The multi-annual financial framework 2014-2020 from a gender equality perspective.
Date: 2014-05-05
Institutions: Directorate-General for Internal Policies of the Union
Subjects: anti-discriminatory measure, budget estimate, budgetary procedure, equal treatment, gender equality, sexual discrimination, social inequality

 
DIRECTORATE GENERAL FOR INTERNAL POLICIES 

POLICY DEPARTMENT C: CITIZENS' RIGHTS AND 

CONSTITUTIONAL AFFAIRES 


GENDER EQUALITY 

The multi-annual financial 
framework 2014-2020 from 
a gender equality perspective 

NOTES 

Abstract 
For  the  enclosed  five  briefing  notes,  a  gender  budgeting  methodology  has  been 
developed  on  purpose  to  analyze  in  a  gender  perspective  the  MFF  proposal  for 
2014-2020. The MFF 2014-2020 assumes a very high relevance in the context of 
the  financial  and  economic  crisis  as  the  EU  Budget  will  finance  the  EU  2020 
Strategy that is conceived as a pivotal tool for recovery.  
Despite the official declarations according to which: 
 

the EU 2020 Strategy was conceived as an opportunity to reform the economy 
in order to achieve more gender equality, and  
the  intention  to  make  gender  mainstreaming  the  pivotal  strategy  for  gender 
equality, 

 

the  gender  budgeting  exercise  has  revealed  that  the  gender  perspective  is  far 
from  being  assumed  in  all  policies,  at  all  levels  and  at  every  stage  of  the  policy 
making process. 
More precisely the analysis has been conducted the following five gender relevant 
policy  issues:  Economic  Independence,  Education  and  Training,  Health/Well­
being/Environment,  Fundamental  Rights,  External  Relations  showing  that  the 
attention to gender is not evenly given by issue and that evaluation/monitoring in 
a gender perspective is still not as widespread as it should be to ensure an actual 
implementation of gender mainstreaming. 
The  study  has  also  revealed  that  it  is  possible  to  design  and  apply  a  gender 
budgeting methodology to the EU Budget. This is a very relevant result in view of 
a future introduction of gender budgeting in the EU budget procedure. 

PE 462.426 

              EN
 

 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
  
 
 
 
  
 
 
 
 
 
This document was requested by the European Parliament's Committee on Women's Rights 
and Gender Equality. 

AUTHOR 
Fondazione Giacomo BRODOLINI - Italy 

RESPONSIBLE ADMINISTRATOR  
Erika SCHULZE 
Policy Department C: Citizens' Rigths and Constitutional Affairs 
European Parliament 
B-1047 Bruxelles 
E-mail: erika.schulze@europarl.europa.eu 

LINGUISTIC VERSIONS 
Original: EN 
Translation: DE, FR 

ABOUT THE EDITOR 
To contact the Policy Department or to subscribe to its newsletter please write to: 
poldep-citizens@europarl.europa.eu 

Manuscrit completed in January 2012. 
European Parliament, © European Union, 2012.  

This document is available on the Internet at: 
http://www.europarl.europa.eu/studies 

DISCLAIMER 
The  opinions  expressed  in  this  document  are  the  sole  responsibility  of  the  author  and  do 
not necessarily represent the official position of the European Parliament. 

Reproduction  and  translation  for  non-commercial  purposes  are  authorized,  provided  the 
source is acknowledged and the publisher is given prior notice and sent a copy. 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
The multi-annual financial framework 2014-2020 from a gender equality perspective 

CONTENTS 

LIST OF ABBREVIATIONS 

LIST OF TABLES AND FIGURES 

EXECUTIVE SUMMARY 

METHODOLOGICAL NOTE: GENDER BUDGETING 

1.  OBJECTIVES OF THE FIVE BRIEFING NOTES 

2.  GENDER BUDGETING: AN INTEGRAL PART OF GENDER 


MAINSTREAMING AND GOOD GOVERNANCE 

2.1.  Gender mainstreaming 

2.2.  Main concepts and understanding of gender budgeting 

2.3.  Elements of gender budgeting 

2.4.  Gender Budgeting for gender mainstreaming and good governance 

2.5.  Gender budgeting on the European level 

3.  METHODOLOGY 

3.1.  The overall approach 

3.2.  Context Analysis 

3.3.  Gender analysis of the budget allocated for the policy intervention 


adopting a gender budgeting methodology 

3.4.  Potential Gender-Impact Assessment 

4.  REFERENCES 

BRIEFING NOTE ON ECONOMIC INDEPENDENCE 

1.  CONTEXT ANALYSIS 

1.1.  The starting point: describing the context 

1.2.  Gender inequality in the area of economic independence 

1.3.  Likely causes of inequalities in economic independence 

1.4.  Gender stereotypes and roles 

1.5.  The role of policies in the field of economic independence 

1.6.  The broader policy context for the planning period 

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Policy Department C: Citizens' Rights and Constitutional Affairs 

2.  GENDER OBJECTIVES FOR ECONOMIC INDEPENDENCE 

3.  GENDER ANALYSIS OF THE BUDGET ALLOCATION AND OF THE 


FINANCIAL TOOLS 

3.1.  Financial instruments chosen to fund the policy interventions 

3.2.  Losing sight of the gender equality objective 

3.3.  Assessing the expected adequacy and effectiveness 

4.  ASSESSING GENDER ISSUES ON ECONOMIC INDEPENDENCE 


AREAS IN THE MFF 2014-2020 

4.1.  Is a larger/more generous budget good news for gender equality? 

4.2.  Does the setting up of the EGAF mean lesser emphasis on women? 

4.3.  Is the ESF focus on employment too narrow? 

5.  CONCLUSIONS 

6.  REFERENCES 

7.  ANNEXES 

ANNEX 1:  Economic independence legal basis 

ANNEX 2:  ESF main policy objectives and policy actions 

ANNEX 3: Description of financial instruments 

ANNEX 4: Detailed gender objectives tables 

BRIEFING NOTE ON EDUCATION 

1.  INTRODUCTION 

2.  CONTEXT ANALYSIS 

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2.1.  Policy context and strategies for education and training on the European 


level 

2.2.  Gender imbalances in education and training 

2.3.  Gender objectives in education and training 

3.  GENDER ANALYSIS OF BUDGET AND FINANCIAL TOOLS FOR 


EDUCATION AND TRAINING 

3.1.  Erasmus for All 

3.2.  European Social Fund (2014-2020) 

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The multi-annual financial framework 2014-2020 from a gender equality perspective 

3.3.  Overall assessment 

4.  POTENTIAL DIRECT AND INDIRECT IMPACT OF THE POLICY 


INTERVENTIONS ON THE GENDER OBJECTIVES 

5.  CONCLUSIONS 

6.  REFERENCES 

7.  ANNEXES 

ANNEX 1: Treaty on the Functioning of the European Union      


(Lisbon Treaty) 

ANNEX 2: Detailed discussion of gender gaps in education and 


training 

BRIEFING NOTE ON HEALTH / WELL BEING / ENVIRONMENT 

1.  INTRODUCTION 

2.  CONTEXT ANALYSIS 

2.1.  Gender gaps in the area of health, well being and the environment 

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2.2.  Likely causes of inequalities in health, well-being and the environment 97
 

2.3.  Gender stereotypes and roles 

2.4.  Inequalities in society that policies target 

2.5.  The broader policy context for the planning period 

3.  STRATEGIC GENDER OBJECTIVES AND MFF 2014-20 

3.1.  Analytical gender objectives and programme statements 

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3.2.  The EU financial instruments and the analytical gender objectives 

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4.  BUDGET ALLOCATION ANALYSIS 

5.  ASSESSMENT OF DIRECT AND INDIRECT IMPACT OF POLICY 


INTERVENTION 

6.  CONCLUSIONS 

7.  REFERENCES 

8.  ANNEXES 

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ANNEX 1: MFF INSTRUMENTS OBJECTIVES AND GENDER RELEVANCE 

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ANNEX 2: STATISTICAL ANNEX 

BRIEFING NOTE ON FUNDAMENTAL RIGHTS 

1.  CONTEXT ANALYSIS 

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1.1.  Introduction: The importance of a dual gender equality approach 

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1.2.  A European approach to the implementation of Fundamental Rights  132
 

1.3.  Mainstreaming and the principle of Gender Equality 

1.4.  A new approach to the concept of Dignity, Freedom,
 

and Citizens’ Rights 

1.5.  Identification of areas in relation to Fundamental Rights of particular 


importance for gender equality 

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2.  A GENDER PERSPECTIVE ON THE 2014-2020 MULTIANNUAL 

FINANCIAL FRAMEWORK IN THE AREA OF FUNDAMENTAL 

RIGHTS 

2.1.  Budget evaluation of the most pertinent programmes 

2.1.1.  Rights and Citizenship Programme 

2.1.2.  Asylum and Migration Fund 

2.1.3. 

The Europe for Citizens Programme 

2.2.  Experiences from the present programming cycle 

3.  CONCLUSIONS 

4.  REFERENCES 

BRIEFING NOTE ON EXTERNAL RELATIONS 

1.  INTRODUCTION 

2.  CONTEXT ANALYSIS 

2.1.  The situation of women in countries and regions covered      


by EU external actions 

2.2.  Policy priorities of EU’s external actions 

2.2.1.  Neighbourhood, enlargement, development and cooperation 

2.2.2. 

Thematic policy areas 

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The multi-annual financial framework 2014-2020 from a gender equality perspective 

2.3.  Europe 2020 and the Strategy for Equality between men and women  155
 

2.4.  Gender objectives in external relations 

3.  GENDER ANALYSIS OF THE FINANCIAL INSTRUMENTS 

3.1.  Development Cooperation 

3.2.  Neighbourhood 

3.3.  Enlargement 

3.4.  Human rights, crisis management and humanitarian intervention 

3.5.  Strategic cooperation with third countries 

4.  ASSESSING THE GENDER RELEVANCE OF EU’S EXTERNAL 


ACTIONS 

4.1.  Gender budgeting of the financial instruments for external action 

4.2.  Overall assessment 

5.  REFERENCES 

6.  ANNEX 

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Policy Department C: Citizens' Rights and Constitutional Affairs 

LIST OF ABBREVIATIONS 


CEDAW	 

CSF	 
DCI	 
EC	 
EDF	 
EEAS	 
EIDHR	 
EIGE	 
EGGE	 
EGGSI	 
ENI	 
ENP	 
ESF	 
ET2020    	
EU	 
EU2020 	
FRA	 
GII	 
IfS	 
IHA	 
INSC	 
IPA	 
MDG	 
MFF	 
MST 	
PI	 
ODA	 
OECD/DAC	 

TACIS 	
TFEU	 
UNDP	 
UNHCR	 
UNIFEM	 
YiA	 

Convention  on  the  Elimination  of  All  Forms  of  Discrimination  against 
Women 
Common Strategic Framework 
Development Cooperation Instrument 
European Commission 
European Development Fund 
European External Assistance Service 
European Instrument for Democracy and Human Rights 
European Institute of Gender Equality 
Expert Group on Gender Equality 
Expert Group on Gender Equality and Social Inclusion 
European Neighbourhood Instrument 
European Neighborhood Policy 
European Social Fund 
Strategic Framework for European cooperation in education and training 
European Union 
Europe 2020 Strategy 
Fundamental Rights Agency 
Gender Inequality Index 
Instrument for Stability 
Instrument for Humanitarian Assistance 
Instrument for Nuclear Safety and Cooperation 
Instrument for Pre Accession 
Millennium Development Goals 
Multi annual financial framework 
Mathematics, science and technology 
Partnership Agreement 
Official Development Aid 
Organisation for Economic Cooperation and Development / Development 
Assistance Committee 
Technical Assistance to the Commonwealth of Independant States 
Treaty on the Functioning of the European Union 
United Nations Development Programme 
United Nations High Committee for Refugees 
United Nations Entity for Gender Equality 
Youth in Action Programme 

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The multi-annual financial framework 2014-2020 from a gender equality perspective 

LIST OF TABLES AND FIGURES 

Tables 

Table 1:  Gender Objectives for the specific theme (example) ................................ 25 
Table 2:  Budgeting the Gender Objectives (example) ........................................... 27 
Table 3:  Analytical Gender objectives for economic independence in EU2020 and  

Strategy for Equality (Programme Statements)  ...................................... 38 
Table 4:  Budgeting gender objectives for economic independence .......................... 41 
Table 5:  Correspondance between Goals of Financial instruments (Table 4) and  

Analytical Gender Objectives (Table 3) for economic independence ............ 42 
Table 6:  Gender awareness, relevance and impact of instrument objectives ............ 46 
Table 7:  Gender objectives for education and training  ......................................... 71 
Table 8:  Budgeting the gender objectives for education and training  ..................... 77 
Table 9:  Evaluating the MFF objectives in Health, Well-being and  

environment as to their gender effect  ................................................... 107 

Table 10:  Analytical gender objectives for health, well-being and environment  

in EU2020 and Strategy for Equality (Programme Statements)  ................. 108 
Table 11:  Budget allocation analysis for health/well being/environment  ................... 110 
Table 12:  Correspondance between Goals of Financial instruments (table 11) 

and Analytical Gender Objectives (table 10) ........................................... 111 
Table 13:  Gender objectives for Fundamental Rights  ............................................. 136 
Table 14:  Budgeting the Gender Objectives for Fundamental Rights ......................... 138 
Table 15:  Gender objectives for EU's external actions  ........................................... 156 
Table 16:  MFF 2014-2020: allocation of appropriations for Heading 4 "Global Europe" 

........................................................................................................ 157 
Table 17:  Budgeting the gender objectives in external action instruments  ................ 162 
Table 18:  Gender equality focus on EU institutions' development cooperation 

programmes by sector, 2007-2009 average ........................................... 165 

Figures 

Figure 1:  Main milestones of the process of approval of the MFF  ............................ 18 
Figure 2: 
Three goals of a gender analysis of budgets and gender sensitive budgets  . 22 
Figure 3:   Secondary and primary earners in Europe  ............................................. 33 
Figure 4: 
Allocation of the total amount (€90.3 bn) among instruments  .................. 39 
Figure 5:  Gender gaps among people aged 50+ in physical health (SHARE w2),

author's calculations ........................................................................... 95 

Figure 6:  Gender gaps among people aged 50+ in mental health (SHARE w2),

author's calculations............................................................................ 95 

Boxes 

Box 1 : The Development Cooperation Instrument  ................................................. 158  


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Policy Department C: Citizens' Rights and Constitutional Affairs 

EXECUTIVE SUMMARY 

Introduction 

In  June  2011,  the  European  Commission  presented  the  first  communication  on  the  next 
Multi-annual  Financial  Framework  (MFF)  of  the  Union  (2014-2020)  under  the  heading  “A 
budget  for  EU2020”.  The  European  Parliament  committee  on  women's  rights  and  gender 
equality  (FEMM)  participates  as  an  opinion  giving  committee  in  some  of  the  ordinary 
legislative  procedures  regarding  the  most  important  financial  instruments  of  the  MFF  in 
relation to women's rights and gender equality. 

The  aim  of  the  present  document  is  to  support  the  work  of  the  FEMM  Committee  by 
providing  an  assessment  in  a  gender  perspective  of  the  potential  impact  of  the  European 
Commission’s proposals for the MFF 2014-2020 on women’s rights and the advancement of 
gender equality with respect to the areas of: 

	  Economic Independence; 

	  Education and Training; 

	  Health, Well-being and the Environment; 

	  Fundamental Rights; 

	  External Relations. 

The document is composed by a methodological note and five briefing notes, covering the 
five above-mentioned areas. 

Methodological Approach 

The methodological approach has been developed through a review of existing literature in 
relation to the concept and understanding of gender budgeting. The review reflected that a 
gender  budgeting  initiative  always  involves  a  gender  analysis  of  some  dimension  of  the 
raising  and  use  of  public  money.  But  there  is  no  single  way of  doing  this  and  there  are  a 
number of analytical tools that can be used and adapted for particular circumstances. The 
review  also  suggested  that  gender  budgeting  is  still  a  relatively  new  practice  among  the 
European Member States. 

On  the  basis  of  the  overview  of  literature  on  gender  budgeting  instruments  and  tools,  an 
original methodological approach common to the five areas of analysis has been tailored. It 
aims  at  determining  the  following  elements:  i) identifying  the  implicit  and  explicit  gender 
issues;  ii) identifying  –  where  possible  -  the  allied  resource  allocations;  and  iii) assessing 
whether  the  policy  will  continue  or  change  existing  inequalities  between  men  and  women 
(and groups of men and women), boys and girls and patterns of gender relations. On this 
basis, the methodology seeks to answer three research questions: 

	  WHO will benefit from the policy intervention? 

	  HOW  MUCH  will  be  allocated  for  the  policy  intervention?  AND  HOW  will  it  be 

allocated among the different financial instruments of the European Union? 

	  WHAT is the potential gender impact of the policy intervention? 

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The multi-annual financial framework 2014-2020 from a gender equality perspective 

In correspondence, the research will proceed in three steps: 

1.	  Context Analysis (WHO?) 

2.	  Gender  budget  analysis  of  the  budget  allocated  for  the  policy  intervention 

(HOW MUCH AND HOW?) 

3.	  Potential Gender-Impact Assessment (WHAT?) 

The approach adopted can be considered as a “Gender-aware policy appraisal”. 

The  main  methodological  results  worth  highlighting  are  that  the  EU  Budget  is  suitable  for 
gender budgeting, as it has been possible to conduct the analysis at least on programming 
documents  achieving  useful  indications  on  the  level  of  attention  to  the  gender  issue  in 
these  documents.  The  application  of  the  present  methodology  to  the  five  briefing  papers 
anticipates  the  actual  introduction  of  gender  budgeting  in  the  budgetary  process  of  the 
European Union. At present the information available for many of the programmes suggest 
that  a  gender  perspective  in  the  planning,  implementation  and  evaluation  phases  of  the 
programmes is still lacking or is incomplete. 

For introducing gender budgeting, an extensive and profound analysis and research from a 
gender  perspective  should  be  conducted  by  all  Directorates  General  of  the  European 
Commission  who  are  already  at  the  planning  stage  of  the  MFF  for  all  policy  programmes 
covering all policy fields. In particular, to promote the implantation of gender budgeting in 
the  EU  budgetary  process  it  is  necessary  to  establish  appropriate  tools.  Moreover,  it  is 
recommended  that  gender  budgeting  should  be  conducted  by  qualified  personnel  with  the 
necessary skills and expertise and supported by active civil society. 

Economic Independence 

Economic independence is key to citizens’ well-being. As an objective it encompasses more 
than  simply  access  to  paid  work.  It  also  covers  non-paid  work,  such  as  caring,  but  also 
non-work income – such as income from property and social transfer entitlements. In our 
market-based society, it feeds not only into economic liberty, but also distribution of power 
within the family. It determines not only the distribution of income, but also the “invisible” 
distribution of resources within the family unit. 

The  context  of  the  MFF  2014-2020  planning  period  is  characterised  by  the  interplay 
between  long-term  trends  (such  as  ageing  and  technological  change)  and  the  exit 
trajectories of the current financial crisis. The correction of low employment participation on 
the part of women can be a factor in the simultaneous achievement of seemingly unrelated 
and possibly antithetical targets – competitiveness, equity, cohesion and economic growth. 

The crisis lies behind the increased budgetary emphasis the MFF places in objectives linked 
with  Economic  independence.  The  overall  budget  that  feeds  into  these  objectives  for  the 
2014-2020  period  is  €  90.7  bn.  This  is  roughly  equal  to  9%  of  the  total  proposed 
commitments  and  around  27%  of  proposed  cohesion  policies.  This  compares  to  around  €  
81 bn in the 2007-2013 cycle, the difference being mostly due to an increase in European 
Social Fund allocations (€ 84 bn from €76 bn). 

However,  the  increase  in  overall  funding  should  not  lead  to  complacency.  Gender 
awareness  is  largely  absent  as  an  explicit  ingredient  in  stating  the  objectives  in  budget 
documents. At this moment of time there exists no allocation of budget amounts between 

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Policy Department C: Citizens' Rights and Constitutional Affairs 

objectives  within  the  specific  instruments.  The  allocation  of  amounts  to  each  of  the  broad 
gender objectives proposed by the note, in the absence of more specific commitments, was 
undertaken  on  the  heroic  (but  probably  unrealistic)  assumption  that  budget  shares 
allocated  to  each  objective  will  remain  unchanged  from  the  previous  planning  period. 
Experience  from  ex  post  analysis  of  previous  documents  reveals  that  gender  balance 
rhetoric is more generous than actual outcomes.  

For  these  reasons,  this  overview  of  the  budget  takes  note  of  the  potential  that  increased 
overall  disbursements  create  for  furthering  economic  independence  linked  gender 
objectives. However, it also urges vigilance during the process of specifying the content of 
broad  aggregates,  as  well  as  careful  gender  monitoring  throughout  the  process  leading 
from budget attributions to actual disbursements. 

All  in  all,  the  analysis  to  date  shows  that  the  MFF  can  signal  the  potential  for  significant 
change  in  the  field  of  economic  independence.  Whether  that  potential  can  be  realised  or 
not, depends on vigilance and action from this point on. 

Education and training 

The  EU’s  declared  commitment  to  gender  equality  over  the  last  decades  has  produced 
important  achievements 
in  enhancing  women’s  empowerment.  However,  gender 
inequalities still remain in opportunities, attainments and decisions with regard to education 
and training. A context analysis of education and training in the EU led to the identification 
of the following ‘gender objectives’ that the paper concludes should be focused upon in EU’s 
policy-making and budgeting process. These gender objectives are: 

	  Reducing gender gaps in learning of basic skills; 

	  Reducing drop-out rate for young boys; 

	 

	 

	 

Increasing participation of women in vocational education and training; 

Increasing participation of women in the tertiary sector; 

Increasing the number of female graduates in Mathematics, Science and 

Technology; 


	 

Increasing participation of women in lifelong learning. 

A  review  of  EU’s  seminal  policy  documents,  namely  the  Europe  2020  Strategy,  the 
Education  and  Training  2020  Strategy  and  the  Strategy  for  Equality  between  Women  and 
Men,  reveals  that  reducing  drop-out  rates,  increasing  participation  in  vocational  education 
and training and in lifelong learning have been mentioned in various capacities in terms of 
flagship targets and benchmarks. However, these issues have been dealt with in a gender 
neutral  way  and  no  gender  specific  targets  have  been  set  for  men  and  women  for  any  of 
the gender objectives identified in this note. 

A  review  of  the  available  documents  of  EU’s  financial  tools  for  education  and  training  for 
2014-2020, namely, Erasmus for All Programme and the European Social Fund reflect that 
while the ESF has a stated gender equality objective and strategy, Erasmus for all is clearly 
lacking a specified gender equality strategy. Specific budget allocations for gender equality 
are  absent  from  Erasmus  for  All  and  there  is  no  explicit  mechanism  mentioned  to  assess 
the amount of aid allocated to gender equality and women’s empowerment through all the 

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thematic instruments. The use of gender-disaggregated data for monitoring and evaluation 
has not been specified in any of the documents for Erasmus for All. On the other hand, the 
ESF programme overall presents clear gender objectives, identifies targets and has a clear 
gender  equality  strategy  through  gender  mainstreaming  as  well  as  specific  actions.  There 
are clear mission statements which give clarity to the programmes intention on promoting 
gender equality. 

The amount allocated to training and education cannot be debated as insufficient, however 
the  integration  of  gender  perspective  is  clearly  missing.  Considering  the  importance  that 
has  been  attached  to  gender  mainstreaming  by  the  European  Union,  it  could  be  an 
important  value  addition  to  support  the  budgetary  planning  of  Member  States  by 
incorporating  gender  perspective  in  the  financial  instruments  of  the  EU.  However,  an 
overview of the EU’s financial tools for education and training provide little  insight into its 
strategy  of  gender  mainstreaming  in  its  planning,  implementation  and  monitoring  and 
evaluation stage. The gender gaps in education and training as highlighted in this briefing 
paper are extensive and could hardly be ignored. 

Health, wellbeing and the environment 

The  areas  of  health,  well-being  and  environment  are  critical  in  determining  differences  in 
quality  of  life  and  hence  carry  potentially  important  gender  implications.  However  they 
mostly fall within the range of policy areas for which the principle of EU subsidiarity applies, 
thus  mostly  falling  within  the  competence  of  national  and  regional  authorities.  In  those 
areas the EU budget may still play an important, yet indirect, role – as a facilitator and a 
lever for actions of non-EU bodies. Similarly, many of the objectives pursued by them have 
the character of public goods, characterised by indivisibilities and difficulties in pinpointing 
direct beneficiaries. Finally, at this stage of budget discussions, many objectives are stated 
in  broad  terms,  such  that  the  extent  of  their  gender  sensitivity  can  only  be  inferred.  For 
these  reasons,  the  potential  impact  of  gender-sensitive  budget  expenditure  may  be 
understated by an exclusive focus on direct disbursement. An attempt at gender budgeting 
is thus a useful first step requiring further analysis. 

A gender analysis of the context in the areas of health, well-being and environment reveals 
numerous gender gaps and inequalities, equally present in the supply, in the demand and 
the access fronts. Furthermore, if one includes the social determinants of health, well-being 
and environmental quality, the terrain becomes very broad. 

Partly as a result of the breadth of the area defined as health, well-being and environment, 
the stated programme objectives tend to be expressed in broad terms and gender-sensitive 
objectives mostly tend to fall in the former category. 

Within  the  proposed  MFF  the  areas  of  health,  well-being  and  environment  receive 
considerably  greater  emphasis  within  the  overall  EU  budget  with  respect  to  the  current 
programming  phase  as  disbursements  in  some  cases  are  more  than  trebled.  However,  no 
clear  indications  emerge  as  to  the  potential  gender  impact  of  these  allocations  and  the 
programme  statements  hardly  mention  gender  sensitive  objectives  and  beneficiaries. 
Moreover, the starting point in some of the policy sectors for which the largest budgetary 
increases (such as research, environment) have been proposed is heavily weighted against 
women.  This  expansion  of  funding  could  correct  pre-existing  imbalances;  given  that 
decision  structures  still  reflect  the  previous  gender  situation,  this  potential  may  not  be 
realised,  unless  (a)  corrective  action  is  taken  early  on,  and  (b)  careful  monitoring  of 
progress via gender-sensitive indicators is built in to the structure of the programmes. 

13
 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Policy Department C: Citizens' Rights and Constitutional Affairs 

Moreover,  the  indications  of  a  possible  increase  in  overall  funding  should  not  lead  to 
complacency.  Gender  awareness  is  almost  completely  absent  as  an  explicit  ingredient  in 
stating  the  objectives  in  budget  documents.  Experience  from  ex  post  analysis  of  previous 
documents  (for  economic  independence)  reveals  that  gender  balance  rhetoric  is  more 
generous than actual outcomes. 

Fundamental Rights 

The Charter of Fundamental Rights of the European Union was proclaimed in 2000 and has 
become legally binding with the entry into force of the Lisbon Treaty in 2009. The relevance 
of the Charter from a gender perspective is not limited to the equality principle but extends 
to  the  other  transversal  gender  issues  associated  with  the  six  chapters  of  the  Charter.  In 
fact, the principles of fundamental rights for both women and men touch on every aspect of 
people's lives and their full exercise is essential for everyone and in all areas. 

The gender relevant policy objectives in relation to Fundamental Rights could be identified 
as follows: 

	  Fighting against gender based violence and human trafficking; 

	  Equality  between  women  and  men  (Gender  pay  gap;  Gender  balance  in  decision-

making positions; Access to employment/Economic independence); 

	  Addressing the feminisation of poverty and migration; 

	  Measures establishing the conditions for the full exercise of fundamental rights (for 

both women and men). 

In order to develop a gender perspective on MFF in the area of fundamental rights the note 
restricts  the  analysis  to  the  most  pertinent  programmes  with  specific  objectives  rooted  in 
the  promotion  and  advance  of  fundamental  rights,  such  as  i)  the  Rights  and  Citizenship 
including  Daphne  III,  Fundamental  Rights  and  Citizenship  and  the 
Programme 
“Antidiscrimination  and  Diversity"  and  "Gender  Equality"  sections  of  the  Programme  for 
Employment  and  Social  Solidarity  (PROGRESS).  In  addition,  the  Progress  Programme 
budget  supports  the  Fundamental  Rights  Agency  (FRA)  and  the  European  Institute  of 
Gender  equality  (EIGE);  ii)  the  Migration  and  Management  Fund  and  iii)  the  Europe  for 
Citizens Programme. 

The first conclusion that can be made is that the total funding in the area of Fundamental 
Rights for the 2014-2020 period will be lower than in the present programming period. 

The analysis of the documentation for the MFF 2014-2020 and the Programme in the area 
of  fundamental  rights  points  to  challenges  and  policy  implications  that  can  serve  as 
guidelines for a better gender integrated approach to the EU budget process. As a general 
recommendation, it is clear that the MFF 2014-2020 needs to make a stronger commitment 
to  gender  equality  and  gender  mainstreaming.  Following  the  analysis  of  the  present 
Regulations  relevant  for  the  realisation  of  fundamental  rights  for  women,  these 
requirements can only be regarded as fulfilled in those programmes where specific gender 
objectives  have  been  identified,  while  the  gender  dimension  tends  to  disappear  in  those 
programmes  with  only  general  objectives  and  is  limited  at  best  to  the  generic  concept  of 
gender  equality  with  no  specific  actions  or  conditions  laid  down  to  provide  concrete 
assistance in realizing the objective. 

14
 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
The multi-annual financial framework 2014-2020 from a gender equality perspective 

A failure to adequately address gender equality issues could lead to  an attenuation of the 
attention  paid  to  women’s  rights  and  gender  equality.  In  particular  the  budget  provisions 
for ensuring that gender equality is promoted as a fundamental human right are proposed 
to  be  more  limited  under  the  next  MFF  and  could  furthermore  be  subject  to  reduction  if 
forced to compete with more pressing immediate policy concerns. 

In  view  of  the  potential  negative  effects  of  the  current  financial  and  economic  crisis  it  is 
also suggested that: 

	 

	 

	 

	 

instead of cuts to the budgets, at a minimum the same level of funding for gender 
equality as a fundamental right should be maintained for the period 2014-2020; 

it  is  vital  to  monitor  and  to  make  visible  any  changes  in  funds  directed  to  gender 
equality, particularly in the current and next phases of the crisis; 

the  impact  of  economic  and  social  developments  on  gender  equality  should  be 
monitored  and  assessed  in  order  to  safeguard  the  freedom  for  everyone  to  seek 
employment  and  choose  an  occupation,  provided  by  the  Charter  of  Fundamental 
Rights; 

the  EU’s  support  of  the  networks,  civil  organizations  and  stakeholders  working  to 
promote gender equality in order to increase awareness continues to be even more 
vital  if  women  are  to  be  empowered,  to  participate  in  the  smart,  sustainable  and 
inclusive growth announced by the 2020 EU strategy. 

External relations 

The  aim  of  this  paper  is  to  assess  the  extent  to  which  the  objectives  and  financial 
allocations proposed by the European Commission for the MFF 2014-2020 promote gender 
equality and women’s empowerment in the Union’s external relations. 

The EU is a major player on the international scenario and a key actor in global governance 
mechanisms  and  external  relations  are  a  major field  of  action  for  the  EU,  which  has  been 
reinforced by the new institutional framework foreseen by the Lisbon Treaty. The relevance 
of  EU’s  action  on  the  global  scene  has  important  implications  for  the  progression  of  the 
goals of gender equality worldwide. 

Although with notable differences, the status of women worldwide is characterized by very 
low  levels  of  well-being  in  terms  of  human  development  indicators  coupled  by  high 
inequality levels with respect to men. The most urgent gender equality challenges emerging 
from  the  international  debate  on  development  and  gender,  in  particular  covering  key 
objectives  of  the  Millennium  Development  Declaration  and  in  line  with  the  priorities 
identified by the main international agreements on gender equality, are (the list not being 
exhaustive): 

	 

	 

	 

Improve women’s access to education; 

Improve women’s economic, civil and political empowerment; 

Improve women’s health; 

	  End gender based violence. 

15
 

 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Policy Department C: Citizens' Rights and Constitutional Affairs 

These objectives are coherent with the EU external relations policies as emerging from the 
relevant  EU  documents:  gender  equality  is  a  fundamental  value  of  EU  external  relations 
and is integrated into its underlying policy documents, such as the European Consensus on 
Development (2005) and the Agenda for Change (2010). It is further supported by gender 
specific  strategies,  such  as  the  2007  Communication  on  Gender  Equality  and  Women’s 
Empowerment  in  Development  Cooperation  or  the  Guidelines  on  violence  against  women 
and girls and combating all forms of discrimination against them. 

On the contrary, the section of the Europe 2020 Strategy covering external policy does not 
bear explicit reference to gender equality priorities or objectives, the approach having been 
to  keep  Commission  and  Member  State  action  on  gender  equality  separate  from  the 
Strategy. 

External  action  funded  by  the  EU  budget  is  mainly  targeted  to  developing  and  emerging 
countries  in  Africa,  the  Middle  East,  Asia,  and  Latin  America,  through  the  Development 
Cooperation  Instrument,  the  European  Neighbourhood  Instrument,  the  Humanitarian  Aid 
Instrument and other smaller financial envelopes. 

As  it  can  be  evinced  from  the  proposed  underlying  Regulations,  most  programmes  under 
the  Global  Europe  Heading  of  the  MFF  2014-2020  identify  gender  as  one  of  the  areas  in 
which  support  actions  might  be  funded  and  identify  gender  equality  among  the  funding 
principles of their actions. 

External  relations  instruments  are  likely  to  have  a  positive  impact  on  the  objectives  of 
gender  equality  and  women’s  empowerment.  However,  these  instruments  and  underlying 
policies mostly rely on gender mainstreaming and fail to define clear financial allocations for 
reaching  the  gender  equality  targets.  A  clear  gender  strategy  does  not  emerge  from  the 
MFF  proposal  nor  the  legislative  package  for  external  actions  analyzed  and  it  is  therefore 
not possible to estimate the resources that will be allocated to achieving gender objectives. 
Key  actions  and  milestones  are  set  only  at  the  level  of  gender  specific  strategies  and  no 
clear indications have been found yet as to the level of compliance to these strategies. 

The implementation of gender equality interventions - and the relevant allocation of funds ­
will greatly depend on the extent to which a gender perspective is integrated in country and 
regional strategies and multiannual plans. 

The  lack  of  systematic  monitoring  and  evaluation  data  concerning  the  support  of  gender 
equality objectives by current external action instruments (both in terms of funding as well 
as  of  impact  and  effectiveness)  represents  a  further  obstacle  in  assessing  the  gender 
impact of MFF and related instruments concerns. 

16
 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
The multi-annual financial framework 2014-2020 from a gender equality perspective 

METHODOLOGICAL NOTE: GENDER BUDGETING 


KEY FINDINGS 


From  the  application  of  the  present  methodology  to  the  five  gender  relevant  issues  of: 
Economic 
Independence,  Education  and  Training,  Health/Well-being/Environment, 
Fundamental  Rights,  External  Relations,  there  are  some  methodological  results  that  are 
worth to be highlighted. 

  The EU Budget is suitable for gender budgeting, as it has been possible to conduct the 
analysis at least on programming documents achieving useful indications on the level of 
attention to the gender issue in these documents. 

  The  five  briefing  papers  anticipate  the  actual  introduction  of  gender  budgeting  in  the 

budgetary process of the European Union. 

  Gender budgeting is the application of gender mainstreaming to the budgetary process. 
As gender mainstreaming should take place at all levels of the process also the analysis 
of the gender dimension in the budgetary process ought to take place starting from the 
planning phase for the subsequent MFF. 

  At  present  for  many  programmes  information  from  a  gender  standpoint  in  planning  as 

well as on future implementation and evaluation are still lacking or are incomplete. 

  For introducing gender budgeting, an extensive and profound analysis and research from 
a  gender  perspective  should  be  conducted  by  all  Commission  DGs  already  at  the 
planning stage of the MFF for all policy programmes covering all policy fields.  

  In  particular,  to  promote  the  implantation  of  gender  budgeting  in  the  EU  budgetary 

process it is necessary to establish appropriate tools. 

	  Among  these  tools  a  gender  machinery1  is  pivotal  as  gender  budgeting  should  be 
conducted by qualified personnel with the necessary skills and expertise and supported 
by active civil society. 

1 

By  gender  machinery  is  meant  the  institutional  organization,  mechanisms  and  procedures  built  in  order  to 
support  the  promotion  of  gender  equality  in  the  policy  planning,  implementation  and  evaluation.  Gender 
sensitive  machinery  comprises  organisational  and  implementation  aspects  of  gender  sensitive  actions  as  well 
as awareness raising and public ownership within countries. 

17 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
                                                 
  
 
 
 
 
Policy Department C: Citizens' Rights and Constitutional Affairs 

1.  OBJECTIVES OF THE FIVE BRIEFING NOTES 

The  MMF  sets  the  overall  framework  against  which  policies  and  financial  flows  are  to  be 
regulated. It not only translates into financial flows the long-term political priorities of the 
Union as a whole, stating the policy areas in which the EU will invest more (or less) in the 
future. It also constitutes the main benchmark against which EU expenditures are projected 
over  its  5  to  7  years  time  span,  thus  providing  the  backbone  of  annual  EU  budgetary 
procedures. The MFF sets annual maximum amounts (or ceilings) for EU expenditure as a 
whole  and  for  the  main  categories  of  expenditure,  corresponding  to  the  EU  broad  policy 
areas  of  intervention  (headings);  in  this  way  it  also  ensures  budgetary  discipline  and  the 
orderly  development  of  EU’s  expenditure.  The  main  milestones  of  the  process  of  the 
approval of the MFF are shown in the diagram below: 

Figure 1: Main milestones of the process of approval of the MFF 

The European 
Commission publishes 
the MFF proposal 

29 June 2011 

EP and Council 
agree on the 
next MFF 

2012 

Adoption by co‐
decision of new 
legal bases 

2013 

Source: FGB elaborations 

The European Parliament, through the decisive input of the FEMM Committee, ensures that 
gender  equality  principles  promoted  by  the  European  Union  and  enshrined  in  its 
constitutive  acts,  are  respected  and  embodied  in  the  MFF  and  in  the  ordinary  legislative 
procedures concerning the implementation and functioning of the main programmes to be 
funded  within  its  framework.  In  order  to  express  its  informed  judgment  the  FEMM 
Committee needs a clear overview of the MFF in a gender perspective. 

The  gender  equality  principles  and  instruments  to  be  applied  are  tailored  to  this  specific 
and  delicate  phase  of  EU  policy  making  process  and  have  already  been  outlined  by  the 
European Parliament. In the recent Resolution on gender mainstreaming in the work of the 
European  Parliament2  prepared  by  FEMM  Committee,  the  EP  states  that  its  gender 
mainstreaming  policy  plan  for  the  coming  three-year  period  should  be  to  “achieve  more 
consistent and effective implementation of gender mainstreaming in all Parliament’s work”, 
on the basis of several priorities including “incorporation of gender analysis into all stages 
of  the  budgetary  process  to  ensure  that  women’s  and  men’s  needs  and  priorities  are 
considered  equally  and  that the  impact  of EU  resources  on  women  and  men  is  assessed”. 
Furthermore,  the  EP  asks  the  Commission  to  address  and  prioritize,  in  a  more  consistent 
and systematic manner, gender inequalities in the programming and implementation of all 
policies,  and  insists  that  mainstreaming  of  gender  issues  through  all  policies  must  be 
improved in order to achieve the goals of gender equality. 

The requests are further reinforced in the Final Report prepared by the SURE Committee, a 
special  parliamentary  committee  on  policy  challenges  and  budgetary  resources  for  a 
sustainable European Union after 2013, underlining the importance of gender budgeting 
as  a  good  governance  tool  to  improve  efficiency  and  fairness.  The  report  also 
stressed  the  importance  of  “proper  monitoring  of  how  budgetary  allocations  affect  the 

2 

P7_TA(2011)0515 of 17 November 2011, report A7-0351(2011), rapporteur Mikael Gustafsson. 

18
 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
                                                 
  
 
The multi-annual financial framework 2014-2020 from a gender equality perspective 

economic  and  social  opportunities  of  women  and  men,  and  flexibility  to  restructure  the 
ones that negatively affect the achievement of gender equality; the report states also that 
a  substantial  analysis  of  gender  issues  in  the  European  budget  planning  process  will 
improve  the  targeting  of  resources  in  such  a  way  that  equality  and  social  cohesion  are 
enhanced”3. 

On  the  basis  of  Article  312§2  TFEU  on  the  adoption  of  the  regulation  laying  down  the 
multiannual  financial  framework  and  the  legal  bases  of  the  different  financial  instruments 
for  its  implementation  providing  for  the  application  of  the  ordinary  legislative  procedure, 
like  Article  164  TFEU  for  the  European  Social  Fund  and  in  the  light  of  the  methodological 
context described above, the FEMM Committee will give an opinion concerning the adoption 
of the MFF and the relevant financial instruments. The briefing papers here presented are 
aimed at supporting the FEMM Committee in getting an overview of the impact on women’s 
rights  of  the  financial  instruments  and  programmes  to  be  implemented  within  the  MFF 
related  to  five  specific  issues:  Economic  Independence,  Fundamental  Rights,  External 
Relations,  Health/Well-being/Environment,  Education  and  Training,  so  as  to  collect 
qualitative and quantitative information that will help the Committee in forming a reasoned 
and circumstantial opinion on the subjects. In the five briefing papers the assessment from 
a  gender  perspective  of  the  proposals  for  the  MFF  2014-2020  is  conducted  applying  a 
gender budgeting methodology developed for this purpose. For each of the five themes all 
documents related to the MFF 2014-2020 proposal presented by the European Commission4 
are accurately scrutinised in order to identify gender specific objectives and related targets 
and the respective policy tools to achieve them, so to highlight the overall gender strategy 
adopted for each of the five themes.  

2.  GENDER BUDGETING: AN INTEGRAL PART OF GENDER 

MAINSTREAMING AND GOOD GOVERNANCE 

2.1. 

Gender mainstreaming 

"Gender mainstreaming is the (re)organisation, improvement, development and evaluation 
of policy processes, so that a gender equality perspective is incorporated in all policies at all 
levels  and  all  stages,  by  the  actors  normally  involved  in  policy-making"5.  Gender 
mainstreaming  differs  substantially  from  positive  actions.  The  latter  aims  at  mitigating 
unequal  conditions  and  at  facilitating  equality  for  (specific  groups)  by  creating  conditions 
that  will  result  in  equality  in  outcome  in  order  to  counterbalance  the  unequal  starting 
positions of men and women in societies. The starting point for the strategy of specific or 
targeted gender equality policies is the recognition that all citizens cannot always use equal 
rights to the same extent, because of persistent gender inequalities in societies. 

