Communication from the Commission to the Council, the European Parliament, the Economic and Social Committee and the Committee of the Regions - Mid-term progress report on the roadmap for equality between women and men (2006-2010)
Date: 2008-11-26
Institutions: European Commission
Subjects: EU action, gender equality, impact study, labour market, participation of women, position of women, social security, women's rights

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COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 26.11.2008 
COM(2008) 760 final 

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

Mid-term progress report on the roadmap for equality between women and men 
(2006-2010) 

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1. 

.INTRODUCTION 

Fifty years of Community policy promoting equality have improved the situation for women. 
However,  inequalities  persist  in  a  number  of  areas,  and  developments,  particularly  in  the 
context of globalisation and demographic changes, have created new challenges to be faced in 
order to achieve gender equality. 

It is the responsibility of the European Union and the Member States to improve the equality 
situation in the context of concerted action. The roadmap adopted in March 20061 presented 
the  commitments  by  the  Commission  to  gender  equality  for  the  period  2006-2010.  Also  in 
March 2006, the European Council, in the European Pact for Gender Equality,2 called on the 
Member States to take more account of equality and to support the roadmap's objectives. 

In the roadmap, the Commission announced the actions it intended to take in six policy areas: 
equal economic independence for women and men, reconciliation of private and professional 
life,  equal  representation  in  decision-making,  eradication  of  all  forms  of  gender-related 
violence, elimination of gender stereotypes and promotion of gender equality in external and 
development  policies.  It  also  undertakes  to  monitor  and  evaluate  the  roadmap.  Two  work 
programmes  have  been  drawn  up  since  its  adoption.3  This  mid-term  report  describes  how, 
since  March  2006,  actions  have  contributed  to  achieving  the  roadmap  objectives.  A  final 
evaluation of the roadmap is scheduled for 2010. 

2. 

ACHIEVEMENT OF THE ROADMAP OBJECTIVES 

2.1. 

Achieving equal economic independence for women and men 

The  roadmap  reaffirmed  that  economic  equality  between  women  and  men  would  only  be 
achieved  through  greater  participation  of  women  in  employment.  The  rate  of  employment 
among women in the Union will very probably reach the target of 60% in 2010. However, the 
pay  gap  between  women  and  men  remains  wide  (15%).  The  communication  "Tackling  the 
pay  gap"4  underlined  the  Commission's  commitment  to  closing  this  gap  and  put  forward  a 
number of measures. In particular, it undertook to analyse the current legislative framework to 
determine  whether  it  needed  amending  in  order  to  make  it  more  effective.  Nevertheless, 
legislation  will  not  be  enough  to  eliminate  what  is  still  a  complex  phenomenon,  caused  in 
particular by a higher proportion of women in the less well-paid sectors or less secure jobs. 
There  will  also  be  a  need  to  improve  the  quality  of  employment  for  women,  an  area 
highlighted in the 2008 report on equality between women and men.5 

A  number  of  the  initiatives  set  out  in  the  roadmap  have  been  taken  in  order  to  take  greater 
account  of  equality  issues  in  the  new  2008-2010  cycle  of  the  strategy  for  growth  and 
employment.  Analysis  of  national  measures  to  implement  equality  policy  under  the  Lisbon 
strategy has shown that insufficient attention has been paid to this policy. In this context, the 

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COM(2006) 92 final. 
Council of 23/24 March 2006. 
SEC(2007) 537, SEC(2008) 338. 
COM(2007) 424 final. 
COM(2008) 10 final. 

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publication of a "Manual for gender mainstreaming of employment policies"6 was welcomed 
by the Member States.  

In order to increase participation in employment, the workforce potential of women needs to 
be fully exploited and all economic operators need to be more committed. The Commission 
has  analysed  the  difficulties  encountered  by  women  in  becoming  entrepreneurs  and,  in 
particular,  has  supported  the  network  of  female  entrepreneurs.  It  recently  adopted  a 
Regulation  which,  in  principle,  extends  the  granting  of  state  aid  in  particular  to  new 
enterprises  created  by  women.7  Practices  aimed  at  encouraging  greater  equality  between 
women and men have also been supported in the context of corporate social responsibility.  

