Communication from the Commission to the Council, the European Parliament, the European Economic and Social committee and the Committee of the Regions - A Roadmap for equality between women and men 2006-2010 {SEC(2006) 275}
Date: 2006-03-01
Institutions: European Commission
Subjects: EU action, gender equality, labour market, participation of women, position of women, social security, women's rights

COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 01.3.2006 
COM(2006) 92 final 

COMMUNICATION FROM THE COMMISSION TO THE COUNCIL, THE 
EUROPEAN PARLIAMENT, THE EUROPEAN ECONOMIC AND SOCIAL 
COMMITTEE AND THE COMMITTEE OF THE REGIONS 

A Roadmap for equality between women and men 

2006-2010 

{SEC(2006) 275} 

EN 

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INTRODUCTION 

This  Roadmap  outlines  six  priority  areas  for  EU  action  on  gender  equality  for  the  period 
2006-2010: equal economic independence for women and men; reconciliation of private and 
professional life; equal representation in decision-making; eradication of all forms of gender-
based  violence;  elimination  of  gender  stereotypes;  promotion  of  gender  equality  in  external 
and  development  policies.  For  each  area,  it  identifies  priority  objectives  and  actions.  The 
Commission cannot alone achieve these objectives, as in many areas the centre of gravity for 
action  lies  at  Member  State  level.  Thus,  this  Roadmap  represents  the  Commission's 
commitment  to  driving  the  gender  equality  agenda  forward,  reinforcing  partnership  with 
Member states, and other actors. 

This  Roadmap  builds  on  the  experience  of  the  Framework  Strategy  for  equality  between 
women  and  men1  for  the  period  2001-2005.  It  combines  the  launch  of  new  actions  and  the 
reinforcement  of  successful  existing  activities.  It  reaffirms  the  dual  approach  of  gender 
equality based on gender mainstreaming (the promotion of gender equality in all policy areas 
and activities) and specific measures. 

Gender equality is a fundamental right, a common value of the EU, and a necessary condition 
for the achievement of the EU objectives of growth, employment and social cohesion. The EU 
has  made  significant  progress  in  achieving  gender  equality,  thanks  to  equal  treatment 
legislation, gender mainstreaming, specific measures  for the advancement of women, action 
programmes,  social  dialogue  and  dialogue  with  civil  society.  The  European  Parliament  has 
been  an  important  partner  for  progress.  Many  women  have  attained  the  highest  levels  of 
education,  entered  the  labour  market  and  become  important  players  in  public  life. 
Nevertheless, inequalities remain and may widen, as increased global economic competition 
requires a more flexible and mobile labour force. This can impact more on women, who are 
often  obliged  to  choose  between  having  children  or  a  career,  due  to  the  lack  of  flexible 
working  arrangements  and  care  services,  the  persistence  of  gender  stereotypes,  and  an 
unequal share of family responsibilities with men. Progress made by women, including in key 
areas  for  the  Lisbon  Strategy  such  as  education  and  research,  are  not  fully  reflected  in 
women's position on the labour market. This is a waste of human capital that the EU cannot 
afford. At the same time, low birth rates and a shrinking workforce threaten the EU’s political 
and economic role.  

The EU remains an important partner in the global effort to promote gender equality. Turning 
globalisation  into  a  positive  force  for  all  women  and  men  and  fighting  poverty  are  major 
challenges.  Communication  technologies  make  crimes  such  as  human  trafficking  easier  and 
more widespread. 

If the EU is to meet these challenges, progress towards gender equality must accelerate, and 
gender  mainstreaming  must  be  strengthened  in  all  policies  and  in  particular  in  the  areas 
identified in this Roadmap. 

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PART I: PRIORITY AREAS OF ACTION FOR GENDER EQUALITY 

1. 

ACHIEVING EQUAL ECONOMIC INDEPENDENCE FOR WOMEN AND MEN 

1.1 

Reaching the Lisbon employment targets 

The  Lisbon  employment  targets  call  for  a  60%  employment  rate  for  women  by  2010.  At 
present, it is at 55.7% and is much lower (31.7%) for older women (55-64 years old). Women 
also have a higher unemployment rate than men (9.7% against 7.8%). The gender dimension 
of  the  Lisbon  strategy  for  jobs  and  growth  must  be  strengthened.  Compliance  with  equal 
treatment  legislation  and  an  effective  use  of  the  new  Structural  Funds  (e.g.  training, 
entrepreneurship measures) can help increase women's employment. The individualisation of 
rights linked to tax and benefit systems can also ensure that it pays for both women and men 
to work. 

1.2 

Eliminating the gender pay gap 

Despite  EU  legislation  on  equal  pay,  women  earn  15%  less  than  men2  and  this  gap  is 
decreasing  at  a  much  slower  pace  than  the  gender  employment  gap.  Its  persistence  results 
from  direct  discrimination  against  women  and  structural  inequalities,  such  as  segregation  in 
sectors,  occupations  and  work  patterns,  access  to  education  and  training,  biased  evaluation 
and pay systems, and stereotypes. Tackling these issues requires a multifaceted approach and 
the mobilisation of all parties. 

1.3 

Women entrepreneurs 

Women  constitute,  on  average,  30%  of  entrepreneurs  in  the  EU.  They  often  face  greater 
difficulties  than  men  in  starting  up  businesses  and  in  accessing  finance  and  training.  The 
recommendations  of  the  EU  Entrepreneurship  Action  Plan  makes  on  increasing  women’s 
start-ups  through  better  access  to  finance  and  the  development  of  entrepreneurial  networks 
need to be further implemented. 