Gender  mainstreaming  and  positive  actions  have  been  traditionally  regarded  alternative 
approaches  as  they  are  rooted  in  different  theoretical  perspectives  to  gender  issues. 
However,  they  are  both  gender  equality  strategies  which  can  be  condidered  as 
complementary  and  assumed  alternatively  in  different  conditions  to  achieve  different 
objectives. 

3  A7-0193/2011 by rapporteur Salvador Garriga Polledo, T7_0266/2011. 
4 

Legislative proposals for each of the five themes are available at: 
http://ec.europa.eu/budget/reform/commission-proposals-for-the-multiannual-financial-framework-2014­
2020/index_en.htm. 

5  Quinn  S.,  (2009)  Gender  budgeting:  practical  implementation,  Handbook  prepared  by  Sheila  Quinn, 

Directorate General of Human Rights and Legal Affairs, Council of Europe, page5, full text available at: 
http:/www.coe.int/t/dghl/standardsetting/equality/03themes/gender-mainstreaming/CDEG(2008)15_en.pdf. 

19
 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
                                                 
  
 
  
  
 
 
 
 
Policy Department C: Citizens' Rights and Constitutional Affairs 

According  to  some  authors6,  gender  mainstreaming  is  a  very  powerful  tool  as  it  relocates 
gender equality from a "ghetto" position into the mainstream. More generally, compared to 
positive  actions,  gender  mainstreaming  has  been  assumed  at  EU  level  a  more  effective 
policy  tool  to  overcome  the  relevant  gender  inequalities  that  still  exist  in  societies. 
Therefore, the room for positive actions has been gradually reduced in favour of enhanced 
gender  mainstreaming  which  was  supposed  to  become  the  only  strategy  for  promoting 
equal  opportunities  for  women  and  men  in  EU  in  the  future.  Data  on  financial  decisions 
taken at the programming stage for Structural Funds substantiate the last assertion: in the 
case  of  ESF  much fewer  resources  have  been allocated  to  specific  gender-equality  actions 
in the 2007-20137. 

However,  the  choice  of  favoring  the  gender  mainstreaming  strategy  has  been  largely 
debated  since,  as,  according  to  results  from  evaluations8,  expectations  on  consistent 
reductions  of  gender  imbalances  in  European  societies  were  not  met.  Some  scholars  take 
the  view  that  gender  mainstreaming,  instead,  has  been  used  as  an  alibi  for  neutralizing 
positive  actions9  and  to  further  reduce  existing  funds  and  incentives  for  gender  equality, 
especially in the case of Structural Funds10. 

The  main  point,  however,  is  that  gender  mainstreaming  has  not  been  actually 
implemented,  yet.  Being  an  overall  strategy  that  involves  all  governance  levels  it  needs 
adequate tools including gender machinery11 and gender surveillance/evaluation as well as 
clear and defined overall, intermediate and specific objectives and corresponding targets. 

Finally,  as  the  budget  is  the  most  important  economic  policy  instrument  of  government, 
decisions  on  the  budget  taken  assuming  a  gender  perspective  appear  to  be  pivotal  to  the 
application of the gender mainstreaming strategy. 

2.2.  Main concepts and understanding of gender budgeting 

Gender  budgeting  can  be  defined  as  an  application  of  gender  mainstreaming  in  the 
budgetary  process.  It  means  a  gender-based  assessment  of  budgets,  incorporating  a 
gender  perspective  at  all  levels  of  the  budgetary  process  and  restructuring  revenues  and 
expenditures in order to promote gender equality12. 

The European Union’s commitment to gender budgeting was also reflected in the Roadmap 
for  Equality  between  Women  and  Men  (2006-2010)13,  which  considered  gender  budgeting 
as  a  tool  for  the  implementation  of  gender  equality.  Furthermore,  it  stated  that  the 
Commission would support gender budgeting and gender impact assessment. In 2009 the 

6	  See Verlo M. (2005), Displacement and Empowerment: Reflections on the Concept and Practice of the Council 
of  Europe,  Approach  to  Gender  Mainstreaming  and  Gender  Equality,  pp.  344-365  in  Social  Politics: 
International Studies in Gender, State and Society, Volume 12, number 3, fall 2005. 

7  See  the  2011  evaluation  report  "Evaluation  of  the  European  Social  Fund's  support  to  Gender  Equality", 

available at: http://ec.europa.eu/social/BlobServlet?docId=6643&langId=en. 

8  See  also  the  2011  evaluation  report  "Evaluation  of  the  European  Social  Fund's  support  to  Gender  Equality", 

available at: http://ec.europa.eu/social/BlobServlet?docId=6643&langId=en. 

9  See  among  others  M.  Stratigaki  "Gender  mainstreaming  vs  Positive  Action  An  ongoing  Conflict  in  EU  Gender 

Equality Policy" in European Journal of Women's Studies 12, 2 (2005), 165-186. 

10  Rossili, Mariagrazia (ed.), 2000. Gender Policies in the European Union. New York: Peter Lang. 
11  By  gender  machinery  is  meant  the  institutional  organization,  mechanisms  and  procedures  built  in  order  to 
support  the  promotion  of  gender  equality  in  the  policy  planning,  implementation  and  evaluation.  Gender 
sensitive  machinery  comprises  organisational  and  implementation  aspects  of  gender  sensitive  actions  as  well 
as awareness raising and public ownership within countries. 

12  Advisory Committee on Equal Opportunities for Women and Men “Opinion on Gender Budgeting”, May 2003. 
13  EC COM(2006) 92 final. 

20
 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
                                                 
  
 
 
 
 
 
 
 
  
 
  
 
 
 
  
 
 
  
 
  
 
 
 
 
  
  
 
The multi-annual financial framework 2014-2020 from a gender equality perspective 

Council  of  Europe  published  a  handbook  on  the  practical  implementation  of  gender 
budgeting14. 

Gender  budgeting  is  still  relatively  new  in  the  EU15,  although  today  we  can  observe  a 
growing number of initiatives in EU countries, as well as efforts at the EU level. For instance 
Austria  has  included  gender  equality  as  one  fundamental  aim  of  public  sector  budgeting 
and  accounting  in  the  Austrian  Federal  Constitution  within  the  framework  of  a 
comprehensive  budget  reform  as  of  2009.  These  commitments  have  to  be  translated  into 
action by governments at all levels. It has to be recognised that gender equality issues are 
relevant  for  the  work  of  all  ministries  and  all  programmes,  concerning  all  types  of  public 
spending and income, not only in the areas that specifically aim at improving the position of 
women. 

Gender budget initiatives go beyond the assessment of programmes targeted specifically at 
women and girls and seek to raise awareness and understanding that budgets will impact 
differently on women and men because of their different social and economic positioning. 

2.3. 

Elements of gender budgeting 

The feminist economist Rhonda Sharp was the first to formulate a theoretical framework for 
gender budgeting in relation to Australia’s Women’s Budget that came under way already in 
1984. She identifies three categories of public expenditure16: 

-
-
-

Expenditure specifically targeted at women
 
Equal opportunity initiatives in the public sector 

Gender impact assessment of mainstream budget expenditure 

The UK expert Diane Elson identifies three levels for analysis by gender budget initiatives17: 

1.  Aggregate macro-economic strategy 
2.  Composition of expenditures and revenues 
3.  Effectiveness of service delivery 

The focus of gender budgeting is twofold. In a first step it concentrates on the analysis of 
gender-disaggregated effects of public revenues and expenditures. Based on the results of 
this analysis, gender budgeting aims to modify budget structures and processes in a second 
step  so  as  to  foster  gender  equality.  It  should  be  noted  that  gender  budgeting  does  not 
exclusively  aim  at  programs  specifically  targeted  to  women  and  that  it  does  not  aim  at 
producing a separate “women’s budget” either. Gender budgeting rather intends to analyse 
the  impact  of  all  government  programs  and  policies  on  the  expenditure  as  well  as  on  the 

14	  Gender  Budgeting:  practical  implementation,  Handbook  prepared  by  Sheila  Quinn,  Directorate  General  of 

Human Rights and Legal Affairs, Council of Europe, April 2009. Available at:   
http://www.coe.int/t/dghl/standardsetting/equality/03themes/gender-mainstreaming/CDEG(2008)15_en.pdf. 
15	  In 2008 no Member State had introduced the Gender Budgeting in its Budget procedures, yet, as reported in 
the  Study  to  assess  the  feasibility  and  options  for  the  introduction  of  elements  of  gender  budgeting  into  EU 
budgetary  process.  European  Commission  DG  Budget  Specific  contract  ABAC  132007,  under  framework 
Contract BUDG 06/PO/01/Lot 002?ABAC-101922. 

16	  Budlender D. and Sharp R., (1998) How to do a gender-sensitive budget analysis: Contemporary research and 

practice, Commonwealth Secretariat available at:  
http://www.thecommonwealth.org/shared_asp_files/uploadedfiles/%7B1171EF87-2C5C-4624-9D76­
B03CF35F4E65%7D_AusAIDTr.pdf. 

17	  Budlender D. and Sharp R., (1998) How to do a gender-sensitive budget analysis: Contemporary research and 

practice, Commonwealth Secretariat available at : 
http://www.thecommonwealth.org/shared_asp_files/uploadedfiles/%7B1171EF87-2C5C-4624-9D76­
B03CF35F4E65%7D_AusAIDTr.pdf. 

21
 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
  
 
 
 
 
 
 
 
 
 
 
                                                 
  
 
 
  
 
 
 
 
 
 
 
 
  
 
 
  
 
 
 
 
 
Policy Department C: Citizens' Rights and Constitutional Affairs 

revenue side of the budget with respect to the situation of men and women, in other words 
a “gender-sensitive budgeting”. 

The  researcher  Rhonda  Sharp  identifies  three  interdependent  and  hierarchical  goals  that 
show  the  interconnection  between  a  gender  analysis  of  budgets  and  gender-sensitive 
budgets18: 

Figure 2: Three goals of a gender analysis of budgets and gender sensitive 
budgets 

Awareness raising about the differential impact of fiscal 
measures and budgets on women and men 

Raising the accountability of budgets 

Changing and refining budgets according to the 
goal of gender equality 

A  gender  budgeting  initiative  always  involves  a  gender  analysis  of  some  dimension  of  the 
raising  and  use  of  public  money.  But  there  is  no  single  way  of  doing  this.  There  are  a 
number of analytical tools that can be used and adapted for particular circumstances. The 
most  used  tools  are  those  drawn  up  by  Diane  Elson  in  ‘Integrating  Gender  Issues  into 
National  Budgetary  Policies  and  Procedures:  Some  Policy  Options’  (1998);  Debbie 
Budlender  and  Rhonda  Sharp’s  ‘How  to  do  a  gender-sensitive  budget  analysis: 
contemporary research and practice’ (1998); R.Fitzgerald’s ‘Toolkit for Mainstreaming Equal 
Opportunities  for  Women  and  Men  into  the  Structural  Fund  Programmes  in  Scotland’, 
Prepared  for  Scottish  Executive  and  Equal  Opportunities  Commission  (1999).  In  2002, 
Debbie  Budlender  brought  together  a  very  comprehensive  and  descriptive  review  of  the 
gender  budgeting  work  being  done  around  the  world  in  the  publication  'Gender  Budgets 
Make  Cents'  (2002).  Since  then  many  new  developments  and  initiatives  have  been 
recorded at the member state level. 

Gender  budgeting  is  about  changing  public  budgets  so  that  they  contribute  to  the  aim  of 
gender  equality.  Budgets  are  pivotal  to  the  policy-making.  If  the  commitment  towards 
gender mainstreaming is taken seriously, i.e. to integrate a gender dimension into all policy 
areas, then gender sensitive budgets should be the first gender mainstreaming initiative to 
be taken. 

2.4.	 

Gender  Budgeting  for  gender  mainstreaming  and  good 
governance 

Moreover, in recent years, and especially in the context of globalisation, there has been a 
resounding call for measures of good governance. The “White Paper on Governance in the 

18  Rhonda Sharp (2002) “Gender Budgets, Financial Markets and Financing for Development”, a video conference. 

22
 

 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
                                                 
  
  
The multi-annual financial framework 2014-2020 from a gender equality perspective 

European  Union”  (2001),  for  example,  mentions  that  the  Union  should  “seek  to  apply  the 
principles  of  good  governance”  and  calls  upon  the  EU  to  open  up  “the  policy-making  
process to get more people and organisations involved in shaping and delivering EU policy” 
and  to  promote  “greater  openness,  accountability  and  responsibility  for  all  those 
involved.”19 Introducing gender-sensitive budget analysis is, among other measures, a way 
of  introducing  more  participation,  transparency  and  accountability  in  budgetary  policies. 
Gender budgeting is therefore an integral part of good governance strategy.  

2.5. 

Gender budgeting on the European level 

In 2008 the European Commission Directorate-General for Budget commissioned a study to 
assess the feasibility and options for the introduction of elements of gender budgeting into 
the EU budgetary process20. It confirmed that despite its unique features, the EU budget is 
suitable for gender budgeting and that gender budgeting can be applied at all steps of the 
budgeting process from the planning and preparation to the auditing and evaluation of the 
EU budget. The approach need to be adopted at first in the MFF and then in the annual SPP 
(Strategic Programming and Planning Cycle21), because of the fixed nature of the budgets 
over  the  financial  framework  period.  In  the  study  it  was  highlighted  that  Commission 
officials  as  well  as  participants  in  the  focus  group  for  the  study  support  agreed  that  the 
analysis of the gender dimension in the budgetary process ought to take place especially in 
the planning phase for the subsequent multi-annual financial framework. 

The MFF will be adopted by the Council by a special legislative procedure after consent of 
the European Parliament, and the different financial instruments for the implementation of 
the MFF will be adopted by the ordinary legislative procedure. 

The present study is therefore an exercise that anticipates the actual introduction of gender 
budgeting in the budgetary process of the European Union. This seems still a final goal far 
from being achieved. For introducing gender budgeting, an extensive and profound analysis 
and  research  from  a  gender  perspective  would  have  to  be  conducted  by  all  Commission 
DGs  already  at  the  planning  stage  of  the  MFF.  In  particular,  these  exercises  should  be 
conducted by qualified personnel with the necessary skills and expertise. 

3.  METHODOLOGY  

3.1. 

The overall approach 

The overall goal of the assignment is to provide the FEMM Committee with an overview of 
the  potential  impact  of  the  European  Commission  proposals  on  women’s  rights  and  the 
advancement  of  gender  equality  within  the  MFF  with  respect  to  Economic  Independence, 
Fundamental  Rights,  External  Relations,  Health/Well-being/Environment,  Education  and 
Training.  The  analysis  aims  to  present  the  financial  instruments  proposed  and  shall  make 
use of gender budgeting principles. 

On  the  basis  of  the  overview  of  gender  budgeting  instruments  and  tools  presented  in  the 
previous  section  2.,  the  following  original  methodological  approach  common  to  the  5 

19  EC COM(2001) 428 final. Available at:

http://eur-lex.europa.eu/LexUriServ/site/en/com/2001/com2001_0428en01.pdf. 

20  Study  to  assess  the  feasibility  and  options  for  the  introduction  of  elements  of  gender  budgeting  into  EU 
budgetary  process.  European  Commission  DG  Budget  Specific  contract  ABAC  132007,  under  framework 
Contract BUDG 06/PO/01/Lot 002?ABAC-101922. 
21  See http://ec.europa.eu/atwork/cycle/index_en.htm. 

23
 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
                                                 
  
 
  
 
 
 
 
 
 
 
 
  
 
 
Policy Department C: Citizens' Rights and Constitutional Affairs 

Briefing  Papers  that  is  tailored  on  the  specific  requests  of  the  FEMM  Committee  of  the 
European Parliament has been elaborated. It aims at:  

identifying the implicit and explicit gender issues;
 
identifying the allied resource allocations; and; 


 
 
  assessing whether the policy will continue or change existing inequalities between
 
men and women (and groups of men and women) , boys and girls and patterns of 
gender relations. 

The  approach  adopted  can  be  considered  as  a  Gender-aware  policy  appraisal22  type, 
following the gender budgeting methodology classification laid down by Elson23, in order to 
develop an analysis which reflects an understanding of the policy’s gendered implications. 

The methodology seeks to answer to three Research Questions:  

1.	  WHO will benefit from the policy intervention? 
2.	  HOW MUCH will be allocated for the policy intervention? AND HOW will it be 


allocated among the different financial tools of the European Union?
 

3.	  WHAT is the potential gender impact of the policy intervention? 

In correspondence, the research will proceed in three steps: 

1.	  Context Analysis (WHO?); 
2.	  Gender budget analysis of the budget allocated for the policy intervention (HOW 

MUCH AND HOW?); 

3.	  Potential Gender-Impact Assessment (WHAT?). 

In the following section we discuss the methodological steps in further details. 

3.2. 

Context Analysis 

First, a Context Analysis is carried out, in order to identify and quantify the gender equality 
challenges  for  each  of  the  five  themes  (Gender-sensitive  objectives)  across  the  European 
Union. The main elements that need to be identified in the Context Analysis are24: 

a)	 

the  main  differences  for  women  and  men  in  the  outcome  of  the  theme-related 
policies; 

b)	 

the  likely  causes  of  the  inequalities  identified  under  a),  with  particular  focus  on 
inequalities  of  resources  (money,  time,  space,  information,  political  and  economic 
power, qualifications, transport, and use of public services); 

22  The techniques that can be utilized to develop Gender-aware policy appraisal include: 

 

 
 

a checklist of questions for assessing the policy, including checking the gendered assumptions of the 
policy against the evidence; 
a discussion of events, activities and associated budget allocations generated by the policy; and 
checking the policy against its stated aims and performance objectives. 

23	  For more details  see: Elson,  D.  (1997), 'Tools for gender  integration  into macroeconomic policy'  in  Link  in  to 
Gender and Development, 2, Summer, p.13. See also Budlender D. and Sharp R., (1998) How to do a gender-
sensitive budget analysis: Contemporary research and practice, Commonwealth Secretariat available at: 
http://www.thecommonwealth.org/shared_asp_files/uploadedfiles/%7B1171EF87-2C5C-4624-9D76­
B03CF35F4E65%7D_AusAIDTr.pdf. 

24	  The present classification Gender Impact Assessment, EC, Internet-based collection of materials for Evaluating 

Socio Economic Development, available at: 
http://ec.europa.eu/regional_policy/sources/docgener/evaluation/evalsed/sourcebooks/method_techniques/co 
nducting_impact_assessments/gender/index_en.htm. 

24
 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
                                                 
  
 
 
 
 
  
 
 
 
 
 
 
 
  
 
 
 
The multi-annual financial framework 2014-2020 from a gender equality perspective 

c)	 

the main norms and values which influence gender roles and the gender division of 
labour  (gender  stereotypes),  in  order  to  assess  the  potential  impact  that  policy 
interventions may have for their modification; 

d)	 

the direct or indirect potential impact of policies on inequalities in society. 

The Context Analysis on the specific theme has been conducted by a systematic work-desk 
review on existing documents and data. At this step also future risks and past trends have 
been  taken  into  account  to  determine  the  main  priorities  to  be  considered  in  the  policy 
intervention  to  actively  promote  gender  equality  and  increase  positive  impact  on  women 
and men. This analysis will be supported by sound and recent data and information that are 
already available. 

At the end of the Context Analysis, a list of ‘Gender-sensitive Objectives’, that are expected 
to  be  taken  into  consideration  within  the  MFF  for  the  specific  theme,  is  presented.  This 
‘Gender-sensitive Objectives’ list is compared to the ‘Gender-sensitive Objectives’ that can 
be highlighted in the ‘EU 2020 Strategy’ and in the ‘Strategy for equality between women 
and  men  2010-2015’  for  the  specific  theme  in  “Table  1:  Gender  Objectives  for  the 
specific  theme”.  The  MFF,  in  fact,  is  designed  to  deliver  the  goals  of  the  EU  2020 
Strategy25 therefore the documents related to the EU2020 Strategy are the main reference 
for  the  analysis  of  the  MFF  goals,  while  the  Strategy  for  Equality  2010-2015  is  the  main 
reference for the EU approach to gender equality. 

"Table 1: Gender Objectives for the specific theme" provides very useful information on the 
two  strategies  as  it  shows  the  correspondence  between  the  ‘Gender-sensitive  Objectives’ 
for  the  specific  theme  emerged  from  the  Context  Analysis    and  those  contained  in  the 
Strategy for Equality 2010-2015 and in the Strategy EU 2020. It also shows whether and to 
what extent the ‘Gender-sensitive Objectives’ highlighted in the two strategies are going to 
be implemented according to the MFF   

The  Table  follows  the  structure  below  (the  X  in  the  table  represent  a  sample  of  the  final 
result): 

Table 1: Gender Objectives for the specific theme  

Gender Objective 

Context 
Analysis 

Gender Objective 1 
Gender Objective 2 
Gender Objective.... 
Gender Objective x 

X 
X 
X 
X 

Strategy for 
Equality 2010­
2015 
X 
X 

EU 2020 
Strategy 

X 
X 

25	  “This is an innovative budget. I invite you to look beyond the traditional headings and focus on how throughout 
the budget we will deliver the Europe 2020 goals that we have collectively defined”. In “A Budget for Europe 
2020” Communication from the Commission to the European Parliament, the Council, the European Economic 
and Social Committee and the Committee of the Regions page 1:
http://ec.europa.eu/budget/library/biblio/documents/fin_fwk1420/MFF_COM-2011-500_Part_I_en.pdf. 

25
 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
                                                 
  
 
 
 
 
 
 
 
 
Policy Department C: Citizens' Rights and Constitutional Affairs 

3.3. 

Gender  analysis  of  the  budget  allocated  for  the  policy 
intervention adopting a gender budgeting methodology 

In  a  second  step,  an  overall  gender  budget-based  evaluation  of  the  programmes  and 
financial  instruments  of  the  MFF  for  the  Gender  Sensitive  Objective  identified  above  has 
been  carried  out  provided  that  the  information  available  has  been  sufficient.  More 
specifically the analysis has been conducted adopting a desk-based research in three sub-
steps: 

a.	  Discussing,  if  the  information  available  will  be  sufficient26,  the  choice  of  each 

financial instruments adopted to fund the policy intervention focusing on: 

i.  how the total amount is allocated among the financial instruments;  
ii.  whether  the  programming  documents  already  available  for  each  financial 

instrument reflect the gender perspective or not and to what extent; 

iii.  the  	policy  interventions  by  different  Gender  Sensitive  Objective  and 
corresponding financial instrument so as to highlight the amount provided for 
each Gender Objective.  

b.	  Assessing27, if the information available has been sufficient: 

i.  the  expected  adequacy  of  each  financial  instrument	  in  internalising  the 
overall  ‘gender  strategy’28  (mainly  extrapolating  information  from  existing 
the  previous 
financial 
gender  evaluations  of  each 
programming period and apply this information to the present one); 

instrument 

for 

ii.	  and  the  expected  effectiveness  of  each  financial  instrument  in  internalising 
the  overall  ‘gender  strategy’  (mainly  extrapolating  information  from  existing 
gender  evaluations  of  each 
the  previous 
financial 
programming period and apply this information to the present one). 

instrument 

for 

c.	  Summarising,  if  the  information  available  have  been  sufficient,  the  results  of  the 
previous step and formulate an overall judgment on the adequacy and effectiveness 
of the overall ‘gender strategy’ in the MFF. 

26 	 Information  available  by  policy  issue  on  the  EC  web-page  http://ec.europa.eu/budget/reform/commission­

proposals-for-the-multiannual-financial-framework-2014-2020/index_en.htm. 

27   The  analysis  will  also  take  fully  into  account  the  specific  European  context  framing  the  MFF  2014-2020. 
Specifically,  the  Commission  Communication  introducing  the  ‘Budget  for  Europe  2020’ 
(available  at 
http://europa.eu/press_room/pdf/a_budget_for_europe_2020_en.pdf  )  makes  clear  that  the  document  is 
attempting  to  break  new  ground  in  many  respects,  as  well  as  to  correct  shortcomings  of  the  previous 
approach.  The 'Budget for Europe 2020' document stresses two aspects: (a) synergy with national budgets in 
an  attempt  to  magnify  the  leveraging  potential  of  Community  expenditure  and  (b)  simplification  in  those 
administrative procedures which may have served as entry barriers for smaller applicants. These differences in 
approach  could  have  important  implications  for  the  gender  impact  of  expenditure,  compared  to  the  previous 
situation.  For  example,  simplified  procedures  may  allow  an  impact  free  of  gender  bias  of  a  particular 
instrument. In contrast, the emphasis on efficiency and conditionality may imply that some candidates may be 
unable to compete, unless they benefit from actions promoting administrative capacity which are envisaged in 
the Commission document. 
In  practice  this  means  that  the  gender  budgeting  exercise  should  also  compare  the  impact  of  the  new 
programme with that of the one currently in operation (2007-2013). 

28	  Here, gender strategy is the result of the combination of gender mainstreaming and positive action. It should 
be highlighted that, after evaluation of the previous programming period, positive action has been reduced in 
favour  of  enhanced  gender  mainstreaming  which  was  supposed  to  become  the  only  strategy  for  promoting 
equal opportunities for women and men in the future. However, this choice has been largely debated since, as 
expectations were not met. Some take the view that gender mainstreaming, aimed at transforming policies by 
introducing a gender equality perspective at all levels and in all policy areas has rather been used as an alibi 
for  neutralizing  positive  action;  see  among  others  M.  Stratigaki  ‘Gender  Mainstreaming  vs  Positive  Action  An 
Ongoing Conflict in EU Gender Equality Policy’ in European Journal of Women's Studies 12, 2 (2005), 165-186. 

26
 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
                                                 
 
 
  
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
The multi-annual financial framework 2014-2020 from a gender equality perspective 

Information  collected  at  this  step  including  the  budgetary  dimensions  when  sufficient  are 
summarised  in  “Table  2:  Budgeting  Gender  Objectives”  that  follows  the  structure 
below: 

Table 2: Budgeting the Gender Objectives 

Policy/ 
financial 
instrument 

Policy/ 
financial 
instrumen 
t 1 

Policy/ 
financial 
instrumen 
t 2 

Policy/ 
financial 
instrumen 
t ... 

Policy/ 
financial 
instrumen 
t x 

Summary 
(by 
Gender 
Objective) 

Gender 
Objective 
Gender  Objective 
1 

Amount 
provided 

Amount 
provided 

Amount 
provided 

Amount 
provided 

Gender  Objective 
2 

Amount 
provided 

Amount 
provided 

Amount 
provided 

Amount 
provided 

Gender 
Objective.... 

Amount 
provided 

Amount 
provided 

Amount 
provided 

Amount 
provided 

Gender  Objective 
x 

Amount 
provided 

Amount 
provided 

Amount 
provided 

Amount 
provided 

(by 

Summary 
policy/financial 
instrument) 

Total 
Amount 
provided 

Total 
Amount 
provided 

Total 
Amount 
provided 

Total 
Amount 
provided 

Total 
Amount 
provided 
Total 
Amount 
provided 
Total 
Amount 
provided 
Total 
Amount 
provided 
Total 
Amount 
provided 

In the 5 briefing papers, this table provides for an overall view on the degree of application 
of  a  gender  strategy  with  particular  attention  to  gender  mainstreaming.  As  mentioned 
above,  in  many  official  documents  of  the  EU  it  is  strongly  recommended  to  implement  a  
gender  mainstreaming  strategy  at  every  single  step  of  the  policy-making  procedure 
(design, implementation and evaluation). 

Unfortunately, in some cases information available has not been sufficient to complete the 
table.  As  this  information  is  very  important  for  the  assessment  of  gender  equality,  the 
European Commission should be able to provide this information in the future. 

3.4. 

Potential Gender-Impact Assessment 

In  the  third  and  final  step  and  when  the  information  available  has  been  sufficient  a 
potential Gender-Impact Assessment of proposed policy interventions on 'Gender-Sensitive 
Objectives'  identified  for  each  specific  theme  during  the  first  step  (Context  Analysis)  has 
been  carried  out.  This  has  been  done  by  identifying/capturing  the  potential  impact  of 
relevant  proposed  policy  within  the  MFF  and  related  single  documents  for  each  specific 
theme. To this aim, two sub-steps have been considered: 

1- assessment of the potential direct impact of the policy interventions on each Gender 

Sensitive Objective; 

2- assessment  of  the  potential  indirect  impacts  of  the  policy  interventions  on  each 

Gender Sensitive Objective. 

27
 

 
 
 
 
 
 
 
  
        
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Policy Department C: Citizens' Rights and Constitutional Affairs 

On the basis of this analytical description, the synthetic assessment of the gender impact is 
elaborated and, if applicable, also its magnitude. 

The impact can be: 

  positive; 

  negative; 

  no impact; 

  no info available;
 
 

counterbalancing impact (both positive and negative). 


As regards its magnitude, it can be:  

  very high; 

  high; 

  average (impacting similarly on all women and men); 

  no info available.
 

In  addition  and  when  the  information  has  been  sufficient,  an  additional  Gender  Impact 
Assessment  has  been  carried  out  by  formulating  Specific  Questions  according  to  the 
following criteria: 

	  Relevance (to what extent are the programme objectives justified in relation to the 

Gender Sensitive Objective?); 

	  Effectiveness  (to  what  extent  Gender  Sensitive  Objectives  can  be  achieved  or  the 
expected effects be produced? Could “more or better” effects be obtained by using 
different instruments?); 

	  Adequacy (are the policy interventions adequate to the Gender Sensitive Objective?) 

	  Efficiency (will the objectives be achieved at the lowest cost?); 

	  Utility  (will  the  expected  or  unexpected  effects  be  globally  satisfactory  from  the 

point of view of direct or indirect beneficiaries?); 

	  Sustainability  (will  the  results  and  impacts  including  institutional  changes  durable 

over time? will the impacts continue if there is no more public funding?). 

28
 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
  
The multi-annual financial framework 2014-2020 from a gender equality perspective 

4.  REFERENCES 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

Advisory Committee on Equal Opportunities for Women and Men Opinion on Gender 
Budgeting, May 2003 

Budlender  D.  and  Sharp  R.,  (1998)  How  to  do  a  gender-sensitive  budget  analysis: 
Contemporary  research  and  practice,  Commonwealth  Secretariat  available  at 
http://www.thecommonwealth.org/shared_asp_files/uploadedfiles/%7B1171EF87­
2C5C-4624-9D76-B03CF35F4E65%7D_AusAIDTr.pdf 

Elson, D. (1997), Tools for gender integration into macroeconomic policy in Link in 
to Gender and Development, 2, Summer, p.13. 

European Commission (2001) European Governance: A White Paper, Brussels 2001, 
final, 
COM(2001) 
lex.europa.eu/LexUriServ/site/en/com/2001/com2001_0428en01.pdf 

http://eur­

available 

428 

at: 

European  Commission  (2006)  A  Roadmap  for  equality  between  women  and  men, 
Communication  from  the  Commission  to  the  Council,  the  European  Parliament,  the 
European  Economic  and  Social  committee  and  the  Committee  of  the  Regions”, 
Commission of the European Communities 2006/275. 

European  Commission  (2011)  A  Budget  for  Europe  2020  -  Part  II:  Policy  fiches, 
Communication  from  the  Commission  to  the  European  Parliament,  the  Council,  the 
European  Economic  and  Social  Committee  and  the  Committee  of  the  Regions, 
Brussels, 29.6.2011 COM(2011) 500 final. 

European  Council  (2011)  Council  conclusions  on  the  European  Pact  for  gender 
equality  for  the  period  2011  –  2020,  Press  Release  of  3073rd  Council  meeting. 
at 
Brussels 
http://www.consilium.europa.eu/uedocs/cms_data/docs/pressdata/en/lsa/119656.p 
df 

Available 

March 

2011. 

European  Parliament  (2010)  Investing  in  the  future:  a  new  Multiannual  Financial 
Framework  (MFF)  for  a  competitive,  sustainable  and  inclusive  Europe,  Report 
prepared  by  the  SURE  Committee,  A7-0193/2011  by  rapporteur  Salvador  Garriga 
Polledo, T7_0266/2011. 

European  Parliament  (2011)  Opinion  of  the  Committee  on  Women's  Rights  and 
Gender  Equality  for  the  Committee  on  Budgetary  Control,  2010/2142(DEC), 
Rapporteur: Iratxe García Pérez 

European Parliament (2011) Resolution on gender mainstreaming in the work of the 
European  Parliament,  prepared  by  FEMM  Committee,  P7_TA(2011)0515  of  17 
November 2011, report A7-0351(2011), rapporteur Mikael Gustafsson. 

	  Quinn S., (2009) Gender Budgeting: practical implementation, Handbook prepared 
by Sheila Quinn, Directorate General of Human Rights and Legal Affairs, Council of 
Europe, page 5. 

	 

Rhonda  Sharp  (2002)  “Gender  Budgets,  Financial  Markets  and  Financing  for 
Development”, a video conference. 

29
 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Policy Department C: Citizens' Rights and Constitutional Affairs 

	 

	 

	 

Rossili, Mariagrazia (ed.) (2000) Gender Policies in the European Union. New York: 
Peter Lang. 

Stratigaki, M (2005) Gender Mainstreaming vs Positive Action An Ongoing Conflict in 
EU Gender Equality Policy in European Journal of Women's Studies 12, 2, 165-186. 

Verloo M. (2005) Displacement and Empowerment: Reflections on the Concept and 
Practice  of  the  Council  of  Europe  Approach  to  Gender  Mainstreaming  and  Gender 
Equality,  pp.  344-365  in  Social  Politics:  International  Studies  in  Gender,  State  and 
Society. Volume 12, number 3, fall 2005. 

30
 

 
 
 
 
 
 
 
 
 
 
The multi-annual financial framework 2014-2020 from a gender equality perspective 

BRIEFING NOTE ON ECONOMIC INDEPENDENCE 

1.  CONTEXT ANALYSIS 

1.1. 

The starting point: describing the context 

Before  embarking  on  a  detailed  analysis  of  interventions  and  budget  allocations  it  is 
important  to  take  stock  of  the  starting  point,  in  order  to  be  able  to  gauge  the  effect  and 
relative importance of the initiatives covered. 

Economic  independence  of  women  and  men  is  possibly  the  oldest  of  the  gender-
sensitive goals on which progress over time shows a string of successes29. This progress is 
the result of two kinds of developments: long term structural changes to the economy and 
society,  on  the  one  hand,  and  conscious  policy  interventions,  on  the  other.  Some  policy 
interventions  can  work  to  unblock  societal  changes,  in  which  case  budget  outlays  can  be 
one-off and need not continue through time. Other, less well-designed, policy interventions 
achieve  their  targets  only  if  expenditure  continues  through  time30.    It  is  the  task  of 
evidence-based policy making to use the diagnosis of the problem (characterisation of the 
obstacles to economic independence at the starting point, as well as the reasons for those 
obstacles), in order to select and design programmes that will have a lasting effect. Policies 
towards  economic  independence  should  unlock  people’s  potential;  they  should  not  spend 
funds simply to prevent roll-back through subsidies. 

1.2. 

Gender inequality in the area of economic independence 

The economic situation of women may be summarised as follows31: 

A.	  Taking  the  long  view,  more  women  are  in  paid  work:  Women’s  employment  rates 

have markedly increased since the mid-90s. 

B.	  Despite this progress, gender gaps persist: women’s employment rates vary widely 

across countries, 

C.  Employment rates are low for mothers of young children. 
D.  Similarly, the proportion of single mothers in paid employment is higher than that of 

partnered mothers but they face higher poverty risk. 

E.	  Women work less than men and fewer women are entrepreneurs. 
F.	  Women earn less than men (wage gap and pensions inequalities). 
G.  Women are poorer than men. 
H.  Finally,  the  current  financial  crisis  is  affecting  gender  inequality  in  complex  ways, 

some yet to become fully visible. 

29	  Annex 1 reproduces the legal basis used in the context of Gender Equality, starting from the Treaty of Rome. 
Progress  is  surveyed  in  COM  (2009)  694  final,  18.12.2009.  ‘Equality  between  women  and  men  -2010’. 
European Commission. Available at: 
http://eur-lex.europa.eu/LexUriServ/LexUriServ.do?uri=COM:2009:0694:FIN:EN:PDF.  Also  Goldin,  C.  (2006). 
The  Quiet  Revolution  that  Transformed  Women’s  Employment,  Education  and  Family.  American  Economic 
Review, 96, 1–21. 

30	  In  the  ‘infant  industry’  argument  in  international  economics,  subsidies  can  be  used  to  overcome  an  initial 

disadvantage, and can then be withdrawn. 

31	  Gender gaps are the most well-documented statistical findings. See, inter alia:EGGSIE (2006) ‘The gender pay 
gap.  Origins  and  policy  responses.  A  comparative  review  of  thirty  European  countries.’  The  co-ordinators’ 
at: 
Equality  Unit, 
synthesis 
http://www.bka.gv.at/DocView.axd?CobId=20551,    Chichilnisky,  G.  (2008).  The  Gender  Gap.  In  Bettio  & 
Verashchagina  (eds.)  Frontiers  in  the  Economics  of  Gender,  Routledge  Siena  Studies  in  Political  Economy; 
2008. p. 57-75. 

Commission. 

European 

prepared 

Available 

report 

the 

for 

31
 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
                                                 
  
 
 
 
 
 
 
 
 
 
 
  
 
 
  
  
 
 
 
 
 
 
 
 
  
 
Policy Department C: Citizens' Rights and Constitutional Affairs 

In  important  areas  relevant  for  economic  independence,  women  are  disadvantaged 
compared  to  men  -  ‘gender  gaps’  remain.  They  have  a  higher  rate  of  unemployment,  a 
higher share in flexible and part-time work32, shorter working hours and, as a result of the 
occupational segregation of the labour market, women tend to be employed in sectors with 
lower wages33. For these (and other) reasons, women are more likely to be labour market 
outsiders. Besides, disadvantage in the labour market goes hand in hand with disadvantage 
in the allocation of non-paid work (mainly care) undertaken inside the household.34 

Although  employment  is  the  most  common  foundation  for  economic  independence,  non-
labour  income  should  also  be  taken  into  account.  Income  from  property  (for  working  age 
people)  accrues  mostly  to  men,  possibly  also  reflecting  the  distribution  of  power  inside 
families.  There  exists  some  evidence  of  differential  rates  of  return  to  assets  (possibly  due 
to  differences  in  risk  aversion)35.  Despite  much  improvement  over  time,  it  can  still  be 
observed  that  social  transfers  in  the  framework  of  social  protection  systems  favour  male 
breadwinners36 (e.g. in the field of housing or in pension systems37). 

Despite  the  gradual  eclipse  of  those  older  sources  of  disadvantage,  gender  equalities 
remain38. The most important underlying cause for this persistence of gender inequalities is 
the gender division of labour within the household, chiefly in the field of care. Women have 
to  carry  a  ‘double  burden’,  being  more  active  in  paid  labour,  while  not  seeing  their 
responsibilities  for  unpaid  work  lightened  or  shared.39  This  can  affect  their  access  to 
resources,  restricting,  for  example,  their  availability  for  training  schemes,  etc.  Similarly, 
work organization within firms and institutions may also reflect out-dated gender roles and 
play  a  part  in  current  gaps.  In  general,  ‘path  dependence’40  frequently  implies  that  past 
inequities continue having an effect for long periods. 

32	  Lyberaki,  A.  (2011)  Gender  Aspects  of  the  Economic  Turndown  and  Financial  Crisis.  Directorate  General  for 
Internal Policies. Policy Department C: Citizen’s Rights and Constitutional Affaires: Gender Equality. European 
Parliament. Available at: 
http://www.europarl.europa.eu/document/activities/cont/201110/20111020ATT29944/20111020ATT29944EN. 
pdf. 

33	  Bettio,  F  and  Verashchagina,  A.  (2009)  ‘Gender  segregation  in  the  labour  market:  root  causes,  implications 
and  policy  responses  in  the  EU’,  EC’s  Expert  Group  on  Gender  and  Employment.  Luxembourg:  Publications 
Office of the European Union. 

34	  Francavilla, F., Giannelli, G.C., Grotkowska, G, Piccoli, L., Socha, M.W. (2010), Women and Unpaid Family Care 
Work in the  EU,  Policy Department Citizens’ Rights and  Constitutional  Affairs, European Parliament. Available 
at: http://www.psi.org.uk/pdf/2010/women_unpaid_work.pdf. 
Eurobarometer  (2004)  ‘European’s  attitudes  to  parental  leave’,  Special  Eurobarometer  189/Wave  59.1, 
European Commission. Available at: http://www.fatherhoodinstitute.org/uploads/publications/74.pdf. 
COM  (2008)  635  final,  3.10.2008.  ‘A  better  work-life  balance:  stronger  support  for  reconciling  professional, 
private and family life’. European Commission. Available at:  
http://eur-lex.europa.eu/LexUriServ/LexUriServ.do?uri=COM:2008:0635:FIN:EN:PDF. 

35    C.C.Eckel  and  P.J.  Grossman,  2008,  ‘Men,  women  and  risk  aversion:  Experimental  evidence’  in  Handbook  of 

Experimental Economics Results, Volume 1,  http://aysps.gsu.edu/isp/files/isp_ind_3.pdf 

36	  Boeri,  T.  (2002)  ‘Let  Social  Policy  Models  Compete  and  Europe  Will  Win’.  Paper  presented  at  a  Conference 
hosted  by  the  Kennedy  School  of  Government,  Harvard  University,  11–12  April.  Cha,  Y.  and  Thébaud,  S. 
(2009)  Labor  Markets,  Breadwinning  and  Beliefs:  How  Economic  Context  Shapes  Men’s  Gender  Ideology, 
Gender and Society, 23 (2): 215-243. 

37  Such  issues  are  examined  in  the  course  of  the  Open  Method  of  Coordination  on  Social  inclusion 

http://ec.europa.eu/social/main.jsp?langId=en&catId=750. 

38  ILO  (2010)  ‘Women  in  labour  markets:  Measuring  progress  and  identifying  challenges’.  International  Labour 

Organisation, March 2010. 