The  ageing  of  the  population  places  a  particular  strain  on  the  viability  of  social  protection 
systems, requiring a modernisation which takes account of the situation of women and men. 
With  this  in  mind,  the  Commission  has  analysed  compliance  with  the  objective  of  gender 
equality  in  national  programmes  relating  to  the  open  method  of  coordination  (OMC)  in  the 
field of social protection and social inclusion,8 and a manual has been drawn up to increase 
the ability of operators to promote equality in these policies.9 

The needs of women and men in the field of health and access to care have been taken into 
consideration  in  the  context  of  the  OMC  in  the  health  and  long-term  care  sector.  The  joint 
report on social protection and social inclusion10 pointed out the differences between the sexes 
in overall improvement in health and in access to care in terms of social groups. The Union's 
strategy on health (2008-2013)11 called on the Commission to take account of specific aspects 
of  women's  and  men's  health.  The  action  programme  on  health12  is  intended  to  improve 
knowledge  of  the  needs  of  women  and  men  in  the  field  of  public  health  and  to  support 
initiatives to reduce gender inequalities. 

Women  run  a  greater  risk  of  finding  themselves  in  poverty  than  men.  Thus  they  have  been 
identified as a target group for the European Year for Combating Poverty in 2010. Women are 
a disadvantaged group and are frequently subject to multiple discrimination. Discussion of the 
future of policies to combat discrimination13 used experience acquired through the European 
Year of Equal Opportunities for All in 2007 to highlight the need to combat all forms of 
discrimination.  Actions  aimed  at  the  Roma  community  also  showed  the  importance  of 
integrating equality issues into all the instruments used. 

Particular inequalities relate to women belonging to ethnic minorities and immigrant women, 
who  represent  the  majority  of  the  migrant  population  in  the  Union.14  The  definition  of  the 
strategy  on  migration  policy15  took  this  situation  into  account,  particularly  as  regards  the 
participation of women in the labour market and the protection of women who are victims of 
trafficking. The Commission has paid attention to the situation of women in monitoring the 
transposal of the Directive on the residence permit issued to third-country nationals,16and in 

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Manual for gender mainstreaming of employment policies, 2007.  
Regulation (EC) No 800/2008.  
COM(2005) 706 final. 
Manual for gender mainstreaming of social inclusion and social protection policies, 2008. 
COM(2008) 42 final. 
COM(2007) 630 final. 
Decision No 1786/2002/EC. 
COM(2008) 420 final. 
Opinion of the Committee of the Regions on the situation of migrant women in the European Union, 
15.12.2007. 
COM(2008) 359 final. 
Directive 2004/81/EC. 

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its drawing up of the framework Directive on the conditions of entry and residence of third-
country nationals for the purposes of highly qualified employment.17 

Promoting  gender  equality  involves  mobilising  all  resources.  The  European  Funds  2007-
2013  for  cohesion  policy,18  19  20  rural  development21  and  fisheries22  are  essential  levers  for 
equality policy in a number of fields. In negotiating the programmes, the Commission called 
on  the  Member  States  to  integrate  equality  objectives  to  facilitate  access  to  employment, 
education  and  training,  promote  participation  in  decision-making  and  strengthen  the 
reconciliation of working and family life. 

2.2. 

Enhancing reconciliation of work, private and family life 

Despite  a  more  balanced  participation  in  employment,  women  continue  to  take  on  the 
majority  of  family  and  domestic  responsibilities.  Achieving  the  objectives  in  relation  to 
employment involves strengthening policies aimed at reconciling work, private and family 
life  in  order  to  make  full  use  of  the  Union's  potential  workforce.  The  Commission  has 
proposed  common  "flexicurity"  principles23  in  order  to  promote  more  open  and  flexible 
labour  markets  accessible  to  all,  including  equal  access  to  high-quality  jobs  for  women  and 
men and offering opportunities to reconcile working and family life.  

