our system for
investment in training and research.

Brussels, 15 September 2004.

The President

of the European Economic and Social Committee

Roger BRIESCH

Opinion of the European Economic and Social Committee on ‘The role of women's organisations
as non-state actors in implementing the Cotonou Agreement’

(2005/C 74/08)

At its plenary session of 17 July 2003, the European Economic and Social Committee decided, under Rule
29(2) of its Rules of Procedure, to draw up an opinion on ‘The role of women's organisations as non-state
actors in implementing the Cotonou Agreement’.

The Section for External Relations, which was responsible for preparing the Committee's work on the
subject, adopted its opinion on 7 July 2004. The rapporteur was Ms Florio.

its 411th plenary session (meeting of 15 September 2004),

At
Committee adopted the following opinion by 115 votes to eight, with eight abstentions.

the European Economic and Social

1. Introduction

1.1
As part of the activities relating to the European Union's
policies towards developing regions, and in particular towards
the ACP countries,
the European Economic and Social
Committee has had the opportunity to monitor developments
in the EU's cooperation policy. These developments have
increasingly been towards a participatory approach, i.e. moving
towards involving and recognising the role of non-state actors
(NSAs) in defining and implementing those policies. Thus, insti-
tutions and NSAs play a complementary role in activities aimed
at enhancing the impact of development programmes.

The Cotonou Agreement is currently the only example of such
participation being put on institutional footing. It demands that
governments fully involve non-state actors in the various stages
of the national development strategy.

In view of those guidelines and of the fact that the
1.2
Committee has already set out
its position in a previous
opinion on the role of civil society in European development
policy (REX 097/2003), we feel it is important to look in more
depth at the subject of women's participation and their funda-
mental and specific contribution to the formulation and imple-
mentation of development policies in the ACP countries that
are covered by the Cotonou Agreements. We believe that it
would be useful to emphasise how valuable their role can be
and how it needs to be properly supported within the frame-
work of the Cotonou Agreements and indeed in all develop-
ment policies.

1.3 Moreover, as the EU body that represents organised civil
society,
the Committee has previously affirmed ‘the funda-
mental role played by women as leading players in develop-
ment, and emphasize[d] the need to promote their organiza-
tions and ensure that they participate fairly in advisory and
decision-making bodies.’ (Opinion on the Green Paper on rela-
tions between the European Union and the ACP countries on the eve
of the 21st century - challenges and options for a new partnership
(Rapporteur: Mr Malosse), EXT 152/1997).

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Real participation in the decision-making process by non-state
actors in general, and women's organisations in particular, is
still a long way from being fully realised.

Millenium Development Goals, where two key documents were
approved. In both of these, the rights of women to equal access
and full involvement in decision-making processes, prevention
of illnesses, and health protection are among the key themes.

2. General comments

2.1
The latest report from the World Bank (World Develop-
ment Report 2004) explicitly recognises that a global market is
no longer sufficient to ensure economic, social and professional
development, and in particular to remove those obstacles that
hinder equitable and sustainable growth for all the countries of
the of the world, North and South. In 2002, the pro capita
income of five sixths of the world's population was less than
1 200 dollars, compared to an average of 26 000 dollars for
the remaining sixth of the population, the vast majority of
which lives in the richest countries.

2.2
So far, none of the international institutions (IMF, World
Bank, WTO, ILO, UN, etc.) has been able to operate as an effec-
tive, democratic and worldwide regulating authority, nor have
the inequalities in
they of
economic development between countries and social groups.

themselves been able to limit

Furthermore, particularly in a period when most coun-
2.3
tries are experiencing sluggish economic growth, developing
countries are obliged, at the suggestion or insistence of interna-
tional organisations, to adopt the very policies of economic
restructuring that are difficult to sustain and have the most
in
negative impact on poor people. Structural changes have,
the absence of adequate social protection policies, brought
about an increase in poverty, precariousness, and insecurity
among the poorest sections of society (both in the North and
in the South).

2.4
In recent years, the gap between the formal worldwide
economy and the informal local economy has also widened.
People who make their living in the informal sector of the
economy do not enjoy any rights, nor do they share in their
country's economic growth, even if they are making an effec-
tive contribution to it.

2.5 Women are in the majority in this section of the popu-
lation, and are therefore most likely to suffer from such condi-
tions. Women who live in poverty in developing countries are
not only unable to access goods and services, but are often also
victims of serious violations of
their human, social, and
economic rights.