39	  EIGE (2011) ‘Main Findings: Review of the Implementation of the Beijing Platform for Action: Women and the 

Economy’. Available at:  
http://www.eige.europa.eu/sites/default/files/Review%20of%20the%20Implementation%20of%20the%20BPf 
A%20Women%20and%20the%20Economy%20Reconciliation%20of%20Work%20&%20Family%20­
Main%20findings.pdf. 

40	  P.Pierson,  2000,  Increasing  Returns,  Path  Dependence  and  the  Study  of  Politics,  American  Political  Science 

Review, pp 251-267. 

32
 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
                                                 
  
 
 
 
 
 
 
  
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
  
 
 
  
  
 
  
 
 
 
 
 
 
 
 
The multi-annual financial framework 2014-2020 from a gender equality perspective 

These  sources  of  disadvantage  are  not  uniformly  distributed  across  the  population.  They 
coalesce  in  multi-dimensional  and  self-reinforcing  inequality  affecting  specific  population 
groups. 

Taking these facts into account, four population groups can be identified for whom policy-
making has most to offer: 

a.	  Women  pensioners  whose  pensions  accumulate  the  consequences  of  a  lifetime’s 

unequal treatment. 

b.	  Low income single mothers. 
c.	  Women entrepreneurs or women starting a business.  
d.	  Unemployed women entitled to low income-replacement in social transfers. 

Finally, it has to be noted that statistics on the distribution of cash income and poverty by 
gender greatly underestimate the extent of disadvantage faced by women as they usually 
assume  that,  intra-family  distribution  is  equal.41  Figure  1  on  intra-household  distribution, 
(derived  from  the  Survey  of  Income  and  Living  Conditions),  approaches  this  issue  by 
examining the identity of the primary earner in households. The differences apparent in the 
figure  are  the  result  of  three  gender  gaps:  in  participation  in  the  labour  market,  in  hours 
worked and in wages.42  Economic independence, by eliminating this invisible discrimination, 
has greater leverage than is apparent in usual income distribution analyses. 

Figure 3: Secondary and primary earners in Europe 

Secondary and primary earners in Europe. Percentage distribution of couples by share of female earnings, 2009 

100%
 

90%
 

80%
 

70%
 

60%
 

50%
 

40%
 

30%
 

20%
 

10%
 

0% 

MT  NL  AT LU  GR ES 

IE  CZ 

IS  DE	 

IT  CY  UK  BE  NO SE  SK  EE  PL  FR  FI  RO  LV	  BG  DK  LT  HU  SI 

Woman ha s no ea rnings 

Woma n ea rns less than ma n 

Equality in  ea rnings 

Woman earns more tha n man 

Woma n the only ea rner 

Source: courtesy of Bettio-Verashchagina, ongoing research 

41	  Household  surveys  have  no  way  of  attributing  non-employment  income  to  one  household  member  than 
another. They thus, of necessity, assume that the income is distributed inside the household equally. For this 
reason poverty statistics on gender must be treated with great care.  
Eurostat  (2011)  ‘Statistics  on  income,  social  inclusion  &  living  conditions’,  European  Commissions  Statistics 
website, available at: 
http://epp.eurostat.ec.europa.eu/portal/page/portal/income_social_inclusion_living_conditions/data/database. 
42	  Only working couples with at least one member earning labour income were selected. Note also that the data 
are  drawn  from  EU-SILC  2009  and  refer  to  income  in  2008;  they  may  reflect  the  impact  of  the  crisis  (in 
particular a decrease in two earner couples  and an increase in female breadwinners couples has taken place 
between  2007  and  2008).  Equality  of  earnings  refers  to  all  those  couples  where  she  earns  between  45  and 
55% of the combined labour income. She earns less if below 45%, more if above. 

33
 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
                                                 
  
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
Policy Department C: Citizens' Rights and Constitutional Affairs 

1.3. 

Likely causes of inequalities in economic independence 

Problems  in  economic  independence  used  to  be  interpreted  by  some  commentators  as  a 
consequence  of  technological  aspects  of  production43,  as  an  ‘objective’  foundation  to  a 
pervasive  occupational  segregation44;  this,  in  turn,  affected  wage  structures  and  power 
relations.  Equally,  for  older  cohorts  of  women,  many  gender  gaps  reflected  other 
exogenous factors such as weaker labour market attachment, lower educational attainment 
and lack of skills45 – a fact which might explain part of gender inequality in pension income. 
Though  these  kinds  of  factors  still  affect  older  cohorts,  there  is  general  agreement  that 
their  relative  significance  is  waning.  Technology  is  more  scale  -  and  gender-neutral  -, 
changes in the structure of demand favour female-dominated occupations, while traditional 
educational inequalities have all but disappeared and come acrross in new forms. 

Finally,  social  protection  and  pension  systems  of  some  Member  States  continue  to 
differentially  encourage  women  to  retire  early46,  hence  condemning  them  to  living  with  a 
low pension. This may be an instance of a more general problem exhibited by insufficiently 
modernized  social  protection  system  which  may  still  implicitly  be  built  on  the  ‘male 
breadwinner’ model. 

1.4. 

Gender stereotypes and roles 

Many of the above disadvantages stem from certain views about appropriate gender roles, 
and,  in  turn,  reinforce  them.  These  roles  are  implicit  and  change  much  slower  than  the 
conditions that originally supported them. They can thus be more resistant to change and 
their influence may reappear in times of crisis. Chief among these is ‘the male breadwinner 
model’  and  the  associated  image  of  the  woman  as  a  secondary  earner.  In  the  1930s 
depression,  the  reassertion  of  these  stereotypes  clawed  back  much  of  the  gains  made  by 
women  since  the  Great  War47  ;  there  is  a  danger  that  the  current  financial  crisis  may 
similarly roll back some of the progress of the last twenty years.48 Even today, the greater 
visibility that layoffs and unemployment receive if they relate to men may be interpreted as 
a possible danger sign. 

Gender stereotypes also support occupational segregation which is the underlying reason of 
many gender inequalities. Women and technology is a case in point, affecting both supply 
of labour by women and demand for workers by firms. 

43	  S.Albanesi and C. Olivetti, 2007, Gender Roles and Technological Progress, NBER Working Paper. 
44	  Bettio,  F.  (2008)  ‘Occupational  segregation  and  gender  wage  disparities  in  developed  economies:  Should  we 
still  worry?’  in  F.  Bettio  and  A.  Verashchagina  (eds),  Frontiers  in  the  economics  of  gender,  Routledge  Siena 
Studies in Political Economy, Routledge: 267–285. 

45	  Sigle-Rushton, W. and Waldfogel. J. (2007). Motherhood and women’s earnings in Anglo-American, Continental 

European, and Nordic Countries”, Feminist Economics, 13, 55-91. 
COM (2007) 424 final ‘Tackling the pay gap between women and men’, European Commission. Available at:
http://eur-lex.europa.eu/LexUriServ/LexUriServ.do?uri=COM:2007:0424:FIN:EN:PDF. 

46	  e.g. Joint Report on Pensions: 

http://ec.europa.eu/economy_finance/publications/occasional_paper/2010/pdf/ocp71_en.pdf. 

47	  Goldin,  C.  2006,  ‘The  Quiet  Revolution  That  Transformed  Women’s  Employment,  Education,  and  Family’, 

Richard T. Ely Lecture, A.E.R. Papers and Proceedings, vol 96, pp 1-21. 

48	  Bettio,  F  and  Verashchagina,  A.    (2011)  ‘Crisis  and  Recovery  in  Europe.  Labour  Market  Impact  on  Men  and  

Women’, EC’s Expert Group on Gender and Employment. Draft version, November 2011. 

34
 

 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
                                                 
  
 
  
 
 
 
 
 
 
 
  
 
 
 
 
 
 
  
  
 
 
 
 
 
  
 
 
 
 
 
 
 
The multi-annual financial framework 2014-2020 from a gender equality perspective 

1.5. 

The role of policies in the field of economic independence 

In a society, such as ours, where most goods are commodities bought and sold in markets, 
possessing an independent income is the surest route towards economic independence, as 
well  as  towards  avoiding  material  deprivation49.  Avoiding  deprivation  and  being  financially 
independent  are  not  only  factors  promoting  well-being,  in  themselves,  but  also  constitute 
key  inputs  in  individual  liberty.  This  conclusion  is  reinforced  when  we  consider  that 
economic  independence  of  women  also  affects  the  ‘invisible’  distribution  of  resources  and 
freedom within the household; it is thus of greater significance than if we simply considered 
inequality of cash incomes on its own. 

1.6. 

The broader policy context for the planning period 

The  Multiannual  Financial  Framework  2014-2020  (MFF  henceforth)  will  unfold  at  a  time 
when  policy  has  to  meet  major  challenges,  which  distinguish  it  from  previous  periods. 
These  challenges  can  be  divided  into  long-term  (secular)  trends  and  macroeconomic 
medium-term considerations linked to the exit of the current financial crisis. 

(a)  Long  term	  secular  trends:  Population  ageing  will  accelerate  in  Europe  with 
associated effects on pensions, long-term care, health and the size of households; in 
technology  the  trend  towards  greater  gender  neutrality  is  likely  to  continue.  The 
long  term  trend  for  overall  economic  inequality  to  rise  will  also,  most  likely, 
persist50;  so,  the  pursuit  of  greater  gender  equality  will  probably  have  to  be 
undertaken in the context of rising overall inequality. 

(b)  Macroeconomic effects of the crisis: The planning period 2014-2020 is likely to play 
a  key  role  in  the  context  of  the  EU  establishing  a  new  growth  path,  after  the 
vicissitudes  of  the  current  financial  crisis.  In  this  context,  reconciling  economic 
convergence with the pursuit of competitiveness will be an essential desideratum of 
policy  making.  In  this  context,  raising  the  low  participation  rate  of  women  in  the 
labour  market  can  be  a  factor  simultaneously  furthering  both  objectives.  Low 
women’s  participation  tends  to  be  a  feature  of  countries  where  competitiveness  is 
also  low;  promoting  women’s  employment  will  therefore  strengthen  cohesion, 
gender  equality  and  competitiveness.  The  promotion  of  greater  equality  between 
men  and  women  should  be  accorded  strategic  long-term  importance,  not  only  for 
itself,  but  also  for  reasons  of  macroeconomic  and  cohesion  policy.  Some 
retrenchment  policies,  in  the  context  of  the  European  Semester,  could  jeopardise 
this  target,  by,  for  example,  curtailing  the  kind  of  social  services  which  enable 
mothers to combine work and family responsibilities. Such policies are short sighted 
and, in anything other than the short-term, counterproductive.  

Furthermore, the macroeconomic crisis is, in many cases, altering the way that long term 
trends  operate  in  European  societies.  An  example  is  migration,  which  can  be  seen  as  a 
greater  challenge  during  the  crisis  than  in  the  past,  especially  in  view  of  larger  flows  of 
‘independent’ female migrants. While migration may be a factor of emancipation in source 

49	  Commission  of  the  European  Communities,  2006,  Joint  Report  by  the  Commission  and  Council  on  Social 

Protection and Social Inclusion. Directorate of Employment, Social Policy, Health and Consumer Affairs. 
Commission  of  the  European  Communities,  2007,  Joint  Report  by  the  Commission  and  Council  on  Social 
Protection and Social Inclusion. Directorate of Employment, Social Policy, Health and Consumer Affairs. 

50	  OECD (2011) Divided we stand. Why Inequality keeps rising, Paris, OECD. According to this recent overview of 
long term inequality trends, the main driver for overall inequality were technology and globalization. Increasing 
female participation acted as a factor ameliorating inequality in all countries (p.34). 

35
 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
                                                 
  
 
 
 
 
 
  
 
 
 
 
 
 
 
Policy Department C: Citizens' Rights and Constitutional Affairs 

countries,  in  destination  countries  it  may  reinforce  the  double  discrimination  of  female 
migrants as women and as foreigners.51 

2.  GENDER OBJECTIVES FOR ECONOMIC INDEPENDENCE 

A note on Methodology: the Context Analysis has given us an indication of what needs to 
be  done  to  deal  with  gender-based  inequalities  –  i.e.  analytical  gender  objectives.  Using 
this  as  a  starting  point,  we  need  to  see  how  (a)  EU  programme  statements  tackle  the 
underlying  gender  analytical  objectives  and  (b)  how  EU  financial  instruments  apportion 
budget funds among the various programme objectives. Thus a three stage process results, 
which is clarified in the following graphical schema: 

	  Stage  1:  Are  the  gender  objectives  that  result  from  analysis  reflected  in 
programme statements (i.e. Europe 202052 and Strategy for Equality53)?  If 
so, in what form (Table 3)? 

	  Stage  2:  How  are  the  objectives  of  the  financial  instruments,  which  the 
programme  utilizes  in  order  to  tackle  its  gender  objectives  (e.g.  ESF,  EGAF 
etc)? 

	  Stage  3:  How  are  the  amounts  budgeted  in  the  financial  instruments  distributed 

among the analytical objectives (left panel of the graphical schema)? 

Stage  3  would  correspond  to  full  gender  budgeting.  However,  in  the  present  case,  the 
detailed information necessary to produce a full correspondence between budget proposals 
and  analytical  objectives  is  not  available.  What  can  be  attempted  directly  is  to  produce  a 
correspondence between budget amounts and objectives of the financial instruments (and 
not directly the analytical objectives) (Table 4. on Budgeting Gender Objectives).  In order 
to  provide  a  bridge  between  the  programme  instruments  and  the  underlying  analytical 
gender  objective,  Table  5.  produces  a  correspondence  between  the  instrument  goals  and 
the gender objectives that were derived from the context analysis. 

51  Lyberaki,  A.  (2011)  “Migrant  Women,  Care  Work  and  Women’s  Employment  in  Greece”, Feminist  Economics, 

17 (3): 103-131. 

52  COM  (2010a)  2020  final,  3.3.2010.  “Europe  2020:  A  strategy  for  smart,  sustainable  and  inclusive  growth”, 

Communication from the Commission, European Commission. 

53  COM  (2010b)  491  final,  21.9.2010.  “Strategy  for  Equality  between  women  and  men  2010-2015”, 

Communication from the Commission, European Commission. 

36
 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
                                                 
  
 
 
 
 
  
 
 
 
  
  
  
The multi-annual financial framework 2014-2020 from a gender equality perspective 

The  analytical  gender  objectives  of  Table  3  reflect  the  context  discussion54.  The  table 
shows how they are reflected in the two key programme statements: The EU 2020 Strategy 
and the Strategy for Equality 2010-2015. 

It is worth noting that the EU 2020 Strategy contains wording that can encompass most of 
the  major  areas  highlighted  in  the  context  analysis.  However,  in  most  cases  gender 
remains  in  the  background,  being  mentioned  as  an  independent  factor  far  less  explicitly 
than in the Strategy for Equality. Thus, though gender cannot be said to be absent in the 
objectives, it is approached in an oblique and indirect manner. Gender could be there, but 
its presence must frequently be inferred.  

Please see also the detailed gender objective tables of Annex 4. 

54  They reproduce (with minor additions) the objectives highlighted in the Commission document “Report on the 

progress of Equality between Women and Men", op.cit. 

37
 

 
 
 
 
 
  
 
 
 
 
 
                                                 
  
 
 
Policy Department C: Citizens' Rights and Constitutional Affairs 

Table 3: Analytical Gender objectives for economic independence in EU2020 and 
Strategy for Equality (Programme Statements)  

Analytical Gender Objectives 

Context 
Analysis 

EU 2020 Strategy 

Strategy for 
Equality 2010-2015 

X  75% target for 
women and men 

‘New skills’, 
For both genders 
‘Modernisation of 
social protection 
systems 

 No mention of 
gender in ‘Stronger 
Governance’ section 

X 
Report on member 
state performance 
Carers’ leave? 

Active ageing 
(no gender 
reference) 
Member States in 
context of Open 
Method of 
coordination 
gender  not 
mentioned 

X  75% target for 
women and men 
X 
No target 
X 

Active ageing 
‘Modernisation of 
social protection 
systems.’ 
Tools of gender 
equality 

X 
No target 

X 
for Member States 

X 

Consultation with 
social partners 

X 
No target 
Active ageing 
Pension measures 

X 
Older women 

X 

X 

“Stronger 
Governance section 
“ does not mention 
gender 

X 
Some targets set 
X 
Annual report 

1. Gender equality and employment 
1a Narrow gaps in employment participation 

1b Reduce the gender pay gap 

1c Reduce occupational segregation 

1d Tax and benefit systems (financial 
disincentives) 

1e Gender-sensitive analysis of the labour 
market 

1f  Self-employment and entrepreneurship 

2. Reconciliation between work and family 
life 
2a Quality care for children 

2b Quality care for elderly and other 
dependants 
2c Parental leave 

3. Promoting social inclusion and gender 
equality 
3a Securing equal access to employment 
(enabling services) 
3b Problems faced by aged women 

3c Multiple disadvantages of particular groups 

3d Immigrants and ethnic minorities 

4.Preventing gender-based violence 
4a Intra family violence 
4b Trafficking and exploitation 
5.Transforming commitment into action 
5a Decision making structures 

5c Monitoring progress and gender awareness 

X 

X 

X 

X 

X 

X 

X 

X 

X 

X 

X 

X 

X 

X 
X 

X 

X 

38
 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
The multi-annual financial framework 2014-2020 from a gender equality perspective 

3.	  GENDER ANALYSIS OF THE BUDGET ALLOCATION AND 

OF THE FINANCIAL TOOLS 

3.1.	 

Financial 
interventions 

instruments 

chosen 

to 

fund 

the  policy 

The  Budget  for  Europe  2020  states  that  “a  European  employment  and  social  inclusion 
initiative  will  be  set  up  through  joint  action  in  the  fields  of  education  and  vocational 
training, employment and inclusion”.55 Funding in this area will be delivered through three 
main  instruments:  a)  the  European  Social  Fund  (ESF  henceforth)56;  b)  the  European 
Globalisation  Adjustment  Fund  (EGAF  henceforth)57  and  c)  An  integrated  programme 
(direct  management)  for  employment,  social  policy  and  inclusion  (Programme  for  Social 
Policy  and  Inclusion  - PSCI  =  henceforth)58.  A  further  400  million  will  be  added  from 
autonomous  budget  lines.  In  addition  the  Competitiveness  and  SMEs  programme59 
promotes some gender sensitive objectives60. 

Figure 4: Allocation of the total amount (€90.3bn) among instruments  

Integrated; 
0,92bn€; 
1,0% 

EGF; 
3,0bn€; 
3,3% 

Compet/ne 
ss and SMEs 
Programme 
; 2,4bn€; 
2,7% 

ESF 
84,0 bn€; 
93,0% 

Each  financial  instrument  has  its  own  objectives,  which  should  promote  the  programme 
statements of the key documents. The ESF has 5 main policy objectives (itemised in Table 
4, (which subdivide further into 18 separate items - Annex 2).   

Table  5  attempts  to  produce  a  correspondence  of  the  two  –  showing  which  analytical 
gender  objective  is  supported  by  which  financial  instrument.  We  see  that  ESF  covers 

55	  COM (2011a) 500 final, 29.6.2011. ‘A budget for Europe 2020: Part II’. Communication from the Commission 
to the European Parliament, the Council, the European Economic and Social Committee and the Committee of 
the Regions. Available at:
http://europa.eu/press_room/pdf/a_budget_for_europe_2020_-_part_ii_policy_fiches_en.pdf. 

56	  COM (2011b) 607 final, 6.10.2011. Proposal for a Regulation of the European Parliament and of the Council on 

the European Social Fund and repealing Regulation (EC) No 1081/2006 Available at:
http://ec.europa.eu/esf/main.jsp?catId=62&langId=en. 

57	  COM (2011e) 608 final, 6.10.2011. Proposal for a Regulation of the European Parliament and of the Council on 

the European Globalisation Adjustment Fund (2014-2020) Available at:
http://eur-lex.europa.eu/LexUriServ/LexUriServ.do?uri=COM:2011:0608:FIN:EN:PDF. 

58	  COM  (2011d)  609  final,  6.10.2011.  The  PSCI  integrates  three  programmes: i)  Progress (Programme  for 
Employment  &  Social  Solidarity), ii)  EURES (European  Employment  Services)  iii)  the European  Progress 
Microfinance Facility and extends their coverage.  Available at: 
http://eur-lex.europa.eu/LexUriServ/LexUriServ.do?uri=COM:2011:0609:FIN:EN:PDF. 

59	  COM (2011e) 834 final, 30.11.2011. “Proposal for a Regulation of the European Parliament and of the Council: 
establishing  a  Programme  for  the  Competitiveness  of  Enterprises  and  small  and  medium-sized  enterprises 
(2014-2020)” Available at:
http://ec.europa.eu/cip/files/cosme/com_2011_0834_proposition_de_reglement_en.pdf. 

60	  Annex 3 describes the instruments in greater detail.  

39
 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
                                                 
  
 
 
 
 
 
  
 
 
 
 
 
 
 
  
 
 
 
 
 
  
 
 
 
 
  
 
 
  
  
 
 
 
 
 
Policy Department C: Citizens' Rights and Constitutional Affairs 

virtually  all  the  analytical  objectives  and  that  all  objectives  are  served  by  at  least  one 
instrument (and frequently more than one). 

The  instruments’  objectives,  as  stated,  are  general  in  nature.  For  example,  the  specific 
actions that ‘employment promotion’ can range from ‘adaptation of workers’, to ‘active and 
healthy ageing’ to ‘modernisation of labour market institutions’ while no indication is given 
of  the  budget  shares  of  each  item.  The  precise  effects  of  the  programme  will,  however, 
depend on these financial allocations. 

3.2. 

Losing sight of the gender equality objective  

It is important to underline that gender equality – as a conscious and explicit component of 
economic  independence  –  is  largely  absent  in  the  statement  of  instruments  objectives.  Of 
the various instruments, only parts of the ESF and the Competitiveness & SMEs Programme 
adopt  an  explicitly  gender-aware  perspective,  which  is  then  reflected  in  their  objectives61. 
EGAF  (art  10)  and  PSCI  (p.  5)  mention  gender  in  the  context  of  a  general  non­
discrimination article, without integrating it in the objectives. Indeed, to the extent that the 
EGAF  aims  to  provide  support  to  redundant  workers  (and  farmers)  it  could  be  oriented 
towards men; a lack of gender awareness may mean that this important insight is missed. 

According  to  the  2012 Draft  Joint Employment  Report62,  the  ESF  has an  important  role  in 
the Europe 2020 strategy, notably in supporting flagship initiatives, such as the European 
Platform  against  poverty  and  Youth  on  the  Move.  According  to  the  Draft  JER  the  present 
ESF  finances  a  number  of  Operational  Programmes  while  in  the  next  MFF  programming 
period  it  will  concentrate  support  on  Member  State  policies  closely  linked  with  the 
Integrated  Guidelines’.  Thus,  the  ESF  is  designed  for  a  large  part  to  influence,  guide, 
inspire and direct policies which the Member States pursue and are responsible for.  

Given  that  most  actions  in  the  field  of  economic  independence  (e.g.  social  inclusion, 
education  and  training)  fall  within  the  ambit  of  subsidiarity,  this  guiding  or  paradigmatic 
role  can  be  of  special  importance.  The  ESF  (and  other  Community  instruments)  in  those 
cases  can  be  seen  to  be  playing  a  role  as  a  lever  for  Member  States  policies,  acting  as  a 
kind  of  multiplier.  This  added  value  can  be  expected  to  be  larger  in  those  cases  where  a 
Member  State  lags  behind  the  Community  average  –  i.e.  where  progress  in  economic 
independence is most needed. 

In  the  course  of  parliamentary  scrutiny  of  the  budgetary  process,  the  significance  of  this 
multiplicatory  role  of  Community  instruments  cannot  be  overstressed.  The  extent  and 
success in this role will depend crucially on decisions taken in the course of determining the 
precise content of the general financial envelopes, and in the process of implementation by 
Member States. Drifting away from gender objectives is most likely to occur at those later 
stages;  the  payoff  of  gender  monitoring  and  awareness  will  have  to  come  in  in  order  to 
preventing this kind of deviations. 

61  ESF  mentions  gender  in  the  context  of  gender  equality  actions  (Code  69  for  2007-2013).  In  the 
Competitiveness & SMEs Programme, only the action promoting entrepreneurship refers to young people and 
women (see Annex 2). 

62  Draft Joint Empl. Report 2012, p. 13-14. 

40
 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
                                                 
  
 
 
 
 
 
 
  
 
 
 
Table 4: Budgeting gender objectives for economic independence 

ECONOMIC INDEPENDENCE 

MFF 2014-2020: Policy/Financial Instruments 

The multi-annual financial framework 2014-2020 from a gender equality perspective 

OBJECTIVES OF FINANCIAL INSTRUMENTS* 

The European Social Fund 
(Total= € 84 b)1 

EGAF 63 

An integrated programme for 
employment, social change 
and innovation (PSCI) 

Competitivene 
ss and SMEs 
Programme 

Total 
estimate 
2014-2020 
(€b)

2007-13 
% allocation 

43% 

30% 

20% 

3% 

3,72% 

Estimated 
amount 
2014-2020 
??? 
(€bn)2 
37 

25

17 

2 

3 

1. employment promotion 

2. investment in skills, education & life-long learning 

3. social inclusion & the fight against poverty 

4. enhancing institutional capacity and efficient public 
administration 

5. strengthening  gender  equality  and  combating 
discrimination 
6. Specific support to workers made redundant 

7.  Promoting  intra-EU  labour  mobility  and  improving 
access to employment opportunities 
8.  Competitiveness  and  SMEs: 
internationalisation; (ii) self-employment 

i)  Promotion  of 

9.  Platform  for  mutual  learning  processes  to  enhance 
the  evidence  base  for  reform  design  in  policy-making 
and evidence-based social innovation 

 ? see below point 7 

 ? 

(proposed 
€3bn) 

EURES Network (Proposed 
Amount: ≈ €138m in total) 
European Progress 
Microfinance Facility 
(Proposed: €184m in total)
Progress Programme 
(Proposed: €554m in total) 

€876m + €46m reserve= 
€923 millions in total 

€37 

€25 

€17 

€2 

€3 

€33 

0.1383 

€2.63 

0.53 

 (all measures: 
€2.4bn) 

€2.4bn 

€90,3bn 64 

Summary (by policy/financial instrument) 

€84bn 

€3bn 

1	  For the ESF only totals are known. On the assumption that the composition remains as before, 2007-13 disbursements are used 

to estimate amounts*.  

2  ESF total amount times 2007-13 percentage*.  
3  Proposed amount*. 

63  European Globalisation Adjustment Fund. 

64  Note that a further €400m is proposed from autonomous budget lines, resulting in a Total Amount of €90.7bn.
 
*	  For a short presentation of the content of each instrument, see Annex 3. 

41
 

 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
  
 
  
 
 
   
 
 
  
  
 
 
  
  
  
 
  
  
  
 
  
  
  
  
 
  
 
  
  
 
 
   
  
  
  
  
 
 
 
 
  
  
 
 
  
 
 
 
 
 
  
  
 
  
  
 
 
 
 
 
 
  
 
 
 
 
  
                                                 
  
  
 
 
 
 
 
 
Policy Department C: Citizens' Rights and Constitutional Affairs 

Table 5: Correspondence between Goals of Financial instruments (Table 4) and Analytical Gender Objectives (Table 3) 

ESF Goals (from Table 3.1) 

Goals from table 3.1. 
EGAF 
6 

5 

4 

MOB. 
7 

PCSI 
8 

Platform 
9 

1 

X 

X 
X 

X 

X 

? 

X 

X 
? 
X 

Analytical Objectives from table 2.1. 

1. Gender equality and employment 

in  employment 

1a  Narrow  gaps 
participation 
1b Reduce the gender pay gap 
1c Reduce occupational segregation 
1d Tax and benefit systems  
1e Gender-sensitive analysis of labour 
1f  Self-employment entrepreneurship 

2. Reconciliation work and family life 

2a Quality care for children 
2b Quality care for elderly and other 
dependants 
2c Parental leave 

3.  Promoting  social 
equality 

inclusion  &  gender 

3a Securing equal access to 
 employment (enabling services) 
3b Problems faced by aged women 
3c Multiple disadvantages of groups 
3d Immigrants and ethnic minorities 

4. Preventing gender-based violence 

4a Intra family violence 
4b Trafficking and exploitation 

5. Transforming commitment into action 

5a Decision making structures 
5c Monitoring progress and gender 
awareness 

2 

X 

X 
X 

X 

X 

? 

? 

3 

X 

X 
X 
? 

? 

X 

X 

X 

X 
X 
X 

X 

42
 

X 

? 

? 

X 

X 

X 

X 

X? 

X 
X 
? 

X 

X 
X 
X 

X 
X? 

X 

X 

X 
X 

X 

X 
X 

X 
X 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
   
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
The multi-annual financial framework 2014-2020 from a gender equality perspective 

3.3. 

Assessing the expected adequacy and effectiveness 

The assessment of the expected adequacy and effectiveness of each financial instrument is 
necessarily  based  on  information  from  existing  gender  evaluations  for  the  previous 
programming  period  (2007-2013)  and  on  the,  probably  unrealistic,  assumption  that  the 
financial proportions devoted to particular objectives will stay the same as in the previous 
planning period. Thus the figures shown in Table 4 can be taken only as indicative.  

Indeed, if we take the frequency of mentioning "gender" as an indicator, it might be even 
reasonable  to  assume  that  the  proportion  of  given  actions  that  will  be  aimed  at  gender 
equality  may  be  lower.  If  so,  the  estimated  amounts  in  Table  4.  should  more  properly  be 
thought as upper limits. 

A number of additional points may also be raised: 

	  Only  3,7%  on  average  for  all  Member  States  of  the  total  ESF  resources  was 
allocated  to  specific  gender-equality  actions.  In  theory,  it  could  be  assumed  that 
gender  actions  have  been  mainstreamed  but  there  is  no  direct  evidence  for  this. 
Therefore, this figure is alarming as mainstreaming combined with a lack of gender 
awareness  could  serve  as  a  cloak  for  tacit  downgrading  of  the  gender  objective.  If 
gender imbalances are to be exclusively addressed by 3,7% of the budget, progress 
is unlikely to speed up.65 

	  Analysis of ESF outcomes in the framework of the present programming period, has 
shown  that  targets  related  to  employment  were  more  likely  to  be  adopted  by 
Member  States66.  Other  gender  sensitive  objectives  in  relation  to  poverty,  care, 
empowerment,  etc,  clearly  appear  to  have  been  overlooked.  This  leads  to  focusing 
policy too narrowly, and entails the danger of missing the opportunities that a more 
holistic  approach  could  offer  for  the  elimination  of  barriers  that  perpetuate  gender 
segregation. 

	  Similarly,  an  examination  of  the  2000-2006  programming  period67  has  indicated 
that,  despite  the  rhetoric  of  combating  gender  inequalities,  in  many  cases,  the 
proportion  actually  allocated  to  gender-equality  action  was  clearly  lower  than 
intended in the programming documents. One of the reasons for this could be failure 
or  inability  to  translate  intentions  to  specific  priorities  of  the  national  operational 
plans aimed at reducing gender inequalities. 

65	  Referring to Code 69 of the present ESF programme: Measures to improve access to employment and increase 
sustainable  participation  and  progress  of  women  in  employment  to  reduce  gender-based  segregation  in  the 
labour  market,  and  to  reconcile  work  and  private  life,  such  as  facilitating  access  to  childcare  and  care  for 
dependent persons). 

66	  GHK  and  Fondazione  G.  Brodolini  (2011)  “Final  Synthesis  Report:  Evaluation  of  the  European  Social  Fund’s 
Support to Gender Equality”, European Commission, DGEMPL.  The report compared the 2007-13 proramming 
period with historical data from 2000-2006. Available at:
http://ec.europa.eu/social/main.jsp?catId=701&langId=en&internal_pagesId=616&moreDocuments=yes&tabl 
eName=INTERNAL_PAGES. 

67	  Brodolini, op.cit. 

43
 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
                                                 
  
 
 
  
 
 
 
 
 
 
 
 
  
  
 
Policy Department C: Citizens' Rights and Constitutional Affairs 

4.  ASSESSING  GENDER 

ISSUES  ON 

ECONOMIC 

INDEPENDENCE AREAS IN THE MFF 2014-2020 

4.1.	 

Is  a  larger/more  generous  budget  good  news  for  gender 
equality? 

The  proposed  Budget  (2014-2020)  allocates  more  on  ESF  (€84bn),  compared  to  the 
previous  period  (€75bn  in  2007-2013).  This  represents  an  increase  in  real  terms  of  more 
than  6.5%68.  Other  instruments  also  contribute  more  resulting  in  a  total  amount  of 
€90.7bn.  However,  there  has  been  a  historic  tendency  for  reducing  resources  addressing 
gender  imbalances.  Previous  experience  indicates  that  fewer  ESF  resources  were 
allocated to specific gender-equality actions in the 2007-2013 programming cycle, than was 
done in the previous (2000-2006) cycle69. While the ESF budget (EU contribution only) has 
increased  by  almost  17%  (between  2000-2006  and  2007-2013),  the  programmed 
resources  specifically  dedicated  to  gender-equality  actions  have  decreased  by  34%. 
Moreover, while the proportion of the ESF funds allocated to ‘strengthening gender equality 
and  combating  discrimination’  was  over  4%  in  2000-2006,  it  has  been  reduced  to  3,72% 
on average in MFF 2007-2013. 

Thus, and for as long as no more detailed  information is available, it has to be concluded 
that, unless greater gender awareness is introduced, the larger budget might even disguise 
a lower priority and lower expenditure in gender-sensitive areas. 

4.2.	 

Does  the  setting  up  of  the  EGAF  mean  lesser  emphasis  on 
women? 

The  European  Globalisation  Adjustment  Fund  (EGAF)  comes  to  the  fore  as  an  additional 
instrument to the ESF providing support to redundant workers, accounting for around 3% 
of  total  disbursements  of  the  MFF  2014-2020.  Given  the  sectoral  distribution  of 
disbursements, most beneficiaries  are likely to be men;70 if so, the EGAF may be thought 
as a step away from gender balance. However, this is not necessarily so, especially given 
its small budget relative to the total programme. A high profile – yet small in disbursement 
– programme like the EGAF could allow the ESF to focus on more gender-sensitive objects, 
such  as  social  inclusion  or  Active  Labour  Market  Policies  for  labour  market  outsiders.  The 
target  that  50%  of  those  who  lost  their  job  should  be  back  in  employment  within  a  year 
might  bias  effort  in  favour  of  ‘easier  cases’  –  which  could,  once  more,  be  influenced  by 
stereotypes. The possible male bias is unlikely to be fully compensated with the inclusion of 
workers  on  temporary  or  fixed-term  contracts  (which  in  practice  affect  predominantly 
women). 

68	  If  conversion  of  the  constant  2004  prices  to  constant  2011  prices  in  order  to  produce  comparable  amounts 
uses  the  GDP  EU27  deflator  the  real  increase  is  6.6%;  if  we  use  a  Cohesion  policy  deflator  (comparing 
cohesion policy in current and constant prices), the increase is 8.5%. 

69	  GHK and Fondazione G. Brodolini (2011: p. 80-84). 
70    Available  data  about  targeting  over  2007-2010,  show  that  regarding  sectors,  around  22%  of  all  targeted 
workers were in the automotive sector, 16% in textiles sector and about 8% in the mobile phone sector. It is 
worth mentioning that, given that the direct effects of the downturn are more pronounced to male-dominated 
sectors,  the  male  bias  is  likely  to  persist  for  the  period  2014-2020.  The  inclusion  of  agriculture  will  only 
reinforce this tendency. European Commission (2010) Statistical Portrait of the EGF 2007-2010. Available at:
http://ec.europa.eu/social/main.jsp?catId=326&furtherPubs=yes&langId=en&pubId=444&type=2 

44
 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
  
 
                                                 
  
 
 
 
 
  
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 


 
The multi-annual financial framework 2014-2020 from a gender equality perspective 

4.3. 

Is the ESF focus on employment too narrow?  

A  narrow  focus  on  policies  and  actions  leading  directly  to  employment  may  carry  some 
risks,  in  the  sense  of  shifting  emphasis  away  from  social  inclusion-related  actions.  If 
combined  with  further  narrowing  of  the  explicit  gender  equality  targets  (all  of  which 
contribute  to  the  goal  of  economic  independence),  it  might  lead  to  accentuating  gender 
inequalities.  Gender  balance  would  be  furthered  if  the  discussion  is  broadened  to 
accommodate people with low attachment to the labour market. In order to accommodate 
this  kind  of  people,  care,  poverty,  gender  roles  and  stereotypes,  careers  and  segregation 
need  to  be  targeted  in  their  own  right  (independently  of  immediate  employment 
outcomes).  Table 6. utilises the correspondence table 5., as well as insights of the Context 
Analysis, to grade the 9 gender objectives, as stated in the financial instruments, according 
to gender awareness, relevance and impact on a simple High/Medium/Low scale. 

5.  CONCLUSIONS 

Economic independence as a policy goal is of great importance for people’s lives and well­
being. At the same time, realising women’s full potential is probably the greatest resource 
to  be  tapped  to  bolster  Europe’s  long-term  growth.  Attaining  economic  independence 
targets  allows  simultaneous  progress  on  a  number  of  objectives  often thought  antithetical 
by  policy  analysts:  economic  growth  and  competitiveness  on  the  one  hand,  and  social 
justice  and  the  alleviation  of  poverty  on  the  other.  Economic  independence,  though,  is 
about  more  than  simple  employment  parity.  It  comprises  addressing  the  issues  of  non-
labour  time,  non-labour  income  and  the  opportunities  for  reconciling  professional  and 
family  responsibilities  as  well  as  not  less  than  having  access  to  resources  and  freedom  to 
make choices. 

In  this  sense,  with the increased  amounts  proposed  by the Commission  for the next MFF, 
gender equality could be enhanced under the following three notes of caution: 

First, the increased funding refers to financial programmes of which the exact composition 
and  attribution  to  specific  targets  are  still  unknown.  Wherever  conclusions  are  drawn 
regarding  increased  funding  in  favour  of  policies  enhancing  economic  independence,  they 
are  conditional  upon  equal  emphasis  being  place  on  each  gender  sensitive  objective 
corresponding to the previous programming period. This, however, is unclear as there is no 
such explicit commitment in this sense in the documents. 

45
 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Policy Department C: Citizens' Rights and Constitutional Affairs 

Table 6. Gender awareness, relevance and impact of instrument objectives 

Gender sensitive 
Objective 

1. employment 
promotion 

2. investment in skills, 
education and life-long 
learning 
3. social inclusion and 
the fight against 
poverty 
4.enhancing 
institutional capacity & 
public attention 
5. strengthening 
gender equality and 
combating 
discrimination 
6. Specific support to 
workers made 
redundant 
7. Promoting intra-EU 
labour mobility & 
improving access to 
employment 
opportunities 

8. entrepreneurship & 
self-employment 

9. Europe-wide 
platform for mutual 
learning 

Gender-Awareness 

Relevance 

Impact 

Medium: 
Through Equality between 
men and women and 
reconciliation between work 
and private life; 

High 

Low 

Medium 

Direct 
(labour outcomes) 
and indirect 
(stereotypes, 
poverty) 
Direct (skills) 
and indirect 
(employment) 

Medium:  Combating 
discrimination based on sex 

High 

Direct 

Low 

Low 

High 

High 

Indirect (through 
visibility and 
monitoring) 

Direct and indirect 
(stereotypes, 
visibility) 

Low 

High 

Direct 

Low 

Medium 

Direct 

Medium: Activities 
targeted to new 
entrepreneurs, young 
people and women 

High 

Direct and indirect 
(stereotypes and 
employment) 

Low 

Medium 

Indirect 

Second,  the  increased  funding  for  actions  potentially  related  to  gender  equality  will  not 
necessarily lead to greater realisations of such actions. The documents related to the next 
MFF show reduced gender awareness in comparison to those of the previous programming 
period,  most  notably  in  the  scarcity  of  explicit  references  to  gender  equality  as  a  policy 
objective  in  its  own  right.  Without  clear  objectives,  the  tool  of  gender  mainstreaming  as 
well as possible positive action in favour of gender equality is likely to fail despite increased 
financial  means  made  available.  Therefore,  the  MFF  instruments  will  necessitate  regular 
monitoring  of  its  implementation  in  terms  of  priorities,  actions  and  outcomes  in  order  to 
realise the potential for more economic independence for women and men. 

Third,  the  documents  seem  to  embody  a  narrower  focus  of  interventions  on  direct 
employment  prospects  than  in  the  past.  Although  this  could  be  seen  as  an  appropriate 
short term measure to overcome the negative effects of the economic crisis on the labour 
market,  improved  economic  independence  of  women  and  men  will  require  a  more  holistic 

46
 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
   
 
 
The multi-annual financial framework 2014-2020 from a gender equality perspective 

approach  in  the  long  term,  i.e.  before  the  end  of  the  EU2020  strategy.  An  emphasis  on 
immediate  results  in  employment  would  concentrate  more  actions  on  men  rather  than 
women and may prove – in the long- and medium - terms – to be counterproductive.  

47
 

 
 
 
 
 
 
Policy Department C: Citizens' Rights and Constitutional Affairs 

6.  REFERENCES 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

Albanesi  S.  and  C.  Olivetti,  2007,  Gender  Roles  and  Technological  Progress,  NBER 
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Bettio,  F.  (2008)  ‘Occupational  segregation  and  gender  wage  disparities  in 
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(eds),  Frontiers  in  the  economics  of  gender,  Routledge  Siena  Studies  in  Political 
Economy, Routledge: 267–285. 

Bettio,  F  and  Verashchagina,  A.    (2011).  ‘Crisis  and  Recovery  in  Europe.  Labour 
Market Impact on Men and Women’, EC’s Expert Group on Gender and Employment. 
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Bettio,  F  and  Verashchagina,  A.  (2009)  ‘Gender  segregation  in  the  labour  market: 
root  causes,  implications  and  policy  responses  in  the  EU’,  EC’s  Expert  Group  on 
Gender and Employment. Luxembourg: Publications Office of the European Union 

Boeri,  T.  (2002)  ‘Let  Social  Policy  Models  Compete  and  Europe  Will  Win’.  Paper 
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Commission of the European Communities. (2006) Joint Report by the Commission 
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C.E.C.  (2007)  COM  424  final  ‘Tackling  the  pay  gap  between  women  and  men’, 
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C.E.C.  (2008)  COM  635  final,  3.10.2008.  ‘A  better  work-life  balance:  stronger 
support for reconciling professional, private and family life’. European Commission. 