1.4 

Gender equality in social protection and the fight against poverty 

Social  protection  systems  should  remove  disincentives  for  women  and  men  to  enter  and 
remain  on  the  labour  market,  allowing  them  to  accumulate  individual  pension  entitlements. 
However,  women  are  still  likely to  have  shorter  or  interrupted  careers  and,  therefore,  fewer 
rights than men. This increases the risk of poverty, especially for single parents, older women 
or for women working in family-based businesses, such as agriculture and fisheries. The new 
European  Fisheries  Fund  (EFF)  and  Rural  Development  policies  (EAFRD)  can  improve 
women's  situation  in  these  sectors.  It  is  essential  that  social  protection  systems  ensure  that 
these women have access to adequate benefits, in particular when they retire.  

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Unadjusted gap 

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1.5 

Recognising the gender dimension in health 

Women  and  men  are  confronted  with  specific  health  risks,  diseases,  issues  and  practices 
impacting  their  health.  This  includes  environmental  issues  such  as  chemicals  and  pesticide 
use, as they are often transmitted during the pregnancy and through breast feeding. Medical 
research and many safety and health standards relate more to man and male-dominated work 
areas. 

Knowledge  in  this  field  should  be  improved  and  statistics  and  indicators  further  developed. 
Social,  health  and  care  services  should  be  modernised  with  a  view  to  improving  their 
accessibility, quality and responsiveness to the new and specific needs of women and men. 

1.6 

Combating multiple discrimination, in particular against immigrant and ethnic 
minority women 

The EU is committed to the elimination of all discrimination and the creation of an inclusive 
society for all. Women members of disadvantaged groups are often worse off than their male 
counterparts.  The  situation  of  ethnic  minority  and  immigrant  women  is  emblematic.  They 
often  suffer  from  double  discrimination.  This  requires  the  promotion  of  gender  equality  in 
migration and integration policies in order to ensure women's rights and civic participation, to 
fully  use  their  employment  potential  and  to  improve  their  access  to  education  and  lifelong 
learning. 

Key actions 

The Commission will  

•  monitor and strengthen gender mainstreaming in particular in: 

•  the  Integrated  Guidelines  for  growth  and  jobs  and  the  new  streamlined  open 
method  of  coordination  that  covers  pensions,  social  inclusion,  health  and  long-
term  care3,  including  by  preparing  in  2007  gender  equality  manuals  for  actors 
involved  in  these  processes  and  assessing  how  social  protection  systems  can 
promote gender equality 

•  health  policies,  including  by  updating  the  analysis  of  the  gender  dimension  in 

health  

•  national  and  European  activities  in  the  2007  European  Year  of  Equal 
Opportunities for All and in the 2010 European Year of Combating Exclusion and 
Poverty 

•  together  with  Member  States,  promote  gender  mainstreaming  and  specific 
measures  in  the  programming  and  implementation  of  the  new  Structural  Funds4, 
the  EFF  and  EAFRD  (2007-2013),  including  through  monitoring  and  ensuring 
adequate resources for gender equality 

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COM(2005)706 
See Community Strategic Guidelines on cohesion policy, COM(2005) 0299 

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•  the  Framework  for  the  Integration  of  Third-Country  Nationals  in  the  EU5,  the 
follow-up to the Policy Plan on legal Migration6, the European Social Fund (ESF) 
and the proposed European Fund for the Integration of Third-Country Nationals 

•  present a Communication on gender pay gap in 2007 

•  prepare  in  2010  a  report  on  the  implementation  of  the  Directive  on  equal  treatment  for 

women and men in the access to and supply of goods and services7 

•  promote  female  entrepreneurship  and  a  business  environment  that  facilitates  the  creation 
and  development  of  women-led  companies;  encourage  corporate  social  responsibility 
initiatives on gender equality 

2. 

ENHANCING RECONCILIATION OF WORK, PRIVATE AND FAMILY LIFE 

2.1 

Flexible working arrangements for both women and men 

Reconciliation  policies  help  create  a  flexible  economy,  while  improving  the  quality  of 
women's and men's lives. They help people enter and stay on the labour market, using the full 
potential of the workforce and must be equally available to women and men. Flexible working 
arrangements  boost  productivity,  enhance  employee  satisfaction  and  employer's  reputation. 
However,  the  fact  that  far  more  women  than  men  make  use  of  such  arrangements  creates  a 
gender  imbalance  which  has  a  negative  impact  on  women's  position  in  the  workplace  and 
their economic independence. 

2.2 

Increasing care services 

Europe has to face a threefold challenge: a shrinking working age population, low birth rates 
and a growing population of older people. Better work-life balance arrangements are part of 
the answer to the demographic decline by offering more affordable and accessible childcare 
facilities,  as  required  by  the  Barcelona  targets8,  and  providing  services  that  meet  the  care 
needs  of  the  elderly  and  of  people  with  disabilities.  The  quality  of  these  services  should  be 
improved and the qualifications of staff, mainly women, developed and better valued. 

2.3 

Better reconciliation policies for both women and men 

Services  and  structures  are  adapting  too  slowly  to  a  situation  where  both  women  and  men 
work. Few men take parental leave or work part-time (7.4% compared to 32.6% for women); 
women remain the main carers of children and other dependants. Men should be encouraged 
to  take  up  family  responsibilities,  in  particular  through  incentives  to  take  parental  and 
paternity leaves and to share leave entitlements with women. 

The Commission will  

Key actions 

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COM(2005)389 
COM(2005)669 
Dir 2004/113/EC 
The provision of childcare by 2010 to at least 90 % of children between 3 years old and the mandatory 
school age and at least 33 % of children under 3 years of age 

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•  present in 2006 a Communication on Demography9 addressing the issue of reconciliation 

of family and work life 

•  support  the  achievement  of  the  Barcelona  targets  on  childcare  and  the  development  of 

other care facilities through the Structural Funds and the exchange of good practices 

•  support  research  on  health  and  social  sectors  professions  and  work  with  international 

organisations towards a better classification of these jobs 

3. 