Discussion  of  new  demographic  challenges  centred  on  the  need  for  greater  gender  equality 
and  for  a  modernisation  of  family  policies  in  order  to  promote  solidarity  between 
generations.24  The  Commission  also  encouraged  the  exchange  process  implemented  by  the 
European Alliance for Families.25 

Finally,  the  Commission  presented  a  new  policy  framework  in  order  to  provide  "stronger 
support  for  reconciling  professional,  private  and  family  life"26  and  achieve  the  Union's 
growth and employment objectives. 

Legislative proposals27 have been adopted in order on the one hand to reinforce the right of 
female  workers  to  maternity  leave28  and,  on  the  other,  to  ensure  equal  treatment  for  self-
employed workers and assisting spouses.29 The Commission has noted the progress made by 
the  Member  States  in  improving  the  availability  of  childcare  facilities  (for  90%  of  children 
between the age of three and school age and for 33% of children aged under three).30 It noted 
in its report that only a minority of Member States has achieved this objective.31 Measures for 
developing  childcare  structures  have  been  recommended,  and  have  been  included  in  the 
cohesion policy in particular. In addition, the social partners have been consulted on the need 

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COM(2007) 637 final. 
Council  Regulation  (EC)  No  1083/2006  of  11 July  2006  laying  down  general  provisions  on  the 
European Regional Development Fund, the European Social Fund and the Cohesion Fund. 
Regulation (EC) No 1081/2006 on the European Social Fund. 
Regulation (EC) No 1080/2006 on the European Regional Development Fund. 
Regulation (EC) No 1698/2005. 
Regulation (EC) No 1198/2006. 
COM(2007) 359 final. 
COM(2007) 244 final. 
Council of 8/9 March 2007. 
COM(2008) 635 final. 
COM (2008) 636 and 637. 
Directive 92/85/EC. 
Directive 86/613/EC. 
Council of 15/16 March 2002. 
COM(2008) 638 final.  

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to  improve  legislation  concerning  various  forms  of  leave,  and  have  begun  negotiations  on 
parental leave. 

2.3. 

Gender-balanced participation in decision-making 

The participation of all citizens in political and decision-making processes is a democratic and 
economic  necessity,  and  a  priority  criterion  for  membership  of  the  Union.  Greater 
involvement  of  women  in  democratic  processes  is  one  of  the  priorities  of  a  Europe  for 
citizens.32  Initiatives  have  been  taken33  in  support  of  debates  on  European  issues  and  the 
participation of young people and women in order to pass on their aspirations with regard to 
Europe.  

Based on the most recent data, the report on "women and men in decision-making in 2007" 
showed that, while there has been undeniable progress, women are still under-represented in 
all spheres of power in the majority of Member States, as well as within the EU institutions. 
The  Commission  has  supported  action  by  the  Member  States  in  this  field;  it  has  collected, 
analysed and disseminated comparable data and encouraged networking among stakeholders. 
To this end, a European network to promote women in decision-making posts in politics 
and  economics  has  been  established.  For  the  first  time,  the  network  has  brought  together 
representatives of European networks in the field with the aim of acting in harmony. 

In  the  public  research  sector,  the  Union  has  set  a  target  of  25%  for  women  in  leading 
positions.34 This target has been translated into a series of actions. Education and training 
programmes35  contain  measures  to  reduce  imbalances  in  education  and  in  scientific  and 
technical  careers.  The  Seventh  Framework  Programme  for  research36  takes  gender  equality 
into account. Women's career trends have been analysed in order to promote women's role in 
public research institutions, in particular through work by experts on decision-making in the 
research field.37 

The preponderance of men among workers in the new communication technologies (NCT) 
sector  has  been  highlighted,38  and  a  strategy  has  been  proposed  for  encouraging  women  to 
commit to careers linked to NTC. The Commission has also cooperated with national players 
in a campaign aimed at encouraging young women to choose scientific or engineering careers. 