C.E.C.  (2009),  COM  694  final,  18.12.2009.  ‘Equality  between  women  and  men  ­
2010’. European Commission. 

C.E.C.  (2010a),  COM  2020  final,  3.3.2010.  “Europe  2020:  A  strategy  for  smart, 
sustainable  and  inclusive  growth”,  Communication  from  the  Commission,  European 
Commission 

C.E.C.  (2010b),  COM  491  final,  21.9.2010.  “Strategy  for  Equality  between  women 
and men 2010-2015”, Communication from the Commission, European Commission 

C.E.C.  (2011a),  COM  500  final,  29.6.2011.  ‘A  budget  for  Europe  2020:  Part  II’. 
Communication  from  the  Commission  to  the  European  Parliament,  the  Council,  the 
European Economic and Social Committee and the Committee of the Regions 

48
 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
The multi-annual financial framework 2014-2020 from a gender equality perspective 

C.E.C. (2011b) COM 607 final, 6.10.2011. Proposal for a Regulation of the European 
Parliament and of the Council on the European Social Fund and repealing Regulation 
(EC) No 1081/2006. 

C.E.C. (2011c) COM 608 final, 6.10.2011. Proposal for a Regulation of the European 
Parliament  and  of  the  Council  on  the  European  Globalisation  Adjustment  Fund 
(2014-2020). 

C.E.C. (2011d) COM 609 final, 6.10.2011. Proposal for a Regulation of the European 
Parliament  and  of  the  Council  on  a  European  Union  Programme  for  Social  Change 
and Innovation. 

C.E.C.  (2011e)  COM  834  final,  30.11.2011.  “Proposal  for  a  Regulation  of  the 
European  Parliament  and  of  the  Council:  establishing  a  Programme  for  the 
Competitiveness  of  Enterprises  and  small  and  medium-sized  enterprises  (2014­
2020)”. 

Cha,  Y.  and  Thébaud,  S.  (2009)  Labor  Markets,  Breadwinning  and  Beliefs:  How 
Economic Context Shapes Men’s Gender Ideology, Gender and Society, 23 (2): 215­
243. 

Chichilnisky, G. (2008). The Gender Gap. In Bettio & Verashchagina (eds.) Frontiers 
in the Economics of Gender, Routledge Siena Studies in Political Economy; 2008. p. 
57-75. 

Eckel  C.C  and  P.J.  Grossman,  2008,  ‘Men,  women  and  risk  aversion:  Experimental 
in  Handbook  of  Experimental  Economics  Results,  Volume  1, 
evidence’ 
http://aysps.gsu.edu/isp/files/isp_ind_3.pdf. 

EGGSIE  (2006)  ‘The  gender  pay  gap.  Origins  and  policy  responses.  A  comparative 
review  of  thirty  European  countries.’  The  co-ordinators’  synthesis  report  prepared 
for the Equality Unit, European Commission. 

EIGE  (2011)  ‘Main  Findings:  Review  of  the  Implementation  of  the  Beijing  Platform 
for Action: Women and the Economy’. 

Eurobarometer 
Eurobarometer 189/Wave 59.1, European Commission. 

‘European’s  attitudes 

(2004) 

to  parental 

leave’,  Special 

European Commission (2010) Statistical Portrait of the EGF 2007-2010. 

Eurostat (2011) ‘Statistics on income, social inclusion & living conditions’, European 
Commissions Statistics website. 

Francavilla,  F.,  Giannelli,  G.C.,  Grotkowska,  G,  Piccoli,  L.,  Socha,  M.W.  (2010), 
Women and Unpaid Family Care Work in the EU, Policy Department Citizens’ Rights 
and Constitutional Affairs, European Parliament.  

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	  GHK and Fondazione G. Brodolini (2011) “Final Synthesis Report: Evaluation of the 
European  Social  Fund’s  Support  to  Gender  Equality”,  European  Commission, 
Directorate-General Employment, Social Affairs and Equal Opportunities. 

	  Goldin,  C.  (2006).  The  Quiet  Revolution  that  Transformed  Women’s  Employment, 

Education and Family. American Economic Review, 96, 1–21. 

	 

	 

ILO  (2010)  ‘Women  in  labour  markets:  Measuring  progress  and  identifying 
challenges’. International Labour Organisation, March 2010. 

Lyberaki, A. (2011a) Gender Aspects of the Economic Turndown and Financial Crisis. 
Directorate  General  for  Internal  Policies.  Policy  Department  C:  Citizen’s  Rights  and 
Constitutional Affaires: Gender Equality. European Parliament. 

49
 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Policy Department C: Citizens' Rights and Constitutional Affairs 

	 

Lyberaki,  A.  (2011b)  “Migrant  Women,  Care  Work  and  Women’s  Employment  in 
Greece”, Feminist Economics, 17 (3): 103-131. 

	  OECD (2011) Divided we stand. Why Inequality keeps rising, Paris, OECD. 

	 

	 

P.Pierson,  2000,  Increasing  Returns,  Path  Dependence  and  the  Study  of  Politics, 
American Political Science Review, pp 251-267. 

Sigle-Rushton,  W.  and  Waldfogel.  J.  (2007).  Motherhood  and  women’s  earnings  in 
Anglo-American,  Continental  European,  and  Nordic  Countries”, Feminist  Economics, 
13, 55-91. 

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7.  ANNEXES 

ANNEX 1:  ECONOMIC INDEPENDENCE LEGAL BASIS 

Legal Basis for Economic Independence 

Since 1957 and the Rome Treaty, the principle that men and women should receive equal 
pay for equal work has been enshrined in the EC Treaties. 

ARTICLE 11971 

Each  Member  State  shall  during  the  first  stage  ensure  and  subsequently  maintain  the 
application of the principle that men and women should receive equal pay for equal work. 
For the purpose of this Article, “pay” means the ordinary basic it minimum wage or salary 
and any other consideration, whether n cash or in kind, which the worker receives, directly 
or  indirectly,  in  respect  of  his  employment  from  his  employer.Equal  pay  without 
discrimination based on sex means: 

(a)  that  pay  for  the  same  work  at  piece  rates  shall  be  calculated  on  the  basis  of  the 

same unit of measurement;  

(b) that pay for work at time rates shall be the same for the same job. 

The  Treaty  of  Amsterdam  made  the  principle  of  equality  between  men  and  women  an 
objective  and  a  fundamental  Community  principle  (Article  2).  Article  3(2)  (article  8  TFEU) 
also gives the Community the task of integrating equality between men and women into all 
its  activities  (also  known  as  ‘gender  mainstreaming’).  The  Treaty  of  Amsterdam  also 
expanded the legal basis for promoting equality between men and women and introduced 
new  elements  of  major  importance.The  Article  13  (Article  19  TFEU)  makes  provision  for 
combating  all  forms  of  discrimination  and  Articles  137  (Article  153  TFEU)  and  141  (157 
TFEU)  allow  the  EU  to  act  not  only  in  the  area  of  equal  pay  but  also  in  the  wider  area  of 
equal  opportunities  and  treatment  in  matters  of  employment  and  occupation.  Within  this 
framework, Article 141 authorises positive discrimination in favour of women. 

From Treaty of Amsterdam72: 

“Article 2: 

The  Community  shall  have  as  its  task,  by  establishing  a  common  market  and  an 
economic  and  monetary  union  and  by  implementing  common  policies  or  activities 
referred  to  in  Articles  3  and  3a,  to  promote  throughout  the  Community  a  harmonious, 
balanced  and  sustainable  development  of  economic  activities,  a  high  level  of  employment 
and  of  social  protection,  equality  between  men  and  women,  sustainable  and  non­
inflationary  growth,  a  high  degree  of  competitiveness  and  convergence  of  economic 
performance, a high level of protection and improvement of the quality of the environment, 
the  raising  of  the  standard  of  living  and  quality  of  life,  and  economic  and  social  cohesion 
and solidarity among Member States”. 

71  http://ec.europa.eu/economy_finance/emu_history/documents/treaties/rometreaty2.pdf. 
72  Treaty of Amsterdam: http://www.europarl.europa.eu/topics/treaty/pdf/amst-en.pdf. 

51
 

 
 
 
 
 
 
 
 
 
   
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
                                                 
  
  
 
Policy Department C: Citizens' Rights and Constitutional Affairs 

3) Article 3 shall be amended as follows: 

a)	  the existing text shall be numbered and become paragraph 1; 

b)  in  new  paragraph  1,  point 

following: 
(d)  shall  be 
“(d)  measures  concerning  the  entry  and  movement  of  persons  as  provided  for  in 
Title IIIa;”; 

replaced  by 

the 

c)	 

in  new  paragraph  1,  the  following  new  point  (i)  shall  be  inserted  after  point  (h): 
“(i)  the  promotion  of  co-ordination  between  employment  policies  of  the  Member 
States  with  a  view  to  enhancing  their  effectiveness  by  developing  a  co-ordinated 
strategy for employment;” 

d)  in  new  paragraph  1,  the  existing  point  (i)  shall  become  point  (j)  and  the 

subsequent points shall be renumbered accordingly; 

e)  the following paragraph shall be added: 

“2.  In  all  the  activities  referred  to  in  this  Article,  the  Community  shall  aim  to  eliminate 
inequalities and to promote equality, between men and women”. 

Lisbon Treaty 

However, the first directives implementing this principle were not adopted on this basis but 
on the basis of Article 308 (supplementary powers) being today articles 352 and 353 of the 
Treaty  on  the  Functioning  of  the  European  Union  (TFEU),  or  article  115  TFEU  of  the 
approximation of laws and new Article 153 TFEU workers’ health and safety.73 

Article 352 (ex Article 308 TEC)  

1.	 

If  action  by  the  Union  should  prove  necessary,  within  the  framework  of  the  policies 
defined in the Treaties, to attain one of the objectives set out in the Treaties, and the 
Treaties have not provided the necessary powers, the Council, acting unanimously on a 
proposal  from  the  Commission  and  after  obtaining  the  consent  of  the  European 
Parliament, shall adopt the appropriate measures. Where the measures in question are 
adopted by the Council in accordance with a special legislative procedure, it shall also 
act unanimously on a proposal from the Commission and after obtaining the consent of 
the European Parliament. 

2.	  Using the procedure for monitoring the subsidiarity principle referred to in Article 5(3) 
of  the  Treaty  on  European  Union,  the  Commission  shall  draw  national  Parliaments' 
attention to proposals based on this Article. 

3.	  Measures based on this Article shall not entail harmonisation of Member States' laws or 

regulations in cases where the Treaties exclude such harmonisation. 

4.	  This Article  cannot serve as a basis for attaining objectives pertaining to the common 
foreign  and  security  policy  and  any  acts  adopted  pursuant  to  this  Article  shall  respect 

73	  Consolidated version of the TFEU:  

http://eurex.europa.eu/LexUriServ/LexUriServ.do?uri=OJ:C:2008:115:0047:0199:en:PDF. 

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The multi-annual financial framework 2014-2020 from a gender equality perspective 

the  limits  set  out  in  Article  40,  second  paragraph,  of  the  Treaty  on  European  Union. 
C 115/196 EN Official Journal of the European Union 9.5.2008. 

Article 353 

Article 48(7) of the Treaty on European Union shall not apply to the following Articles: 

–   Article 311, third and fourth paragraphs, 
–   Article 312(2), first subparagraph, 
–  Article 352, and 
–  Article 354. 

Article 115 (ex Article 94 TEC) 

Without prejudice to Article 114, the Council shall, acting unanimously in accordance with a 
special  legislative  procedure  and  after  consulting  the  European  Parliament  and  the 
Economic  and  Social  Committee,  issue  directives  for  the  approximation  of  such  laws, 
regulations  or  administrative  provisions  of  the  Member  States  as  directly  affect  the 
establishment or functioning of the internal market. 

Article 153 (ex Article 137 TEC) 

1.  With  a  view  to  achieving  the  objectives  of  Article  151,  the  Union  shall  support  and 

complement the activities of the Member States in the following fields: 

a)  improvement in particular of the working environment to protect workers' health 

and safety; 

b)  working conditions; 
c)  social security and social protection of workers; 
d)  protection of workers where their employment contract is terminated; 
e)  the information and consultation of workers; 

C 115/114 EN Official Journal of the European Union 9.5.2008 

f)  representation and collective defence of the interests of workers and employers, 

including codetermination, subject to paragraph 5; 

g)  conditions  of  employment  for  third-country  nationals  legally  residing  in  Union 

territory; 

h)  the integration of persons excluded from the labour market, without prejudice to 

Article 166; 

i)  equality between men and women with regard to labour market opportunities and 

treatment at work; 

j)  the combating of social exclusion; 
k)  the  modernisation  of  social  protection  systems  without  prejudice  to  point  (c). 

2. To this end, the European Parliament and the Council: 

a)  may  adopt  measures  designed  to  encourage  cooperation  between  Member  States 
through  initiatives  aimed  at  improving  knowledge,  developing  exchanges  of 
information  and  best  practices,  promoting  innovative  approaches  and  evaluating 
experiences, excluding any harmonisation of the laws and regulations of the Member 
States; 

53
 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Policy Department C: Citizens' Rights and Constitutional Affairs 

b)	  may adopt, in the fields referred to in paragraph 1(a) to (i), by means of directives, 
minimum requirements for gradual implementation, having regard to the conditions 
and  technical  rules  obtaining  in  each  of  the  Member  States.  Such  directives  shall 
avoid imposing administrative, financial and legal constraints in a way which would 
hold  back  the  creation  and  development  of  small  and  medium-sized  undertakings. 
The  European  Parliament  and  the  Council  shall  act  in  accordance  with  the  ordinary 
legislative  procedure  after  consulting  the  Economic  and  Social  Committee  and  the 
Committee  of  the  Regions.  In  the  fields  referred  to  in  paragraph  1(c),  (d),  (f)  and 
(g),  the  Council  shall  act  unanimously,  in  accordance  with  a  special  legislative 
procedure, after consulting the European Parliament and the said Committees. The 
Council,  acting  unanimously  on  a  proposal  from  the  Commission,  after  consulting 
the  European  Parliament,  may  decide  to  render  the  ordinary  legislative  procedure 
applicable to paragraph 1(d), (f) and (g). 

3. A  Member  State  may  entrust  management  and  labour,  at  their  joint  request,  with  the 
implementation  of  directives  adopted  pursuant  to  paragraph  2,  or,  where  appropriate, 
with the implementation of a Council decision adopted in accordance with Article 155. In 
this case, it shall ensure that, no later than the date on which a directive or a decision 
must  be  transposed  or  implemented,  management  and  labour  have  introduced  the 
necessary measures by agreement, the Member State concerned being required to take 
any  necessary  measure  enabling  it  at  any  time  to  be  in  a  position  to  guarantee  the 
results  imposed  by  that  directive  or  that  decision.  9.5.2008  EN  Official  Journal  of  the 
European Union C 115/115. 

4. The provisions adopted pursuant to this Article: 

– 	

– 	

shall  not  affect  the  right  of  Member  States  to  define  the  fundamental  principles  of 
their  social  security  systems  and  must  not  significantly  affect  the  financial 
equilibrium thereof, 
shall not prevent any Member State from maintaining or introducing more stringent 
protective measures compatible with the Treaties. 

5. The provisions of this Article shall not apply to pay, the right of association, the right to 

strike or the right to impose lock-outs. 

Again from TFEU74: 

Article 8 (ex Article 3(2) TEC) 
(1)  In  all  its  activities,  the  Union  shall  aim  to  eliminate  inequalities,  and  to  promote 
equality, between men and women.  

Article 19 (ex Article 13 TEC) 

1.  Without  prejudice  to  the  other  provisions  of  the  Treaties  and  within  the  limits  of  the 
powers  conferred  by  them  upon  the  Union,  the  Council,  acting  unanimously  in 
accordance  with  a  special  legislative  procedure  and  after  obtaining  the  consent  of  the 
European  Parliament,  may  take  appropriate  action  to  combat  discrimination  based  on 
sex, racial or ethnic origin, religion or belief, disability, age or sexual orientation. 

74	  Consolidated version of the TFEU:  

http://eur-lex.europa.eu/LexUriServ/LexUriServ.do?uri=OJ:C:2008:115:0047:0199:en:PDF. 

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The multi-annual financial framework 2014-2020 from a gender equality perspective 

2. By way of derogation from paragraph 1, the European Parliament and the Council, acting 
in accordance with the ordinary legislative procedure, may adopt the basic principles of 
Union  incentive  measures,  excluding  any  harmonisation  of  the  laws  and  regulations  of 
the Member States, to support action taken by the Member States in order to contribute 
to the achievement of the objectives referred to in paragraph 1. 

Article 153 (ex Article 137 TEC) 

1. With  a  view  to  achieving  the  objectives  of  Article  151,  the  Union  shall  support  and 

complement the activities of the Member States in the following fields: 

a)  improvement  in  particular  of  the  working  environment  to  protect  workers'  health 

and safety; 


b)  working conditions;
 
c)  social security and social protection of workers; 

d)  protection of workers where their employment contract is terminated; 

e)  the information and consultation of workers; 


C 115/114 EN Official Journal of the European Union 9.5.2008 

f)  representation  and  collective  defence  of  the  interests  of  workers  and  employers, 

including codetermination, subject to paragraph 5; 

g)  conditions  of  employment  for  third-country  nationals  legally  residing  in  Union 

territory; 

h)  the  integration  of  persons  excluded  from  the  labour  market,  without  prejudice  to 

Article 166; 

i)  equality  between  men  and  women  with  regard  to  labour  market  opportunities  and 

treatment at work; 

j)  the combating of social exclusion; 
k)  the  modernisation  of  social  protection  systems  without  prejudice  to  point  (c). 

2. To this end, the European Parliament and the Council: 

(a)  may  adopt  measures  designed  to  encourage  cooperation  between  Member 
States  through  initiatives  aimed  at  improving  knowledge,  developing  exchanges  of 
information  and  best  practices,  promoting  innovative  approaches  and  evaluating 
experiences, excluding any harmonisation of the laws and regulations of the Member 
States; 

(b)  may  adopt,  in  the  fields  referred  to  in  paragraph  1(a)  to  (i),  by  means  of 
directives, minimum requirements for gradual implementation, having regard to the 
conditions  and  technical  rules  obtaining  in  each  of  the  Member  States.  Such 
directives  shall  avoid  imposing  administrative,  financial  and  legal  constraints  in  a 
way  which  would  hold  back  the  creation  and  development  of  small  and  medium-
sized undertakings. 

The  European  Parliament  and  the  Council  shall  act  in  accordance  with  the  ordinary 
legislative  procedure  after  consulting  the  Economic  and  Social  Committee  and  the 
Committee of the Regions. In the fields referred to in paragraph 1(c), (d), (f) and (g), the 
Council  shall  act  unanimously,  in  accordance  with  a  special  legislative  procedure,  after 
consulting the European Parliament and the said Committees. 

The  Council,  acting  unanimously  on  a  proposal  from  the  Commission,  after  consulting  the 

55
 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Policy Department C: Citizens' Rights and Constitutional Affairs 

European Parliament, may decide to render the ordinary legislative procedure applicable to 
paragraph 1(d), (f) and (g). 

3. A  Member  State  may  entrust  management  and  labour,  at  their  joint  request,  with  the 
implementation  of  directives  adopted  pursuant  to  paragraph  2,  or,  where  appropriate, 
with the implementation of a Council decision adopted in accordance with Article 155. In 
this case, it shall ensure that, no later than the date on which a directive or a decision 
must  be  transposed  or  implemented,  management  and  labour  have  introduced  the 
necessary measures by agreement, the Member State concerned being required to take 
any  necessary  measure  enabling  it  at  any  time  to  be  in  a  position  to  guarantee  the 
results  imposed  by  that  directive  or  that  decision.  9.5.2008  EN  Official  Journal  of  the 
European Union C 115/115. 

4. The provisions adopted pursuant to this Article: 

– 	

– 	

shall  not  affect  the  right  of  Member  States  to  define  the  fundamental  principles  of 
their  social  security  systems  and  must  not  significantly  affect  the  financial 
equilibrium thereof, 

shall not prevent any Member State from maintaining or introducing more  stringent 
protective measures compatible with the Treaties. 

5. The provisions of this Article shall not apply to pay, the right of association, the right to 

strike or the right to impose lock-outs 

56
 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
The multi-annual financial framework 2014-2020 from a gender equality perspective 

ANNEX  2:    ESF  MAIN  POLICY  OBJECTIVES  AND  POLICY  
ACTIONS 

Policy Actions facilitating the main policy objectives 

1. Promoting employment and supporting labour mobility through: 

(i) 

(ii) 

(iii) 
(iv) 

Access  to  employment  for  job-seekers  and  inactive  people,  including  local 
employment initiatives and support for labour mobility;  
Sustainable  integration  of  young  people  not  in  employment,  education  or 
training into the labour market;  
Self-employment, entrepreneurship and business creation; 
Equality between men and women and reconciliation between work and private 
life; 
Adaptation of workers, enterprises and entrepreneurs to change; 
Active and healthy ageing; 

(v) 
(vi) 
(vii)  Modernisation  and  strengthening  of  labour  market  institutions,  including 

actions to enhance transnational labour mobility; 

2.  Investing in education, skills and life-long learning through: 

(i)	 

(ii)	 

(iii)	 

Reducing  early  school-leaving  and  promoting  equal  access  to  good-quality 
early-childhood, primary and secondary education; 
Improving  the  quality,  efficiency  and  openness  of  tertiary  and  equivalent 
education with a view to increasing participation and attainment levels; 
Enhancing access to lifelong learning, upgrading the skills and competences of 
the  workforce  and  increasing  the  labour  market  relevance  of  education  and 
training systems; 

3.  Promoting social inclusion and combating poverty through: 

(i)	 
(ii)	 
(iii)	 

(iv)	 

(v)	 
(vi)	 

Active inclusion; 
Integration of marginalised communities such as the Roma;  
Combating  discrimination  based  on  sex,  racial  or  ethnic  origin,  religion  or 
belief, disability, age or sexual orientation;  
Enhancing access to affordable, sustainable and high-quality services, including 
health care and social services of general interest; 
Promoting the social economy and social enterprises;  
Community-led local development strategies; 

4.  Enhancing institutional capacity and efficient public administration through: 

(i)	 

(ii)	 

in 

institutional  capacity  and 

Investment 
the  efficiency  of  public 
administrations  and  public  services  with  a  view  to  reforms,  better  regulation 
and good governance;  
Capacity building for stakeholders delivering employment, education and social 
policies  and  sectoral  and  territorial  pacts  to  mobilise  for  reform  at  national, 
regional and local level. 

in 

57
 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
  
 
 
 
 
 
 
  
 
 
 
 
  
 
 
  
 
 
 
 
 
 
 
  
 
 
  
 
  
 
 
 
 
 
 
 
 
 
 
Policy Department C: Citizens' Rights and Constitutional Affairs 

ANNEX 3: DESCRIPTION OF FINANCIAL INSTRUMENTS 

a)  The  European  Social  Fund  (ESF),  accounting  for  93%  of  actions  (Table  3.1)  will 
provide  for  structural  actions  for  economic,  social  and  territorial  cohesion.  Funding  will  be 
channelled  through  four  “investment  windows”:  i)  employment  promotion;  ii)  investment 
in skills, education and life-long learning; iii) social inclusion and the fight against poverty; 
and  iv)  enhancing  institutional  capacity  and  efficient  public  administration.  Within  these 
windows,  the  ESF  will  also  contribute  to  other  gender-relevant  policy  objectives,  such  as 
strengthening  gender  equality  and  combating  discrimination.).  The  total  funding  will  be 
around €84 billion for the ESF (2014-2020), compared to the MFF 2007-2013 amount €76 
billion an increase of 10.5%. 

b)  The  European  Globalisation  Fund  (EGAF)  provides  support  to  workers  made 
redundant  as  a  result  of  changes  in  world  trade  patterns  or  the  financial  and  economic 
crisis.  The  aim  is  to  achieve  a  50%  rate  of  assisted  workers  finding  a  new  and  stable  job 
after 12 months. The proposed budget is €3bn. 

c) An integrated programme for employment, social policy and inclusion: the PSCI 
is an instrument to be managed directly by the Commission, in support of employment and 
social  policies  across  the  EU.  The  PSCI  will  support  policy  coordination,  sharing  of  best 
practices,  capacity-building  and  testing  of  innovative  policies,  with  the  aim  that  the  most 
successful  measures  be  up-scaled  with  support  from  the European  Social  Fund.  The  total 
proposed budget is €923 millios. 

Additionally,  the  Competitiveness  and  SMEs  Programme  funds  gender  sensitive 
objectives  (mainly  through  promoting  entrepreneurship,  especially  among  young  persons 
and women). Its budget is € 2.4 billion. Although it has a gender perspective in promoting 
entrepreneurship,  it  does  not  earmark  a  share  for  promoting  entrepreneurship  among 
women. 

The  integrated  programme  for  social  change  and  innovation  (PSCI)  is  comprised  of  the 
following: 

Progress Programme 

For  the  period  2014-2020,  Progress  will  continue  its  current  activities  (analysis,  mutual 
learning  and  grants)  and  will  have  a  specific  budget  for social  innovation  and 
experimentation, i.e. testing of innovative policies on a small scale, with the aim that the 
most successful ones can be up-scaled, including with ESF support. 

EURES network 

With the new proposal, EURES activities at national and cross-border level will be financed 
under  the European  Social  Fund,  supporting  workers'  mobility  and  helping  companies 
recruit  abroad.  At  EU  level,  the  EURES  Portal  will  offer  modernised  self-service  tools  for 
jobseekers  and  employers.  Moreover,  the  EU  level  of  EURES  will  be  used  to  create  and 
develop new  targeted  mobility  schemes such  as  the  Your  First  EURES  Job  scheme.  The 
overall EURES budget is expected to remain the same, at around 20 million euro per year, 
but the budget foreseen for Your First EURES Job as from 2014 will be EUR 10 million per 
year. 

Microfinance facility and Social Entrepreneurship 

58
 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
The multi-annual financial framework 2014-2020 from a gender equality perspective 

The  new  programme  will  extend  the  support given  to  microcredit  providers  under  the 
current  European  Progress  Microfinance  Facility  (launched  in  2010).The  total  proposed 
budget for the microfinance and social entrepreneurship axis is around EUR 184 million for 
the period 2014-2020. 

59
 

 
 
 
 
 
 
 
 
 
Policy Department C: Citizens' Rights and Constitutional Affairs 

ANNEX 4: DETAILED GENDER OBJECTIVES TABLES 


Gender sensitive Objective 

(pages refer to 
MFF 2014-2020) 

Str. for 
equality 
2010-
2015 

EUROPE 
2020 

Gender sensitivity 

G+ scale 75 

1. employment promotion (p. 
32) 

Page 4 

2. investment in skills, 
education and life-long learning  
(p. 32) 

3.social inclusion and the fight 
against poverty  (p. 32) 

4.enhancing institutional 
capacity and efficient public 
administration  (p. 32) 

5. strengthening gender equality 
and combating discrimination 
(p.33) 

Page 
17-18 

Page 
17-18 
Page 19 

Page 4 

Page 4-
5 
Page 3 
Page 8-
9 

6. Specific support to workers 
made redundant (p. 35) 

Page 4  Page 19 

7. Promoting intra-EU labour 
mobility & improving access to 
employment opportunities 

Page 
17-18 
Page 13 

Page 
17-18 

Page 
17-18 

  Women

Directly related to EU 2020 targeting 75% employment rate for those aged 21­
  benefit  due  to  their  lower  employment  rates.  Target  groups: 
65.
older  women;  single  parents;  disabled  women;  migrant  women;  women  of 
ethnic minorities 
Women  benefit  due  to  a  gap  between  educational  attainment  and  professional 
development.  Longer  working  lives  require  the  possibility  to  develop  new  skills 
(more important for women, due to the greater frequency of broken careers). 

Page 6 

Page 5  Page 19  Women  benefit  more  because  women  face  higher  poverty  risk  -  particularly 

single parents and the elderly. 
Women  benefit  since  they  have  lower  "visibility"  and  lower  attachment. 
Monitoring of the proposed objectives plays crucial role in the implementation for 
their attainment  

Women  benefit  through  the  elimination  of  the  existing  gender  inequalities  in 
these  areas  (segregation  in  the  labour  market);  Areas  of  special  relevance: 
discrimination  of  migrants  in  low  paid  work;  and  residual  discrimination 
concerning pregnancy;  
Men  benefit  more  because  they  are  more  directly  affected  by  the  economic 
crisis  (Bettio  and  Verashchagina  2011:p.6):  a)  men’s  employment  and 
unemployment more affected so far. The main target group could be (previous) 
"insiders"  who  find  themselves  outside  of  the  labour  market;  those  who  were 
previously  outsiders  will  be  unaffected.    .The  design  of  unemployment  systems 
could introduce trade-offs (see footnote..) 
Women  are  less  mobile;  However,  independent  female  migration  has  increased 
considerably,  both  intra  and  extra  community,  especially  in  the  area  of  care.  A 
possible  care  drain  needs  to  be  addressed  by  the  coordination  of  social 
protection systems. 

H 

H 

H 

H 

H 

L 

M 

75 Ranked according to a gender sensitivity scale h=high, m=medium, l=low. 

60 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
                                                 
The multi-annual financial framework 2014-2020 from a gender equality perspective 

8. Competitiveness and SMEs:  
i) Internationalisation (p. 20); 
(ii) self-employment (p.34) 

9. Platform for mutual learning 
processes to enhance the 
evidence base for reform design 
in policy-making & evidence-
based social innovation. 

Page 5 

Page 19 
Page 13 

Page 13 

Women will benefit because most women still do not consider entrepreneurship 
as a relevant career option. 
There  is  considerable  scope  for  transfer  of  good  practice  to  points  of  policy 
delivery,  especially  in  areas  where  gender  awareness  is  not  particularly  strong. 
Examples: 
Smaller  firms  could  be  encouraged  to  adopt  a  more  women  friendly  work 
organization/schedule; or could be helped to cope with maternity/paternity leave 
for they often bear high organizational costs in this respect.  

H 

M 

61
 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Policy Department C: Citizens' Rights and Constitutional Affairs 

Budgeting  Gender Objectives Table (in detail) 

Gender sensitive 
Objective  

Context Analysis - who will benefit and 
which problem is addressed? 

Strategy for equality  
2010-2015 

EUROPE 2020 

1. employment promotion 
(page 32) 

Directly related to the EU 2020target of 75% 
employment rate for women and men aged 20­
64 by 2020. Who will benefit?--> men and 
women, particularly important for disadvantaged 
groups with lower employment rates 

Addresses issues highlighted 
in: 1. Equal economic 
Independence (promote EU2020 
strategy Target of employment 
(p.4). 

Addresses issues highlighted in: 
Inclusive Growth (high employment 
economy) as included in flagship 
"An agenda for new skills and jobs" 
(p.17-18) 

2. investment in skills, 
education and life-long 
learning  (page 32) 

Directly related to the Educational attainment 
(educational outcomes not reflected in 
employment outcomes) and skills (lifelong 
learning benefits) 

Addresses issues highlighted 
in: 1.Equal pay for equal work 
(page 6), particularly key action 
4 "encourage women to enter 
non-traditional professions". 

Addresses issues highlighted in: 
Inclusive Growth (high employment 
economy) as included in flagship 
"An agenda for new skills and jobs" 
(p.17-18) 

3.social inclusion and the 
fight against poverty  
(page 32) 

Directly related to the higher risk of poverty 
and social exclusion of women (older workers 
and disadvantaged groups) 

Addresses issues highlighted 
in: 1.Equal pay for equal work 
(page 5) 

4.enhancing institutional 
capacity and efficient 
public administration  
(page 32) 

Directly related to the promotion of gender 
equality in the implementation of all aspects and 
Flagship initiatives of the Europe 2020 strategy 
as regards implementation of relevant national 
measures regarding economic independence ???. 

5. strengthening gender 
equality and combating 
discrimination (p. 33) 

Directly related to the elimination of the gender 
stereotypes through the promotion of gender 
equality, so as to reduce gender segregation in 
the labour market 

Addresses issues highlighted 
in: 1.Equal Economic 
Independence (page 4) 

Addresses issues highlighted 
in: 1.Equal Economic 
Independence (p. 4-5); 2.Equal 
Pay for Work (p. 6); 3. Equality 
in Decision Making (p.7-8); 4. 
Dignity, Integrity and an end to 
gender-based violence (p.8-9) 

6. Specific support to 
workers made redundant 
(p.35) 

Directly related to the impact of the economic 
downturn to labour market outcomes. Especially, 
'' insiders '', non-migrant men being affected by 
the crisis. Also, disadvantaged groups (more 
vulnerable). 

Addresses issues highlighted 
in: 1. Equal economic 
Independence (promote EU2020 
strategy Target of employment 
(p.4). 

Addresses issues highlighted in: 
Inclusive Growth (social cohesion) 
as included in flagship "European 
Platform against poverty" (p.19) 

Addresses issues highlighted in: 
Inclusive Growth as included in 
flagship ''An Agenda for new skills 
and jobs'' (p.17-18). 

Addresses issues highlighted in: 
Inclusive Growth as included in 
flagship ''An Agenda for new skills 
and jobs'' (p.17-18); and in flagship 
''European Platform Against 
Poverty'' (p.19) 

Addresses issues highlighted in: 
Inclusive Growth (high employment 
economy) as included in flagship 
"An agenda for new skills and jobs" 
(p.17-18) and flagship ''European 
Platform against poverty'' (p.19). 

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The multi-annual financial framework 2014-2020 from a gender equality perspective 

7. Promoting intra-EU 
labour mobility and 
improving access to 
employment opportunities  
(p.34) 

Directly related to the promotion of intra-EU 
labour mobility and better match between labour 
supply and demand. Covers activities of EURES 
network (information, advice and 
recruitment/employment services to workers and 
employers) as well as ‘Your first Eures Job" 

8. Competitiveness and 
SMEs:  i) Promotion of 
internationalisation and 
competitiveness of SMES 
in the EU and development 
of entrepreneurship (page 
20); (ii) Supporting 
entrepreneurship and self-
employment (p.34) 

Directly related to the development of 
entrepreneurial skills and attitudes (issues of 
competitiveness and SMEs), especially among 
new entrepreneurs, young people and women 
(low proportion of female entrepreneurs). Also 
related to microfinance activities (prolong 
support for providers of microfinance under the 
existing Progress Microfinance Facility). 

9. Europe-wide platform 
for mutual learning 
processes to enhance the 
evidence base for reform 
design in policy-making 
and evidence-based social 
innovation 

Directly related to the activities of the existing 
(2007-2013 Programme for Employment and 
Social Solidarity (Progress), namely: analysis, 
mutual learning and grants. It will also support 
innovation and social experimentation, i.e. 
testing of innovative policies on a small scale 
before applying them on a larger scale. 

Addresses issues highlighted 
in: 1.Equal Economic 
Independence (page 5) key 
action "promote female 
entrepreneurship and self-
employment" 

Addresses issues highlighted in: 
Inclusive Growth as included in 
flagship ''An Agenda for new skills 
and jobs'' (p.17-18); as well as in 
Smart Growth as included in flagship 
"Youth on the Move" (p.13) 

Addresses issues highlighted in: 
Inclusive Growth as included in 
flagship ''An Agenda for new skills 
and jobs'' (p.19); as well as in 
Smart Growth as included in flagship 
"Youth on the Move" (p.13) 
(promoting entrepreneurship); also 
in Sustainable Growth 

Addresses issues highlighted in: 
Smart Growth (an economy based 
on knowledge and innovation) as 
included in flagship "Innovation 
Union" (p.13) 

63
 

 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
   
 
 
 
 
 
  
 
 
Policy Department C: Citizens' Rights and Constitutional Affairs 

64
 

 
 
 
The multi-annual financial framework 2014-2020 from a gender equality perspective 

BRIEFING NOTE ON EDUCATION 


KEY FINDINGS 

	 

	 

	 

	 

	 

	 

	 

Gender  inequalities  still  remain  in  opportunities,  attainments  and  decisions  with 
regard  to  education  and  training,  despite  EU’s  declared  commitment  to  gender 
equality over the last decades. 

The  most  significant  gender  imbalances  in  education  and  training  are  related  to  the 
issues of learning of basic skills, early leaving from education, general and vocational 
education,  tertiary  level  education,  imbalance  among  graduates  in  Mathematics, 
Science and Technology (MST) and in lifelong learning. 

A review of EU’s seminal policy documents reveal that even though reducing drop-out 
rates,  increasing  participation  in  vocational  education  and  training  and  in  lifelong 
learning have been mentioned in various capacities, however, these issues have been 
dealt  in a gender neutral way and  no gender specific targets have been set for  men 
and women. 

A review of the available documents of EU’s financial tools for education and training 
for  2014-2020,  namely,  Erasmus  for  All  Programme  and  the  European  Social  Fund 
reflect  that  while  the  ESF  has  a  stated  gender  equality  objective  and  strategy, 
Erasmus for all is clearly lacking a specified gender equality strategy. 

Specific  budget  allocations  for  gender  equality  are  absent  from  Erasmus  for  All  and 
there  is  no  explicit  mechanism  mentioned  to  assess  the  amount  of  aid  allocated  to 
gender  equality  and  women’s  empowerment.  The  use  of  gender-disaggregated  data 
for  monitoring  and  evaluation  has  not  been  specified  in  any  of  the  documents  for 
Erasmus for All. 

The  ESF  programme  overall  presents  clear  gender  objectives,  identifies  targets  and 
has a clear gender equality strategy through gender mainstreaming as well as specific 
actions.  There  are  clear  mission  statements  which  give  clarity  to  the  programmes 
intention on promoting gender equality. 

The  amount  allocated  to  training  and  education  through  the  Erasmus  for  All 
programme and the European Social Fund, cannot be debated as insufficient, however 
the  integration  of  gender  perspective  is  clearly  missing  in  the  Erasmus  for  All 
programme. 

65
 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Policy Department C: Citizens' Rights and Constitutional Affairs 

1.  INTRODUCTION 

The aim of this briefing paper is to assess from a gender perspective the objectives of the 
proposals  for  the  MFF  2014-2020  regarding  education,  training  and  other  strategies  for 
lifelong learning. 

The  foundations  for  education  and  training  policies  lie  in  the  Treaty  on  the  Functioning  of 
76,  Title  XII  Education,  Vocational  Training, 
the  European  Union  (Lisbon  Treaty)
Youth  and  Sport,  more  specifically  in  article  165  for  education  and  in  article  166  for 
vocational  training77.  Objectives  for  the  European  Union  action  in  these  two  policy  fields 
differ.  

1  1 

1  1

1  1

1  1

1  1

1  1

1  1

1  1

1  1

1  1

1  1

1  1

8  8

8  8

8  8

9  9

9  9

1  1

7  7

While  for  Education  the  European  institutions  are  expected  to  encourage  cooperation 
between  Member  States  and,  if  necessary,  by  supporting  and  supplementing  their  action, 
while  fully  respecting  the  responsibility  of  the  Member  States  for  the  content  of  teaching 
and the organisation of education systems, the Union is to develop the European dimension 
in education. 

In  the  area  of  vocational  training,  the  Union  shall  implement  a  vocational  training  policy 
which shall support and supplement the action of the Member States, while fully respecting, 
on the one hand, the responsibility of the Member States for the content and organisation 
of vocational training and, on the other hand, the Union’s responsibility in order to facilitate 
vocational integration and reintegration into the labour market. 

EU  interventions  in  education  and  training  have  gained  impetus  since  the  adoption  of  the 
Lisbon Strategy in 2000 that focused on economic dynamism and competitiveness. In 2005 
the  Lisbon  Strategy  was  relaunched  stressing  on  growth  and  jobs  and  recognizing  the 
importance of knowledge and innovation in the light of increasing global competition. 

Furthermore,  the  EU  has  a  strong  track  record  of  promoting  gender  equality  within 
employment. However, the same could not be said for education and training. Training has 
been  developed  more  as  a  tool  to  achieve  higher  participation  of  women  in  the  labour 
market rather than to pursue gender desegregation and to tackle gender stereotypes: 

In  Member  States  the  general  trend  of  national  policies  with  regard  to  education  and 
training  has  been  traditionally  focused  on  attracting  women  into  vocational  training  (even 
reinforcing  gender  horizontal  segregation)  as  a  way  to  increase  their  chances  of  entering 
the  labour  market,  rather  than  pursuing  desegregation  in  education  programmes  and 
tackling gender stereotypes. The majority of measures in Member States aim at enhancing 
the  qualifications  of  women,  thus  improving  their  access  to  the  labour  market,  whereas 
minor  attention  is  devoted  to  the  reduction  of  gender-based  segregation  in  the  labour 
market  (despite  the  fact  that  segregation  has  been  amply  shown  to  be  responsible  for  a 
large  part  of  the  gender  wage  gap)  for  which  measures  aimed  at  tackling  gender 
stereotypes in education are a crucial step.  

Reality shows that there still exists a number of barriers and effects of gender segregation 
still  persist,  despite  the  high  levels  of  qualifications  attained  by  women  in  many  fields.  In 
almost  all  Member  States,  training  and  education  decisions  are  an  important  and  a 

76  Available at:  

http://eur-lex.europa.eu/LexUriServ/LexUriServ.do?uri=OJ:C:2008:115:0047:0199:EN:PDF. 

77  Full text of the TITLE XII: EDUCATION, VOCATIONAL TRAINING, YOUTH AND SPORT is available in Annex A.  

66
 

 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
  
   
 
 
 
 
 
 
 
 
 
 
 
 
 
                                                 
  
  
 
 
7
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The multi-annual financial framework 2014-2020 from a gender equality perspective 

determining  factor  contributing  to  unequal  integration  into  the  labour  market  and  to 
horizontal segregation.  
2.  CONTEXT ANALYSIS 

2.1. 

Policy  context  and  strategies  for  education  and  training  on 
the European level 

EU Member States and the European Commission strengthened co-operation in 2009 within 
the Strategic  framework for  European  cooperation  in  education and  training ("ET 
2020"),  a  follow-up  to  the  earlier  Education  and  Training  2010  work  programme 
launched  in  201078.The  approach  recognizes  that  high-quality  pre-primary,  primary, 
secondary,  higher  and  vocational  education  and  training  are  fundamental  to  Europe's 
success. 