PROMOTING EQUAL PARTICIPATION OF WOMEN AND MEN IN DECISION-MAKING 

3.1 

Women's participation in politics 

Women's persistent under-representation in political decision-making is a democratic deficit. 
Women's  active  citizenship  and  participation  in  politics  and  in  senior  management  public 
administration at all levels (local, regional, national, European)  should be further promoted. 
The availability of EU-comparable and reliable data remains a priority. 

3.2 

Women in economic decision-making 

A balanced participation of women and men in economic decision-making can contribute to a 
more  productive  and  innovative  work  environment  and  culture  and  better  economic 
performance.  Transparency  in  promotion  processes,  flexible  working  arrangements,  and 
availability of care facilities are essential. 

3.3 

Women in science and technology 

The  participation  of  women  in  science  and  technology  can  contribute  to  increasing 
innovation, quality and competitiveness of scientific and industrial research and needs to be 
promoted. In order to reach the target10 of 25% women in leading positions in public sector 
research,  policies  should  be  implemented  and  progress  monitored.  Further  networking  and 
availability of EU data are essential. 

Key actions 

The Commission will  

•  monitor and promote gender mainstreaming in particular in: 

•  the  European  research  policy  and  the  7th  Framework  Programme,  including  by 
ensuring the implementation of Gender Action Plans, developing gender specific 
research,  monitoring  gender  mainstreaming  and  women's  participation  in  the 
announced European Research Council 

•  the  Education  and  Training  2010  Programme  by  promoting  women’s  access  to 
scientific and technical careers in line with the European objective of redressing 

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Follow-up of COM(2005)94 
Council Conclusions 18-04-05 

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the  gender  imbalance  in  this  field;  develop  in  2007  a  European  Guide  of  Best 
Practices on ICT Gender Issues 

•  the  implementation  of  the  future  Citizens  for  Europe  Programme  by  including 
gender equality in the field of active citizenship as one of the priority themes, and 
through mobilisation of existing networks 

•  establish  in  2007  an  EU  network  of  women  in  economic  and  political  decision-making 

positions 

•  support  awareness-raising  activities,  the  exchange  of  good  practices  and  research, 
including on the basis of the European database on women and men in decision-making, 
particularly in view of the European Parliament elections in 2009 

4. 

ERADICATING GENDER-BASED VIOLENCE AND TRAFFICKING 

4.1 

Eradication of gender-based violence 

The  EU  is  committed  to  combating  all  forms  of  violence.  Women  are  the  main  victims  of 
gender-based  violence.  This  is  a  breach  of  the  fundamental  right  to  life,  safety,  freedom, 
dignity and physical and emotional integrity. Violation of these rights cannot be tolerated or 
excused  on  any  ground.  Prevention  is  essential  and  requires  education  and  knowledge,  the 
development  of  networking  and  partnership,  and  the  exchange  of  good  practices.  Urgent 
action  is  needed  to  eliminate  customary  or  traditional  harmful  attitudes  and  practices, 
including female genital mutilation, early and forced marriages, and honour crimes. 

4.2 

Elimination of trafficking in human beings 

Human trafficking is a crime against individuals and a violation of their fundamental rights. It 
is a form of modern slavery to which poverty-stricken women and children, in particular girls, 
are  more  vulnerable.  Its  elimination  requires  a  combination  of  preventive  measures, 
criminalisation  of  trafficking  through  adequate  legislation,  and  protection  and  assistance  to 
victims11. Measures to discourage the demand for women and children for sexual exploitation 
must  be  further  developed.  This  approach  is  reflected  in  the  EU  Action  on  trafficking  in 
human beings12. The Directive on residence permits for victims of trafficking13 will provide a 
new  tool  for  the  reintegration  of  victims  through  access  to  the  labour  market,  vocational 
training  and  education.  Synergies  with  the  ESF  should  be  fully  exploited.  The  EU  should 
develop comparable data to yearly assess trafficking in each country. 

The Commission will  

Key actions 

•  issue  a  Communication  on  the  establishment  of  a  system  for  comparable  statistics  on 

crime, victims and criminal justice in 2006 and monitor progress at EU level 

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COM(2005)514 
OJ C 311, 9/12/05, p.1. 
Dir. 2004/81/EC 

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•  support  Member  States  and  NGOs  in  their  efforts  to  eradicate  gender-based  violence, 
including  customary  or  traditional  harmful  practices,  by  promoting  awareness-raising 
campaigns,  supporting  networking,  exchange  of  good  practices  and  research,  and  by 
implementing programmes for victims as well as perpetrators, encouraging Member States 
to establish national action plans 

•  follow up on the Communication and the EU Action Plan on trafficking in human beings 
and  promote  the  use  of  all  existing  instruments,  including  the  ESF,  for  the  reintegration 
into society of victims of violence and human trafficking 

5. 

ELIMINATING GENDER STEREOTYPES IN SOCIETY 

5.1 

Elimination of gender stereotypes in education, training and culture 

Education,  training  and  culture  continue  to  transmit  gender  stereotypes.  Women  and  men 
often follow traditional education and training paths, which often place women in occupations 
that  are  less  valued  and  remunerated.  Policy  should  focus  on  combating  gender  stereotypes 
from  an  early  age,  providing  awareness  training  to  teachers  and  students,  and  encouraging 
young  women  and  men  to  explore  non-traditional  educational  paths.  The  education  system 
should  provide  young  people  with  adequate  qualification.  Therefore,  it  is  also  important  to 
tackle the phenomenon of early school leaving, which affects more boys than girls. 