3. The European institutions and mainstreaming policies

Article 3 of the EC Treaty states that in all its activities,
3.1
including those relating to development cooperation, the EU
shall aim to eliminate inequalities, and to promote equality,
between men and women.

The EU and its Member States are signatories to the
3.2
Declaration and the Platform for Action, approved at
the
Fourth World Conference on Women (Beijing 1995), in which
the obstacles to gender
a genuine strategy to remove all
equality was launched and the principle of mainstreaming of
the promotion of gender equality was enshrined. Following the
commitment made by signing up to the platform in Beijing, a
Regulation (EC 2836/98) on integrating gender issues in devel-
opment cooperation was approved.

This

3.3
text, which expired in December 2003, was
replaced by a new regulation for the period 2004-2006 that
substantially strengthened and confirmed its goals, i.e. support
for mainstreaming combined with specific measures in support
of women, with the promotion of gender equality an important
factor
in reducing poverty. The document also reaffirms
support for public and private activities in developing countries
aimed at promoting gender equality.

The Regulation of the European Parliament and of the
3.4
Council on promoting gender equality in development coop-
eration can be thought of as an important point of reference
for cooperation policies. The areas of activity that were singled
out as priorities worthy of attention were control of resources
and services for women, particularly in areas of education,
employment, and political decision making. The document
emphasised the need for statistics disaggregated by sex and age
in order
to identify and disseminate new methodologies,
analyses, impact assessments, etc.

4. Cotonou: participatory approach and gender issues

Poverty, unemployment and underemployment affect

2.6
women most of all.

A great many proposals for policy, action and projects
2.7
in support of women have come out of the various conferences
organised by the agencies and commissions of
the United
these was the conference on
Nations. The most recent of

The Cotonou Agreement, signed on 23 June 2000 with
4.1
the ACP countries, constituted a turning point in EU policy on
development and trade in that, for the first time, the involve-
ment of non-state actors (NSAs) was included in the definition
of national development strategies, giving them a role
complementing that of state institutions. In the Agreement, the
following are defined as NSAs: the private sector; the economic
and social partners, including trade unions; civil society in all
the forms it takes in the particular national circumstances.

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4.2
The agreement stipulates that non-state actors shall be
informed and consulted about cooperation policies and strate-
gies, about cooperation priorities in the sector that affects them
directly, and about political dialogue; shall receive the financial
resources to support local development processes; must be
involved in implementing projects and programmes in their
areas of interest; and finally, receive help and support for capa-
city-building and improvement of skills, particularly as regards
organisation, representation and use of consultation mechan-
isms, exchange and dialogue with a view to promoting strategic
alliances.

4.3
In line with EU policy, the Agreement also emphasises
the links that exist between politics, trade and development.
Indeed, partnership is based on five interdependent pillars: an
overall political dimension, the promotion of a participatory
approach, the goal of reducing poverty, the establishment of a
new framework of economic and trade cooperation, and
finally, reform of financial cooperation.

Development

4.4
strategy should also consistently take
gender equality into account. This is one of the three cross-
cutting themes of the Agreement (Articles 8 and 31).

4.5
The Cotonou Agreement institutionalises the Commit-
tee's role as preferred interlocutor of the ACP economic and
social interest groups, with an explicit mandate to consult civil
society organisations.

Based on the evidence gathered in various regional semi-
5.4
nars and forums,
it would appear that the involvement of
women's associations, organisations and NGOs in the framing
of national strategies was in most cases very limited.

There is a large discrepancy between the intentions
5.5
stated in the Agreement and their implementation. Further-
more, few measures appear to have been taken to facilitate
women's participation.

5.6
In situations where creating and structuring dialogue
with civil society in general is difficult enough, increasing the
role of women is even more so. Furthermore, the process of
implementing the agreement's provisions on participation is
still ongoing, and involves the Commission, whose role we
believe to be potentially fundamental; the support of govern-
ments; and the NSAs themselves, whose potential, competence
and level of organisation vary from region to region.