2.4. 

Eradicating gender-based violence and trafficking in human beings 

The  Commission  is  very  concerned  at  the  number  of  women  who  are  victims  of  domestic 
violence,  the  scale  of  trafficking  and  prostitution,  and  the  persistence  of  acts  of  violence 
committed under the cloak of traditions and religion. 

Actions  to prevent  and  combat  all  forms  of  violence,  particularly  against  women,  will  be 
pursued under the Daphne III programme,39 which supports the efforts of Member States and 
NGOs to address the victims and the authors of acts of violence. The large number of acts of 

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Decision No 1904/2006/EC. 
COM(2005) 494 and COM(2008) 158. 
Council of 18.4.2005. 
Decision No 1720/2006/EC.  
Decision No 1982/2006/EC. 
Mapping the maze: getting more women to the top in research, 2008. 
Women in ICT, status and the way ahead, 2008. 
Decision No 779/2007/EC. 

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violence  among  young  people  has  also  led  the  Commission  to  include  the  combating  of 
violence against women among projects under the "Youth in action" programme.40 

The  Union's  action  plan  to  combat  trafficking  in  human  beings  encourages  the  use  of  all 
instruments. A common framework for defining indicators and collecting data on trafficking 
in human beings has been drawn up in order to gain a better understanding of its scope.41 In 
addition,  the  Commission  has  presented  recommendations  on  identifying  and  assisting 
victims  of  trafficking  and  supported  the  principal  players  and  actions  such  as  the  Anti-
Trafficking Day. 

2.5. 

Eliminating gender stereotypes 

In  identifying  the  combating  of  stereotypes  as  a  priority,  the  roadmap  pointed  out  that 
feminine  and  masculine  stereotypes  give  rise  to  many  inequalities.  The  Commission 
recently reaffirmed that it is important to integrate gender equality into youth policies.42 The 
school  education  programme  aimed  at  cooperation  between  schools  has  included  the 
reduction of gender inequalities among its objectives. 

Sexist stereotypes influence the choice of education pathways and, as the Commission has 
stressed,43 result in women frequently being more represented in lower-paid professions. The 
objectives  set  by  the  European  Council  aim  to  increase  by  15%  the  number  of  graduates  in 
mathematics, sciences and technology while at the same time reducing the imbalance between 
women  and  men.44  In  order  to  achieve  these  objectives  and  reduce  stereotypes  in  general, 
gender  equality  has  been  integrated  as  a  priority  into  Community  education  and  training 
programmes.45  

Stereotyped  perceptions,  particularly  regarding  women's  ability  to  carry  out  certain  tasks 
within  undertakings,  have  led  the  Commission  to  launch  awareness-raising  actions  in  the 
business sector. 

2.6. 

Promoting gender equality outside the EU 

The  roadmap  reaffirmed  the  Commission's  commitment  to  the  principles  of  gender  equality 
recognised  internationally  in  the  Millennium  Development  Declaration  and  the  Beijing 
Platform for Action.  

In particular, the Union's strategy for gender equality in development policy,46 to be followed 
by an action plan, has led to greater account being taken of gender equality in development 
cooperation  and  the  EU's  external  relations.  Promoting  equality  in  individual  country 
strategies  drawn  up  under  the  10th  European  Development  Fund47  was  supported  by  the 
drawing  up  of  programming  guidelines  and  the  monitoring  of  equality  issues  in  national 
plans. 

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Decision No 1719/2006/EC.  
COM(2006) 437 final. 
Investing in youth: an empowerment strategy, 2007. 
COM(2007) 498 final. 
Council of 5/6 May 2003. 
Decision No 1720/2006/EC. 
COM(2007) 100 final. 
Regulation (EC) No 1905/2006. 