5.2 

Elimination of gender stereotypes in the labour market 

Women  still  face  both  horizontal  and  vertical  segregation.  Most  of  them  continue  to  be 
employed in sectors traditionally occupied by women, which are typically less recognised and 
valued. Moreover, they generally occupy lower echelons of the organisational hierarchy. It is 
as important to facilitate women’s entry into non-traditional sectors as it is to promote men's 
presence  in  sectors  traditionally  occupied  by  women.  Anti-discriminatory  laws  should  be 
enforced, and training and incentives provided. 

5.3 

Elimination of gender stereotypes in the media 

The  media  have  a  crucial  role  to  play  in  combating  gender  stereotypes.  It  can  contribute  to 
presenting a realistic picture of the skills and potential of women and men in modern society 
and avoid portraying them in a degrading and offensive manner. Dialogue with stakeholders 
and awareness-raising campaigns should be promoted at all levels. 

The Commission will  

Key actions 

•  support  actions  to  eliminate  gender  stereotypes  in  education,  culture  and  on  the  labour 
market  by  promoting  gender  mainstreaming  and  specific  actions  in  the  ESF,  ICT 
programmes  and  in  EU  education  and  culture  programmes,  including  EU  Lifelong 
Learning strategy and the future Integrated Lifelong Learning programme 

•  support  awareness-raising  campaigns  and  exchange  of  good  practices  in  schools  and 
enterprises on non-stereotyped gender roles and develop dialogue with media to encourage 
a non-stereotyped portrayal of women and men  

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•  raise awareness on gender equality in dialogue with EU citizens through the Commission's 

plan for Democracy, Dialogue and Debate14  

6. 

6.1 

PROMOTING OF GENDER EQUALITY OUTSIDE THE EU 

Enforcement  of  EU  legislation  in  acceding,  candidate  and  potential  candidate 
countries15 

Countries joining the EU must fully embrace the fundamental principle of equality between 
women and men. They must ensure strict enforcement of legislation and put in place adequate 
administrative  and  judicial  systems.  Monitoring  the  transposition,  implementation  and 
enforcement  of  the  EU  gender  equality  legislation  will  be  an  EU  priority  for  future 
enlargement processes. 

6.2 

Promotion  of  gender  equality  in  the  European  Neighbourhood  Policy  (ENP), 
external and development policies 

Gender equality is a goal in itself, a human right and contributes to reducing poverty. The EU 
is a key player in international development efforts and adheres to internationally recognised 
principles  such  as  the  Millennium  Development  Declaration  and  the  Beijing  Platform  for 
Action  (BPfA).  It  has  reaffirmed  gender  equality  as  one  of  the  five  key  principles  of  the 
development policy in the European Consensus on development16. The new EU Strategy for 
Africa17  includes  gender  equality  as  a  key  element  in  all  partnerships  and  national 
development  strategies.  The  EU  is  committed  to  promoting  gender  equality  in  external 
relations, including in the ENP. EU humanitarian interventions take particular account of the 
specific needs of women. 

Across the world, the EU will continue to promote education and a safe environment for girls 
and  women,  sexual  and  reproductive  health  and rights,  the  empowerment  of  women,  which 
contribute  to  fighting  HIV/AIDS,  and  the  fight  against  female  genital  mutilation.  Women's 
participation  in  economic,  political  life  and  decision-making,  in  conflict  prevention  and 
resolution, peace building and reconstruction need to be fostered by the EU and its Member 
States. 

The Commission will  

Key actions 

•  monitor  and  raise  awareness  on  the  transposition,  implementation  and  effective 
enforcement of the Community acquis on gender equality in the acceding, candidate  and 
potential  candidate  countries,  including  in  the  programming  of  pre-accession  aid  and  in 
accession negotiations 

•  monitor and promote gender mainstreaming and specific measures in the ENP, EU external 
relations  and  development  policies,  at  policy  dialogue  and  programming  levels  (Country 

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COM(2005)494 
Albania, Bosnia and Herzegovina, Serbia and Montenegro, including Kosovo. See also COM(2005)561 
Council of 22.11.2005. 
COM(2005)489 

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Strategic  Papers  and  Poverty  Reduction  Strategic  Papers).  At  implementation  level, 
particular  attention  will  be  devoted  to  gender  mainstreaming  in  the  new  aids  modalities 
(budget support and sector programmes) 

•  present  in  2006  a  Communication  on  A  European  Vision  on  Gender  Equality  in 

Development Cooperation 

•  promote gender mainstreaming in EC humanitarian aid operations by including the gender 
dimension as a part of thematic and technical reviews (including for capacity building) and 
evaluations 

•  strengthen gender equality in the Mediterranean region, including by organising in 2006 a 
Euromed  Ministerial  Conference  on  gender  equality,  preceded  by  a  civil  society 
consultation, which could lead to the adoption of an action plan 

•  contribute  to  the  achievements  of  the  BPfA  and  other  relevant  international  and  regional 
conventions by supporting programmes, capacity building and data collection capacity in 
developing countries 

•  contribute  to  the  implementation  of  UN  Security  Council  Resolution  1325  (2000)  on 
women  and  peace  and  security,  including  by  developing  in  2006  guidelines  on  gender 
mainstreaming in crisis management training activities 

•  promote women's organisations and networks 

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PART II: IMPROVING GOVERNANCE FOR GENDER EQUALITY 

Gender equality can only be achieved with a clear commitment at the highest political level. 
The Commission promotes gender equality within its own ranks18 and supports a number of 
structures19 working on gender issues, which have led to significant progress. . 