5.7
The obstacles encountered when implementing a partici-
patory approach in general are many and varied. As already
stated in a previous opinion (1), these include:

— the fact that most national governments in third countries

are very wary of dialogue with NSAs;

5. Participation of women's associations, NGOs and orga-

nisations

— even where there is provision for such dialogue, the actual
ability of NSAs to have real influence on the definition of
development programmes and strategies
remains very
limited;

5.1
Taking into consideration the EU's position on gender
issues, and in view of the role assigned to the Committee by
the Agreement, it seems appropriate to take a closer look at
the specific role of women and of their participation in civil
dialogue within the framework of the Agreement.

Of course, given the huge number and geographical
5.2
spread of the countries involved, women in ACP countries
cannot be considered as a homogeneous group; there are vast
differences according to the region, cultural context, socio-
economic group, level of income and whether they live in a
rural or urban environment. However, albeit within the limits
of the generalisations we are forced to make, it is important
that these women can really be involved in the participatory
processes set in train by the Cotonou Agreements.

5.3
An initial difficulty arises from the fact that the Guide-
lines on principles and good practice for the involvement of
non-state actors in consultations and dialogue on development
mention gender issues only in passing, and that there are no
qualitative or quantitative data on the involvement of women
in the Preliminary evaluation of the Cotonou Agreement's provisions
for involving NSAs in programming (23/1/04).

— the high level of administrative centralisation in these coun-
tries does not facilitate the involvement of NSAs in general,
and also tends to marginalize the more remote areas, parti-
cularly rural ones, which are the most difficult to reach and
are often also the poorest;

— the lack of any clear rules and standards governing the
effective involvement of NSAs; the limited level of organisa-
tion of civil society in many third countries:
the main
problem is often that of developing the potential of the
very people who should be participating in the process;

— the access to financial resources, which is closely linked to
the matter of distribution of and access to information.
Indeed, NSAs in third countries not only complain that
there is often no system for disseminating information; the
procedures in place for the provision of funds are, in most
cases, too expensive and complicated, as the NSAs have
often highlighted.

(1) The role of civil society in European development policy (REX

097/2003)

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5.8 When it comes to the involvement of women, these
obstacles are aggravated by conditions due on the one hand to
socio-economic, cultural and religious factors, and on the other
to many governments having a limited grasp of fundamental
rights in general and those of women in particular.

5.9
From this point of view, the Cotonou Agreement, citing
respect for human rights, democratic principles and the rule of
law as essential elements of
the partnership, provides for
measures to be taken and for the notification of the other party
in the event of serious violations. Nevertheless, as already
stated in an earlier Committee opinion (Opinion on the ACP-
EU Partnership Agreement, CESE 521/2002, Mr Baeza San
Juan), it would have been preferable to set more specific criteria
for safeguarding those principles.

6. Women in the development process and priority action

areas

6.1
In reality, the subject of women's participation in civil
society is closely linked to their role in decision-making and in
the whole development process. In view of this, it may prove
useful to widen the scope of the discussion.

6.2 Women can not only make a significant contribution to
the development process, but must also be able to take advan-
tage of the benefits and opportunities that development brings.

6.3
As women tend to make up one of the weaker sections
of society in developing countries in general and ACP countries
in particular, they are more likely to suffer poverty and depriva-
tion because they do not have sufficient access to and control
of resources to enable them to improve their own living condi-
tions and contribute to their country's economic development.

Access to and control of such resources would therefore
6.4
seem to be an indispensable prerequisite
for effectively
combating poverty and triggering sustainable, long-term devel-
opment.

Where women are involved in economic activity, this tends to
be in the informal sector, which is particularly vulnerable to
the effects of macroeconomic restructuring.

6.5
Notwithstanding the Millennium Development Goals the
EU has signed up to, aiming to halve poverty by 2015, there is
a danger that the negotiators from both parties will give their
attention only to the effects of the macroeconomic and political
dimensions, forgetting the wider objectives and the impact that
the measures under negotiation will have on different sections
of
the population. The European Commission's actions to
create monitoring instruments to evaluate the effects of such
agreements are to be supported.