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Gender  equality  was  also  reinforced  under  the  Euro-Mediterranean  Partnership,  and  the 
Istanbul  Framework  of  Action  led  to  a  series  of  commitments  and  the  mobilisation  of 
resources  in  favour  of  women's  rights  and  of  their  full  participation  in  the  civil,  political, 
social, economic and cultural fields.  

The new European instrument for democracy and human rights48 provides for support for 
equality and women's rights in a number of fields, particularly the participation of women in 
politics and combating domestic violence and genital mutilation. 

The "Initiatives for the construction of peace" and the EC/UN Partnership for Development 
and  Peace  have  made  it  possible  to  support  a  range  of  actions  concerning  the  situation  and 
role  of  women  in  armed  conflicts  and  their  aftermath  and  the  application  of  UN  Security 
Council  Resolution  1325.  In  particular,  the  organisation  by  the  Commission  of  the 
international conference on “Women: Stabilising an Insecure World” led to concrete political 
support being provided in these fields. 

One  pillar  of  the  thematic  programme  “Investing  in  people”49  is  devoted  to  equality,  for 
example in carrying out projects concerning women's participation in decision-making or the 
integration  of  gender  equality.  Cooperation  programmes  with  third  countries  have  also 
supported the role of women in society or mobility projects for young people.50 

The EU has reaffirmed the principles relating to gender equality in the European consensus on 
humanitarian aid51 and undertaken, as part of its action plan,52 to promote participation by 
women and protection against sexual and sexist violence in emergency aid.  

Gender  equality  in  EU  trade  policy  forms  part  of  the  wider  framework  of  sustainable 
development  and  encourages  the  application  of  fundamental  labour  standards  in  trade 
negotiations and cooperation with the ILO on decent work in developing countries. 

Enlargement  policy  has  led  candidate  countries  and  potential  candidate  countries  to  align 
themselves with the acquis communautaire and European standards on equality and to create 
appropriate institutional and administrative structures. 

3. 

IMPROVED GOVERNANCE 

Equality  objectives  cannot  be  achieved  without  the  commitment  of  all  stakeholders.  The 
Commission  has  collaborated  with  the  Member  States  within  the  high-level  group  of 
representatives  on  equality  issues,  in  the  context  of  work  by  the  Council  (particularly  the 
"trios"  of  Presidencies),  in  organising  Presidency  conferences  and  within  the  advisory 
committee. The social partners at European level have reported on the implementation of their 
framework for action on gender equality.53 Organisations representing civil society have been 
funded with a view to maintaining dialogue and supporting their action in promoting gender 
equality.  

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Regulation (EC) No 1889/2006. 
COM(2006) 18 final. 
Decision No 1719/2006/EC. 
OJ C 25, 30.1.2008, p. 1. 
SEC (2008) 1991. 
Framework of actions on gender equality; second follow-up report 2007. 

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A  number  of  activities  have  been  carried  out  to  strengthen  pro-equality  instruments.  A 
Community  network  of  bodies  responsible  for  gender  equality54  has  been  established  to 
ensure  uniform  application  of  European  law  in  this  field.  Each  year,  legal  experts  have 
analysed progress in Community law and the effectiveness of legislation, particularly in the 
field of equal treatment.55 In addition, citizens are given information and advice on their rights 
in equality issues. 

The Commission has made progress in improving the integration of gender equality into all 
Union  policies  and  programmes,  taking  into  consideration  the  impact  on  women  and  men 
and exploring the possibilities of integrating gender equality into the budget process. 

It has also ensured the promotion of gender equality within its own administration under its 
4th action programme on gender equality.56  

In general, work on indicators has met the international commitments of Member States. The 
Commission has cooperated with the latter to develop indicators relating to the framework of 
the Beijing Platform for Action.  

In  order  to  increase  the  availability  of  harmonised  data  at  European  level  and  complement 
existing indicators,57 work has focused in particular on time use, the pay gap and drawing up a 
European equality index. 