However, major progress still has to be achieved in the key areas identified in this Roadmap 
and this requires better governance at all levels: EU institutions, Member States, parliaments, 
social  partners  and  civil  society.  The  support  of  gender  equality  Ministers  is  essential:  their 
regular  meetings  and  presidency  conferences  supported  by  the  Commission  are  important 
opportunities  for  dialogue  and  monitoring.  The  European  Pact  for  Gender  Equality 
demonstrates the commitment at the highest political level in the Member States to increase 
efforts to achieve gender equality in partnership with the Commission.  

The  planned  European  Institute  for  Gender  Equality20  will  provide  expertise,  improving 
knowledge  and  heightening  visibility  on  gender  equality.  The  Structural  Funds,  financial 
programmes in different policy areas, and the future PROGRESS programme will support the 
implementation of this Roadmap. The implementation of gender equality methodologies such 
as  gender  impact  assessment  and  gender  budgeting  (the  implementation  of  a  gender 
perspective  in  budgetary  process)  will  promote  gender  equality  and  provide  for  greater 
transparency and enhance accountability. 

Key actions 

The Commission will  

•  reinforce its structures 

•  take part, in 2007, in the setting up of the European Institute for Gender Equality 

•  monitor  progress  in  gender  equality  in  the  human  resources  policy  in  the 
Commission  and  present,  in  2007,  a  Communication  on  the  achievement  of 
targets  set  for  its  Committees  and  Expert  Groups21;  facilitate  training  on  gender 
equality  for  its  staff,  including  management  and  staff  working  in  external  and 
development cooperation fields 

•  reinforce networking and support social dialogue 

•  create  in  2006  an  EU  network  of  Gender  Equality  Bodies  set  up  in  compliance 

with Directive 2002/73  

•  reinforce  EU-level  cooperation  with  NGOs,  including  dialogue  with  women's 

organisations and with other civil society organisations 

•  encourage  and  support  the  work  of  Social  Partners  on  gender  equality  at  both 

cross-industry and sectoral levels 

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20 
21 

Annex III 
Annex II 
COM(2005) 81 
2000/407/EC 

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•  support gender impact assessment and gender budgeting  

•  reinforce the implementation of a gender perspective in the impact assessment22 of 
Community  policies  and  legislation  and  explore  the  possibilities  of  developing 
gender  budgeting  at  EU  level,  particularly  in  the  Structural  Funds  within  the 
possibilities of the shared management  

•  encourage  gender  budgeting  at  local,  regional  and  national  level,  including 

through exchange of best practices 

•  reinforce the effectiveness of legislation 

•  review the existing EU gender equality legislation not included in the 2005 recast 
exercise23 with a view to updating, modernising and recasting where necessary 

•  monitor implementation and enforcement of EU gender equality legislation 

•  inform  EU  citizens  on  their  gender  equality  rights  through  the  "Your  Europe24" 

portal and the Citizens' Signpost Service25 

Monitoring Progress 

Accountability  is  central  to  effective  governance.  The  Commission  will  monitor  and  assess 
this Roadmap. Its annual Work programme for the implementation of gender mainstreaming 
is an effective tool which will be maintained and adapted for the follow-up of this Roadmap. 

The Commission will 

•  monitor  progress  in  gender  equality  and  provide  orientation  on  gender  mainstreaming 
through  its  annual  Report  on  equality  between  women  and  men  and  follow  up  the 
implementation of the Roadmap through its annual Work programme  

•  ensure  political  follow-up  through  the  meetings  of  Gender  Equality  Ministers  and  the 
Group  of  Commissioners  on  Fundamental  Rights  and  Equal  Opportunities.  The 
Commission  Inter-Service  Group  on  Gender  Mainstreaming  will  support  the  Group  of 
Commissioners, contribute to the preparation of the annual Work programme and link with 
other groups working on gender equality26 

•  further  develop  indicators  where  necessary27;  define  a  new  composite  Gender  Equality 
Index in 2007; develop, by 2010 and together with Member States, new indicators for the 
12 critical areas of the BPfA; support the development of EU comparable data on gender 
equality and statistics broken down by sex 

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27 

SEC(2005) 791 
COM(2004)279 
http://europa.eu.in/tyoureurope/nav/fr/citizens/home.html 
http://europa.eu.int/citizensrights/signpost/front_end/index_fr.htm 
Annex II 
Annex I 

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•  present a report on the state of implementation of the Roadmap in 2008 and carry out, in 

2010, an evaluation of the Roadmap and propose appropriate follow-up 

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ANNEX I: Indicators for monitoring progress on the Roadmap 

The  non-exhaustive  list  below  presents  indicators  that  will  be  used  to  monitor  progress 
towards  gender  equality  in  the  policy  areas  identified  in  the  Roadmap.  They  have  been 
selected for their relevance to describe the situation of gender equality in the different areas, 
also taking into account the availability of EU-comparable data.  

The  majority  of  these  indicators  exist  already  and  are  used  to  monitor  progress  in  EU 
processes, in particular in the Strategy for growth and jobs. They are also used in the annual 
Report  on  equality  between  women  and  men  that  the  Commission  presents  to  the  Spring 
European Summit.  

In some areas, work is in progress either to develop indicators or to develop comparable data 
at EU level. This work is being done in cooperation with Member States and Eurostat.  

Moreover,  Member  States,  in  cooperation  with  the  Commission,  have  developed  indicators 
for  the  follow-up  of  the  12  critical  areas  of  concern  of  the  Beijing  Platform  for  Action.  In 
2005, the 10th anniversary of the Platform, Member States committed themselves to continue 
to develop indicators in the missing areas.  