From a gender perspective "ET 2020" does not explicitly refer to the promotion of gender 
equality. However, among its four Strategic objectives, the third (Promoting equity, social 
cohesion  and  active  citizenship)79  refers  to  the  promotion  of  “intercultural  competences, 
democratic  values  and  respect  for  fundamental  rights  and  the  environment,  as  well  as 
combat all forms of discrimination”. 

Therefore, for gender equality strategies in education and training, one has to rely on the 
Roadmap  for  Gender  Equality  (European  Commission,  2006)80  where  a  strong  impetus 
was given to gender equality in these fields: aimed at promoting the elimination of gender 
stereotypes in education, training and culture. In the Roadmap it was highlighted that the 
participation  of  women  in  all  educational  sectors  can  contribute  to  increasing  innovation, 
quality  and  competitiveness  of  scientific  and  industrial  research.  The  Strategy  for 
Equality  between  Women  and  Men  2010-201581  (March  2010),  drawing   on  the 
Roadmap  for  Gender  Equality  2006,  recognises  that  there  is  a  gap  between  women's 
educational attainment and professional development, thus special attention should be paid 
to  the  transition  between  education  and  the  labour  market.  It  stresses  the  importance  of 
promoting  non-discriminatory  gender  roles  in  all  areas  of  life  including  education  and 
careers.  It  should  be  highlighted  that  in  this  context  the  Strategy  also  mentions  the 
necessity  to  make  education  accessible  to  migrant  women  in  order  to  facilitate  their 
integration in the labour market. 

78	  Education  and  Training  2010  underlined  the  importance  for  the  European  Union  of  improving  education  and 
training systems, and set three strategic objectives: improving the quality and effectiveness of education and 
the  measurement  of  progress  through  agreed  instruments  and  training  systems  in  the  European  Union; 
facilitating the access of all to education and training systems; opening-up education and training systems to 
the wider world. 

79	  “Education  and  training  policy  should  enable  all  citizens,  irrespective  of  their  personal,  social  or  economic 
circumstances, to acquire, update and develop over a lifetime both job-specific skills and the key competences 
needed  for  their  employability  and  to  foster  further  learning,  active  citizenship  and  intercultural  dialogue. 
Educational  disadvantage  should  be  addressed  by  providing  high  quality  early  childhood  education  and 
targeted support, and by promoting inclusive education. Education and training systems should aim to ensure 
that all learners — including those from disadvantaged backgrounds and those with special needs and migrants 
— complete their education, including, where appropriate, through second-chance education and the provision
 
of  more  personalised  learning.  Education  should  promote  intercultural  competences,  democratic  values  and
 
respect for fundamental rights and the environment, as well as combat all forms of discrimination, equipping
 
all young people to interact positively with their peers from diverse backgrounds”.  

Full text available at:  

http://eur-lex.europa.eu/LexUriServ/LexUriServ.do?uri=CELEX:52009XG0528%2801%29:EN:NOT. 


80	  Available at: 

http://europa.eu/legislation_summaries/employment_and_social_policy/equality_between_men_and_women/c 
10404_en.htm. 

81	  Full text available at:  

http://eur-lex.europa.eu/LexUriServ/LexUriServ.do?uri=CELEX:52010DC0491:EN:NOT. 

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Policy Department C: Citizens' Rights and Constitutional Affairs 

In March 2010, the European Commission launched also "Europe 2020"82, a strategy for 
smart, sustainable and inclusive growth. One of the five headline targets in Europe 2020 is 
dedicated  to  education.  Taken  together,  the  EU2020  and  the  ET2020  Strategies,  set  five 
benchmark  targets  for  education  and  training  policies  for  202083.  However,  all  of  these 
benchmark targets are gender neutral. 

Moreover, in 2010 the EC communication “A new impetus for European cooperation in 
Vocational  Education  and  Training  to  support  the  Europe  2020  strategy”84,  stated 
clearly that lifelong learning policies should be directed at providing young people with an 
opportunity  to  get  acquainted  with  different  vocational  trades  and  career  possibilities.  In 
this  document  gender  equality  is  particularly  taken  into  consideration,  as  it  is  stated  that 
specific  attention  should  be  paid  to  the  issue  of  gender  equality  to  make  sure  that  more 
occupations are available to young men and women. The Commission staff working paper 
for the EU’s financial framework “Budget for Europe2020”85, in preparation of the MFF, 
emphasises  that  without  substantial  investment  in  human  capital,  education,  and  in  the 
talent of European citizens, none of the Europe 2020 objectives and headline targets will be 
met.  The  document  identifies  “gender  inequalities  in  provision  and  access  to  learning 
opportunities”  as  one86  of  the  main  six  problems  to  be  solved  by  the  EU  and  the  Member 
States. Gender as well as “the socioeconomic background, age and citizenship/ migration, 
are  in  spite  of  the  progress  made  over  the  last  decades,  still  the  most  serious  sources  of 
inequality in education” 87. 

It  is  possible  to  conclude  that  in  the  most  significant  policy  documents  of  the  European 
Union  the  importance  of  achieving  equality  between  women  and  men  in  education  and 
training  is  accounted  for.  In  the  next  section  the  analysis  of  the  education  and  training 
policy  documents  inherent  in  the  MFF  will  reveal  if  this  is  the  case  also  for  the  next  EU 
budget proposal of the European Commission. 

82	  EC  COM(2010)  2020  “COMMUNICATION  FROM  THE  COMMISSION  EUROPE  2020  A  strategy  for  smart, 

sustainable and inclusive growth”. Available at: 
http://eunec.vlor.be/detail_bestanden/doc014%20Europe%202020.pdf. 

83  They are: 

1.	  at least 95% of children between the age of four and the age for starting compulsory primary education 

should participate in early childhood education;  

2.	  the  share  of  15-years  olds  with  insufficient  abilities  in  reading,  mathematics  and  science  should  be  less 

than 15%; 

3.	  the share of early leavers from education and training should be less than 10%;  
4.	  the share of 30-34 year olds with tertiary educational attainment should be at least 40%;  
5.  an average of at least 15 % of adults (age group 25-64) should participate in lifelong Learning. 

84  Full text available at:  

http://europa.eu/legislation_summaries/education_training_youth/vocational_training/ef0023_en.htm. 

85	  Commission  Staff  Working  Paper:  “A  Budget  for  Europe  2020:  the  current  system  of  funding,  the  challenges 
ahead,  the  results  of  stakeholders  consultation  and  different  options  on  the  main  horizontal  and  sectoral 
issues”. 
Accompanying  the  document  Communication  from  the  Commission  to  the  European  Parliament,  the  Council, 
the European Economic and Social Committee and the Committee of the Regions A Budget for Europe 2020. 
Full text available at:  
http://ec.europa.eu/budget/library/biblio/documents/fin_fwk1420/SEC-868_en.pdf. 

86  See page 179 in Commission Staff Working Paper: “A Budget for Europe 2020: the current system of funding, 
the challenges ahead, the results of stakeholders consultation and different options on the main horizontal and 
sectoral issues.” It is the fifth in the list. 
Full text available at:  
http://ec.europa.eu/budget/library/biblio/documents/fin_fwk1420/SEC-868_en.pdf. 

87	  See page 179 in Commission Staff Working Paper: “A Budget for Europe 2020: the current system of funding, 
the challenges ahead, the results of stakeholders consultation and different options on the main horizontal and 
sectoral issues”. 
Full text available at: 
http://ec.europa.eu/budget/library/biblio/documents/fin_fwk1420/SEC-868_en.pdf. 

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The multi-annual financial framework 2014-2020 from a gender equality perspective 

2.2. 

Gender imbalances in education and training 

Consideration  of  gender  and  education  in  the  European  Union  (EU)  is  complex  due  to  the 
uneven  development  and  "wide  divergence"  in  education  and  training  generally  across 
Member  States.  EU  averages  can  indeed  be  averages  of  extremes.  In  fact,  gender  in 
education  across  the  EU  occupies  a  vast  and  varied  conceptual  landscape.  There  are 
persistent gender differences in education and training in both attainment and participation 
in courses of study. The nature of gender inequalities in education has changed profoundly 
over recent decades and has become even more complex. A 2010  study by the European 
Commission (IP/10/695Brussels, 2010)88 shows that traditional stereotypes remain a major 
obstacle  to  gender  equality  in  education  and  reflect  heavily  on  the  career  opportunities 
available to women and men. While girls usually obtain higher grades and higher pass rates 
in school leaving examinations than boys, and boys are more likely to drop out of school or 
repeat  school  years,  international  surveys  show  that  women  represent  the  majority  of 
students  and  graduates  in  almost  all  countries  and  dominate  in  education,  health  and 
in  engineering,  manufacturing  and 
welfare,  humanities  and  arts.  Men  dominate 
construction. 

MST  courses  are  predominantly  male  in  profile  and  courses  with  a  care  bias  are 
disproportionately  female.  Boys  and  men  are  underrepresented  in  education,  health, 
welfare, and the arts and humanities.  

On the other hand, there is evidence from across European countries that boys participate 
more  in  educational  programs  oriented  towards  the  labour  market  while  girls  are  more 
likely  to  be  enrolled  in  courses  preparing  them  for  further  education.  Moreover,  despite 
high female participation rates in formal education, women continue to be less represented 
in  vocational  and  ongoing  training.  This  can  create  obstacles  to  career  progress  and  thus 
impact on the level of attachment to the labour market. 

If  we  consider  the  life-course  perspective,  the  main  gender  imbalances  that  emerge  in 
education and training could be summed up as the following89 (see Annex 1): 

  Gender differences in the learning of basic skills90 

  Gender differences in early leaving from education 

  Gender differences in general and vocational education 

  Gender imbalance at tertiary level education 

  Gender imbalance among graduates in Mathematics, Science and Technology (MST) 

  Gender differences in lifelong learning 

88  Gender  Differences  in  Educational  Outcomes:  Study  on  the  Measures  Taken  and  the  Current  Situation  in 

Europe full text available at: 
http://eacea.ec.europa.eu/education/eurydice/documents/thematic_reports/120EN.pdf. 
89  A detailed discussion of the factual basis of the argument has been included in the Annex B.  
90  There are several studies that discuss the issue of a gender gap in performance on tests of basic skills: boys 
tend  to  perform  better  at  math,  while  girls  get  superior  reading  scores.  It  has  been  suggested  by  scientific 
journals  (Guiso,  Monte,  Sapienza,  Zingales,  2008,  in  Science  Vol.  320  no.  5880  pp.  1164-1165,  available  at 
http://www.sciencemag.org/content/320/5880/1164)  that  these  gaps  are  the  result  of  biological  differences, 
as  males  tend  to  have  better  spatial  reasoning  skills  and  females  better  word  recall.  But  the  recent  PISA 
surveys  suggest  that  there  are  factors  other  than  biology  that  influence  this  gender  gap,  such  as  social  and 
economic inequalities, which play a dominant role in test scores. 

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Policy Department C: Citizens' Rights and Constitutional Affairs 

Lifelong learning 

In the debate on lifelong learning, gender does not play a prominent role. However, lifelong 
learning  may  play  a  different  role  in  the  life  course  of  men  and  women.  Firstly,  the  shift 
towards a service economy may have a different impact on men and women, which would 
imply  different  needs  for  lifelong  learning.  Men,  for  example,  have  been  over-represented 
in the primary and secondary sectors, and will therefore be more likely to face a decline in 
employment.  Secondly,  women  have  a  higher  risk  of  an  interrupted  career  due  to  care 
responsibilities; this might pose specific problems with regard to maintaining and updating 
knowledge  and  skills.  In  addition  to  the  differences  in  the  overall  aim  and  use  of  lifelong 
learning,  there  may  also  be  differences  in  restrictions.  Women  are  for  example, 
overrepresented among the flexible work force, which may have a negative impact on the 
availability  and  accessibility  of  additional  training.  The  low  profile  of  gender  issues  in  the 
field  of  lifelong  learning  makes  it  impossible,  however,  to  both  analyse  the  use  of  lifelong 
learning over the male and female life course as well as monitor the impact. 

2.3. 

Gender objectives in education and training 

From the literature review of various European level studies commissioned by the European 
Commission as well as other independent studies on gender gaps in education and training, 
and from a review of statistical datatsets such as Eurostat and She Figures (see Annex B), 
our  context  analysis  of  the  gender  imbalances  in  education  and  training  indicate  to  the 
following main set of ‘Gender Sensitive Objectives’: 

1.  Reducing gender differences in learning of basic skills 

2.  Reducing drop-out rate for young boys 

3.  Increasing participation of women in vocational education and training 

4.  Gender imbalance at tertiary level education 

5.  Increasing number of female graduates in Mathematics, Science and Technology 

6.  Increasing participation of women in lifelong learning 

Having identified the primary ‘gender objectives in education and training’, we now seek to 
make  a  cross  reference  with  the  seminal  policy  documents  at  the  EU  level  that  deal  with 
education  and  training  policies,  namely  the  EU  2020  Strategy,  the  ET  2020  Strategy  and 
the Strategy for Equality between Women and Men. In the following table we have tried to 
review  these  documents  to  find  if  any  of  the  identified  gender  objective  have  been 
mentioned, and if so, if any targets have been set addressing these objectives. 

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The multi-annual financial framework 2014-2020 from a gender equality perspective 

Table 7: Gender objectives for education and training 

Gender Objectives 

Context 
Analysis 

EU 2020 
Strategy 

Reducing 
gender 
differences  in  learning  of 
basic skills 

Reducing  drop-out  rate 
for young boys 

Increasing 
participation 
of  women  in  vocational 
education and training 

Gender 
tertiary level 

imbalance 

at 

Increasing  number 
female graduates in MST 

of 

Increasing 
of  women 
learning 

participation 
lifelong 
in 

x 

X 

X 

X 

X 

x 

gender 
neutral 
target set 

gender 
neutral 
target set 

gender 
neutral 
target 

Strategy 
for 
Equality 
2010-
2015 

ET 2020 
Strategy 

X 

no specific 
target set 

gender 
neutral 
target set 

X 

no specific 
target set 

X 

no specific 
target set 

X 

no specific 
target 

As  we  can  see  from  the  table  above,  the  documents  reviewed  make  references  to  the 
issues  of  early  school  leaving,  participation  in  vocational  training  and  lifelong  learning. 
However, these issues have been dealt with in a gender neutral way and no gender specific 
targets have been set for men and women. In the Strategy for Equality, although they have 
been  mentioned  from  a  gender  perspective,  no  specific  targets  have  been  set  to  monitor 
progress. With regard to the issue of gender imbalance in the tertiary sector, although the 
context  analysis  finds  this  to  be  an  important  issue,  the  same  is  not  reflected  in  the 
strategy papers. 

3.	  GENDER  ANALYSIS  OF  BUDGET  AND  FINANCIAL 

TOOLS FOR EDUCATION AND TRAINING 

The instruments proposed by the Commission to support education and training for the MFF 
2014-2020  are  primarily  the  programme  'Erasmus  for  All'  and  the  European  Social  Fund. 
The Erasmus for All programme will bring together the currently separate sub-programmes 
of  the  Lifelong  Learning  Programme,  the  international  aspects  of  Higher  Education, 
including  Erasmus  Mundus,  and  Youth  in  Action.  The  ESF  will  provide  funds  for  structural 
actions of which one of the four ‘investment windows’ is investment in skills, education and 

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Policy Department C: Citizens' Rights and Constitutional Affairs 

lifelong learning. The Erasmus for All programme has an overall budget of €19bn while ESF 
accounts for €84 bn91. 

The policy documents scrutinised for this paper are those related to the EU programme for 
Education, Training, Youth and Sports, Erasmus for All and the European Social Fund 

3.1. 

Erasmus for All92 

In  the  Communication  from  the  Commission  to  the  European  Parliament,  the  Council,  the 
European Economic and Social Committee and the Committee of the Regions “Erasmus for 
All:  The  EU  Programme  for  Education,  Training,  Youth  and  Sport”  93  the  issue  of  gender 
inequalities  in  education  and  training  is  acknowledged  in  the  first  section  “A  new 
programme of new challenges”, where it is highlighted that “while women have surpassed 
men  in  both  participation  and  attainment  in  higher  education,  the  fields  of  study  remain 
segregated,  with  women  notably  underrepresented  in  science  and  engineering;  boys 
perform less well on reading literacy and tend to leave school early more often than girls”. 
However no mention is made in the rest of the document on how to address the issue, i.e. 
no strategy to tackle the inequalities  is proposed, no gender objective is  indicated and no 
gender-specific target is mentioned94. 

It  is  stressed  that  the  actions  envisaged  are  in  line  with  the  EU  2020  Strategy  but  no 
explicit reference to its gender objectives in the field of education and training is made. It is 
also pointed out that the programme is in line with Education and Training 2020 and Youth 
Strategies and the priorities of the EU’s external action. Considering that both the EU2020 
and  ET2020  Strategies  have  not  laid  down  any  specific  actions  for  promoting  gender 
equality or a strategy to integrate gender mainstreaming within education programmes, it 
is  not  surprising  that  gender  equality  has  not  been  given  the  due  importance  needed  to 
respond to the gender gaps existing in education and training.  

Available  documents  also  indicate  that  Erasmus  for  All  will  enhance  synergies  with  other 
sources  of  EU  funding.  In  particular,  with  Structural  Funds  to  increase  access  of  under­
represented  groups  into  education  and  training  and  with  Horizon  2020  to  support 
researchers'  mobility  through  the  Marie  Curie  programme.  However,  also  in  this  case  no 
mention  of  gender  specific  imbalances  in  advanced  education  is  made.  As  regards 
continuing  training  of  adults  in  the  labour  market  this  will  be  financed  by  the  European 
Social Fund. 

91	  http://ec.europa.eu/budget/library/biblio/documents/fin_fwk1420/MFF_COM-2011-500_Part_II_en.pdf. 
92	  The programme website: http://ec.europa.eu/youth/erasmus-for-all/index_en.htm. 
93   COM(2011)  787  final:  ERASMUS  FOR  ALL:  The  EU  Programme  for  Education,  Training,  Youth  and  Sport. 
Brussels,  23.11.2011:  Communication  from  the  Commission  to  the  European  Parliament,  the  Council,  the 
European  Economic  and  Social  Committee  and  the  Committee  of  the  Regions.  Full  text  available  at: 
http://ec.europa.eu/education/erasmus-for-all/doc/com_en.pdf. 

94	  By objective is meant an explicit statement on the results to be achieved by a public intervention. They  might 
be  Specific  when  they  concern  the  results  of  an  intervention  relative  to  direct  beneficiaries.  They  might  be 
global  objective  when  they  correspond  to  the  aim  of  the  intervention.  Objectives  might  be  operational  when 
they  specify  the  outputs  to  be  produced.  While  the  targets  are  the  intended  beneficiaries  (individuals, 
households,  groups,  firms)  of  the  intervention.  There  is  obviously  a  direct  relation  between  objectives  and 
targets  but  they  differ  as  target  groups  are  clearly  specified  as  individuals.  For  more  information  see  also: 
Evalsed site at:
http://ec.europa.eu/regional_policy/sources/docgener/evaluation/evalsed/glossary/glossary_o_en.htm 
http://www.undp.org/evaluation/documents/mec4-6.htm. 

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The multi-annual financial framework 2014-2020 from a gender equality perspective 

The Regulation 

In the proposed Regulation establishing the programme the issue of gender inequalities is 
mentioned in point (7) of the preamble, stating that: 

“Pursuant to Articles 8 and 10 of the Treaty on the Functioning of the European Union, as 
well as the articles 21 and 23 of the Charter of Fundamental Rights, the Programme shall 
promote equality between women and men and combat discrimination based on sex, racial 
or ethnic origin, religion or belief, disability, age or sexual orientation”. 

In Art. 4 it is highlighted that: 

“1.  The  Programme  aims  to  contribute  to  the  objectives  of  the  Europe  2020  strategy 
and of the Education and Training strategic framework 2020 (ET2020), including the 
corresponding  benchmarks  established  in  those  instruments,  to  the  renewed 
framework  for  European  Cooperation  in  the  Youth  field  (2010-2018),  to  the 
sustainable  development  of  third  countries  in  the  field  of  higher  education  and  to 
developing the European dimension in sports. 

2.  	 It  particularly  aims  to  contribute  to  reach  the  following  Europe  2020  headline 

targets: 

(a) Reduction of early school leaving rates; 

(b)  Increase  of  30-34  year-old  students  having  completed  the  third  level  of 

education”. 

Among the specific objectives envisaged none directly refers to gender gaps and the related 
indicators  are  never  disaggregated  by  sex  (so  no  gender  disaggregated  information  is 
ensured). 

Only  in  Art.  17  regulating  the  access,  paragraph  2  states  that  “When  implementing  the 
Programme,  the  Commission  and  the  Member  States  shall  ensure  particular  efforts  to 
facilitate the participation of people with difficulties for educational, social, gender, physical, 
psychological,  geographical,  economic  and  cultural  reasons”95.  In  Chapter  III,  devoted  to 
Sport a generic mention of Equal Opportunities is made but no specific reference to gender 
can be found. 

As  far  as  the  budget  is  concerned  the  financial  envelope  for  the  implementation  of  this 
Programme as from 1 January 2014 is set at €17.3 bn. 

Additional funds from external instruments 

Additionally,  €1.8  bn  from  the  different  external  instruments  (Development  Cooperation 
Instrument, European Neighbourhood Instrument, Instrument for Preaccession Assistance, 
Partnership Instrument and the European development Fund) will be spent to promote the 
international dimension of higher education. The funding will be made available through 2 
multi-annual  allocations  only  covering  the  first  4  years  and  the  remaining  3  years 

95	  Proposal for a Regulation of the European Parliament and of The Council establishing "ERASMUS FOR ALL" The 
Union  Programme  for  Education,  Training,  Youth  and  Sport,  Brussels,  23.11.2011    COM(2011)  788/final 
2011/0371 (COD). Full text available at: http://ec.europa.eu/education/erasmus-for-all/doc/legal_en.pdf. 

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Policy Department C: Citizens' Rights and Constitutional Affairs 

respectively.  The  allocations  can  be  revised  in  case  of  major  unforeseen  circumstances  or 
important political changes in line with the EU’s external priorities96. 

The present programming cycle 

It  is  difficult  at  this  point,  based  on  the  information  available  on  the  Erasmus  for  All 
programme, to make an ex-ante evaluation of its impact and adequacy with regard to the 
gender objectives identified in the previous section. 

However,  we  could  look  at  the  financial  instruments  presently  in  place  for  education  and 
training and gouge their gender impact so far in order to draw conclusions on what we may 
expect from the designed policy interventions in the next Multi-annual Financial Framework. 
To  this  aim  we  shall  look  at  the  intermediate  evaluations  of  the  following  programmes 
currently in implementation. 

Lifelong  Learning  Programme  (LLP,  including  Erasmus,  Comenius  and  Gruntvig 
programmes) with an overall budget of €6.9 billion, the LLP was adopted for 2007- 2013. 
During  its  first  three  years,  the  Programme  has  financed,  with  almost  €3  billion, 
transnational  education  and  training  activities  promoting  the  modernisation  of  education 
systems in 31 European countries. It has catered for 900,000 learning mobility periods  of 
European  citizens,  of  which  more  than  720,000  by  students  and  almost  180,000  by 
teachers/trainers/staff. 

According to the Eurostat database, in 2010, the proportion of persons aged 25 to 64 in the 
EU  receiving  some  form  of  education  or  training  in  the  four  weeks  preceding  the  labour 
force  survey  was  9.1%;  a  share  that  was  0.7  percentage  points  lower  than  the 
corresponding  share  for  2005.  The  proportion  of  the  population  who  had  participated  in 
such  lifelong  learning  activities  was  higher  among  women  (10.0%  in  2010)  than  among 
men (8.3%). 

The  mid-term  review  of  the  lifelong  learning  programme  stresses  that  the  LLP  acted  as  a 
catalyst  for  structural  change  through  support  to  policy  development,  cooperation  and 
mobility.  The  fact  that  the  programme’s  quantitative  targets  are  all  gender  neutral  is 
reflected in the mid-term report as statistics presented are not gender disaggregated. 

Here,  it  is  important  to  stress  gender-sensitive  monitoring  of  progress  of  the  programme 
since  lifelong  learning  may  play  a  different  role  in  the  life  course  of  men  and  women,  as 
shown  in  the  context  analysis  above.  Besides,  considering  the  statistics  of  Eurostat,  we 
could debate that the programme has not been adequate in the sense that the proportion 
of  the  population  who  participated  in  some  kind  of  LLP  activity  is  not  only  low  but  has 
significantly decreased over recent years. An evaluation of the impact of the programme on 
gender equality is therefore not possible.  

Youth in Action (YiA) with a budget of €885 million, the Youth in Action (YiA) Programme 
was adopted for 2007-2013 with the aim of: 

i.	 

offering  non-formal  learning  opportunities  to  all  young  people,  with  a  view  to 
enhancing their skills and competences as well as their active participation in society 
and 

96	  More details on the Budget are available in Chapter IV Financial Provisions Article 13 Budget, in the Proposal 
for  a  Regulation  of  the  European  Parliament  and  of  The  Council  establishing  "ERASMUS  FOR  ALL"  The  Union 
Programme for Education, Training, Youth and Sport,  Brussels, 23.11.2011  COM(2011) 788/final 2011/0371 
(COD). Full text available at: http://ec.europa.eu/education/erasmus-for-all/doc/legal_en.pdf. 

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The multi-annual financial framework 2014-2020 from a gender equality perspective 

ii.	 

offering  to  youth  organisations  and  youth  workers  opportunities  for  training  and 
cooperation,  with  a  view  to  enhancing  the  professionalism  and  the  European 
dimension of youth work in Europe. 

The overall aim of the programme is to promote mobility of youth in the EU. The Youth in 
Action Programme aims at reaching an equal number of male and female participants and 
one of the core elements of the programme is to promote anti-discrimination on the basis 
of  gender.  In  2010  one  of  the  priorities  of  YiA  were  projects  tackling  the  issue  of 
marginalisation  and  various  forms  of  discrimination,  such  as  those  based  on  gender, 
disability or ethnic, religious, linguistic or migrant grounds. 

The mid-term evaluation of Youth in Action declares that the programme has been effective 
in meeting its objectives related to young people and has social impacts beyond non-formal 
learning.  However,  there  is  no  reference  to  the  amounts  allocated  to  projects  aimed  at 
antidiscrimination  and  neither  is  there  any  gender  disaggregated  information  on 
participation rates. 

This  makes  it  difficult  to  actually  evaluate  if  the  programme  met  the  anti-discrimination 
objectives set out initially. 

3.2. 

European Social Fund (2014-2020) 

The  European  Commission’s  proposal  for  a  Regulation  of  the  European  Parliament  and  of 
the Council on the ESF (2014-2020)97, in the following ESF, highlights in several parts the 
importance  of  achieving  gender  equality  through  ESF  funded  programmes.  The  document 
states  that  “the  draft  Regulation  clarifies  and  strengthens  the  ESF  contribution  to  the 
Union's  commitment  to  eliminate  inequalities  between  women  and  men  and  prevent 
discrimination.  Member  States  should  combine  a  robust  mainstreaming  approach  and 
specific  actions  to  promote  gender  equality  and  non-discrimination.”  Moreover,  promotion 
of gender equality has been explicitly mentioned in the mission statement of the ESF draft 
Regulation. 

Under the chapter on specific provisions for programming and implementation, art. 6 of the 
draft  Regulation  specifies  that  with  regard  to  involvement  of  partners  “To  encourage 
adequate  participation  of  and  access  by  non-governmental  organisations  to  actions 
supported  by  the  ESF,  notably  in  the  fields  of  social  inclusion,  gender  equality  and  equal 
opportunities, the managing authorities of an operational programme in a region as defined 
in Article 82(2)(a) of Regulation (EU) No […] or in Member States eligible for Cohesion Fund 
support shall ensure that an appropriate amount of ESF resources is allocated to capacity-
building for nongovernmental organisations”. 

Art.  7  in  the  same  chapter  is  devoted  to  the  commitment  of  promoting  equality  between 
men  and  women  through  gender  mainstreaming  and  specific  targeted  actions,  with 
particular  mention  of  combating  gender  stereotypes  in  education  and  training.  One  of  the 
most important and indicative strategies of the ESF draft regulation has been to stress that 
data presented in annual implementation reports must be broken down by gender.  

As  stated  in  the  proposal  for  the  ESF  Regulation  (2014-2020),  the  total  funding  will  be 
around  €84  billion  for  the  ESF  (2014-2020),  compared  to  the  MFF  2007-2013  amount  of 
€76  billion  which  means  an  increase  of  10.5%.  In  case  the  previous  allocation  to  the 

97  http://ec.europa.eu/esf/BlobServlet?docId=231&langId=en. 

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Policy Department C: Citizens' Rights and Constitutional Affairs 

investment  windows  would  remain  the  same,  the  budget allocated  to  investment  in  skills, 
education and lifelong learning will be around €25bn, which is 30% of the total ESF budget. 

The present programming cycle 

The  ESF  gender  evaluation  report  of  programming  documents  for  the  programme  period 
2007-2013,  conducted  in  2010,  highlights  that  in  the  Operational  Programmes  (OP) 
analysed in the Member States, gender equality in education and training is identified as a 
key  challenge  in  only  six  countries.  In  general,  OPs  refer  to  horizontal  segregation  – 
especially  in  science  and  technology  –  and  equal  access  to  employment,  yet  without 
providing adequate gender statistics and targets. Emphasis is also placed on issues such as 
supporting  women  in  education  for  in-work  training  and  for  achieving  basic  skills; 
supporting  women  in  ICT;  development  of  gender  sensitive  curricula  and  learning 
materials;  achieving  a  more  equal  distribution  among  employees  in  academia;  fighting 
gender stereotypes; supporting specific programs for women’s access to the labour market; 
supporting  women  in  life-long  learning;  supporting  gender  training  of  professionals; 
improving career and guidance services for graduates and post-graduates. 

3.3. 

Overall assessment 

Of the programmes discussed above, only the ESF seems to have an effective documented 
impact  on  women.  Provisions  of  the  ESF  programming  take  into  account  gender 
mainstreaming  at  the  planning  as  well  as  the  implementation  level.  More  important,  the 
ESF  programme  has  a  specific  gender  related  objective  of  supporting  actions  priority  a) 
(expanding and improving investment in human capital) 'to promote increased participation 
in education and training […] through actions aiming to achieve a reduction […] in gender-
based  segregation  of  subjects'  (ESF  Regulations,  article  3.2,  a,  ii)  which  enhances  the 
practicability of monitoring of gender impact.  

To  sum  up,  specific  budget  allocations  for  gender  equality  are  clearly  lacking  in  education 
and training programmes in past, present and future Union programmes funding education 
and training measures. To date no established mechanism exists to assess the amount of 
aid  allocated  to  gender  equality  and  women’s  empowerment  through  all  the  thematic 
instruments.  The use  of  gender-disaggregated  data  is  still  far  from  sufficient  and  the  new 
aid  modalities  are  providing  new  and  even  more  complex  challenges  when  it  comes  to 
tracking the funds for gender equality and women’s empowerment and accounting for the 
results. 

Specific budget lines would give all stakeholders a clear picture of where the EU stands, as 
the protector and promoter of rights of European citizens, when it comes to gender equality 
and  women’s  human  rights  in  education  and  training  and  allow  them  to  hold  the  EU 
accountable. 

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The multi-annual financial framework 2014-2020 from a gender equality perspective 

Table 8: Budgeting the gender objectives 

Policy/ 
financial 
instrument 

Erasmus for all98  European Social 

Fund 

Summary (by 
Gender 
Objective) 

Gender 

Objective 

Reducing  gender  gaps  in 
learning of basic skills 

no detailed 
documentation 
available 

not an objective of 
the ESF 
programme 

no detailed 
documentation 
available 

Reducing  drop-out  rate 
for young boys 

no detailed 
documentation 
available 

not detailed in the 
documents 

Increasing  participation 
of  women  in  vocational 
education and training 

no detailed 
documentation 
available 

Expected positive 
impact 

not detailed in the 
documents 

Gender 
tertiary level 

imbalance 

at 

Increasing  number  of 
female graduates in MST 

no detailed 
documentation 
available 

not detailed in the 
documents 

Increasing  participation 
of  women 
lifelong 
learning 

in 

no detailed 
documentation 
available 

Expected positive 
impact 

Summary 
policy/financial 
instrument) 

(by 

€19 billion 
(includes €1.8 
billion for 
international 
cooperation) 

€ 25 bn99 

€ 44bn 

With  regard  to  the  issue  of  gender  imbalance  in  the  tertiary  sector,  the  context  analysis 
finds  that  participation  in  tertiary  education  has  been  increasing  substantially  in  recent 
years,  but  faster  among  women  than  among  men  and  the  gender  balance  now  favours 
females: their participation exceeded 50% of all tertiary students in the 90s to reach 54% 

98  See http://ec.europa.eu/education/erasmus-for-all/doc/com_en.pdf. 
99  25 bns are estimated as the 30% of the ESF budget (tot 84 bns), where the 30% is the percentage of the ESF 
2007-13 dedicated to the same objectives. For more details see Briefing Paper on Economic Independence. 

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Policy Department C: Citizens' Rights and Constitutional Affairs 

in 2000 and 55% according to the latest figures (2008)100. Gender imbalance in favour of 
female  graduates  is  most  pronounced  in  teacher  training,  education  science  and  in  health 
and  welfare  fields.  In  these  fields  more  than  three  quarters  of  graduates  are  female  (see 
Annex  B).  Also  important  to  note  at  this  point  is  that  female  participation  rates  have  in 
recent  years  largely  increased  on  the  back  of  the  expansion  of  the  service  sector,  while 
there  has  been  a  decline  in  manufacturing  (recently  further  exacerbated  by  the  economic 
crisis). A re-assessment of future-oriented professions is therefore needed, which could be 
in  care  or  technology  sectors,  and  it  needs  to  be  ensured  that  gender  segregation  in 
training and access to such occupations is reduced. However, considering the importance of 
this  gender  imbalance  as  a  relevant  issue,  the  same  is  not  reflected  in  the  budgetary 
proposals. 

It  should  be  highlighted  that  mentioning  gender  inequality  and  the  intention  to  tackle  the 
issue in budgetary documents is not sufficient to ensure effective actions. It is important to 
define gender specific targets and set out a clear strategy to achieve them. This is all the 
more  important  in  the  context  of  the  recent  economic  crisis,  considering  that  many 
European  countries  have  already  implemented  or  are  in  the  process  of  planning  austerity 
measures that will introduce cuts in spending, especially in public services, of which women 
are  primary  users.  Studies  have  shown  that  such  cuts  might  affect  women’s  access  to 
several  services  that  indirectly  affect  their  employability  and  participation  in  the  labour 
market.  In  view  of  the  fact  that  increasing  women’s  employability  through  education  and 
training,  is  an  important  way  to  achieve  many  of  the  targets  set  in  the  EU2020  Strategy, 
cuts must be viewed with caution if Europe aims to achieve its planned “smart, sustainable 
and inclusive growth”. 

4.	  POTENTIAL  DIRECT  AND  INDIRECT  IMPACT  OF  THE 
POLICY INTERVENTIONS ON THE GENDER OBJECTIVES 

The  education  and  training  context  analysis,  as  presented  in  previous  sections  of  this 
paper,  established  a  set  of  gender  gaps  in  education  and  training,  which  have  been  well 
documented  in  several  studies.  However,  considering  the  gravity  of  the  situation,  it  is 
remarkable that the EU’s umbrella programme for education and training does not mention 
the  promotion  of  gender  equality  as  one  of  its  key  areas  of  action,  which  are  namely:  i) 
promoting  learning  opportunities  for  individuals  and  increasing  mobility,  ii)  promoting 
institutional  cooperation  between  educational  institutions  and  iii)  supporting  policy  reform 
in Member States and cooperation with non-EU countries.  

From  the  information  made  available  for  the  Erasmus  for  All  programme,  it  is  difficult  to 
ascertain a potential direct or indirect gender impact specifically because even though the 
programme  document  recognizes  that  gender  differences  exist  in  education,  there  is  no 
clear strategy to respond to the gaps, such as: 

-

-

There  are  no  gender  specific  targets  set  in  the  programme  with  regard  to 
participation. 

There  is  no  indication  of  specific  budget  allocations  to  activities  within  the 
programme to promote equal access to education and training for men and women. 

100  Turchetti P. and Géré E.,  Education in Europe - Key statistics 2008, Eurostat, Population and social conditions, 
Data  in  focus  37/2010  elaborations  on  UOE  (Unesco-OECD-Eurostat)  data  on  Education  Systems.  Full  text 
available at: http://epp.eurostat.ec.europa.eu/cache/ITY_OFFPUB/KS-QA-10-037/EN/KS-QA-10-037-EN.PDF 

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The multi-annual financial framework 2014-2020 from a gender equality perspective 

-

There  is  no  indication  of  a  gender  mainstreaming  strategy  in  the  planning, 
implementation and monitoring process of the programme.  

Even  though  the  programme  states  that  it  will  focus  on  promoting  access  of  under­
represented  groups  into  education  and  training,  this  seems  to  be  more  of  a  broad 
generalization  and  may  not  directly  address  the  gender  differences  in  education  and 
training.  In  view  of  a  lack  of  gender  equality  strategy  ingrained  in  the  Erasmus  for  All 
programme itself, it is difficult to assess the relevance, adequacy or sustainability of gender 
equality in education and training programmes.  

Contrarily, in the ESF draft regulation for 2014-2020, a clear gender equality strategy has 
been  integrated  into  the  planning,  implementing  and  monitoring  of  the  programmes. 
Gender equality is part of the mission statement that indicates a commitment to promoting 
gender  equality  through  ESF  funded  education  and  training  programmes.  It  has  a  stated 
objective  to  combat  gender  stereotypes  in  education  and  training.  In  the  presence  of  a 
clear  gender  strategy  in  the  ESF  funded  programme,  through  gender  mainstreaming  and 
specific actions, it is more possible to assume a positive gender impact. 

As indicated in the draft Regulation101, if monitoring and evaluation is made with a gender 
perspective,  providing  gender  disaggregated  data,  it  will  be  possible  to  assess  the  direct 
gender  impact  of  the  future  ESF  programme  ex-post.  The  programme  seems  extremely 
relevant  to  closing  gender  differences  in  education  and  training  and  the  increase  in  its 
budgetary  allocation  could  be  noted  as  a  positive  sign  for  the  sustainability  of  the 
programmes102. 

101	  In Proposal for a REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL on the European Social 
Fund  and  repealing  Regulation  (EC)  No  1081/2006,  Brussels,  6.10.2011COM(2011)  607  final    2011/0268 
(COD)  SEC(2011)  1130  final}  {SEC(2011)  1131  final}ANNEX  Common  output  and  result  indicators  for  ESF 
investments "These data on participants entering an ESF supported operation are to be provided in the annual 
implementation reports as specified in Article 44(1) and (2) and Article 101(1) of Regulation (EU) No […]. All 
data are to be broken down by gender." on page 21. 

102	  In Proposal for a REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL on the European Social 
Fund  and  repealing  Regulation  (EC)  No  1081/2006,  Brussels,  6.10.2011COM(2011)  607  final    2011/0268 
(COD)  SEC(2011)  1130  final}  {SEC(2011)  1131  final}ANNEX  Common  output  and  result  indicators  for  ESF 
investments "These data on participants entering an ESF supported operation are to be provided in the annual 
implementation reports as specified in Article 44(1) and (2) and Article 101(1) of Regulation (EU) No […]. All 
data are to be broken down by gender." on page 21. 

102	  This increase should be read with caution. The Gross Domestic Product deflator, could be applied to adjust the 
values  of  the  appropriations  in  the  EU  budget.  More  details  and  tables  for  the  Index  are  available  on  the 
Eurostat website: 
http://appsso.eurostat.ec.europa.eu/nui/show.do and 
http://epp.eurostat.ec.europa.eu/portal/page/portal/national_accounts/data/database. 
However,  every  year  there  are  financial  adjustments  of  the  EU  budget  according  to  the  Interinstitutional 
Agreement (IIA) of 17 May 2006, Point 16: where it is stated that  each year  the Commission will, ahead of 
the  budgetary  procedure  for  year  n+1,  make  a  technical  adjustment  to  the  financial  framework  in  line  with 
movements in the EU's gross national income (GNI) and prices. Movements in GNI have been updated with the 
latest  economic  forecasts  available.  As  far  as  prices  are  concerned,  the  IIA  (point  16)  foresaw  a  fixed  2  % 
deflator for all expenditure, which was applied for the technical adjustment for 2007, 2008, 2009, 2010. Later 
on  the  Interinstitutional  Agreement  was  changed  in  the  face  of  the  financial  and  economic  crisis  for  further 
details see: http://ec.europa.eu/budget/biblio/documents/fin_fwk0713/fin_fwk0713_en.cfm. 

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Policy Department C: Citizens' Rights and Constitutional Affairs 

5.  CONCLUSIONS 

The  EU’s  declared  commitment  to  gender  equality  over  the  last  decades  has  produced 
important  achievements 
in  enhancing  women’s  empowerment.  However,  gender 
inequalities still remain in opportunities, attainments and decisions with regard to education 
and  training.  Perhaps  the  most  visible  of  these  gender  gaps  is  girls’  low  rates  of 
participation in MST fields and boys’ relatively higher rate of early school leaving. There is 
also  very  much  evidence  for  gender  stereotypical  subject  participation  and  occupational 
decisions. 

According to our analysis in chapter 2, the EU’s budgetary tools for funding education and 
training programmes could be described as responsive to gender differences only to a low 
extend, while for a larger part, they appear to be gender blind. 

The documents examined for the Erasmus for All programme, which is the EC’s umbrella 
programme  for  education,  youth  and  sports  for  the  MFF  2014-2020  show  that  a  gender 
equality strategy is clearly lacking. None of the identified gender objectives in training and 
education have been highlighted. Specific budget allocations for gender equality are absent 
for  education  and  training  programmes.  Moreover,  there  is  no  explicit  mechanism 
mentioned  to  assess  the  amount  of  aid  allocated  to  gender  equality  and  women’s 
empowerment through all the thematic instruments. The use of gender-disaggregated data 
for monitoring and evaluation has not been specified in any of the documents for Erasmus 
for All. 

On  the  contrary,  the  ESF  programme  overall  has  a  clear  gender  equality  strategy  for 
education and training through gender mainstreaming as well as specific actions. There are 
clear mission statements which give clarity to the programmes intented to promote gender 
equality. 