6.6
From among the themes highlighted in various docu-
ments of the United Nations, the FAO, and other international
bodies, it is possible, for the sake of simplicity, to identify a
certain number of priority action areas (obviously, this list does
not claim to be exhaustive):

— Education and training

It has been shown that promoting education and training not
only brings about improvements in the lives of individuals, but
can also have a positive impact on the local community. The
correlation between education and other areas of the economy
and society and its effect on the role of (educated) women has
been demonstrated in many studies, research projects and sets
of statistics.
importance to
promote the availability of schooling and training, particularly
in rural and impoverished areas of developing countries, and
ensuring that both women and men can access it
free of
charge. Worldwide,
it is still the case that 24 % of girls of
primary school age do not attend school (for boys, the figure is
16 %). In developing countries, 61 % of men have at least a
basic education, against 41 % of women.

is therefore of

fundamental

It

— Access to resources

Access to financial resources, in particular ease of access for
women to bank loans, micro-credit, savings opportunities and
insurance services, is seen as one of the priority action areas.
Information on such matters is one possible approach. A series
in particular on improving
of recommendations in this area,
access for women to financial resources, have already been
made at the UN. Given the rapid pace of change in the global
economy and marketplace, all aspects of resources for develop-
ment should be looked at from the perspective of women. The
differences between men and women in relation to access to
and control of economic resources, public goods and services,
and land ownership, have deprived women of fundamental
rights and economic opportunities, of power, and of an inde-
pendent voice in political and decision-making processes.

— Employment policies

Despite a few small advances in the area of women's participa-
tion in the labour market, it certainly cannot be said that there
is equality of opportunity in access to the formal labour market
and fair pay in ACP countries. In developing countries, the
informal sector is the biggest source of earnings and employ-
ment. It is women who have been most heavily affected by the
loss of jobs in many ACP countries. They have often ended up
either unemployed or in unprotected,
informal, precarious
employment, which often does not pay well enough even to
meet vital needs. The opportunity to access forms of micro-
credit, to promote micro-entrepreneurship among women, and
to own land is fundamental to ensuring a decent lifestyle for
both men and women, but, according to the UN's Food and
Agriculture Organisation (FAO), women are effectively denied
that right in many developing countries. An analysis of credit
schemes in five African countries shows that women receive
10 % of loans for small landowners; the remaining 90 % goes
to men.

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— Women and health

The concepts of reproductive health, and women's right to
health in general, are still alien to many developing countries.
This has disastrous results not only for individual women,
whose very lives are at risk, but also for society in general. For
an emblematic example of how critical the situation is, one
only needs to think of the difficulties in treating and preventing
STI/HIV, and the effect that the spread of disease is having on
the social and economic systems in many countries, especially
in sub-Saharan Africa.

Sexual and biological differences between men and women are
also reflected in the area of health and medical treatment. The
role and status given to women do not reflect their real need
for proper access to healthcare and medicines, nor do they take
account of their responsibility within society. Scant attention is
paid to the various needs that are particular to women. This
has lifelong negative repercussions for women. The problem
becomes even more alarming in those places where the socio-
cultural context tends to justify physical, psychological and
sexual abuse of women.

women are fundamental to bringing about an overall improve-
ment in the economic, social and political conditions in devel-
oping countries and to ensuring that they enjoy social and
economic growth that is consistent with sustainable develop-
ment.

Achieving what is set out above is not simply a matter
7.4
of promoting better integration of women in civil society, but
rather of creating the basic conditions that would enable them
to become truly involved, valued, and supported, so that they
achieve equality with men for the development of the relevant
countries. Strengthening the role of women in the participatory
process is key to their obtaining decision-making power.

7.5
The most important basic condition is therefore the
affirmation of equal rights of access to education and training
for women. With this in mind, it is important to promote all
programmes and projects aimed at achieving this, from basic
literacy to computer literacy and networking of women's orga-
nisations, as a key pillar in ensuring the promotion of the role
of women in national development.

— Combating all forms of violence against women

Violence against women is still one of the most difficult battles
to fight and even to quantify. One has only to think of the
phenomenon of domestic violence, which is difficult enough to
report in Western societies, of genital mutilation, and of the
trafficking of human beings, which seems to be constantly on
the rise. The main victims of this phenomenon, which trans-
lates into sexual slavery and other forms of forced labour, are
women and children, especially those who live in countries
ravaged by war and conflict.