The 12 critical areas of concern of the Beijing Platform for Action are: Women and Poverty; 
Education  and  Training  of  Women;  Women  and  Health;  Violence  against  Women;  Women 
and  Armed  Conflict;  Women  and  the  Economy;  Women  in  Power  and  Decision  Making; 
Institutional Mechanisms for the Advancement of Women; Human Rights of Women; Women 
and the Media; Women and Environment; The Girl Child 

1. Achieving equal economic independence for women and men 

1.1 Reaching the Lisbon employment targets and promotion of women's employment 

•  Employment rates (women, men and gap) - Eurostat 

•  Employment rates of older workers 55-64 (women, men and gap) - Eurostat 

•  Unemployment rates (women, men and gap) – Eurostat 

1.2 Eliminating the gender pay gap 

•  Gender pay gap: Difference between men's and women's average gross hourly earnings as 

a percentage of men's average gross hourly earnings Eurostat: to be further developed 

(the  population  consists  of  all  paid  employees  aged  16-64  that  are  "at  work  15+  hours  per  week  – 
This  is  an  unadjusted  gender  pay  gap,  therefore  not  adjusted  for  individual  factors/characteristics 
such as age, education attainment, occupation, years of professional experience, economic sector of 
employment) 

•  Gender  pay  gap  by  age  and  economic  sector  and  level  of  education  (public-private  and 

NACE sectors): to be further developed 

•  Distribution of employed persons by sex, by sector (NACE) – Eurostat 

•  Distribution of employed persons by sex, by occupation (ISCO) – Eurostat 

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1.3 Women entrepreneurs 

•  Share of self-employed persons in employed population (women, men) – Eurostat 

To be further developed 

1.4 Gender equality in social protection and the fight against poverty 

•  At-risk-of-poverty rate (men, women, gap) – Eurostat 

•  At  risk  of  poverty  rate  among  older  people  -  65  years  and  over  (men,  women,  gap)  - 

Eurostat 

•  At risk of poverty rate among single parent with dependent children - Eurostat 

•  Pensions : to be further developed 

1.5 Recognising the gender dimension in health care 

•  Healthy life years at birth (men, women, gap) – Eurostat 

To be further developed 

1.6 Combating multiple discrimination, in particular against immigrant women and ethnic 
minority women 

•  Employment rates of non-EU nationals (women, men, gap) – Eurostat 

•  Pay gap by gender and nationality (EU or non-EU nationals): to be further developed 

2. Enhancing reconciliation of work, private and family Life 

2.1 Flexible working arrangements for both women and men 

•  Average hours worked per week by women and men (aged 20-49) with or without children 

(aged 0-6) – Eurostat 

•  Employment rates and amount of time (full-time or part-time) worked per week for women 
and  men  (aged  20-49),  depending  on  whether  they  have  children  under  12  –  Eurostat 
Time-use of women and men : to be further developed 

•  Share of part-time among employed (women, men and gap) - Eurostat 

2.2 Increasing care services 

•  Percentage  of  children  covered  by  childcare  (for  children  between  3  years  old  and  the 

mandatory school age and for children under 3 years of age) - Eurostat 

•  Share  of  employees  working  on  a  part-time  basis  because  of  care  of  children  or  other 

dependents - Eurostat 

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•  Inactive persons willing to work, not searching due to personal or family responsibilities - 

Eurostat 

•  Care of elderly persons: to be further developed 

•  Accessibility,  affordability  of  services,  school  opening  hours  and  appropriate  public 

transport: to be further developed 

2.3 Better reconciliation policies for men 

•  Parental leave : to be further developed 

3. Promoting equal participation of women and men in decision-making 

3.1 Women's participation in politics 

•  Share  of  women  in  European  institutions  (European  commission,  European  Parliament, 
Agencies  of  the  European  Community,  Committee  of  the  Regions,  Council  of  the 
European  Union,  European  Court  of  Justice,  European  Court  of  First  Instance,  European 
Court of Auditors, European Ombudsman) – European Commission: Database on women 
and men in decision-making 

•  Share of women in national institutions (national parliaments, central administrations –by 
BEIS  type,  supreme  audit  organisations,  supreme  courts,  supreme  administrative  courts, 
constitutional  courts,  general  prosecutor)  –  European  Commission:  Database  on  women 
and men in decision-making 

3.2 Women in economic decision-making 

•  Share  of  women  in  European  social  and  economic  institutions  (European  Central  Bank, 
European  Investment  Bank,  European  Investment  Fund,  European  Social  Partner 
Organisations, European non-governmental Organisations – by NGO family- ) – European 
Commission: Database on women and men in decision-making 

•  Share  of  women  in  national  economic  institutions  (daily  executive  bodies  in  top  50 
publicly  quoted  companies  –  by  NACE  sector-,  central  banks)  –  European  Commission: 
Database on women and men in decision-making 

•  Distribution of managers by sex (ISCO 12 and 13) – Eurostat 

3.3 Women in science and technology 

•  Women  and  men  along  a  typical  academic  career  -  European  Commission:  Women  in 

Science  

•  Distribution  of  full  professors  by  sex  (Grade  A)  -  European  Commission:  Women  in 

Science  

•  Share of women in leading positions in public sector research: to be further developed 

4. Eradicating gender-based violence and trafficking 

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4.1 Eradication of gender-based violence 

•  crimes: to be further developed 

•  victims: to be further developed 

4.2 Elimination of trafficking in human beings 

•  Data on volume and trends of trafficking in each country: to be further developed 

5. Eliminating gender stereotypes in society 

5.1 Elimination of gender stereotypes in education, training and culture 

•  Distribution of graduates by sex, by field of study – Eurostat 

•  Educational attainment (at least upper secondary school) of women and men - Eurostat 