A  number  of  roadmap  actions  have  been  funded  by  the  PROGRESS  programme,58 
particularly  actions  for  the  coordination  and  transversal  implementation  of  the  equality 
objectives, including the reinforcing of communication in relation to equality policy. 

Finally, a European Institute for Gender Equality59 has now been established.  

4. 

CONCLUSIONS 

The roadmap provides an ambitious political framework for promoting gender equality in all 
the  Union's  policies  and  activities.  It  has  helped  to  ensure  coherence  and  visibility  in  the 
actions carried out by the Commission and also provided a reference for the Member States, 
which  have  carried  out  their  own  work  in  relation  to  the  common  objectives  defined  in  the 
roadmap, the Pact for Gender Equality and the Beijing platform's international commitments.  

There  has  been  significant  progress,  and  much  more  specific  account  has  been  taken  of 
equality  objectives  in  all  policies  recorded  in  the  roadmap.  The  most  significant  advances 
appear  to  be  linked  to  the  Union's  political  commitments,  where  quantified  common 
objectives guide Community action. 

Monitoring  of  the  roadmap  has  shown  progress  in  almost  all  the  actions  set  out  therein. 
However,  that  progress  is  uneven  and  highlights  the  need  to  continue  to  act  until  2010.  A 
particular difficulty encountered in implementing equality policy is that of providing a clear 
idea  of  the  challenges  it  raises.  Awareness-raising  and  adherence  to  the  social  and  political 

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Directive 2002/73/EC.  
Directive 2004/113/EC.  
SEC(2007) 1506/2. 
COM(2006) 92. 
Decision No 1672/2006/EC. 
Regulation (EC) No 1922/2006. 

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challenges of the equality objectives should be strengthened, which requires a strong political 
will.  

For  example,  there  will  be  a  case  for  supporting  the  integration  of  gender  equality,  and  in 
particular reconciliation policy, into the 2008-2010 cycle of the Lisbon strategy and the OMC 
in the field of social protection and social inclusion, and assessing whether the commitments 
to  equality  in  the  social  cohesion,  education  and  research  programmes  are  respected. 
Significant  progress  with  regard  to  equality  in  external  policies  will  need  to  be  pursued. 
Balanced participation of women in all decision-making bodies, both economic and political, 
must  be  promoted  at  Union  level  and  within  structures  managed  by  the  Commission. 
Vigilance  against  sexist  stereotypes  must  also  be  stepped  up,  particularly  through  dialogue 
with  the  media  and  with  citizens.  The  European  Institute  for  Gender  Equality  must  become 
operational  as  soon  as  possible.  Finally,  additional  efforts  in  the  field  of  communication 
should  also  provide  a  better  understanding  of  the  challenges  of  equality  policy.  Prior  to  the 
elections  to  the  European  Parliament  in  June  2009,  communication  activities  will  target 
women in particular. 

The Commission wished to give new impetus to the European Union's social dimension with 
a renewed social agenda,60 of which gender equality policy is an integral part. In particular, 
the  renewed  social  agenda  provides  for  the  Commission  to  strengthen  the  integration  of 
gender equality into its policies and activities.  

Policies  always  have  an  impact  on  women  and  men  where  they  involve  the  citizen,  the 
economy  and  society.  Nevertheless,  insufficient  account  is  often  taken  of  such  impacts  in 
some  fields  covered  by  Community  policies.  It  is  in  those  fields  where  less  attention  has 
traditionally  been  paid  to  equality  issues  that  particular  vigilance  is  required  and  the 
awareness of stakeholders must be raised. Political and budget decisions must take account of 
gender requirements, with more systematic consideration of their effects on all individuals.  

In  2010  the  Commission  will  evaluate  the  results  achieved  and  prepare  a  strategy  for 
following up the roadmap. A conference will be organised in the spring of 2009 to assess the 
implementation of the roadmap, mobilise policies and raise awareness among players of the 
challenges of gender equality. 

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COM(2008) 412 final. 

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