The  ESF  programme  overall  presents  clear  gender  objectives,  identifies  targets  and  has  a 
clear  gender  equality  strategy  through  gender  mainstreaming  as  well  as  specific  actions. 
There  are  clear  mission  statements  which  give  clarity  to  the  programmes  intention  on 
promoting gender equality. 

Gender mainstreaming 

In its October 2010 Communication on the budget review103, the Commission stressed the 
fact  that  the  EU  budget  should  be  grounded  in  a  series  of  core  principles.  Gender  
mainstreaming  has  been  a  core  principle  of  the  EU  and  the  need  to  systematically 
incorporate  gender  issues  throughout  all  governmental  institutions  and  policies  was 
formalized in its 1996 communication104  that stated:  

“The systematic integration of the respective situations, priorities and needs of women and 
men  in  all  policies  and  with  a  view  to  promoting  equality  between  women  and  men  and 
mobilizing  all  general  policies  and  measures  specifically  for  the  purpose  of  achieving 
equality by actively and openly taking into account, at the planning stage, their effects on 
the respective situation of women and men in implementation, monitoring and evaluation”. 

103  IP/10/1351, Brussels, 19 October 2010.
 
104  COM(96)67  final  of  21  February  1996,  “‘Communication  from  the  Commission:  Incorporating  Equal  


Opportunities for Women and Men into All Community Policies and Activities”. 

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The multi-annual financial framework 2014-2020 from a gender equality perspective 

Considering  the  importance  that  has  been  attached  to  gender  mainstreaming  by  the 
European Union, it could be an important value addition to support the budgetary planning 
of  Member  States  by  incorporating  gender  perspective  in  the  financial  instruments  of  the 
EU. However, an overview of the EU’s financial tools for education and training provide little 
insight  into  its  strategy  of  gender  mainstreaming  in  its  planning,  implementation  and 
monitoring and evaluation stage. The gender gaps in education and training as highlighted 
in this briefing paper are extensive and could hardly be ignored. 

The amount allocated to training and education cannot be debated as insufficient, however 
the integration of gender perspective is clearly missing. The adequacy of the programmes 
cannot be evaluated only by the amount of budgetary allocation but have to be scrutinized 
also  according  to  their  objectives  and  commitment  to  support  the  implementation  of  the 
core  principles  of  the  European  Union.  Therefore,  we  call  for  better  planning  and 
strategizing in education and training programmes towards promoting gender equality.  

As  Europe  still  struggles  to  come  out  of  the  economic  crisis  and  in  a  scenario  of  several 
Member States planning or already implementing austerity measures, several studies have 
shown  that  the  issue  of  gender  equality  has  been  put  in  the  back  burners  of  national 
agendas.  This  presents  a  remarkable  opportunity  to  the  European  Union  to  step  in  to 
integrate  a  women’s  rights  and  gender  equality  perspective  in  the  forthcoming  decisions 
about  the  scope,  priorities,  and  financing  of  the  2014-2020  EU  multi-annual  financial 
framework (MFF). A gender-responsive MFF that takes into account the differential impact 
of budgetary decisions on women and men, allocates sufficient funding for women-specific 
actions,  and  encourages  gender  mainstreaming  in  all  EU  financing  instruments  will  make 
the  limited  EU  budget  more  effective.  It  can  also  help  the  EU  to  reach  the  targets  of  the 
Europe 2020 Strategy and to enhance economic growth. However, these outcomes require 
political  will  to  prioritise  gender  equality  in  budgetary  decisions  and  it  is  now  more  than 
ever important for the EU to show its commitment to its founding principles.  

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6.  REFERENCES 

	  European Commission (2001) Making a European area of lifelong learning a reality, 

Brussels, Commission of the European Communities. 

	  European  Commission  (2002)  European  benchmarks  in  education  and  training: 
follow-up  to  the  Lisbon  European  Council,  Brussels:  Commission  of  the  European 
Communities. 

	  European  Commission  (2006)  A  Roadmap  for  equality  between  women  and  men, 
Communication  from  the  Commission  to  the  Council,  the  European  Parliament,  the 
European  Economic  and  Social  committee  and  the  Committee  of  the  Regions”, 
Commission of the European Communities 2006/275. 

	  European  Commission  (2008)  An  updated  strategic  framework  for  European 
cooperation  in  education  and  training,  Brussels:  Commission  of  the  European 
Communities. 

	  European  Commission  (2009)  Gender  and  education  (and  employment).  Gendered 
imperatives  and  their  implications  for  women  and  men:  lessons  from  research  for 
policy  makers,  an  independent  report  submitted  to  the  European  Commission’s 
Directorate- General for Education and Culture by the NESSE networks of experts. 

	  European  Commission  (2010)  Europe  2020.  A  strategy  for  smart,  sustainable  and 

inclusive growth, Brussels: Commission of the European Communities. 

	  European  Commission  (2010)  Gender  Differences  in  Educational  Outcomes:  Study 
on the Measures Taken and the Current Situation in Europe, EACEA P9 Eurydice. 

	  European Commission (2010) Strategy for Equality between women and men, 2010­

2015, Luxemburg: Publications Office of the European Union [Document drawn upon 
the basis of COM(2010) 491 final, SEC(2010) 1079 and SEC(2010) 1080]. 

	  European  Commission  (2011)    A  Budget  for  Europe  2020:  the  current  system  of 
funding, the challenges ahead, the results of stakeholders consultation and different 
options  on  the  main  horizontal  and  sectoral  issues,  Commission  Staff  Working 
Paper, SEC(2011) 868 final, Brussels.  

	  European  Commission  (2011)  A  Budget  for  Europe  2020  -  Part  II:  Policy  fiches, 
Communication  from  the  Commission  to  the  European  Parliament,  the  Council,  the 
European  Economic  and  Social  Committee  and  the  Committee  of  the  Regions, 
Brussels, 29.6.2011 COM(2011) 500 final. 

	  European  Commission  (2011)  Proposal  for  a  regulation  of  the  European  Parliament 
and  of  the  Council  establishing  "ERASMUS  FOR  ALL"  The  Union  Programme  for 
Education,  Training,  Youth  and  Sport,  Brussels,  23.11.2011,  COM(2011)  788  final, 
2011/0371 (COD). 

	  European  Commission  (2011)  Proposal  for  a  regulation  of  the  European  Parliament 
and  of  the  Council  on  the  European  Social  Fund  and  repealing  Regulation  (EC)  No 
1081/2006, Brussels, 6.10.2011 COM(2011) 607 final, 2011/0268 (COD). 

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The multi-annual financial framework 2014-2020 from a gender equality perspective 

	  European  Council  (2003)  Council  Conclusions  on  Reference  Levels  of  European 
Average Performance in Education and Training (Benchmarks), Brussels: Council of 
the European Union. 

	  European Council (2009) Council conclusions on a strategic framework for European 
cooperation in education and training (“ET 2020”), Brussels: Council of the European 
Union. 

	  Guiso, L., Monte, F., Sapienza, P.,  Zingales, L. (2008) Culture, Gender, and Math, 
at 
5880 

1164-1165, 

available 

Science 

in 
320 
http://www.sciencemag.org/content/320/5880/1164. 

Vol. 

pp. 

no. 

	  Turchetti P. and Géré E. (2010) Education in Europe - Key Statistics 2008, Eurostat, 
Population  and  social  conditions,  Data  in  focus  37/2010,  Elaborations  on  UOE 
(Unesco-OECD-Eurostat)  Data  on  education  systems.  Full  text  available  at: 
http://epp.eurostat.ec.europa.eu/cache/ity_offpub/ks-qa-10-037-en.pdf. 

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7.  ANNEXES 

ANNEX  1:  TREATY  ON  THE  FUNCTIONING  OF  THE 
EUROPEAN UNION (LISBON TREATY) 

TITLE XII: EDUCATION, VOCATIONAL TRAINING, YOUTH AND SPORT is available in Annex 
A. 

Article 165 (ex Article 149 TEC)  

1.  The  Union  shall  contribute  to	  the  development  of  quality  education  by  encouraging 
cooperation between Member States and, if necessary, by supporting and supplementing 
their  action,  while  fully  respecting  the  responsibility  of  the  Member  States  for  the 
content  of  teaching  and  the  organisation  of  education  systems  and  their  cultural  and 
linguistic diversity. 

The  Union  shall  contribute  to  the  promotion  of  European  sporting  issues,  while  taking 
account of the specific nature of sport, its structures based on voluntary activity and its 
social and educational function.  

2. Union action shall be aimed at: 

– 	

– 	

– 	

– 	

– 	

– 	

– 	

developing  the  European  dimension  in  education,  particularly  through  the  teaching 
and dissemination of the languages of the Member States, 

encouraging  mobility  of  students  and  teachers,  by  encouraging  inter  alia,  the 
academic recognition of diplomas and periods of study,  

promoting cooperation between educational establishments, 

developing  exchanges  of  information  and  experience  on  issues  common  to  the 
education systems of the Member States,  

encouraging  the  development  of  youth  exchanges  and  of  exchanges  of  socio­
educational  instructors,  and  encouraging  the  participation  of  young  people  in 
democratic life in Europe, 

encouraging the development of distance education,  

developing the European dimension in sport, by promoting fairness and openness in 
sporting competitions and cooperation between bodies responsible for sports, and by 
protecting  the  physical  and  moral  integrity  of  sportsmen  and  sportswomen, 
especially the youngest sportsmen and sportswomen.  

3.  The  Union  and  the Member  States  shall  foster  cooperation  with  third  countries  and  the 
competent  international  organisations  in  the  field  of  education  and  sport,  in  particular 
the Council of Europe. 

4. In order to contribute to the achievement of the objectives referred to in this Article:  

– 	

the  European  Parliament  and  the  Council,  acting  in  accordance  with  the  ordinary 
legislative  procedure,  after  consulting  the  Economic  and  Social  Committee  and  the 
Committee  of  the  Regions,  shall  adopt  incentive  measures,  excluding  any 

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The multi-annual financial framework 2014-2020 from a gender equality perspective 

harmonisation  of  the  laws  and  regulations  of  the  Member  States,  C  115/120  EN 
Official Journal of the European Union 9.5.2008 

– 

the Council, on a proposal from the Commission, shall adopt recommendations.  

Article 166 (ex Article 150 TEC): 

1.  The  Union  shall  implement  	a  vocational  training  policy  which  shall  support  and 
supplement the action of the Member States, while fully respecting the responsibility of 
the Member States for the content and organisation of vocational training.  

2. Union action shall aim to: 

– 	

– 	

– 	

– 	

– 	

facilitate  adaptation  to  industrial  changes,  in  particular  through  vocational  training 
and retraining, 

improve  initial  and  continuing  vocational  training  in  order  to  facilitate  vocational 
integration and reintegration into the labour market, 

facilitate  access  to  vocational  training  and  encourage  mobility  of  instructors  and 
trainees and particularly young people,  

stimulate  cooperation  on  training  between  educational  or  training  establishments 
and firms, 

develop exchanges of information and experience on issues common to the training 
systems of the Member States.  

3.  The  Union  and  the Member  States  shall  foster  cooperation  with  third  countries  and  the 

competent international organisations in the sphere of vocational training.  

4.  The  European  Parliament  and  the  Council,	  acting  in  accordance  with  the  ordinary 
legislative  procedure  and  after  consulting  the  Economic  and  Social  Committee  and  the 
Committee of the Regions, shall adopt measures to contribute to the achievement of the 
objectives  referred  to  in  this  Article,  excluding  any  harmonisation  of  the  laws  and 
regulations of the Member States, and the Council, on a proposal from the Commission, 
shall adopt recommendations. 

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Policy Department C: Citizens' Rights and Constitutional Affairs 

ANNEX  2:  DETAILED  DISCUSSION  OF  GENDER  GAPS  IN 
EDUCATION AND TRAINING 

	  Gender  differences  in  the  learning  of  basic  skills:  Girls  outperform  boys  in 
reading  in  every  European  country  that  participated  in  the  2009  PISA  survey.  The 
average  gender  gap  in  reading  proficiency  in  the  OECD  stood  at  39  points  (the  
difference between boys’ and girls’ scores on the reading scale), representing about 
a  year’s  worth  of  schooling.  Among  the  EU27  countries,  the  gap  in  favour  of  girls 
ranged between 24 points in the Netherlands and 72 points in Malta. Very high gaps 
are also observed in Finland (55 points), Slovenia (55 points), Lithuania (59 points), 
and Bulgaria (61 points). 

While  boys  score  higher  in  mathematics  in  more  than  half  of  the  participating 
countries  and  economies,  in  25  countries  there  is  no  difference  in  mathematics 
performance between boys and girls, and in five countries, girls have slightly higher 
scores  in  mathematics.  On  average  across  OECD  countries,  there  was  a  significant 
difference in mathematical literacy of 12 PISA score points in favour of boys. Among 
the EU27 countries, there are also wide differences. The gender gap in performance 
on  the  mathematics  scale  is  in  favour  of  girls  in  4  countries:  Sweden  (2  points), 
Bulgaria (4 points), Lithuania (6 points) and Malta (15 points). In the remaining EU 
countries the gap is in favour of boys. However, it is very small in a large number of 
countries:  1  point  in  Slovenia,  2  points  in  Latvia,  3  points  in  Finland,  Slovakia, 
Poland  and  Romania.  Large  gender  gaps  in  favour  of  boys  (above  20  points)  are 
observed in the UK (20 points) and Belgium (22 points). 

The gender gap is narrowest in science, where in most participating countries, there 
is no significant difference between girls’ and boys’ performance. On average across 
OECD  countries,  there  was  no  statistically  significant  difference  in  the  performance 
of boys and girls in scientific literacy. It is striking to see that in the vast majority of 
EU27 countries, girls outperform boys on the science scale: the gap in favour of girls 
is as high as 20 points in Bulgaria and 35 points in Malta. 

Across the three subjects covered by PISA, reading, mathematics and science, and 
across  all  participating  countries  and  economies,  girls  are  as  likely  to  be  top 
performers as boys 

	  Gender differences in early leaving from education: The LFS data indicate that 
early school dropout is not a gender neutral phenomenon. The share of early school 
leavers is higher among young men than among young women in most EU Member 
States.  The  reason  for  drop-out  may  often  differ  for  young  men  and  women. 
Moreover,  available  figures  seem  to  suggest  that  a  disadvantaged  background 
contributes  to  a  higher  risk  of  early  school  leaving  for  both  girls  and  boys. 
Particularly  children from low-income households and young immigrants are at risk 
of dropping out of school. The 2009 study on progress towards the Lisbon objectives 
for education and training (LFS data)105 showed that at the level of EU-27, the risk 
of school drop-out among young immigrants is almost double that of a native young 
person (26.8% compared to 13.6% respectively). 

Early  school  leaving  is  gendered,  with  young  men  predominating  among  those 
leaving  school  without  formal  qualifications.  This  trend  can  also  be  found  among 

105  Full text available at: http://ec.europa.eu/education/lifelong-learning-policy/doc/report09/report_en.pdf. 

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The multi-annual financial framework 2014-2020 from a gender equality perspective 

migrant  populations  and  ethnic  minorities  (with  the  Roma  population  being  an 
exception). It could be that boys are less adaptive to school environment than girls 
and  also  tend  to  start  working  earlier  than  girls.  As  a  result,  some  countries  have 
introduced  measures  to  address  the  causes  that  determine  the  lack  of  male 
adaptation  to  schooling  institutions.  However,  there  is  a  need  for  more  gender-
aware policies to address the gender dimension of early school leaving. 

	  Gender  differences  in  general  and  vocational  education:  A  strong  link  has 
been  established  between  women's  educational  level  and  their  participation  and 
permanent  attachment  to  the  labour  market  (especially  in  terms  of  continuity  of 
work after marriage and having children). The higher the level of qualifications, the 
narrower the gender gap in terms of activity and employment rates. On average, in 
the  EU,  students  in  upper  secondary  education  are  almost  equally  distributed 
between  general  and  vocational/pre-vocational  programmes,  but  the  gender 
imbalance is pronounced, with a clear prevalence of girls in general courses and of 
boys  in  vocational  streams.  This  kind  of  horizontal  segregation  with  boys 
participating more in educational programs oriented towards the labour market and 
girls more likely to be enrolled in courses preparing them for further education, can 
be found in almost all European countries. Gender-related stereotypes still influence 
educational  decisions  in  terms  of  both  field  and  level  of  study  and,  consequently, 
career  aspirations.  This  has  an  impact  on  the  life  trajectories  of  men  and  women, 
beyond their occupational opportunities and career progress. Moreover, despite high 
female  participation  rates  in  formal  education,  women  continue  to  be  less 
represented  in  vocational  and  ongoing  training.  This  can create  obstacles  to  career 
progress and thus impact on the level of attachment to the labour market. It could 
also be argued that given women’s lower labour market attachment (part-time, etc.) 
they have less vocational training opportunities. 

	  Gender  imbalance  at  tertiary  level:  Participation  in  tertiary  education  has  been 
increasing substantially in recent years, but faster among women than among men 
and  the  gender  balance  now  favours  females:  their  participation  exceeded  50%  of 
all  tertiary  students  in  the  90s  to  reach  54%  in  2000  and  55%  according  to  the 
latest  figures  (2008)106.  In  2008  out  of  19  million  tertiary  students  in  the  EU  10.5 
million  were  female  compared  to  only  8.5  million  male  students;  females  thus 
outnumber  males  by  2  million.  As  a  result  of  a  lower  dropout  rate  among  women, 
this  imbalance  is  even  more  pronounced  among  graduates.  In  2000  58%  of 
graduates  in  the  EU-27  were  female  and  their  share  increased  further  to  60%  in 
2008.  For  every  one  male  graduating  from  tertiary  education  today,  there  are  1.5 
female tertiary graduates. 

Gender  imbalance  in  favour  of  female  graduates  is  most  pronounced  in  teacher 
training,  education  science  and  in  health  and  welfare  fields.  In  these  fields  more 
than three quarters of graduates are female. 

Also  important  to  note  at  this  point  is  that  participation  in  tertiary  education  has 
been increasing substantially in recent years, but faster among women than among 
men. Female participation rates have in recent years largely increased on the back 
of  the  expansion  of  the  service  sector;  while  there  has  been  a  decline  in 
manufacturing  (recently  further  exacerbated  by  the  economic  crisis).  A  re­

106	  Turchetti P. and Géré E.,  Education in Europe - Key statistics 2008, Eurostat, Population and social conditions, 
Data  in  focus  37/2010  elaborations  on  UOE  (Unesco-OECD-Eurostat)  data  on  Education  Systems.  Full  text 
available at: http://epp.eurostat.ec.europa.eu/cache/ITY_OFFPUB/KS-QA-10-037/EN/KS-QA-10-037-EN.PDF. 

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assessment  of  future-oriented  professions  is  therefore  needed,  which  could  be  in 
care  or  technology  sectors,  and  it  needs  to  be  ensured  that  gender  segregation  in 
training and access to such occupations is reduced. 

	  Gender 

imbalance  among  graduates 

in  Mathematics,  Science  and 
Technology  (MST):  the  growing  proportion  of  women  with  tertiary  education  and 
employed  in  highly  qualified  jobs  has  been  one  of  the  most  significant  structural 
changes  in  European  societies  in  recent  decades.  Nevertheless,  significant 
differences persist between the genders with regard to the field of tertiary study. A 
significantly  lower  proportion  of  women  obtain  degrees  in  science  or  engineering 
studies.  Thus,  education  and  occupational  trajectories  of  men  and  women  are 
different,  with  involvement  in  certain  study  subjects  still  conforming  to  gender 
stereotypes. 

While  females  outnumber  male  students  in  almost  all  fields  of  study  males  still 
predominate  in  maths,  science  and  technology.  Despite  policy  efforts  to  get  more 
women  into  these  fields  at  the  EU  level  -  decreasing  the  gender  imbalance  is  a 
secondary  objective  of  the  benchmark  for  2010  to  increase  MST  graduates  -  the 
female  share  of  MST  graduates  increased only  moderately,  from  30.7%  in  2000  to 
32.6% in 2008107. 

A  look  at  the  share  of  female  MST  graduates  by  field  reveals  that  the  gender 
imbalance is mainly  attributed to gender differences in the fields of computing and 
engineering, where males represent more than 80% of graduates. The indicators in 
She Figures 2009 (European Commission 2009) on gender equity and science reflect 
the following trends: 

Women in scientific research remain a minority, accounting for 30% of researchers 
in  the  EU  in  2006.  On  average  in  the  EU-27,  women  represent  37%  of  all 
researchers  in  the  Higher  Education  Sector,  39%  in  the  Government  Sector  and 
19%  in  the  Business  Enterprise  Sector,  but  in  all  three  sectors  there  is  a  move 
towards a more gender-balanced research population.  

In  the  EU-27,  45%  of  all  PhD  graduates  were  women  in  2006;  they  equal  or 
outnumber  men  in  all  broad  fields  of  study,  except  for  science,  mathematics  and 
computing (41%), and engineering, manufacturing and construction (25%). 

Over  the  period  2002-2006,  there  has  been  an  increase  in  the  overall  number  of 
female  researchers  in  almost  all  fields  of  science  in  the  EU-27:  the  most  positive 
growth  figures  characterised  the  fields  of  the  medical  sciences  (+5.6%  in  HES  and 
+12% in GOV), the humanities (+6.8% in HES and +4% in GOV), engineering and 
technology  (+6.7%  in  HES  and  +10%  in  GOV)  and  the  social  sciences  (+6.5%  in 
HES and +3% in GOV). 

Women’s  academic  career  remains  markedly  characterised  by  strong  vertical 
segregation: the proportion of female students (55%) and graduates (59%) exceeds 
that  of  men,  but  men  outnumber  women among  PhD  students  and  graduates  (the 
proportion  of  female  students  drops  back  to  48%  and  that  of  PhD  graduates  to 

107	  Turchetti P. and Géré E.,  Education in Europe - Key statistics 2008, Eurostat, Population and social conditions, 
Data  in  focus  37/2010  elaborations  on  UOE  (Unesco-OECD-Eurostat)  data  on  Education  Systems.  Full  text 
available at: http://epp.eurostat.ec.europa.eu/cache/ITY_OFFPUB/KS-QA-10-037/EN/KS-QA-10-037-EN.PDF. 

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The multi-annual financial framework 2014-2020 from a gender equality perspective 

45%). Furthermore, women represent only 44% of grade C academic staff, 36% of 
grade B academic staff and 18% of grade A academic staff. 

Empirical  evidence  shows  that  women  are  significantly  under-represented  in  some 
scientific  and  technological  disciplines.  In  most  countries  such  gendered  decisions 
are attributed to deeply ingrained cultural factors. The way in which many countries 
have  sought  to  address  this  is  by  re-shaping  curricula,  textbook  contents  and 
teaching  methods  and  by  refocusing  the  training  of  primary  and  secondary  school 
teachers  and  educational  inspectors  on  gender  issues,  as  well  as  the  design  of 
specific  strategies  to  encourage  women's  integration  into  more  male-dominated 
scientific disciplines (ESF evaluation 2010). At this point it is important to note that 
efforts should just as well be made to diversify men’s educational decisions in order 
to  fight  against  their  concentration  in  just  a  few  study  fields.  This  is  completely 
lacking:  gender  segregation  in  education  continues  to  be  seen  as  women’s  fault 
because  women  insufficiently  go  into  science,  computing,  engineering,  technology, 
etc. However, men’s decisions also call out for policy action. 

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The multi-annual financial framework 2014-2020 from a gender equality perspective 

BRIEFING  NOTE  ON  HEALTH  /  WELL  BEING  /  
ENVIRONMENT 

KEY FINDINGS ON HEATH / WELL BEING / ENVIRONMENT 

1.  The  areas  of  health,  well-being  and  environment  are  crucial  for  the  quality  of  life  of 
men  and  women  and  could  be  the  source  of  gender  based  inequities  –  directly  and 
indirectly. 

2.  These  areas  mostly  fall  within  the  competence  of  national  and  regional  authorities,  in 
the  field  of  subsidiarity.  Hence,  the  role  of  the  EU  and  of  the  EU  budget  must  be 
indirect.  In  such  cases  actions  in  the  EU  may  play  a  paradigmatic  or  demonstration 
role  for  national  authorities,  social  partners  or  NGOs.  In  such  cases,  where  the  EU 
dimension  acts  as  a  lever  for  other  actors,  the  significance  of  EU  action  may  be  
understated by EU direct budget outlays. 

3.  Ensuring  good  and  equitable  health  outcomes,  addressing  the  social  and  material 
determinants  of  well-being  and  improving  environmental  quality  are  becoming  more 
urgent in the face of the prolonged recession and the prospects of an upturn in Europe. 
At the same time, ambitious objectives must be realised with constrained resources.  

4.  EU-wide  objectives  in  these  areas  (stated  in  the  budget  and  other  key  documents)  ­

and  their  gender  sub-text,  are  similar  to  public  goods,  characterised  by  indivisibilities 
and difficulties in pinpointing direct beneficiaries. 

5.  The  connection  between  gender  and  health  is  familiar  (avoidable  gender  gaps  in 

access and outcomes, as well as in employment, professions and skills). 

6.  With  respect  to  well-being,  the  link  is  less  immediately  obvious.  A  number  of  issues 
regarding  the  gender  dimension  need  further  clarification  and  analysis.  For  example, 
recent research in economics has uncovered that women (even after controlling for all 
other factors) experience lower  life satisfaction for any given income. The reasons for 
this  are  unclear;  they  are  likely  to  be  due  to  deeper  reasons  than  a  simple 
measurement  issue,  possibly  dealing  with  empowerment  of  women  in  our  societies. 
Thus,  there  is  a  broader  well-being  issue  to  be  addressed,  in  addition  to  actions 
relating to the field of consumer protection.  

7.  In the field of environment, the key policy concerns refer to large-scale societal and 
economic  issues  such  as  climate  change  with  limited  prima  facie      gender  relevance.  
Yet, the direction of research and innovation in energy and the environment has some 
direct  employment  implications.  In  addition,  women  are  affected  by  actions  in  these 
fields as users of public transport, as well as in actions that affect the urban and rural 
environment. The emphasis on global issues such as climate change has reduced such 
issues’ prominence in the environment agenda. 

8.  A  gender  analysis  of  the  context  in  the  areas  of  health,  well-being  and  environment 
reveals  numerous  gender  gaps  and  inequalities,  equally  present  in  the  supply,  in  the 
demand and the access fronts. Furthermore, if one includes the social determinants of 
health, well-being and environmental quality, the terrain becomes very broad: the list 
of  factors  to  be  included  is  long  and  it  is  impossible  to  avoid  repetitions  and  overlaps 
with other policy areas. 

9.  Partly  as  a  result  of  the  breadth  of  the  area  defined  as  health,  well-being  and 
environment,  the  stated  programme  objectives  tend  to  be  expressed  in  broad  terms 
while others are concrete and can be pinned  down easily. Gender-sensitive objectives 
mostly tend to fall in the former category. So, although the MFF as well as the Europe 

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Policy Department C: Citizens' Rights and Constitutional Affairs 

2020  Strategy  contain  wording  that  can  encompass  most  of  the  analytical  gender 
objectives, they do so indirectly and hardly ever mention gender explicitly. 

10.  Overall,  taking  a  closer  look  at  the  ten  objectives  of  the  financial  instruments 
comprising the budget, one ends up by assessing their gender awareness as uniformly 
low,  their  gender  relevance  as  mixed  (2  0bjectives  display  high  gender  relevance,  5 
objectives having medium gender relevance and 3 objectives low) while their impact is 
mostly indirect. 

11.  It  is  unfortunate  that  while  objectives  related  to  health,  well-being  and  the 
environment acquire new importance (and are endowed with more generous funding), 
they remain mostly silent vis a vis gender. Such gender-blindness may jeopardise their 
gender  equality  potential  in  jobs  creation,  skills  formation  and  decision-making 
structures (especially in research and environment where women find themselves in a 
disadvantaged position from the start).  

12.  The  areas  of  health,  well  being  and  the  environment,  while  important  in  themselves, 
nevertheless feed into a broader gender picture where other dimensions may be more 
important or salient. In this sense, they are unlikely to alter the overall gender picture 
in  a  fundamental  way  (with  the  possible  exception  of  health).  On  the  other  hand,  if 
gender-sensitive issues become more visible (in the objectives, in the implementation, 
the monitoring and continuous assessment), they can contribute a step towards a more 
equitable Europe. 

13.  If no corrective action is taken early (embedding a gender perspective in the operation 
of  specific  financial  instruments)  and  without  careful  gender  monitoring  of  progress 
with  the  utilisation  of  gender-sensitive  indicators,  the  renewed  emphasis  on  these 
important  areas  for  the  quality  of  life  of  European  citizens  may  even  end  up 
accentuating gender imbalances rather than addressing them. 

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The multi-annual financial framework 2014-2020 from a gender equality perspective 

1.  INTRODUCTION 

The areas of health, well-being and environment are critical in terms of differences in 
quality  of  life  and  hence  carry  important  gender  implications.  However,  in  the  European 
Union  context  they  lie  mostly  in  the  field  of  competence  of  national  and  regional 
authorities.  Where  subsidiarity  dominates,  the  European  Union  budget  may  still  play  an 
important,  yet  indirect,  role.  For  example,  the  EU  budgetary  involvement  could  act  as  a 
facilitator  and  could  leverage  actions  of non-EU  bodies- national  or  regional  governments, 
social partners or NGOS108.  Its potential impact may thus be understated by an exclusive 
focus  on  direct  disbursement  from  the  EU.  Similarly,  many  of  the  objectives  pursued  by 
health,  well-being  and  environment  policies,  have  the  character  of  public  goods,  in  the 
sense  that  exclusive  ‘consumption’  or  attribution  may  not  be  easily  identified  and 
externalities  may  dominate.    For  example,  clean  air  or  the  prevention  of  climate  warming 
benefits  all  and  the  benefit  cannot  be  attributed  to  any  individual  or  group  of  individuals. 
Finally,  a  problem  that  Parliamentarians  will  have  to  face  at  this  stage  is  that  many 
objectives  are  stated  in  very  broad  terms,  and  the  extent  of  their  gender  sensitivity  can 
only be inferred, frequently only by assuming no change has taken place since the previous 
programme.  

Thus,  ‘classic’  gender  budgeting,  in  the  sense  of  attributing  expenditure  to  specific 
objectives, may only reveal a part of the story, especially when benefits are diffused and/or 
indirect  effects  are  important.  In  such  cases  gender  budgeting  may  serve  as  a  starting 
point  to  a  fuller  analysis.  Indirect  effects  should  not  be  hidden  from  view  –  even  if  their 
quantification is conceptually difficult. This applies,  in particular, to the leading role of the 
EU budget as a catalyst in gender-relevant decisions taken at other – national and regional 
- levels.   

This  note  starts  by  providing  a  context  analysis  (by  highlighting  the  main  gender  gaps  in 
the areas covered, their likely causes, the role of stereotypes, and also the broader policy 
context  for  the  planning  period).  It  then  proceeds  to  presenting  a  summary  version  of 
those objectives that can be gender-sensitive in each separate area. Subsequently, it offers 
an overview of the budget allocation and its financial tools from the point of view of gender 
analysis, alongside a summary table “Budgeting Gender Objectives” and the main financial 
instruments.  The  assessment  of  the  expected  adequacy  and  effectiveness  of  the  financial 
instruments and the policy actions forms the last section of the analysis. 

108	  This applies, most obviously, in the transfer of best practice across borders. Many ESF initiatives in the field of 
gender balance or consumer protection and empowerment have ‘migrated’ across the EU thanks to the original 
ESF  initiative,  sometimes  transformed  into  private  sector  initiatives.  Initiatives  by  NGOs  and  social  partners 
also spread. 

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Policy Department C: Citizens' Rights and Constitutional Affairs 

2.  CONTEXT ANALYSIS 

2.1. 

Gender  gaps  in  the  area  of  health,  well  being  and  the 
environment 

The three areas covered are key constituent elements of the quality of life for all European 
citizens  and  hence  are  both  a  consequence  and  a  cause  of  gender  imbalances.109  Gender 
differences  are  ubiquitous,  while  the  relevant  gender  gaps  exhibit  sharp  differentiation  by 
country  or  population  group.  The  two  graphs  below,  drawn  from  data  of  the  Survey  of 
Health,  Ageing  and  Retirement  in  Europe110,  illustrate  the  kind  of  gender  differences 
prevalent in health, both physical and mental. 

We focus first on processes which can possess a gender dimension and then, on particular 
population  groups  where  disadvantage  is  concentrated.  The  Appendix  supplies  statistical 
information which can serve as backdrop for the gender sensitivity analysis. 

In  the  field  of  Health,  the  pace  of  Ageing  is  expected  to  accelerate  and  to  characterize 
developments  in  all  Member  States  without  exception  (probably  at  different  speeds)111. 
Gender  differences  persist  in  physical  health,  access  to  health  care,  social  networks,  but 
also 
furthermore,  exhibit  marked 
geographical and social diversity, the sources of which may be amenable to correction. 

family  solidarity112.  Those  gender  differences, 

Of  specific  interest  is  long  term  care,  amongst  whose  beneficiaries  but  also  providers 
(formal  or  informal,  paid  or  unpaid)  women  predominate113.  Family  policy  and  actions 
aiding  the  reconciliation  of  family  and  professional  life  are  of  key  importance  for  gender 

and 

World 

Health. 

Women 

109  WHO  (2008).  Strategy  for  integrating  gender  analysis  and  actions  into  the  work  of  WH0.  Department  of 
Geneva. 

Gender, 
http://whqlibdoc.who.int/hq/2008/WHO_FCH_GWH_08.1_eng.pdf. 
Equity  Channel  Policy  Precis  (2011)  Gender  and  Health  Equity:  Connecting  People  for  Fair  Health. 
EuroHealthNet, February 2011. http://www.equitychannel.net/uploads/Fact-Sheet-Gender-V3.pdf
EGGSI  (2010)  Access  to  Healthcare  and  long-term  care:  Equal  for  women  and  men?  Final  Synthesis  Report. 
Expert Group on Gender Equality and Social Inclusion, Health and Long-term Care Issues., Directorate-General 
for Employment, Social Affairs and Equal Opportunities, European Commission.  
http://ec.europa.eu/social/main.jsp?catId=738&langId=en&pubId=558&type=2&furtherPubs=yes.  Thümmler, 
K.,  Britton,  A.,  and  Kirch,  W.  (2009)  Data  and  Information  on  Women’s  Health  in  the  European  Union. 
Communities. 
Directorate-General 
http://ec.europa.eu/health/population_groups/docs/women_report_en.pdf. 

Organization, 

Consumers, 

European 

Health 

Health 

and 

for 

  WHO (2009), Addressing Gender Inequalities in Health and Environment. World Health Organization, Geneva. 
2009. 

Report 
http://www.euro.who.int/__data/assets/pdf_file/0019/123049/E94318.pdf 

11-12  November 

health,  Madrid, 

gender 

Forum 

and 

the 

on 

VI 

of 

110	  The Survey of Heatlh, Ageing, Retirement in Europe is a large scale interdisciplinary panel survey of Europeans 
aged 50+. To date it has undertaken three interviewing waves and covers 21  European countries.  It has been 
financed by the European Commission through the 5th framework programme (project QLK6-CT-2001- 00360 
in the thematic programme Quality of Life), through the 6th framework programme (projects SHARE-I3,  RII­
CT- 2006-062193, COMPARE, CIT5-CT-2005-028857, and SHARELIFE, CIT4-CT-2006-028812) and through the 
7th framework programme (SHARE-PREP, 211909 and SHARE-LEAP, 227822) and is now a European Science 
Forum Research Infrastructure. For more information see www.share-project.org. 

111	  Economic  Policy  Committee,  2009,  2009  Ageing  Report:  Economic  and  budgetary  projections  for  the  EU-27 
2. 
Member 
http://ec.europa.eu/economy_finance/publications/publication14992_en.pdf 
  Economic  Policy  Committee, 
(2011). The 2012 Ageing Report: Underlying Assumptions and Projections Methodologies. European Economy, 
4.
http://ec.europa.eu/economy_finance/publications/european_economy/2011/pdf/ee-2011-4_en.pdf. 

(2008-2060), 

Economy, 

European 

States 

112	  See European Commission (2010), Joint Report on Health Systems. European Economy. Occasional Papers 74. 

December 2010.
http://ec.europa.eu/economy_finance/publications/occasional_paper/2010/pdf/ocp74_en.pdf 
European 
Commission  (2010).  Joint  Report  on  Social  Protection  and  Social  Inclusion  2010.  Annex  6500/10 
http://ec.europa.eu/social/main.jsp?catId=757&langId=en. 

113	  See  for  a  recent  overview  OECD,  (2011).  Help  Wanted?  Providing  and  Paying  for  Long-Term  Care,  Paris. 

http://www.oecd.org/dataoecd/30/24/47836116.pdf. 

94
 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
                                                 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
  
 
 
 
 
 
 
 
 
 
  
  
  
 
 
 
 
 
 
 
 
 
 
80 

70 

60 

50 

40 

30 

20 

10 

0 

60 

50 

40 

30 

20 

10 

0 

The multi-annual financial framework 2014-2020 from a gender equality perspective 

balance.  Finally,  turning  to  more  medical  matters,  research  and  innovation  undertaken 
by the private sector (pharmaceuticals, medical equipment, etc) dwarfs the European Union 
budget.  Gender  gaps  may  appear  on  the  supply  side  (researchers),  but  also  through  the 
focus  on  specific  conditions  or  research  priorities.  The  incidence  of  health  conditions  is 
heavily gendered – for physiological and also for economic and social reasons.  The process 
of prioritisation in health and care governance and in funding priorities could create gender 
gaps  by  affecting  access  to  health  care  services.  Such  access  problems  are  especially 
salient  for  gender  balance  in  preventive  care  and  medicine,  as  in  peri-natal,  child 
care, and mental health. 

Figure  5:  Gender  gaps  among  people  aged  50+  in  physical  health  (SHARE  w2), 

(%) with 2 or more chronic diseases 

MEN 50+  WOMEN 50+ 

57 

54 

45  45

39 

41

64 

56 

50 

47 

52 

35

51 

51 

44 

40 

50 

47 
39  41  40 

43 

40 

31 

32 

29

SE  DK  NL DE  BE 

FR  CH AT 

IT 

ES  GR  CZ

PL 

Figure 6: Gender gaps among people aged 50+ in mental health (SHARE w2), 

(%) with clinically significant depression 
(defined as EURO‐D score >3) 

59 

MEN 50+ 

WOMEN 50+ 

41 

33 

19 

20 

21 

46 

43 

26 

24 

26 

37 

30 

13 

11 

18 

16 

11 

22 

20 

24 

25 

11  13 

14  13 

SE  DK  NL  DE  BE 

FR

CH AT 

IT 

ES  GR  CZ

PL 

Source: Author’s calculations from SHARE w2 data. 

Well-being even in market economies, such as in EU, is not necessarily synonymous with 
economic  or  financial  independence.  Material  deprivation  is  not  simply  a  result  of  lack  of 
financial  means.  It  may  also  be  due  to  difficulties  of  access,  due  to  problems  of  financial 
literacy,  or  inability  to  participate  in  the  information  society.  Women’s  roles  in 
administering  the  family  budget  is  one  half  of  the  ‘double  burden’  that  working  women 
have  to  face,  assuming  new  employment  responsibilities  without  shedding  existing 
responsibilities in the family. Consumer protection in this case will ease women’s time input 

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into unpaid labour, and moreover, by raising quality standards, will lead to a direct increase 
in  real  incomes.  On  a different  tack,  safeguarding  quality  standards  in  consumer  products 
could  also  be  instrumental  in  safeguarding  a  level  playing  field  between  EU  and  third 
country  producers114;  this  can  prevent  job  losses  in  consumer  goods  industries,  which 
happen to have a high proportion of women workers.   

Does  well-being  convey  something  more  /  different  from  access  to  financial  resources? 
Economists in recent years have investigated this question in the context of the Economics 
of  Happiness115.  Despite  substantial  improvements  in  most  of  the  measures  of  subjective 
well-being,  evidence  suggests  that  women’s  happiness  has  declined  both  absolutely  and 
relatively to that of men, a finding which has been called “the paradox of declining female 
happiness”116.  A  number  of  explanations  have  been  supplied  to  account  for  this  trend, 
including  the  continuation  of  unequal  sharing  of  housework  between  partners  117and  that 
women react more negatively to rising overall inequality. Without dismissing altogether the 
interpretations  suggesting  that  earlier  reporting  of  well-being  were  too  influenced  by 
gender-stereotypes,  it  appears  that  the  available  evidence  indicates  persistent  gender 
differences  in  the  correlation  between  income  and  happiness.  Given  equal  access  to 
financial  resources,  (and  controlling  for  all  other  influences)  women  appear  to  be  able  to 
derive  smaller  levels  of  well-being  than  men.  Moreover,  their  well-being  is  more  loosely 
related to finance than men’s well-being.118 

Finally, in the field of environment/ climate change, most initiatives at European Union 
level  are  characterized  by  large  scale  and  heavy  utilization  of  capital  and  machinery  for 
each  job  (i.e.  capital  intensity,  on  the  producer’s  side).  In  contrast  it  is  the  smaller-scale 
actions that take place at the regional level that impact people’s lives directly. An example, 
of special relevance to women, is public transport – which women use to a greater extent 
than  men.  Similarly,  energy  efficiency  and  energy  conservation  involve  smaller  scale 
interventions, with a higher potential to create ‘green’ jobs for women. By their favourable 
impact on household budgets, they might impact women (in their capacity as consumers) 
to a greater extent (in comparison to the equivalent energy gain which results from larger 
projects).  The  EU-value  added  is  also  likely  to  be  more  marked,  taking  into  account that 
smaller-scale  projects  may  face  bureaucratic  obstacles  and  may  need  aid  in  governance 
structures in order to take off.  On the user’s side the interventions aim at the corrections 
of  externalities  (e.g.  climate  change,  pollution),  the  effects  of  which  are  gender  neutral. 
However, the quality of the lived environment does have a gender dimension: in the urban 
setting,  women  tend  to  be  more  frequent  users  of  social  infrastructure  and  may  suffer 
more  from  urban  problems  such  as  insecurity  and  crime.  They  are  also  likely  to  be  more  
affected by localized environmental problems such as pollution, which also feed into quality 
of life issues. Similarly, rural development may also have gender implications under the 
environment heading, given problems of access and transport to social and health services. 
Recapitulating,  there  are  particular  groups  who  will  benefit  from  policy  intervention  in  the 
areas of health, well-being and environment which can be identified as: 

  Aged women, especially widows 
  Disabled women 

114  A  level  playing  field  is  a  concept  about  fairness  in  competition.  It  is  not,  so  much,  that  each  player  has  an 
equal chance to succeed, but that they all play by the same set of rules. Ensuring that all products keep to the 
same high standards would prevent unwarranted competition. 