•  Early school leavers in secondary school (women, men) - Eurostat 

•  Life-long-learning: Percentage of the population aged 25-64 participating in education and 

training over the four weeks prior to the survey (women, men) - Eurostat 

•  stereotypes in culture : to be further developed 

5.2 Elimination of gender stereotypes in the labour market 

•  Distribution of jobs by sex, by sector (NACE) – Eurostat 

•  Distribution of jobs by sex, by profession (ISCO) - Eurostat 

5.3 Elimination of gender stereotypes in the media 

To be further developed 

6. Promotion of gender equality outside the EU 

6.2 Promotion of gender equality in external and development policies 

•  Follow-up of MDG : to be further developed 

•  BpfA : to be further developed 

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ANNEX II: Existing structures at Commission level to promote gender equality 

The  Group  of  Commissioners  on  Fundamental  Rights,  Non-Discrimination  and  Equal 
Opportunities was created on the initiative of the President of the Commission, Mr Barroso, 
in 2005. It succeeds to the Group of Commissioners on equal opportunities which was active 
since 1996. Its mandate is to drive policy and ensure the coherence of Commission action in 
the  areas  of  fundamental  rights,  anti-discrimination,  equal  opportunities  and  the  social 
integration  of  minority  groups,  and  to  ensure  that  gender  equality  is  taken  into  account  in 
Community policies and actions, in accordance with Article 3§2 of the Treaty. The group is 
chaired by the President of the Commission. Other members of the group are Commissioners 
for  Justice,  Freedom  and  Security;  for  Institutional  Relations  and  Communication  Strategy; 
for Administration, Audit and Anti-fraud; for Information Society and Media; for Education, 
Training, Culture and Multilingualism; for Enlargement; for Development and Humanitarian 
Aid;  for  External  Relations  and  European  Neighbourhood  Policy;  for  Employment,  Social 
Affairs  and  Equal  Opportunities.  It  meets  3-4  times  per  year  and  it  holds  an  extraordinary 
meeting with a focus on gender equality, normally on the 8th of March, on the occasion of the 
International  women's  Day.  This  extraordinary  meeting  is  enlarged  to  external  participants, 
such as members of the EU Parliament, the Economic and social committee, the Committee 
of the regions, the Presidency of the EU and representatives of women's organisations 

The  Inter-service  Group  on  gender  equality  was  created  in  1996.  It  brings  together 
representatives of all Commission services responsible for gender equality in all Directorates 
Generals.  It  is  chaired  by  DG  Employment,  Social  Affairs  and  Equal  Opportunities  who 
convenes regular meeting. Its main task is to develop a gender mainstreaming approach in all 
EC policies and programmes and to contribute to and co-ordinate activities in the framework 
of the annual work programme on gender equality prepared by the Commission services 

The Advisory Committee on equal opportunities for women and men was created in 1981 
by a Commission Decision then amended in 1995. (Commission Decision of 19 July 1995 amending 
Decision 82/43/EEC of 9 December 1981) 

The  Committee  assists  the  Commission  in  formulating  and  implementing  the  Community's 
activities  aimed  at  promoting  equal  opportunities  for  women  and  men,  and  fosters  ongoing 
exchanges of relevant experience, policies and practices between the Member States and the 
various parties involved. It is formed by one representative per Member State from ministries 
or government departments responsible for promoting equal opportunities; one representative 
per Member State from national committees or bodies having specific responsibility for equal 
opportunities between women and men; five members representing employers' organizations 
at Community level; five members representing workers' organizations at Community level. 
Two representatives of the European Women's Lobby shall attend meetings of the Committee 
as  observers.  Representatives  of  international  and  professional  organizations  and  other 
associations  making  duly  substantiated  requests  to  the  Commission  may  be  given  observer 
status. The Committee meets normally twice per year. 

The  High  Level  Group  on  gender  mainstreaming  is  an  informal  group  created  in  2001 
following  a  commitment  made  by  the  Commission  in  its  5th  Framework  strategy  on  gender 
equality  (COM(2000)  335  final)  and  the  political  support  of  EU  gender  equality  ministers. 
This  is  an  informal  group  made  by  high  level  representatives  responsible  for  gender 
mainstreaming  at  national  level.  It  is  chaired  by  the  Commission  who  convenes  regular 
meetings twice per year, in close collaboration with the Presidency. Among its main tasks, the 
Group support presidencies in identifying policy areas and topics relevant to address during 

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presidencies  in  order  to  achieve  gender  equality.  The  Group  is  also  the  main  forum  for 
planning the strategic follow-up of the Beijing Platform for action, including the development 
of  indicators.  Since  2003  the  Group  also  assists  the  Commission  in  the  preparation  of  the 
Report on Equality between women and men to the European Council. 

The High Level Group on gender mainstreaming in the Structural Funds is an informal 
group created in 2004 made by high level representatives responsible for Structural Funds at 
national level in the Member States. Candidate countries are given the status of observers. It is 
chaired by the Commission who convenes at least one meeting per year. The mandate of this 
group  expires  end  of  2006  but  Commission  and  Member  States  can  decide  to  continue  its 
works after this date. The HLG acts as a network to give input on gender mainstreaming to 
the authorities managing Structural Funds implementation. It is also a forum to exchange best 
practice  and  experience  of  implementing  gender  mainstreaming  in  the  structural  funds  at 
national  level.  It  can  also  provide  input  into  the  discussion  on  the  future  of  the  structural 
funds. 

The  Advisory  Committee  on  women  and  rural  areas  was  created  in  1998.  It  is  made  by 
representatives of socio-economic organisations (agricultural producers, trade, consumers, the 
European  Women  Lobby  and  workers).  The  Commission  convenes  meetings  once  or  twice 
per  year.  Its  aim  is  to  provide  for  exchange  of  views  and  advice  between  the  European 
Commission  and  the  European  socio-economic  sectors  on  the  rural  development  policy  and 
specifically on its gender aspects. 