7.6
In the context of the devolution process envisaged by
the Commission, the role of delegations as set out in the guide-
lines on principles and best practices for the participation of
Non-State Actors, issued on 24 February 2002, is crucial. These
delegations enjoy considerable flexibility as to the choice of the
most appropriate measures, and are responsible for monitoring
and facilitating greater
actors.
Although the above-mentioned guidelines contain no specific
the participation and the role of
suggestions as
women's organisations, we believe that the delegations should
have considerable influence in facilitating their identification
and inclusion in civil dialogue, creating networks, and drawing
up a strategy for capacity building aimed specifically at women.

involvement of non-state

regards

7. Recommendations

7.1
If the European Union really wants to have a positive
impact on the living conditions of women and poor people,
there is a need for more clarity and determination in defining
the aims and objectives of support for women and of the steps
that need taking. Above all, great care is needed in respect of
adjustment policies whose effects have penalised women and,
more generally, the most vulnerable sections of the population.
The advantages of such policies for these social groups need to
be clear.

7.2 We therefore believe that it is necessary that the evalua-
tion of trade agreements between the EU and third countries,
should also include specific
in particular ACP countries,
analysis of
the poorest
sections of the population and on gender issues.

their impact on the conditions of

7.3
Investments aimed at strengthening associations and
NGOs that promote gender equality and empowerment of

Delegations
should be given a specific responsibility for
promoting the mainstreaming of gender issues, and at least one
representative of the delegation should receive specific training
on gender-related issues.

Particular attention should also be given to establishing
7.7
the current state of women's organisations and their character-
istics, as there is often a lack of adequate information.

The Committee itself could assist with the identification of
European and international associations and organisations that
work to support women in ACP countries and to encourage
their participation.

7.8
National strategy documents should expressly provide
both for the involvement of women in drawing them up and
for positive measures aimed at strengthening the activities of
women's groups. We are convinced that the Commission can
exercise a certain amount of influence in this regard.

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The Committee calls on the Commission to create a specific
budget heading for women's civil society organisations in ACP
countries.

7.9 More generally, it is important to create fast-track chan-
nels for women's groups, both with regard to the eligibility of
non-state actors and for access to funds.

Training courses aimed at promoting the activities of
7.10
women's groups that operate at grass roots level could, in the
context of the Cotonou Agreement, prove to be a useful tool in
implementing that agreement.

7.11
tion of seminars to identify and look in depth at

The Committee undertakes to promote the organisa-
themes

relating to the status and participation of women in ACP coun-
tries.

The Committee will call

for equal participation of
7.12
women's delegations in those seminars and will promote meet-
ings with women and associations from ACP countries and
with third countries in general.

The Committee undertakes to hold, by the first half of
7.13
2005, a conference with the above-mentioned players. The
objectives of this would be to promote the role of women in
decision-making processes, to identify obstacles, and to define
strategies based on the outlook of development process actors
themselves.

Brussels, 15 September 2004.

The President

of the European Economic and Social Committee

Roger BRIESCH

Opinion of the European Economic and Social Committee on the topic:
‘Towards the seventh
Framework Programme for Research: Research needs in the area of demographic change — quality
of life of elderly persons and technological requirements’

(2005/C 74/09)

On 29 January 2004, the European Economic and Social Committee, acting under Rule 29(2) of its Rules
of Procedure, decided to draw up an opinion on the topic: ‘Towards the seventh Framework Programme
for Research: Research needs in the area of demographic change — quality of life of elderly persons and
technological requirements’.

The Section for the Single Market, Production and Consumption, which was responsible for preparing the
Committee's work on the subject, adopted its opinion on 14 July 2004. The rapporteur was Ms Heinisch.

At its 411th plenary session of 15 and 16 September 2004 (meeting of 15 September), the European
Economic and Social Committee adopted the following opinion by 144 votes to one, with two abstentions:

1. Summary

Reason

1.1
In the light of demographic change and the opportu-
nities and risks involved for the quality of life of the growing
numbers of older people in Europe, the Committee calls for:

(a) the inclusion of a key action in this field in the seventh

Framework Programme for Research and

(b) flanking measures to establish a sound basis for timely
policy planning, decision-making and action at both Euro-
pean and national level.

There are close links between the biological, psychological,
social, cultural, technological, economic and structural aspects
of ageing. Also, people always age within a specific physical
In Europe, this environment varies
and social environment.
terms.
widely in geographical, cultural and socio-structural
Neither fact – the fact
the ageing process has many
that
different dimensions and the fact that it takes place under a
variety of conditions – is adequately reflected in current
research programmes. However, given the changes in the popu-
lation age structure, only such broad and long-term research
can provide the sound basis for planning and decision-making
needed in the many different areas of society involved and at
all tiers of decision-making.