115  See, e.g. R.Layard, 2011, Happiness: Lessons from a New Science, 2nd Edition, Penguin. 
116  (Stevenson & Wolfers, 2008. 
117  (Sironi & Mencarini, “Happiness, Housework and Gender Inequality in Europe”, 2010. 
118  Esa  Mangeloja,  2007,  “WVS,  Economists  and  Happiness”,  FSD  Bulletin  (Finnish  Social  Science  Data  Archive 

Newsletter, issue 20 (1/2007). 

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The multi-annual financial framework 2014-2020 from a gender equality perspective 

  Cross-border workers  
  Carers and providers of personal services 
  Consumers and shoppers 
  Women researchers and scientists 
  Producers of consumer goods subject to low quality competition 
  Public transport users 

2.2.	 

Likely  causes  of  inequalities  in  health,  well-being  and  the 
environment 

In the field of health and well-being the immediate causes of measured inequalities may be 
biological  (women’s  greater  longevity),  social  (prevalence  of  widows  at  older  ages), 
economic  (gender  resource  gaps)  or  political  (participation  in  policy  making).    Of  key 
importance for policy, given the potential for amelioration, are inequalities of access. The 
Open Method of Coordination in social protection mentions the following access barriers to 
care:  lack  of  health  insurance,  direct  financial  costs  of  care,  geographical  disparities  in 
provision,  waiting  times,  lack  of  information,  discrimination,  language  barriers,  health 
literacy  and  socio-cultural  expectations  in  relation  to  life  and  care  use119.  Many  of  these 
barriers interact with other handicaps that women experience in other areas of their life.  In 
health,  as  in  other  areas,  path  dependence  implies  that  past  inequities  continue  affecting 
organisational behaviour. For instance, this could apply to decision structures of the private 
sector,  which  might  bend  interest  away  from  ailments  more  affecting  women  (e.g.  due  to 
women’s lower purchasing power); in the public or NGO sector the under-representation of 
women among decision makers could play a role.    

Given that in the fields of environment and well-being, there is often little essential cause 
for  gender  imbalances,  gender  inequalities  may  often  be  reflections  of  women’s 
disadvantage  in  other  fields.  They  may  be  the  consequence  of  decision  structures  not 
allowing women a say in how the field is organised. As regards the production side, the co­
existence  of  capital  intensity  with  medium  and  small-size  projects  could  bias  decisions  in 
favour  of  larger  projects  and  could  militate  against  smaller  projects.  Governance 
shortcomings and bureaucratic procedures may also act as ‘fixed costs’ to prevent entry in 
an  industrial  sector  and  could  hence  prejudice  smaller  initiatives.  This  point  is  of  some 
importance as ‘green jobs’ will account for a growing share of employment creation. 

In  such  areas  the  EU  may  play  a  facilitating  or  paradigmatic  role  for  national  or  regional 
governance.  In other words gender mainstreaming at EU level may encourage equivalent 
actions at lower levels and hence could have a kind of ‘multiplier’ effect.  

Finally, taking into account the long horizon of the MFF, as well as the key role it accords to 
research and innovation, it is worth putting the question of the long term determinants of 
gender  inequalities  and  the  potential  role  played  by  technology  in  that.  Innovation 
configures the framework in which economic and social relations will operate; it thus offers 
a  possibility  to  influence  the  situation  of  gender  inequalities  in  the  future.  This  is  most 
obviously  the  case  in  health,  where  the  development  of  technology  affects  relative  costs, 
but  also  the  possibilities  of  treatment  of  particular  conditions.  It  also,  crucially,  can  affect 
access  to  care  –  e.g.  in  e-health  or  in  the  development  of  new  treatments.  In consumer 
affairs technology can offer new potential (e.g. e-commerce, new products), but can also 
create  new  sources  of  disadvantage  by  groups  who  find  adapting  difficult.  In  the  field  of 

119	  European Commission (2010). Joint Report on Social Protection and Social Inclusion 2010.

http://ec.europa.eu/social/main.jsp?catId=757&langId=en. 

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Policy Department C: Citizens' Rights and Constitutional Affairs 

environment,  technology  can  affect  the  labour  intensity  and  scale  neutrality  of  future 
production – and hence alter the characteristics of future employment creation. It can also 
alter  the  relative  importance  of  energy  efficiency  vis-a-vis  other  forms  of  reaction  to 
climate  change,  such  as  the  use  of  filters,  Renewable  Energy  sources  or  even  nuclear 
energy. 

2.3. 

Gender stereotypes and roles 

Many  of  the  above  disadvantages  stem  from views  about  appropriate  gender roles.  Those 
roles  are  implicit  and  change  much  slower  than  the  conditions  that  originally  supported 
them; they can thus be more resistant to change and their influence may reappear in times 
of  crisis.  Of  great  importance  in  this  field  is  the  underrepresentation  of  women  amongst 
decision  makers  in  both  the  private  and  public  sectors,  especially  the  case  among  older 
women.  Their  needs  are  frequently  side-stepped  by  their  ‘invisibility’  –  borne  out  of  the 
operation of the political system but also of the diffidence showed by many women of older 
cohorts120. 

Gender  stereotypes  also  support  occupational  segregation,  which  lies  behind  many 
gender gaps on the supply side.  

2.4. 

Inequalities in society that policies target 

Decisions  taken  in  health  and  well-being  affect  everyday  lives  of  people  all  over  Europe. 
Choices  taken  in  the  health  field  e.g.  the  allocation  of  research  funds  to  particular 
conditions could have important effects far into the future affecting relative morbidity and 
quality of life.  Health, after all,  is a key input in human capabilities and should be at the 
base  of  well-being  comparisons.  Similarly  quality  of  life  interventions,  such  as  ensuring 
minimum  access  to  health,  long-term  and  social  services,  act  to  correct  pre-existing 
inequalities and create a level playing field from which men and women proceed to realise 
their potential for production and well-being.  The crucial objective must be to ensure that 
avoidable,  unnecessary  and  unjust  inequalities  between  women  and  men  are  eliminated. 
This  also  applies  a  fortiori  in  the  field  of  public  transport,  where  women  are  the 
predominant users. 

In  another  targeted  policy  such  as  energy,  the  measures  to  ensure  efficiency  and 
conservation, if applied to the household level – as alternatives to large scale investments 
in  expanding  energy  infrastructure,  have  the  potential  of  promoting  both  economic  and 
environmental  efficiency.  They  can  do  this  by  economising  on  finance,  but  also  by 
transferring  resources  to  households  and  by  reducing  the  effective  price  that  households 
face  in  the  use  of  energy.  Thus,  an  emphasis  on  efficiency  and  conservation  could  also 
influence the distribution of income.  

2.5. 

The broader policy context for the planning period 

The MFF 2014-2020 will unfold at a time when policy has to meet major challenges, which 
distinguishes  it  from  previous  periods.  These  challenges  can  be  divided  into  long-term 
secular trends121 and macroeconomic medium-term considerations linked to the exit of the 
current financial crisis. 

120  S.Ainsworth  2003,  The  Feminine  advantage:  a  discursive  analysis  of  the  invisibility  of  older  women  workers, 
Gender, Work and Organisation, vol 9, 5, pp 579-601.  K.D. Scheib, 2004, Challenging Invisibility: Practices of 
care with older women, Chalice press, Danvers. 

121  The secular variation of a time series is its long-term non-periodic variation. 

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The multi-annual financial framework 2014-2020 from a gender equality perspective 

Long term secular trends: Demographics. Population ageing will accelerate together with 
associated changes (pensions, long term care, health trends, smaller families, technological 
change in health care122). 

The EU is taking the lead in world climate action, as exemplified by the Durban round of the 
Climate Change Conference123 . 

Macroeconomic effects of the crisis: The planning period 2014-2020 is likely to play a 
key  role  in  the  context  of  the  EU  establishing  a  new  growth  path,  after  the  setbacks 
brought  on  by  the  current  financial  crisis.   Investment  in  energy  infrastructure  is  likely  to 
play  a  role  in  the  recovery,  while  one  of  the  areas  expected  to  grow  most  is  that  of  
green/sustainable energy. These developments are likely to lead to major restructuring of 
production  and  –should  there  be  no  corrective  action  –  could  lead  to  new  forms  of 
occupational segregation and new gender imbalances. It is important that ‘green jobs’ are – 
at  the  very  least-  gender  neutral;  they  should  not  reproduce  the  male  occupational 
segregation currently ruling the energy sector. 

In  the  field  of  health,  and  according  to  the  2010  Joint  social  protection  report,124  the 
economic crisis will increase the demand for health care (through effects on morbidity and 
direct  effects  of  job  insecurity  on  mental  health),  at  the  same  time  as  curtailing  the 
resources  available  to  meet  this  demand.  The  crisis  will  also  affect  the  composition  of 
spending in the direction of greater pressure on the public sector. 

The  fact  that  long  term  trends  will  operate  during  the  exit  phases  of  the  economic  crisis 
could  alter  the  way  some  effects  may  operate.  For  example,  investment  towards  green 
energy  and,  more  generally,  in  green  technology  are  likely  to  account  for  a  larger 
proportion  of  total  investment  and  of  total  demand.  Hence  some  of  their  characteristics 
(such as gender emphasis in employment) would have higher significance than otherwise.  

3.  STRATEGIC GENDER OBJECTIVES AND MFF 2014-20 

3.1. 

Analytical gender objectives and programme statements 

A note on Methodology: The context analysis has given us an indication of what needs to 
be  done  to  deal  with  gender-based  inequalities  –  i.e.  analytical  gender  objectives.  Using 
this  as  a  starting  point,  we  need  to  see  how  (a)  EU  programme  statements  tackle  the 
underlying  gender  analytical  objectives  and  (b)  how  EU  financial  instruments  apportion 
budget funds among the various programme objectives and in this way, impact on gender 
objectives.  Thus  a  three  stage  process  results,  which  is  clarified  in  the  following  graphical 
schema: 

122  Economic  Policy  Committee,  (2011).  The  2012  Ageing  Report:  Underlying  Assumptions  and  Projections 

Methodologies. European Economy, 4.
http://ec.europa.eu/economy_finance/publications/european_economy/2011/pdf/ee-2011-4_en.pdf. 

123  The EU road map had a catalytic effect on negotiations, as attested by the Commissioner   

http://ec.europa.eu/commission_2010-2014/hedegaard/headlines/articles/2011-12-14_01_en.htm. 

124  European Commission (2010). Joint Report on Social Protection and Social Inclusion 2010. Annex 6500/10  

http://ec.europa.eu/social/main.jsp?catId=757&langId=en. 

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Policy Department C: Citizens' Rights and Constitutional Affairs 

	  Stage  1:  Are  the  gender  objectives  that  result  from  analysis  reflected  in 
programme statements (i.e. Europe 2020125 and Strategy for Equality126, or 
in sectoral EU programmes in Health, Consumer Affairs, Environment)127  If 
so, in what form? (Table 10) 

	  Stage  2:  What  are  the  objectives  of  the  financial  instruments128  which  the 
programme  utilizes  in  order  to  tackle  its  gender  objectives  (e.g.  ESF,  EGAF 
etc)? 

	  Stage 3: What are the amounts budgeted in the financial instruments distributed 

among the analytical objectives (left panel of the graphical schema)? 

Stage  3  would  correspond  to  full  gender  budgeting.  However,  in  the  present  case,  the 
detailed information necessary to produce a full correspondence between budget proposals 
and  analytical  objectives  is  not  available.  What  can  be  attempted  directly  is  to  produce  a 
correspondence between budget amounts and objectives of the financial instruments (and 
not directly the analytical objectives), (see Table 10 on Budgeting Gender Objectives).  In 
order  to  provide  a  bridge  between  the  programme  instruments  and  the  underlying 
analytical  gender  objective,  the  next  section  examines  from  a  gender  standpoint  the  ten 
objectives  contained  in  the  MFF.  By  way  of  recapitulation,  Table  12  produces  a 

125	  C.E.C.  (2010),  COM  2020  final,  3.3.2010.  “Europe  2020:  A  strategy  for  smart,  sustainable  and  inclusive 

growth”, Communication from the Commission, European Commission. 
http://eur-lex.europa.eu/LexUriServ/LexUriServ.do?uri=COM:2010:2020:FIN:EN:PDF 

126	  C.E.C.  (2010),  COM  491  final,  21.9.2010.  “Strategy  for  Equality  between  women  and  men  2010-2015”, 
http://eur-

Communication 
lex.europa.eu/LexUriServ/LexUriServ.do?uri=COM:2010:0491:FIN:EN:PDF 

Commission. 

Commission, 

European 

from 

the 

127	  European Commission (2007). Combating climate change: The EU leads the way. Europe on the movies series. 

European Communities.  
http://ec.europa.eu/publications/booklets/move/70/en.pdf. 
European Commission (2006). The European Climate Change Programme: EU Action against Climate Change. 
European Communities. http://ec.europa.eu/clima/publications/docs/eccp_en.pdf C.E.C. (2011) COM 571 final, 
20.9.2011. Roadmap to a Resource Efficient Europe. 
http://eur-lex.europa.eu/LexUriServ/LexUriServ.do?uri=COM:2011:0571:FIN:EN:PDF. 
C.E.C. (2011). COM 1068 final, 20.9.2011. On the Progress of the Thematic Strategy on the Sustainable Use of 
Natural Resources.
http://ec.europa.eu/environment/resource_efficiency/pdf/sec2011_1068_final.pdf
C.E.C.  (2011).  A  resource-efficient  Europe-  Flagship  initiative  under  the  Europe  2020  Strategy.  European
 
Commission, 26.1.2011.

http://ec.europa.eu/resource-efficient-europe/pdf/resource_efficient_europe_en.pdf. 


128	  C.E.C.  (2011),  COM  500  final,  29.6.2011.  ‘A  budget  for  Europe  2020:  Part  II’.  Communication  from  the 
Commission  to  the  European  Parliament,  the  Council,  the  European  Economic  and  Social  Committee  and  the 
Committee of the Regions.
http://europa.eu/press_room/pdf/a_budget_for_europe_2020_-part_ii_policy_fiches_en.pdf 

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The multi-annual financial framework 2014-2020 from a gender equality perspective 

correspondence  between  those  ten  instrument  goals  and  the  analytical  gender  objectives 
that were derived from the context analysis. 

The  two  general  programme  statements  that  have  been  examined  are  Europe  2020  and 
the EU strategy for Equality 2010-2015. In the three sectoral areas, there exist, as yet, 
no approved programmes covering the same time period; to remedy this, this briefing note 
examines policy documents which can be taken as representative of policy thinking:  

 
 

 

in the field of Health: the 2010 Joint Social protection and Inclusion Report;129 
in the field of consumer affairs: the road map to the proposed Consumer Agenda 
(expected to be approved in mid-2012)130; 
in the field of environment, the road map to the 7th Environment Action Programme 
(expected to be approved in 2012)131. 

See Table 10, p.108. 

Looking  first  at  the  rows  of  Table  10,  in  the  field  of  health,  they  distill  seven  analytical 
gender  objectives  from  the  discussion  of  the  context.  These  concern  the  supply  side, 
(occupational segregation), but chiefly focus on users/patients. Dealing with inequalities of 
access, figures prominently, referre to infrastructure and to problems of specific categories 
of  people,  usually  as  a  result  of  multidimensional  deprivation  (e.g.  elderly  women, 
migrants).  Similar  objectives  can  be  formulated  on  the  demand  (user  side),  dealing  with 
avoidable  inequalities  arising  from  the  allocation  of  resources  (to  health  conditions/  to 
groups),  or  the  need  for  a  holistic  interdisciplinary  approach  in  ageing.  Given  the 
significance  of  technology  and  the  consequent  significance  of  innovation  and  research, 
objective 4 turns to affecting preventable gender inequalities.  

In  well-being,  the  systematic  (and  still  largely  unexplained)  gender  difference  in  the  link 
between income and life satisfaction motivates a (rather discursive) gender objective. This 
pervasive  –  almost  existential  - inequality  needs  to  be  understood  better,  and  if  so, 
ameliorated.  More  concretely,  actions  in  the  field  of  consumer  protection  could  contribute 
towards alleviating women’s double burden (of combining work and family responsibilities), 
as  well  as  consumer  empowerment  gap  related  to  the  increasing  complexity  of  choices 
faced by consumers. 

In  environment  and  energy  policy, on  the  supply  side there  are  possibilities  for  correcting 
the  existing  gender  imbalance  in  employment.  On  the  demand  side,  women  tend  to  be 
users of public transport, while gender inequalities may result from localized environmental 
or pollution problems, both in the rural and urban setting.  

It is worth noting that the EU 2020 Strategy contains wording that can encompass most of 
the  major  areas  highlighted  in  the  context  analysis.  However,  in  most  cases  gender 
remains  in  the  background,  being  mentioned  as  an  independent  factor  far  less  explicitly 
than in the Strategy for Equality. Thus, though gender cannot be said to be absent in the 

129  European  Commission  (2010).  Joint  Report  on  Social  Protection  and  Social  Inclusion  2010.  Annex  6500/10. 

http://ec.europa.eu/social/main.jsp?catId=757&langId=en 

130  European Commission (2011) Roadmap: European Consumers Agenda. October 2001.

http://ec.europa.eu/governance/impact/planned_ia/docs/2012_sanco_005_consumer_agenda_en.pdf 

131  European Commission (2011). Roadmap: 7th Environmental Action Programme. October 2001.

http://ec.europa.eu/governance/impact/planned_ia/docs/2012_env_013_7th_environmental_action_program 
me_en.pdf 

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Policy Department C: Citizens' Rights and Constitutional Affairs 

objectives, it is approached in an oblique and indirect manner. Gender could be there, but 
its presence must frequently be inferred.  

The columns of Table 10 survey the gender objectives as they can be inferred from the 
MFF 2020. 

They  match  each  gender-sensitive  objective  with  equivalent  statements  in  two  other 
important  EU  documents:  the  Strategy  for  Equality  2010-15  and  Europe  2020.  As  it  is 
obvious  from  the  table,  there  is,  in  general,  a  broad  correspondence  between  the  three 
documents. 

This is most obvious in the case of health, where the programme statements lay stress on 
access  problems,  as  well  as  mentioning  explicitly  matters  such  as  access  to  care  (both 
long-term and child care). Even there, however, gender can be inferred, rather than being 
mentioned (with the exception of older women). This observation applies a fortiori to well­
being  and  environment,  where  Europe  2020  is  silent  on  gender  issues.  In  the  case  of 
environment,  the  emphasis  on  ‘macro’  issues  such  as  climate  change  or  energy 
conservation  and  efficiency  appears  to  obscure  quality  of  life  issues  related  to  the  lived 
environment – in rural or in urban areas. 

The  sectoral  programmes  in  the  areas  of  Well-being  (the  Consumer  Agenda)  and  the 
environment  (the  7th  Environment  Action  Programme)  will  be  finalised  in  2012;  the 
information  of  Table  10.  was  gathered  from  the  Roadmaps  published  ahead  of  time.  It 
might  well  be  that  the  final  completed  version  of  those  programmes  may  fill  some  of  the 
gaps  and  may,  in  the  end,  contain  some  references  to  gender;  however,  such  an  about-
turn would require in increase in the level of awareness. 

3.2.	 

The  EU  financial  instruments  and  the  analytical  gender 
objectives 

The  European  Union  financial  instruments  documents,  i.e.  the  Multi  Annual  Financial 
Statement 2014-2020, contain their own statements of objectives. It is those statements to 
which  budget  amounts  are  attributed  in  the  budget  statements,  most  of  which  make  no 
mention  of  gender.  Given  that  gender  inequalities  in  the  fields  of  health,  well  being  and 
environment, as in other fields, remain, it is important to clarify and discuss whether these 
instrument objectives can have a gender dimension, and what could that be. This would be 
a step in the process of relating them to the analytical gender objectives that are the result 
of the context analysis. (All page references are to Budget for Europe 2020132). 

Table 12 provides a diagrammatic illustration of the discussion that follows, relating the ten 
objectives (2 in health, 3 in well being, 5 in environment). 

Objective  1:  To  protect  and  improve  the  health  of  European  citizens  (part  II,  p. 
49).133 

132  Part  II  -  Policy  fiches:  "Communication  from  the  Commission  to  the  European  Parliament,  the  Council,  the 

European Economic and Social Committee and the Committee of the Regions", COM(2011)500 final. 

133  See also: C.E.C. (2011), COM 709 final, 9.11.2011. Proposal for a Regulation of the European Parliament and 
of the Council on establishing a Health for Growth Programme, the third multi-annual programme of EU action 
in the field of health for the health for the period 2014-2020.
http://ec.europa.eu/health/programme/docs/prop_prog2014_en.pdf. 

102
 

 
 
 
 
 
 
 
 
 
 
   
 
 
 
 
   
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
   
 
                                                 
  
 
 
 
 
  
 
 
 
 
  
 
The multi-annual financial framework 2014-2020 from a gender equality perspective 

The attention is almost exclusively on cross-border actions and other areas with an added-
value from the European Union.  This objective is analysed within four areas: (a) common 
tools of mechanisms at EU level to address shortages of resources (b) increased access to 
medical  expertise  (c)  best  practices  for  prevention  measures  (obesity,  smoking,  HIV)  (d) 
cross border health threats. This objective is gender sensitive through two paths: 

	  Production  of  Health  services:  in  the  caring  professions  women  are  greatly 
overrepresented.  According  to  the  ILO,  the  female/male  ratio  in  nursing  and 
obstetrics  is  11.86  in  Sweden,  6.34  in  German,  8,09  in  France,  4,19  in  Spain  and 
9.87 in Greece. Though data does not exist, informal caring duties in the context of 
the 
Given  women’s 
preponderance on the supply side of the health care sector, increases in funding for 
health  are  likely  to  benefit  women  more  than  men.  This  also  applies  to  the 
monitoring of member states as regards child care infrastructures. 

family  are  undertaken  overwhelmingly  by  women. 

	  Access to health services: specific groups of women are especially disadvantaged 
as to access – such as migrant women and older women-.  Securing equal access to 
health services is singled out as a target in the context of social inclusion and also 
feeds  into  the  reconciliation  of  work  and  family  life  (in  the  context  of  child  care 
services and long term care)134. 

Objective 2: Research and innovation in health area (part II, p. 50). 

This objective is gender sensitive through two paths: 

– 	

First, the supply side – R &D production: women are severely underrepresented 
among  research  workers.  UNECE  data  show  that  in  2008/9  women  in  tertiary 
education  accounted  for  37,8%  of  all  university  teachers  in  France,  38,7%  in 
Germany,  38,9%  in  Spain  and  44,2%  in  Sweden.  These  figures  refer  to  all 
disciplines (not just medicine) and exclude the private sector (which in medical fields 
is  active  in  research).  It  is  conceivable,  thus,  that  the  complete  picture  shows  a 
greater  imbalance  than  is  apparent  from  these  data.  Budget  emphasis  in  further 
developing  research  and  innovation  in  the  health  sector  will  undoubtedly  result  in 
more jobs in research; women could benefit from this expansion – should new hires 
correct existing gender imbalances (which is to be expected, given that the outflow 
of  well-qualified  graduates  is  far  more  gender  balanced  than  the  current  stock  of 
researchers). 

However, it remains an open question whether this opportunity will be realized. The 
European  Strategy  for  Equality  2010-15  presumably  recognised  the  need  for 
corrective  action  to  narrow  the  gender  gap  amongst  researchers,  by  setting  a 
minimum  percentage  of  participation  by  women  of  25%  in  decision  making  
positions. This type of initiative is totally absent both from Europe 2020 and the MFF 
2014-2020, which could mean that certain complacency about gender sensitivity is 
creeping into policy documents. 

– 	 Secondly,  women  and  the  distribution  of  the  benefits  from  research  and 
innovation. Most improvements in health and utilization of new technology (e.g. e-
health) are designed to be gender neutral. Nevertheless, some groups will stand to 

134	  See, for example recent Joint  Reports on Social Protection and Social Inclusion,    

http://ec.europa.eu/social/main.jsp?catId=757&langId=en. 

103
 

 
 
 
 
 
 
 
 
 
  
 
 
 
 
   
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
                                                 
  
 
Policy Department C: Citizens' Rights and Constitutional Affairs 

be  differential  gainers  or  losers  (e.g.  older  women,  disabled  and  migrant  women). 
The distribution of relative gains and losses is likely to depend on a range of factors, 
some  of  which  may  be  affected  by  women’s  current  disadvantaged  status  (e.g. 
representation in decision making structures, financial factors).  Ageing is mentioned 
as a distinct research area.  However, the gender impact of innovation improvement 
will  be  filtered  through the  gender impact  of  different  conditions.  (e.g.  research  on 
prostate  cancer  benefits  men,  breast  cancer  women),  a  fact  on  which  budget 
documents are largely silent. 

Objective 3: to ensure that food is safe and wholesome (part II, p49).  

Women are expected to deal with food preparation, which thus accounts for a larger part of 
their  time  input  and  is  an  important  constituent  of  their  double  burden.  Even  in  member 
states  with  a  tradition  in  emphasizing  gender  balance,  such  as  the  Netherlands,  UNECE 
data (Appendix) show women spend 2,13 times more time on food preparation than men. 
Freeing  some  of  this  time  may  feed  into  economic  independence  by  lightening  women’s 
double  burden.  Poorer  individuals  stand  to  benefit  more  from  an  improvement  in  food 
quality,  as  food  accounts  in  all  countries  for  a  greater  part  of  their  expenditure,  as 
evidenced  by  all  Household  Budget  Surveys135;  quality  improvements  for  the  same  cash 
outlays are equivalent to a rise in real incomes. 

Objective 4: investment in skills, education and life-long learning (part II, p. 32). 

Some of the earnings gaps are attributable to education patterns. Investment in education, 
by  correcting  these  gaps  should  lead  to  a  further  shrinking  of  gaps.  Education  also  alters 
meaningfully the capabilities for well being and impacts quality of life directly, e.g. through 
affecting the use of free time or empowering consumers. It achieves this independently of 
effects on earnings potential. Given that this objective appears in both the well-being and 
the  economic  independence  areas,  a  distinction  could  be  drawn  between  “education  as 
human  capital”  (focused  on  independence)  and  “education  as  consumption  input”  (well­
being). 

Objective 5: to empower European consumers (part II, p. 49). 

Increasing shares of information reaching consumers does so via channels like the internet 
or  in  forms  that  some consumers may  have  limited  access  to  or have  limitations  to  make 
full  use  of.  Despite  the  pivotal  role  they  play  in  household  management,  women,  and 
especially  older  women,  consistently  rank  behind  men  in  internet  use136,  due  to 
occupational,  financial  or  cultural  reasons;  their  possibility  to  benefit  from  consumer 
empowerment  is  thus  hampered.    For  these  reasons,  the  importance  of  media  other  than 
the  internet  should  not  be  ignored.  Migrants  face  similar  participation  barriers  through 
language;  the  flow  of  information  available  in  other  languages  in  print  as  well  as  on  the 
internet should help. 

Attention should also be focused on content being phrased in an intuitive manner, to reach 
less  technically-competent  audience,  which  one  would  expect  to  characterize 
a 
disadvantaged  groups.  Finally,  financial  literacy  and  innumeracy  could  in  themselves  form 

135  See, for instance the Eurostat page on Budget Surveys. 

http://epp.eurostat.ec.europa.eu/portal/page/portal/household_budget_surveys/Data. 

136  The  Statistical  Appendix  shows  that  this  gap  applies  to  all  member  states  and  is  more  pronounced  for  older 

women. 

104
 

 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
                                                 
  
 
 
The multi-annual financial framework 2014-2020 from a gender equality perspective 

separate  targets137.  Explicit  attention  to  these  aspects  could  help  shift  the  focus  of  this 
objective to more disadvantaged groups. 

Objective 6: Research and innovation in environment area (part II, p. 38). 

First,  the  Supply  side  –  R&D  production:  women’s  participation  in  research  in 
engineering is especially low and that carries into environmental R&D. The reasons for that 
may  be  sought  in  gender  imbalance  in  the  scientific  education,  by  stereotypes  or  by 
inequalities  in  the  hiring  process  caused  by  path  dependence.  UNECE  data  (quoted  in 
Appendix) show the improvement in gender ratios to be halting.  The opportunity to correct 
this by new hires may be jeopardized by male-dominated decision structures, which could 
reinforce  path  dependence.    However,  as  in  objective  2,  Europe  2020  is  silent  on  gender  
gaps among researchers. 

Second, women and the distribution of the benefits from R&D: small scale innovation 
(eco-innovation)  is  mentioned  as  an  explicit  goal.  Such  innovation  should  give  women  in 
rural areas a chance to be more actively involved. ‘Smart and sustainable growth’ (Europe 
2020)  should,  also,  in  principle,  work  towards  gender  balance  in  primary  production,  by 
technological  innovations  in  sustainable  agriculture-.    Favouring  scale-neutral  technology 
should  also  favour  the  exercise  of  entrepreneurship,  in  which  women  appear  especially 
disadvantaged.  

Objective  7:  improve  the  competitiveness  of  the  agriculture  and  forestry  sectors 
and  promote  the  diversification  of  economic  activity  and  quality  of  life  in  rural 
areas (part II, p. 3). 

The  quality  of  life  of  women  living  in  rural  areas  could  benefit  indirectly;  rejuvenation  of 
rural areas may bring with it improvements in areas such as social infrastructure. 

Objective 8: creation of platforms for the exchange of best practices for improved 
compliance with EU environmental policy priorities (part II, p. 39). 

The  underrepresentation  of  women  in  decision  making  is  likely  to  prove  an  obstacle  in 
attaining gender balance for this objective, in a manner similar to objective 2 or 5. 

Objective  9:  Reduce  energy  consumption  by  20%  through  increased  energy 
efficiency (part II, p. 12). 

The Supply side – production:  ILO data confirm male domination in engineers, technical 
staff  and  machine  operators.  The  target  of  reducing  energy  consumption  through  energy 
efficiency  will  create  new  jobs  in  innovation,  as  well  as  new  demand  for  vehicles  through 
the modernization of the current fleet. New technology uses electronics to a greater extent, 
which could provide a way in for women in traditionally male dominated sectors.  (e.g. the 
new  generation  of  trains  –  in  contrast  to  older  technology    can  be  operated  in  a  gender 
neutral fashion). 

The Demand (consumption) side: modernisation of public transport will benefit women 
who  are  more  likely  to  be  their  users.  Moreover,  the  ‘smart  homes’  initiatives  will  benefit 
more those individuals already facing a double burden in time allocations138. 

137  For  a  recent  survey,  see  OECD  2011  Improving  financial  education  efficiency,  Also,  the  OECD  financial 

education project:
http://www.oecd.org/document/42/0,3343,fr_2649_15251491_25696983_1_1_1_1,00.html 

105
 

 
 
 
 
 
   
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
   
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
                                                 
 
 
   
 
 
 
 
 
  
 
Policy Department C: Citizens' Rights and Constitutional Affairs 

Objective 10: cut Greenhouse Gases (gsg) by 20% and 20% of energy needs from 
Renewable Energy Sources (RES) (part II, p. 12) 

The  other  two  targets  of  the  20/20/20  schema  refer  to  reduction  of  gsg  by  20%  and 
ensuring  that  20%  of  energy  needs  are  met  from  RES.  This  implies  major  investments  in 
energy production, especially electricity (cut back on fossil fuels, increase RES); the general 
trend is for more decentralized, smaller scale production than currently.  This displacement 
could correct current imbalances, given that today’s large scale electricity production units 
are male-dominated. New forms of energy production rely more on process technology and 
require greater supervision; this, also, should give the opportunity to correct imbalances. It 
should be noted that, should the reduction in Green house emissions be achieved through 
increases in the use of nuclear power (a point on which the document, is neutral), this will 
mean a lower participation by women. 

138  Goldin  C.  (2006).  The  Quiet  Revolution  that  Transformed  Women’s  Employment,  Education  and  Family. 
American Economic Review, 96, 1–21, lays stress on improvements in household appliances freeing US women 
to enter employment in the 1950s. 

106
 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
                                                                                                                                                            
 
 
   
The multi-annual financial framework 2014-2020 from a gender equality perspective 

Table 9: Evaluating the MFF objectives in Health, Well-being and environment as 
to gender effect 

T
L
A
E
H

-
L
L
E
W

H

in 

R&D 

innovation 

PROGRAMME OBJECTIVE 
1.  Protect  health  of  European 
citizens 
2.  Research  and 
health area 
G 3. Food safety 
N
I
E
B

4.  Skills,  education  and  life-long 
learning  
5. Consumer  empowerment 
6. 
agriculture, 
climate action 
7.  Competitiveness  of  agriculture 
and  forestry  - diversification  of 
economic activity in rural areas  
8.  Improved  compliance  with  EU 
environmental policy priorities  
9.  Energy  consumption  by  20% 
through energy efficiency  
10.  Cut  ghg  by  20%  and  20%  of 
energy needs from RES (part II, p. 
12) 

environment, 
transport, 

in 
energy, 

T
N
E
M
N
O
R
I
V
N
E

GENDER 
AWARENESS 

GENDER 
RELEVANCE 

GENDER 
IMPACT 

LOW 

LOW 

LOW 

LOW 

LOW 

LOW 

HIGH 

DIRECT 

MEDIUM 

INDIRECT 

LOW 

INDIRECT 

HIGH 

INDIRECT 

MEDIUM 

INDIRECT 

MEDIUM 

INDIRECT 

LOW 

MEDIUM 

INDIRECT 

LOW 

LOW 

LOW 

INDIRECT 

MEDIUM 

INDIRE 
CT 

LOW 

LOW 

INDIRECT 

107
 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Policy Department C: Citizens' Rights and Constitutional Affairs 
Table 10: Analytical Gender objectives for Health, Well-being and the Environment in EU2020 and Strategy for Equality (Programme 
Statements) 

Analytical Gender Objectives 

A. HEALTH 
1. Health Supply Side 

Context 
Analysis 

EU 2020 Strategy 

Strategy for Equality 2010-
2015 

Sectoral 
programme 
Statements 
Joint Report for 
social protecion1

1.1 Avoid gender Polarisation In Health Sector professions. 
Ensure gender neutrality of new jobs. 

2. Access to Health and Care Services 

2.1 Ensure equal access (both physical and financial) to 
Health Infrastructure, health insurance systems, treatment 
and prevention. Embed gender sensitivity in decision 
systems. 

2.2 Ensure access by specific groups. Eradicate current 
access problems faced by migrant women, elderly women, 
minorities) 

2.3  Ensure access to quality and affordable Long-term care, 
both formal- and family-based. 

3. Health Demand Side 
3.1 Avoid inequalities in the allocation of resources for 
treatment of specific conditions which affect women 
disproportionately – both mental and physical 

3.2 Avoid inequalities in the allocation of resources to ill health 
prevention and promotion of healthy lifestyles. 

3.3 Promote a holistic response to health issues of specific 
population groups (the aged, abused women, single mothers) 

X 

X 

X 

X 

X 

X 

X 

4. Avoid preventable gender inequalities in the long-term. 

X 

X 
75% labour participation 
in general. 

X 
Better access to health 
care 
Promote e-health 
(gender not mentioned) 
‘Poverty platform’ 
Action for groups in 
particular risk. Older 
women mentioned. 
X 
Access to care and  child 
care facilities 

X 
Reduce health 
inequalities 
Gender not mentioned 

Healthy and active 
ageing population 

X 
R&D focus on Health 

X 
(in general, not for health) 

? 
Monitor gender issues in the 
field of health 

Health inequality 
within and 
between Member 
states 

X 
Facilitating migrant women’s 
access to health care 

Social 
determinants of 
health 

X 
Report on Member State 
performance on family care 

? 
Monitor gender issues in the 
field of health 

Strategy on combating 
violence against women; 
Increase the knowledge base 
X 
25% target for women in 
decision-making positions in 
research 
Increase the knowledge base 

Challenges due to 
the financial crisis 

Social 
determinants of 
health 

Healthy ageing? 

108
 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
B. WELL-BEING 

1. Alleviate women’s double burden (reconciliation of family 
and work, time input into unpaid labour) 

2. Investigate and, if necessary, ameliorate the gaps in women’s 
subjective well-being (i.e. the  apparent lesser capacity by 
women to transform financial resources to feelings  
of well-being). 
3. Overcome the obstacles standing in the way of 
consumer empowerment (equal capacity to use available 
information and exercise of consumer rights, e.g. financial 
literacy, e-learning,) 

C. ENVIRONMENT 

1. Avoid Gender polarisation in employment. Promote gender 
neutrality of ‘green jobs’. 

2. Improve the quality, reliability and affordability of public 
transport (as Women are the main users of public transport). 

3. Eliminate gender inequalities in quality of life in the rural 
environment: social infrastructure, transport 

4. Eliminate gender inequalities in quality of life in the urban 
environment: Social infrastructure, security 
5.  Address low representation of women in environment related 
research, especially green technology. Overcome possible in-
built biases towards large scale production and against smaller 
scale energy efficiency and conservation initiatives. 

X 

X 

X 

X 

X 

X 

X 

X 

The multi-annual financial framework 2014-2020 from a gender equality perspective 

Road map to 
Consumer 
Agenda (2012)2 

Reconciliation of family and 
work 

Consumer rights; 
Digital marketplace 

X 
Overcome 
Rigid Gender roles 
Increase knowledge base 

Lack of skills & 
knowledge; 
Vulnerable 
consumers 
7th Environment 
Action 
Programme3 

X 
To encourage women to enter 
green and innovative sectors 

n.a. 

X 
promoting work-life 
balance 

Social inclusion?? 

Education & training 
Digital agenda 

? 
New skills and jobs; 
Green jobs. 
Restructuring 
X 
To modernise the 
transport sector 
? 
Rural development for 
climate change 

Combating violence? 

X 
R&D focus on Climate 
Change, Energy and 
Resource Efficiency 

X 
25% target for women in 
decision-making positions in 
research 
n.a. 

n.a. 

n.a. 

1 Sectoral programme statement on health used: Joint report on Social protection and inclusion 2010 and EPC/EC Joint Report on Health systems 

2  Sectoral programme statement for well-being used. (Roadmap to) Consumer Agenda – to be adopted in 2012.
 
3  Sectoral  programme  statement  for  environment  used.  (roadmap  to)  7th  Environment  Action  Programme  –  to  be  adopted  2012.  The  information
 
currently (1/12) available is insufficient to isolate the gender relevance of EAP objectives.  


n.a. 

109
 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
  
 
 
 
Policy Department C: Citizens' Rights and Constitutional Affairs 

4.  BUDGET ALLOCATION ANALYSIS 

Table 11 codifies budget figures for the ten objectives discussed in the preceding section.   

Table 11: Budget allocation analysis (in million euro, MFF 2014-2020) 

r
o
f
h
t
l
a
e
H

h
t
w
o
r
G

1.  Protect  health  of  European 
citizens 
2.  Research  and  innovation  in 
health area 

446 

c
i
g
e
t
a
r
t
S

r
o
f

k
r
o
w
e
m
a
r
F

d
n
a
h
c
r
a
e
s
e
R

n
o

i
t
a
v
o
n
n
I

9,077 

y
t
e
f
a
S
d
o
o
F

l
a
i
c
o
S
n
a
e
p
o
r
u
E

d
n
u
F

s
r
e
m
u
s
n
o
C

e
m
m
a
r
g
o
r
P

n
o
m
m
o
C

l
a
r
u
t
l
u
c
i
r
g
A

-

I
I

r
a
l
i

P
(

y
c
i
l

o
P

)
n
e
o
l
e
v
e
d

l
a
r
u
r

+
E
F
I
L

t
n
e
m
n
o
r
i
v
n
e
(

-
b
u
s

)
e
m
m
a
r
g
o
r
p

e
t
a
m

i
l
c
(
+
E
F
I
L

-
b
u
s

)
e
m
m
a
r
g
o
r
p

3. Food safety 

2,177 

14,300 
<x<25, 
0002 

175 

22,494 

4.  Skills,  education  and  life­
long learning 

5. Consumer  empowerment 

6.  R&D  
in  environment, 
agriculture,  energy,  transport, 
climate action 
7. 
of 
Competitiveness 
agriculture  ­   diversification  of 
economic activity in rural areas 
8.  Improved  compliance  with 
EU 
policy 
priorities 
9. Energy consumption by 20% 
through energy efficiency 

environmental 

10.  Cut  ghg  by  20%  and  20% 
of energy needs from RES 

89,900 

 404.2 

904.5 

Total 

446 

31,571   2,177   14,3003 

175 

89,900 

 404.2  

904.5  

% of total 2014/20 Budget 

0.04 

3.08 

0.21 

1.40 

0.02 

8.77 

0.04 

0.09 

2007-13  Budget (2004 prices) 

321 

Total1 
16335 

n.a. 

12,3002 

157 

96,000 

171.4 

300 

2007-13 Budget (2011 prices)4 

353 

18005 

n.a. 

13557 

173 

105 

188 

330 

% Change over previous period 
(in real terms) 

26.1 

75.3 

n.a 

5.5 

1.1 

-15.0 

113 

173 

Notes 
2	  The  minimum  amount  corresponds  to  the  previous  period’s  proportion  for  "promoting 
education  throughout  working  life".  The  maximum  amount  imputes  for  the  total  of  the 
objective. 

3  Minimum amounts used for ESF – based on 2007-13 proportions.   
4  Using the GDP deflator for EU-27 to inflate 2004 prices. 

110
 

 
 
 
 
 
 
 
 
 
   
 
 
 
 
 
 
 
  
  
  
  
  
  
  
 
 
  
 
  
  
  
  
  
  
 
  
  
 
  
  
  
  
  
  
  
  
  
  
  
  
  
 
  
  
  
  
 
  
  
  
 
  
 
 
 
  
 
  
  
  
  
  
  
 
 
  
  
  
  
  
 
  
  
 
 
  
  
  
  
  
  
 
  
 
 
  
  
  
  
  
  
  
 
  
  
  
  
  
  
  
  
 
 
 
 
  
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
The multi-annual financial framework 2014-2020 from a gender equality perspective 

Table 12: Correspondance between Goals of Financial Instruments and Analytical Gender Objectives 

Analytical Objectives/ 
Objectives of financial instruments 

1. Health Supply Side 

A. HEALTH 

HEALTH 

WELL-BEING 

ENVIRONMENT & CLIMATE CHANGE 

1 

2 

3 

4 

5 

6 

7 

8 

9 

10 

1.1 Avoid gender Polarisation In Health Sector professions. Ensure gender neutrality of new jobs. 

2. Access to Health and Care Services 

2.1 Ensure equal access (both physical and financial) to health infrastructure, health insurance 
systems, treatment and prevention. Embed gender sensitivity in decision systems.  