The informal Group of Experts on Gender Equality in development cooperation met for 
the  first  time  in  1999.  It  is  formed  by  Member  States'  gender  experts  and  chaired  by  the 
Commission  that  convenes  meetings  annually.  Its  aim  is  to  discuss  policy  developments  in 
relation to gender and development in the context of EU and international major events. 

The Helsinki Group on Women and Science The Helsinki Group on Women and Science 
was  established  in  1999.  It  consists  of  national  representatives  from  all  the  EU  Member 
States, Bulgaria, Romania, Iceland, Israel, Norway, Switzerland and Turkey. 

The  Group  aims  to  promote  the  participation  and  equality  of  women  in  the  sciences  on  a 
Europe-wide  basis.  It  provides  an  important  forum  for  dialogue  about  national  policies. 
Recognising the value of networking and mutual support among women scientists, the group 
also helps explore the ways in which the potential, skills and expertise of women could best 
be secured, and for sharing and comparing experiences. 

The  Helsinki  Group  also  helps  the  Commission  build  a  clear  picture  of  the  situation  on  the 
ground at the national level. It has, in particular, appointed national statistical correspondents 
to  help  the  Commission  gather  and  compile  sex-disaggregated  statistics  and  build  gender-
sensitive indicators. 

to  Promote  Women's  Entrepreneurship 

(see: 
The  European  Network 
http://europa.eu.int/comm/enterprise/entrepreneurship/craft/craft-women/wes.htm) 
was 
created  in  2000.  It  is  composed  of  representatives  from  the  national  governments  and 
institutions responsible for the promotion of female entrepreneurship in 27 countries from the 
EU,  EEA  and  candidate  countries.  The  Commission  convenes  meetings  with  WES  twice  a 
year  which  are  aimed  at  exchanging  information  and  good  practices  in  the  promotion  of 
female  entrepreneurship.  Some  members  of  the  network  have  also  participated  in  common 
European projects. 

(WES) 

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The Expert Group on Trafficking in Human Beings is a consultative group that has been 
set up in 2003 and consists of 20 persons appointed as independent experts. The Commission 
pay  consults  the  experts  group  on  any  matter  relating  to  trafficking  in  human  beings.  The 
Experts Groups shall issue opinions or reports to the Commission at the latter's request or on 
its own initiative, taking into due consideration the recommendations set out in the Brussels 
Declaration. 

The  informal  Network  of  gender  focal  points  is  formed  by  representatives  of  Directorates 
General  of  the  Commission  dealing  with  external  relations  and  development  cooperation  as 
well as representatives of EC delegations  

The Network of focal points on equal opportunities was set up in 2004 and is formed by 
representatives of all Directorates General of the Commission in charge of human resources. 
It  aims  at  ensuring  a  proper  implementation of  the  Fourth  Action  Programme  for  Equal 
Opportunities for Women and Men at the European Commission, therefore contributing to the 
respect of gender equality in the human resources policy of the Commission.  

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ANNEX III: Equal Opportunities policy between men and women at the European 
Commission 

Achievements, challenges and existing obstacles to incorporating equality between men 
and women into the human resource management policies of the Commission 

The  policy  of  equal  opportunities  between  female  and  male  staff  has  been  in  place  in  the 
Commission  since  1988.  The  Staff  Regulations  of  Officials  of  the  European  Communities 
have, since 1 May 2004, prohibited discrimination on the basis of the sex, as well as for other 
reasons,  and  specifically  provide  for  measures  and  actions  to  promote  equal  opportunities 
between men and women (Article 1d). This legal framework makes it possible to take actions 
to incorporate gender equality into various aspects of the management of human resources. 

Since  1995,  the  Commission  had  been  setting  annual  objectives  for  the  recruitment  and 
appointment of women to the Category A posts, with the objective of reaching parity in the 
long  term.  The  objectives  laid  down  for  2005  were  20%  for  senior  management,  30%  for 
middle management and 50% for non-management administrator posts. 

In  addition,  the  4th  Action  Programme  for  Equal  Opportunities  between  women  and  men  in 
the European Commission was adopted on 28th April 2004 (SEC (2004) 447/5). It covers the 
period 2004-2008 and schedules, in particular, measures aimed at improving the male/female 
balance  among  the  staff,  awareness-raising  campaigns  and  measures  to  improve  the 
reconciliation of professional/private life. The implementation of this Programme was mainly 
decentralised  to  the  Directorates-General  but  was  also  the  subject  of  a  follow-up  and  a 
political guidance by the Directorate-General for Personnel and Administration 

The  first  implementation  report,  relating  to  2004,  was  adopted  by  the  Commission  on  23rd 
November 2005 (SEC (2005) 1492/3). Among other things, it showed that - despite the clear 
improvements achieved during the last ten years - women continued to be under-represented 
in 2004 in the category of the Administrators (31.8%), and particularly in middle management 
(18, 3%) and senior management (12.8%) and that the recruitment targets were not achieved. 
However,  the  concrete  measures  included  in  the  4th  Action  Programme  have  started  to  bear 
fruit,  as  the  next  implementation  report  for  2005  will  show  (presentation  envisaged  in 
September 2006). 

Principal policy initiatives and deadlines for the period concerned (2007 – 2010) 

•  Adoption  of  the  Annual  Implementation  Reports  of  the  4th  Action  Programme  and 

development of monitoring and evaluation indicators in this context (2005 to 2008); 

•  External  evaluation  of  the  4th  Action  Programme  in  2008  and  formulation  of 

recommendations for the future; 

•  Adoption of a 5th Action Programme for the period 2009 – 2013; 

•  Adoption of annual targets for the recruitment and appointment of women to management 

posts and other posts at A*/AD level in the Commission; 

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•  Continuation and improvement of awareness-raising campaigns and training, in particular 

within the framework of management training. 

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