2.2 Ensure access by specific groups. Eradicate current access problems faced by migrant 
women, elderly women, minorities) 

2.3  Ensure access to quality and affordable long-term care, both formal- and family-based.  

3. Health Demand Side 

3.1 Avoid inequalities in the allocation of resources for treatment of specific conditions which 
affect women disproportionately – both mental and physical 
3.2 Avoid inequalities in the allocation of resources to ill health prevention and promotion of 
healthy lifestyles. 
3.3 Promote a holistic response to health issues of specific population groups (the aged, abused 
women, single mothers) 

4. Avoid preventable gender inequalities in the long-term. 

B. WELL-BEING 

1. Alleviate women’s double burden (reconciliation of family and work, time input into unpaid 
labour) 
2. Investigate and, if necessary, ameliorate the gaps in women’s subjective well-being. (i.e. the  
apparent lesser capacity by women  to transform financial resources to feelings of well-being) 
3. Overcome the obstacles standing in the way of consumer empowerment (equal capacity 
to use available information and exercise of consumer rights, e.g. financial literacy, e-learning,) 

C. ENVIRONMENT 

1. Avoid gender polarisation in employment. Promote gender neutrality of ‘green jobs’. 

2. Improve the quality, reliability and affordability of public transport (as women are the main users 
of public transport). 
3. Eliminate gender inequalities in quality of life in the rural environment: social infrastructure, 
transport. 
4. Eliminate gender inequalities in quality of life  in the urban environment: Social infrastructure, 
security 
5.  Address low representation of women in environment related research, especially green 
technology. Overcome possible in-built biases towards large scale production and against smaller 
scale energy efficiency and conservation initiatives.  

X 

X 

X 

X 

X 

X 

X 

X 
X 

X 

x 

X 

X 

X 

X 

? 

X 

X 

? 

X 

? 

X 

? 

X 

X 

X 

X 

X 

X 

X 

X 

? 

? 

? 

X 

? 

X 

X 

X 

? 

X 

X 

X 

? 

x 

111
 

X 

? 

? 

? 

? 

? 

X 

X 

X 

? 

? 

X 

X 

? 

? 

X 

? 

X 

X 

X 

X 

? 

X 

X 

X 

X 

 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
   
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Policy Department C: Citizens' Rights and Constitutional Affairs 

In  some  cases  the  approach  is  only  approximate,  as  in  Research,  where  the  structure  of 
financing  has  altered  in  the  transfer  to  the  Common  Strategic  Framework  for  Innovation 
and Technology. 

The objectives as stated are general by nature. Competitiveness of agriculture and forestry 
(total  €  89.9  bn)  may  include  some  items  that  may  be  gender  sensitive;  the  majority 
though is unlikely to be so. At this level of generality and at this point of the discussions, it 
is  not  possible  to  estimate  the  part  of  this  grand  total  that  can  be  gender  sensitive.  The 
same comments apply for research and innovation139; some part of it may be more gender 
sensitive than other.  The gender impact will be decided, once discussions proceed towards 
a lower level of generality and as the programmes are implemented. 

Similar  comments  apply  for  the  ESF140,  with  the  added  issue  that  only  regional  data  are 
published,  so  an  attribution  of  funds  to  objectives  was  not  feasible.  In  order  to  take  the 
analysis  forward,  on  the  assumption  that  the  proportions  devoted  to  different  objectives 
remain unchanged from the previous planning period, an estimate of the amounts devoted 
to ‘skills education and life-long learning’ was imputed to the table (EUR 25 bn).  Education 
and  training,  however,  in  addition  to  ‘well  being’  may  also  be  ascribed  to  the  economic 
independence  objective.  In  order  to  approach  a  figure,  which  may  be  thought  to 
approximate more closely to the funds which would impact well-being, we may isolate the 
amounts  corresponding  to  ‘promoting  education  and  training  throughout  the  working  life’. 
We  would  thus  exclude  ‘reforming  education  and  training  systems’  as  peripheral  to  the 
well-being  area141.  We  can  thus  quote  an  upper  figure  for  the  ESF  and  a  lower  figure 
corresponding to life long learning. 

The  overall  impression  is  of  a  considerable  redistribution  of  resources  in  favour  of  the 
general  areas  covered  under  this  theme.  The  only  area  with  a  diminution  of  outlays  is 
agriculture (-15%), while in the case of the LIFE+142 programme there appears a trebling of 
disbursements.   Caution  is  required,  however,  as  the  inability  at  this  stage  to  distinguish 
gender-sensitive areas beyond broad programme aggregates, does not allow us to conclude 
with confidence that more funds are devoted to gender-sensitive programmes. 

5.	  ASSESSMENT  OF  DIRECT  AND  INDIRECT  IMPACT  OF 

POLICY INTERVENTION 

Overall assessment 

The  possibility  of  direct  impact  concerns  primarily  the  Health  field,  where  the  greatest 
extent of gender gains are concentrated, but where intervention lies in areas with European 
Union's  value  added,  such  as  cross-border  health  issues.  In  the  other  fields  gender 
sensitivity  is  assessed  to  be  medium  or  lower.  In  order  for  gains  to  be  realised, 
complementary actions are necessary, most often in decision making structures. 

139  C.E.C.  (2011),  COM  809  final,  30.11.2011.  Proposal  for  a  Regulation  of  the  European  Parliament  and  of  the 
Council establishing Horizon 2020 – The Framework Programme for Research and Innovation (2014-2020).
http://ec.europa.eu/research/horizon2020/pdf/proposals/com(2011)_809_final.pdf. 

140  C.E.C.  (2011)  COM  607  final,  6.10.2011.  Proposal  for  a  Regulation  of  the  European  Parliament  and  of  the 

Council on the European Social Fund and repealing Regulation (EC) No 1081/2006.
http://ec.europa.eu/esf/main.jsp?catId=62&langId=en. 

141  We may think of ascrbinb ‘edcuation as consumption’ to well being and ‘education as investment’ to economic 

independence.  

142  C.E.C.  (2011),  COM  874  final,  12.12.2011.  Proposal  for  a  Regulation  of  the  European  Parliament  and  of  the 

Council on the establishing of a Programme for the Environment and Climate Action (LIFE).  
http://ec.europa.eu/environment/life/about/documents/COMM_PDF_COM_2011_0874_F_EN.pdf?reference=IP/ 
11/1526&format=PDF&aged=0&language=EN&guiLanguage=en. 

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The multi-annual financial framework 2014-2020 from a gender equality perspective 

Assessment of the potential indirect impacts 

Many fields, given subsidiarity, are areas where the EU budget can operate only indirectly. 

Nevertheless,  in  the  past  the  EU  has  been  responsible  for  considerable  gains  in  Member 
States,  by  forcing  the  pace  of  gender  change,  playing  a  facilitating  role  or  through  the 
spread of best practices.  

Gender Criteria 

Relevance:  No  explicit  mention  of  gender  is  made  in  the  budget  documents;  the  gender 
sensitivity  results  from  secondary  (textual)  analysis  and  could,  therefore,  run  the  risk  of 
being ‘lost’ along the way.   

Effectiveness:  Much  depends  on  decision  structures  being  able  to  correct  past  gender 
imbalances, most commonly in areas where current ‘objective’ circumstances could support 
greater gender neutrality. However, current structures may well themselves reflect gender 
stereotypes. Without awareness of this issue, there is a danger that potential gender gains 
may not be realized.  

Adequacy: In many cases parallel complementary actions may be necessary (Especially in 
fields other than health). Monitoring and gender awareness would be necessary, as would 
of interim initiatives halfway through the planning period. 

Efficiency:  Given  that  most  of  the  gender  effects  are  not  explicitly  stated  as  objectives, 
there  is  a  possibility  that  introducing  gender  planning  from  the  initial  stages  of 
programming would achieve both gender-based and other targets with lower cost. 

Utility:  The  areas  of  Health,  Well-being  and  the  Environment,  while  important  in 
themselves,  feed  into  a  global  gender  picture  that  is  determined  by  other  dimensions. 
Hence  on  their  own,  they  are  unlikely  to  be  seen  as  fundamentally  altering  the  overall 
gender  picture;  however,  and  if  they  acquire  some  visibility,  they  can  constitute  an 
important ingredient in the overall balance. 

Sustainability:  Most  gender  impacts  envisaged  are  of  the  kind  that  would  not  require 
continued  expenditure  outlays  in  order  to  reach  a  given  desired  level  of  gender  balance. 
The  reason  for  that,  is  that  most  of  the  change  refers  to  gender  practice  lagging  behind 
‘objective conditions‘, so that gender balance amounts to catching up with reality. No cases 
of subsidizing gender balance were located. 

6.  CONCLUSIONS 

Health,  Well-being  and  Environment  are  areas  receiving  considerably  greater  emphasis  in 
terms of the European Union budget. Disbursements in some cases have more than trebled 
an  increase  which  carries  with  it  the  prospect  of  many  thousands  of  new  jobs  in  related 
areas.  However, the objectives as they stand are silent as to a gender impact; the groups 
identified  in  the  context  analysis  as  potential  beneficiaries  (aged  women,  widows,  etc) 
hardly  figure  in  the  programme  statements.  Moreover,  the  starting  point  in  some  of  the 
sectors with the largest increases (research, environment) is very heavily weighted against 
women.  Whilst  it  is  true  that  the  expansion  of  funding  could  carry  the  promise  of 
corrections  to  pre-existing  imbalances,  this  would  have  to  be  implemented  by  decision 
structures heavily influencing and reflecting the previous gender situation. So, there is the 

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danger  that  potential  gender  balance  gains  will  fail  to  be  reaped,  unless  (a)  corrective 
action  is  taken  early  on  and  (b)  careful  monitoring  of  progress  via  gender-sensitive 
indicators is built in to the structure of the programmes. 

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7.  REFERENCES 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

Ainsworth,  S.  (2003),  The  Feminine  advantage:  a  discursive  analysis  of  the 
invisibility  of  older  women  workers,  Gender,  Work  and  Organisation,  vol  9,  5,  pp 
579-601. 

C.E.C.  (2007),  COM  630  final  23.10.2007.  White  Paper.  Together  for  Health:  A 
Strategic Approach for the EU 2008-2013. 

C.E.C.  (2010),  COM  2020  final,  3.3.2010.  “Europe  2020:  A  strategy  for  smart, 
sustainable  and  inclusive  growth”,  Communication  from  the  Commission,  European 
Commission. 

C.E.C.  (2010),  COM  491  final,  21.9.2010.  “Strategy  for  Equality  between  women 
and men 2010-2015”, Communication from the Commission, European Commission.  

C.E.C. (2011), COM 571 final, 20.9.2011. Roadmap to a Resource Efficient Europe. 

C.E.C. (2011). COM 1068 final, 20.9.2011. On the Progress of the Thematic Strategy 
on the Sustainable Use of Natural Resources. 

C.E.C. (2011). A resource-efficient Europe- Flagship initiative under the Europe 2020 
Strategy. European Commission, 26.1.2011.  

C.E.C.  (2011),  COM  500  final,  29.6.2011.  ‘A  budget  for  Europe  2020:  Part  II’. 
Communication  from  the  Commission  to  the  European  Parliament,  the  Council,  the 
European Economic and Social Committee and the Committee of the Regions. 

C.E.C. (2011), COM 709 final, 9.11.2011. Proposal for a Regulation of the European 
Parliament  and  of  the  Council  on  establishing  a  Health  for  Growth  Programme,  the 
third  multi-annual  programme  of  EU  action  in  the  field  of  health  for  the  health  for 
the period 2014-2020. 

C.E.C. (2011), COM 607 final, 6.10.2011. Proposal for a Regulation of the European 
Parliament and of the Council on the European Social Fund and repealing Regulation 
(EC) No 1081/2006. 

C.E.C.  (2011),  COM  874  final,  12.12.2011.  Proposal  for  a  Regulation  of  the 
European Parliament and of the Council on the establishing of a Programme for the 
Environment and Climate Action (LIFE).  

C.E.C.  (2011),  COM  809  final,  30.11.2011.  Proposal  for  a  Regulation  of  the 
European Parliament and of the Council establishing Horizon 2020 – The Framework 
Programme for Research and Innovation (2014-2020).  

EGGSI (2010), Access to Healthcare and long-term care: Equal for women and men? 
Final  Synthesis  Report.  Expert  Group  on  Gender  Equality  and  Social  Inclusion, 
Health  and  Long-term  Care  Issues.  Directorate-General  for  Employment,  Social 
Affairs and Equal Opportunities, European Commission.  

Equity  Channel  Policy  Precis  (2011),  Gender  and  Health  Equity:  Connecting  People 
for Fair Health. EuroHealthNet, February 2011. 

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Policy Department C: Citizens' Rights and Constitutional Affairs 

	 

	 

	 

	 

	 

	 

	 

	 

	 

	 

European Commission (2006), The European Climate Change Programme: EU Action 
against Climate Change. European Communities. 

European  Commission  (2007),  Combating  climate  change:  The  EU  leads  the  way. 
Europe on the movies series. European Communities. 

European Commission (2010), Joint Report on Health Systems. European Economy. 
Occasional Papers 74. December 2010.  

European Commission (2010). Joint Report on Social Protection and Social Inclusion 
2010. Annex 6500/10. 

European  Commission  (2011)  Roadmap:  European  Consumers  Agenda.  October 
2011. 

European  Commission  (2011).  Roadmap:  7th  Environment  Action  Programme. 
October 2011. 

Economic  Policy  Committee,  2009,  2009  Ageing  Report:  Economic  and  budgetary 
projections for the EU-27 Member States (2008-2060), European Economy, 2. 

Economic  Policy  Committee,  (2011).  The  2012  Ageing  Report:  Underlying 
Assumptions and Projections Methodologies. European Economy, 4.  

FSD Bulletin (2007) Economists and Happiness. Issue 20 (1/2007).  

Layard, R. (2011) ‘Happiness: Lessons from a new science’. Penguin Press. 

	  Mencarini, L. and Sironi, M. (2010) Happiness, Housework and Gender Inequality in 
Europe,  European  Sociological  Review,  first  published  online  4  November  2010. 
doi: 10.1093/esr/jcq059 

	  OECD, (2011). Help Wanted? Providing and Paying for Long-Term Care, Paris. 

	  OECD  2011  Improving  financial  education  efficiency,OECD  financial  education 

project. 

	 

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Scheib,  K.D  (2004),  Challenging  Invisibility:  Practices  of  care  with  older  women, 
Chalice press, Danvers, MA 

Stevenson,  B.  and  Wolfers,  J.  (2009).  The  Paradox  of  Declining  Female  Happiness, 
American Economic Journal Economic Policy, 1:2 (190-225) 

Thümmler, K., Britton, A., and Kirch, W. (2009) Data and Information on Women’s 
Health  in  the  European  Union.  Directorate-General  for  Health  and  Consumers, 
European Communities.  

	  WHO  (2008).  Strategy  for  integrating  gender  analysis  and  actions  into  the  work  of 
WH0.  Department  of  Gender,  Women  and  Health.  World  Health  Organization, 
Geneva. 

	  WHO  (2009),  Addressing  Gender  Inequalities  in  Health  and  Environment.  World 
Health Organization, Geneva. Report of the VI Forum on gender and health, Madrid, 
11-12 November 2009.  

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8.  ANNEXES 

ANNEX 1: MFF INSTRUMENTS OBJECTIVES AND GENDER RELEVANCE 

Gender 
Objective 

sensitive 

Problem/observation 

Context Analysis  

Strategy 
2010-2015 

for  equality 

EUROPE 2020 

1. 
to  protect  and  improve 
the  health  of  European 
citizens (part II, p. 49) 

ratio  women/men  (in  nursing 
Sweden: 
2000): 
11,86 
/France: 
6,34 
/Germany: 
8,09  /Spain:  4,19  /Greece: 
9,87 
LABORSTA) 
more  details  in  LABORSTA 
spreadsheet

(source: 

 women,  as  the  main  providers 
of  care  informally  (family,  child 
care)  and  formally  (health  sector) 
are  benefited  from  any  further 
improvement 

report  on 
the  Member 
States'  performance  with 
regard 
childcare 
facilities 
(key  actions 
p.6) 

to 

physical  health/  access  to  health 
care (e-health) 

facilitating 
migrant 
women's access to health 
care (p. 5) 

EU:  better  access  to  health 
care  systems  ('Euro  Platform 
against  Poverty',2020,   also 
Member  States)  /Member 
the 
facilitate 
States: 
reconciliation  work/ 
family 
('Agenda new skills, 2020) 

H 
E 
A 
L 
T 
H 

2008-2009  women  in  tertiary 
France/ 
37,8% 
education 
38,7%  Germany/ 
38,9% 
Spain/  44,2%  Sweden  (more 
details 
in 
tertiaryeducation_gender 
spreadsheet 

2. 
research and innovation 
in  health  area  (part  II, 
p. 50, 2.1.1) 

women  scientists  participation  in 
R&D 

monitor  the  25%  target 
for  women  in  top  level 
decision-making  positions 
in research (key actions p. 
7) 

W 
E 
L 
L 
-
B 

3.to ensure that food is 
safe  and  wholesome 
(part II, p.49) 
4.  investment  in  skills, 
education  and  life-long 
learning (part II, p. 32) 

easier  access  to  health  services 
(e.g.  e-health)  for  disadvantaged 
groups (aged, migrants, disabled) 

physical  health/  consumption  of 
safe food- women as consumers 

gender  pay  gap  see  gender 
pay gap spreadsheet 

free time, leisure for women 

institute a European Equal 
Pay Day (p. 7) 

117
 

reference 

No 
participation 
Union' flagship (2020 p. 12) 

for  women 
'Innovation 

in 

European  Research  Area  will 
focus  on  challenges  such 
as,health 
ageing, 
and 
('Innovation Union' flagship 2) 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
  
 
 
  
 
 
  
  
 
 
 
 
  
Problem/observation 

Context Analysis  

Strategy 
2010-2015 

for  equality 

EUROPE 2020 

Policy Department C: Citizens' Rights and Constitutional Affairs 

Gender 
Objective 

sensitive 

5. 
to  empower  European 
consumers 
II, 
p.49) 

(part 

and 
6.research 
innovation 
in 
environment  area  (part 
II, p. 38) 

E 
I 
N 
G 

E 
N 
V 
I 
R 
O 
N 
M 
E 
N 
T 

internet  user  (age  55-74): 
indicative  example:  germany 
56%male 
37% 
(source  UNECE)  full  data  in  
internetuser_gender_age 
spreadsheet 

female, 

women's 
role  as  consumers/ 
improving  the  information  flow  to 
consumers, aged or cross-border 
workers women are benefited 

female  in  advanced  research 
engineering 
programmes, 
indicative 
2008: Austria: 24,7%, France 
29,1% (source UNECE) 

example 

2007­

low 
and 
selfemployment 
employment  in  agriculture  for 
women 

women  scientists  participation  in 
R&D 

entrepreneurship/ 

eco-innovation,  opportunities 
female 
employment 
reconciliation 
professional life 

for 
self-
rural  areas-
and 

family 

in 

of 

society/ 

EU  level:  to  allow  elderly 
people  to  live  independently 
in 
flagship 
can 
‘Innovation 
improve  information  flow  to 
consumers  (In.  Un.,  2020, 
p.12) 

Union’ 

monitor  the  25%  target 
for  women  in  top  level 
decision-making  positions 
in research (key actions p. 
7) 

promote 
female 
entrepreneurship and self-
employment  (key  actions, 
p. 5) 

rural  development  as  goal  in 
‘Innovation Union’ flagship (p. 
12) 

rural  development  as  goal  in 
‘Resource  efficient  Europe’ 
flagship (p. 15) 

low 

of  women 

selfemployment 

7.improve 
competitiveness  of  agr. 
and 
and 
forestry 
the  employment  in  agriculture  for  areas  where  the 
promote 
difficult for women 
diversification 
activity  and  quality  of 
life in rural areas  
8.  creation  of  platforms 
the  exchange  of 
for 
best 
improved 
with 
policy priorities 

compliance  countries 

environmental 

Ireland,...): 

governance 

practices 

and  quality  of  life  for  women  in  rural 
is  more 

life 

low  women  presence  as  wide  dissemination  of  project 

for  heads  of  univeristies  (some  results-women  participation  in  gender balance in decision 
good  making (key actions p. 7) 

(Cyprus,  decision-making-

reduce 

9. 
energy 
consumption  by  20% 
through 
increased 
energy  efficiency  (part 
II, p. 12) 

low  women  participation  in 
engineering  and  especially  in 
transport sector (more details 
in LABORSTA spreadsheet) 

public 

job  creation  in  technology  field 
energy 
(e.g. 
efficiency 
households) 
ATTENTION  male  dominated  field 
BUT opportunities for women entry 

trasport, 

in 

encourage  women 
enter 
professions, 
sector' (p. 7) 

to 
non-traditional 
i.e.  green 

Resource  efficient  Europe' 
flagship,  p.  15  please  clarify 
in few words 

118
 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
  
 
 
  
 
 
 
 
 
 
 
 
 
  
 
 
 
 
  
 
 
 
 
 
  
 
 
 
  
 
 
 
 
 
 
 
 
 
 
Gender 
Objective 

sensitive 

Problem/observation 

Context Analysis  

Strategy 
2010-2015 

for  equality 

EUROPE 2020 

The multi-annual financial framework 2014-2020 from a gender equality perspective 

UK  2003:  11%  of  women 
worker use bus, 67% use car/ 
5%  of  men  worker  use  bus, 
74% use car 
ratio  women/men  (in  power 
production): 
0 
/Germany:  0,02  /France:  0 
/Greece:  0,07 
/Spain:  0 
(source:  LABORSTA)  more 
details 
LABORSTA 
spreadsheet 

Sweden: 

in 

10.  cut  ghg  by  20% 
and  20%  of  energy 
needs  from  RES  (part 
II, p. 12) 

public  transport  benefits  women 
(proposal  p.  19)/  increased  energy 
efficient in households 

Resource  efficient  Europe'
flagship, p. 15 

20/20/20 can create over 1 million 
new jobs- male dominated 

encourage  women 
enter 
professions, 
sector' (p. 7) 

to 
non-traditional 
i.e.  green 

Resource  efficient  Europe' 
flagship (p. 15) 

119
 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Policy Department C: Citizens' Rights and Constitutional Affairs 

ANNEX 2: STATISTICAL ANNEX 

Table A.1: Employees in different sectors, selected countries 

Nursing  and 
midwifery 
associate 
professionals 

ratio 
Men  Women  women/men 

Physical 
and 
engineering 
science 
technicians 

ratio 
Men  Women  women/men 

Sweden 

3355 

39803 

11,86

  Sweden 

138894 

27405 

Germany 

105534  668900 

44796  362182 

6,34

8,09

Germany 

861775  238442 

France 

663638 

85354 

29365  123099 

4,19

  Spain 

105551 

28089 

3203 

31613 

9,87

  Greece 

33862 

8807 

Power 
production 
and  related 
plant 
operators 

ratio 
Men  Women  women/men 

ratio 
Men  Women  women/men 

17402 

9221 

0,53

  Sweden 

9644 

0 

Germany 

64740 

1594 

67835 

27557 

47872 

44633 

0,41

0,93

France 

40709 

25627 

0,63

  Spain 

9971 

4310 

0,43

  Greece 

19782 

9480 

1559 

0 

0 

107 

France 

Spain 

Greece 

College, 
university 
and 
education 
teaching 
professionals 

higher 

Sweden 

Germany 

France 

Spain 

Greece 

0,20 

0,28 

0,13 

0,27 

0,26 

0,00 

0,02 

0,00 

0,00 

0,07 

Source: http://laborsta.ilo.org/default.html 

120
 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
The multi-annual financial framework 2014-2020 from a gender equality perspective 

Table A.2.: gender gap in internet use 

(% of male using internet)-(% of female using internet) 

age 55-74 

2005 

2010 

Austria 

Belgium 

Bulgaria 

Cyprus 

Czech Republic 

Denmark 

Estonia 

Finland 

France 

Germany 

Greece 

Hungary 

Ireland 

Italy 

Latvia 

Lithuania 

Luxembourg 

Malta 

Netherlands 

Poland 

Romania 

Slovakia 

Slovenia 

Spain 

Sweden 

United Kingdom 

14 

13 

.. 

5 

5 

8 

.. 

11 

.. 

17 

3 

4 

5 

.. 

4 

1 

40 

9 

23 

4 

.. 

6 

.. 

9 

16 

16 

Source: UNECE Statistical Division Database  

19 

17 

1 

11 

10 

8 

-3 

6 

13 

19 

8 

8 

2 

15 

2 

1 

23 

.. 

14 

8 

3 

10 

8 

12 

6 

8 

121
 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
     
 
Policy Department C: Citizens' Rights and Constitutional Affairs 

Table A.3.: gender gap in teachers in tertiary education, indicative countries 

(male teachers in tertiary education)-(female teachers in 
tertiary education) 
2003-2004 

2008-2009 

% of total 
France 
Germany 
Greece 
Spain 
Sweden 

21,40 
32,60 
27,00 
23,20 
16,60 

24,40 
22,60 
.. 
22,20 
11,60 

Source: UNECE Statistical Division Database 

122
 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
The multi-annual financial framework 2014-2020 from a gender equality perspective 

Table A.4.: gender gap in research engineer students 

(male engineers in advanced research programs)-(female engineers in 
advanced research programs) 

% of total 

2002-2003 

2007-2008 

50,6 

46,4 

31,6 

44,2 

53,8 

44,4 

20 

43 

41,8 

37,8 

53,2 

.. 

28,8 

27,4 

78,8 

39,8 

24,6 

38,4 

43,2 

41,6 

34,8 

38,4 

54,4 

Austria 

Belgium 

Bulgaria 

Cyprus 

Czech Republic 

Denmark 

Estonia 

Finland 

France 

Hungary 

Ireland 

Italy 

Latvia 

Lithuania 

Malta 

Poland 

Portugal 

Romania 

Slovakia 

Slovenia 

Spain 

Sweden 

United Kingdom 

57,8 

61,2 

25,6 

.. 

58,6 

51,4 

36,4 

48,8 

.. 

3,4 

50,4 

34 

35,6 

29,8 

.. 

45 

39,8 

38 

51,6 

.. 

45,2 

42,8 

58,8 

Source: UNECE Statistical Division Database 

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Policy Department C: Citizens' Rights and Constitutional Affairs 

Table A.5.: Gender gap in agriculture sector 

(male in agricultural sector)-(female in agricultural sector) 

% of total 

2002 

2008 

8,5 

49 

.. 

43 

38,8 

61,4 

38,8 

42,7 

41,4 

35 

18,6 

51,2 

76,6 

39,8 

30,3 

.. 

40,8 

.. 

3,2 

4,8 

52 

.. 

48 

.. 

47,4 

Austria 

Belgium 

Bulgaria 

Cyprus 

Czech Republic 

Denmark 

Estonia 

Finland 

France 

Germany 

Greece 

Hungary 

Ireland 

Italy 

Latvia 

Lithuania 

Netherlands 

Poland 

Portugal 

Romania 

Slovakia 

Slovenia 

Spain 

Sweden 

United Kingdom 

4,2 

48,2 

27,6 

29 

38,2 

52,3 

35,2 

34,6 

38,6 

29,6 

16,6 

45 

79,6 

39,8 

25,4 

21 

40 

11,6 

0 

1,6 

40,2 

8,2 

49,2 

53,2 

54 

Source: UNECE Statistical Division Database 

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The multi-annual financial framework 2014-2020 from a gender equality perspective 

Table A.6: Gender gap in heads of universities 
Heads of universities by Measurement, Sex, Country and Year 

2005 

2008 

Male as % of total for both sexes 

Austria 

Bulgaria 

Cyprus 

Denmark 

Estonia 

Finland 

France 

Hungary 

Ireland 

Latvia 

Lithuania 

Luxembourg 

100.0 

91.8 

.. 

.. 

81.8 

.. 

88.7 

90.1 

100.0 

.. 

100.0 

100.0 

Netherlands 

100.0 

Portugal 

Slovenia 

Sweden 

87.5 

.. 

72.3 

Source: UNECE Statistical Division Database 

95.0 

88.0 

100.0 

100.0 

80.0 

64.3 

.. 

94.3 

100.0 

79.4 

100.0 

100.0 

92.9 

93.8 

88.2 

66.0 

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Table A.7.: gender pay gap 

Gender Pay Gap by Reference Period, Country and Year 

2000 

2007 

Gender pay gap as difference in monthly earnings 

Belgium 

Bulgaria 

Cyprus 

Czech Republic 

Finland 

France 

Ireland 

Latvia 

Lithuania 

Luxembourg 

Netherlands 

Romania 

Slovakia 

Slovenia 

Spain 

Sweden 

United Kingdom 

26.5 

24.2 

.. 

.. 

21.2 

18.6 

20.9 

21.4 

18.3 

19.1 

42.9 

.. 

25.0 

12.2 

18.5 

17.6 

26.9 

.. 

16.6 

22.7 

24.8 

19.8 

.. 

.. 

16.1 

20.7 

17.7 

.. 

10.6 

25.8 

.. 

.. 

16.1 

23.6 

Source: UNECE Statistical Division Database 

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The multi-annual financial framework 2014-2020 from a gender equality perspective 

Table A.8.: gender gap in time spent in domestic activities 

Time Spent in Domestic Activities by Activity, Sex, Country and Year 

2000 

2001 

2002 

2003 

2004 

2005 

2006 

Food Preparation, Dish Washing 

Female 

Austria 

Denmark 

Estonia 

France 

Germany 

Italy 

Latvia 

Lithuania 

.. 

.. 

1.72 

1.37 

.. 

.. 

.. 

.. 

Netherlands 

1.24 

Poland 

Austria 

Denmark 

Estonia 

France 

Germany 

Italy 

Latvia 

Lithuania 

.. 

.. 

.. 

0.46 

0.38 

.. 

.. 

.. 

.. 

Netherlands 

0.58 

Poland 

.. 

.. 

1.35 

.. 

.. 

1.08 

.. 

.. 

.. 

.. 

.. 

.. 

1.03 

.. 

.. 

0.38 

.. 

.. 

.. 

.. 

.. 

.. 

.. 

.. 

.. 

.. 

1.90 

.. 

.. 

.. 

.. 
Male 

.. 

.. 

.. 

.. 

.. 

0.28 

.. 

.. 

.. 

.. 

.. 

.. 

.. 

.. 

.. 

.. 

1.47 

1.68 

.. 

.. 

.. 

.. 

.. 

.. 

.. 

.. 

0.32 

0.40 

.. 

.. 

Source: UNECE Statistical Division Database 

.. 

.. 

.. 

.. 

.. 

.. 

.. 

.. 

.. 

1.98 

.. 

.. 

.. 

.. 

.. 

.. 

.. 

.. 

.. 

.. 

.. 

.. 

.. 

.. 

.. 

.. 

.. 

.. 

.. 

.. 

.. 

.. 

.. 

.. 

.. 

1.19 

1.17 

.. 

.. 

.. 

.. 

.. 

.. 

.. 

.. 

.. 

.. 

.. 

.. 

.. 

.. 

.. 

.. 

.. 

.. 

0.52 

0.55 

0.52 

.. 

.. 

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BRIEFING NOTE ON FUNDAMENTAL RIGHTS 


KEY FINDINGS 


The analysis of the documentation for the MFF 2014-2020 and the Programme in the area 
of  fundamental  rights  points  to  challenges  and  policy  implications  that  can  serve  as 
guidelines for a better gender integrated approach to the EU budget process In particular, 
Regulations  should  provide  clearly  dedicated  budget  lines  for  women’s  rights  and  gender 
equality with targets that can be verified. 

Following the analysis of the present Regulations relevant for the realisation of fundamental 
rights for women, these requirements can only be regarded as fulfilled in those case where 
specific  gender  objectives  exist  (i.e.  Daphne  III,  the  “Gender  Equality”  and  anti­
discrimination  sections  in  PROGRESS,  FRA  annual  report),  while  the  gender  dimension 
tends to disappear in those programmes with only general objectives and is limited at best 
to the generic concept of gender equality with no specific actions or conditions laid down  to 
provide concrete assistance in realizing the objective. 

A failure to adequately address gender equality issues could lead to  an attenuation of the 
attention  paid  to  women’s  rights  and  gender  equality.  The  main  risks  that  apply  to  all 
programmes when gender equality is not directly specified are:  

 

 

 

gender equality will be blended with other forms of inequality and dissimulate multiple 
discrimination,  making  the  policy  intervention  less  efficient  in  addressing  and 
promoting equality between women and men;  

due  to  the  lack  of  proposals  for  concrete  positive  actions,  the  promotion  of  equality 
between  women  and  men  is  dependent  only  on  the  application  of  gender 
mainstreaming, which by itself is not sufficient to ensure that gender inequalities are 
made visible or to address specific gender gaps; 

the budget provisions for ensuring that gender equality is promoted as a fundamental 
human  right  are  proposed  to  be  more  limited  under  the  next  MFF  (as  shown  by  the 
last  row  of  table  14)  and  could  furthermore  be  subject  to  reduction  if  forced  to 
compete with more pressing immediate policy concerns.  

These risks may be mitigated or avoided by: 

 

 

 

Inclusion  of  direct  and  feasible  targets  for  gender  equality  allocated  with  dedicated, 
predictable and visible budgets; 

Adoption  of  the  dual  approach  of  gender  mainstreaming  complemented  by  specific 
actions  to  overcome  inequality  between  women  and  men  (including  measures  to 
improve  equal  participation  of  women  and  men  in  projects  and  the  collection  of 
gender disaggregated statistics); 

Monitoring  and  evaluation  of  the  effects  of  budgetary  implementation  on  gender 
equality, including collection of gender disaggregated statistics. 

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Policy Department C: Citizens' Rights and Constitutional Affairs 

In  view  of  the  potential  negative  effects  of  the  current  financial  and  economic 
crisis it is also suggested that: 

	 

	 

	 

	 

instead  of  cuts  to  the  budgets,  at  a  minimum  the  same  level  of  funding  for  gender 
equality  as  a  fundamental  right  should  be  maintained  for  the  period  2014-2020. 
Improvements  in  the  allocation  and  use  of resources  should  be  sought so  that more 
can be achieved with the same funding levels. 

the  integration  in  the  2014-2000  period  under  a  single  programme  (Rights  and 
Citizens programme) of  programmes that in the 2007-13 period had specific budget 
lines  related  to  gender  equality  (particularly  Daphne  III  and  the  gender  equality 
section  of  PROGRESS)  into  a  general  regulation  on  fundamental  rights  and  citizens 
should not result in a diminution of spending on gender equality. This means that it is 
vital to monitor and to make visible any changes in funds directed to gender equality, 
particularly in the current and next phases of the crisis. 

the  impact  of  economic  and  social  developments  on  gender  equality  should  be 
monitored  and  assessed  in  order  to  safeguard  the  freedom  for  everyone  to  seek 
employment  and  choose  an  occupation,  provided  by  the  Charter  of  Fundamental 
Rights (2000: Art 15), but there are real dangers that such freedoms may be put in 
question for women if there are, for example, disproportionate cuts in the support for 
childcare  and  working  mothers.  These  evaluations  could  be  used  as  input  into  the 
decision-making process and direct political priorities and budget allocations to where 
they are needed.  

the  EU’s  support  of  the  networks,  civil  organizations  and  stakeholders  working  to 
promote  gender  equality  in  order  to  increase  awareness  continues  to  be  even  more 
vital  if  women  are  to  be  empowered,  to  participate  in  the  smart,  sustainable  and 
inclusive growth announced by the 2020 EU strategy. 

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1.  CONTEXT ANALYSIS 

1.1. 

Introduction:  The  importance  of  a  dual  gender  equality 
approach 

There  is  a  broad  consensus  that  the  Europe  2020  Strategy  for  smart,  sustainable  and 
inclusive  growth  should  be  the  general  political  framework  for  the  next  Multiannual 
Financial  Framework  (MFF).  Equality  between  women  and  men  as  a  fundamental  right 
constitutes  one  of  the  essential  values  and  principles  of  the  Treaty  of  Lisbon  and 
consequently of the EU 2020 Strategy. Commitments to the safeguarding and promotion of 
fundamental  rights  should  therefore  be  reflected  in  EU  spending  under  all  the  budget 
headings of the 2014-2020 MFF and in all steps of the budgetary process. 

Besides, equality between women and men is a key aspect of inclusive growth and funding 
in  this  area  is  vital  to  attaining  the  headlines  target  set by  the  EU 2020  Strategy  and  the 
priorities  in  the  MFF.  The  EU’s  financial  programmes  should  take  into  account  the  dual 
approach  of  supplying  positive  actions  targeted  at  women  and  implementing  gender 
mainstreaming. Promoting gender equality must be a horizontal priority of the MFF. 

Against this backdrop, it is regrettable that the Regulation for the MFF143 does not explicitly 
include a gender mainstreaming requirement,  nor does it include any commitment for the 
adoption of a gender-responsive budgeting procedure, which means also that there are no 
provisions  for  evaluation  and  monitoring  of  the  implementation  processes  according  to 
gender  impacts.  Furthermore,  there  is  a  lack  of  clear  and  visible  budget  lines  aimed  at 
promoting gender equality, making it difficult to assess the gender impact of the MFF. 

Given this lack of information on budget lines, this briefing could be considered a means of 
starting the first stage in gender budgeting, as specified by Rhonda Sharp144, that is that of 
‘awareness raising about the differential impact of fiscal measures and budgets on women 
and  men’.  The  second  and  third  stages  of  raising  the  accountability  of  budgets  and 
changing and refining budgets according to the goal of gender equality are dependent upon 
more progress following the awareness raising phase. 

The need for budget lines to take gender equality goals into account and where possible to 
promote gender equality and women’s rights is fundamental to ensuring that the EU budget 
reflects the commitments on gender equality. The MFF should provide a gender analysis of 
its  budget  priorities  together  with  a  detailed  breakdown  of  any  budgetary  provision  for 
gender specific policies in all areas of EU competencies, thereby ensuring compliance with 
the horizontal integration of gender equality as required by the Treaty, and facilitating the 
transparency of funding allocated to gender equality in order to allow for the identification 
of  such  spending  in  all  budgetary steps,  from  planning  to  monitoring  and  evaluation.  This 
should  be  done  as  a  standard  assessment  for  each  period  of  budgetary  planning  with  a 
particular  focus  on  changes  from  one  planning  cycle  to  another  and  the  implications  of 
these changes for gender equality. 

143 

http://ec.europa.eu/budget/library/biblio/documents/fin_fwk1420/proposal_council_regulation_COM­

398_en.pdf. 

144 	 Rhonda Sharp (2003) Budgeting for Equity: Gender Responsive Budgeting within a Framework of Performance 

Oriented Budgeting, (2003) UNIFEM: New York. 

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Policy Department C: Citizens' Rights and Constitutional Affairs 

1.2.	 

A European approach to the implementation of Fundamental 
Rights 

The Stockholm programme adopted by the European Council in December 2009145 sets the 
priorities for developing the European area of freedom, security and justice that is, together 
with the Europe 2020 strategy, a key element of the EU's response to the global long-term 
challenges and a contribution to strengthening and developing the European model of social 
market economy in the 21st century. 

A European area of freedom, security and justice must be an area where all people, women 
and  men  and  both  EU  citizens  and  third  country  nationals,  benefit  from  the  effective 
respect  of  the  fundamental  rights  enshrined  in  the  Charter  of  Fundamental  Rights  of  the 
European Union. 

The Charter of Fundamental Rights of the European Union was solemnly proclaimed in 2000 
and has become legally binding with the entry into force of the Lisbon Treaty in 2009. The 
entry into force of the Lisbon Treaty enables the Union to demonstrate greater ambition in 
responding  to  the  day-to-day  concerns  and  aspirations  of  all  people  in  Europe.  It 
establishes  the  new  EU  objectives  of  combating  social  exclusion  and  discrimination  while 
reaffirming the objective of promoting equality between women and men. 

The Charter of Fundamental Rights constitutes a catalogue of civil, political, economic and 
social  rights  addressed  to  women  and  men  in  Europe.  More  explicitly  from  a  gender 
perspective,  the  Charter  and  the  Stockholm  Programme  directly  address  the  principles  of 
antidiscrimination,  gender  equality,  prohibition  of  human  trafficking  and  the  fight  against 
gender-based violence. 

1.3.	  Mainstreaming and the principle of Gender Equality  

Gender  equality  is  a  policy  field  in  which  the  EU  has  been  one  of  the  pioneers.  In  this 
respect, the most direct gender impact of the inclusion of the Charter into the Lisbon Treaty 
is the legal establishment of the principle of equality between women and men. The Charter 
prohibits  any  discrimination  on  grounds  of  gender  and  enshrines  the  right  to  equal 
treatment between men and women in its Article 23. 

Furthermore,  according  to  Article  8  of  TFEU,  the  European  Union  shall  implement  gender 
mainstreaming  as  an  integral  part  of  policy  making  in  order  to  promote  equality  between 
women  and  men  in  all  its  policies.  This  is  in  line  with  the  commitments  made  in  the  EU 
Strategy  for  Equality  between  Women  and  Men  2010-2015  and  in  the  European  Pact  for 
Gender Equality 2011-2020. The adoption of the Strategy commits the EU to the promotion 
of gender equality and the implementation of gender mainstreaming as an integral part of 
policy  making.  The  Pact  on  Gender  Equality  builds  on  already  existing  objectives;  in 
particular the follow-up of the Beijing Platform for Action, and it serves especially to commit 
EU Member States to enhancing women’s participation in the labour market. 

Besides, in 1997 the Treaty of Amsterdam introduced a broad anti-discrimination provision 
in  its  Article  13146,  enabling  European  legislation  to  combat  discrimination  based  on  sex, 
racial  or  ethnic  origin,  religion  or  belief,  disability,  age  or  sexual  orientation.  Article  21  of 
the Charter of Fundamental Rights as adopted in 2000 further promoted the development 

145  Council document 17024/09, adopted by the European Council on 10/11 December 2009.
 
146  Today  Article  19§1  of  the  Treaty  on  the  Functioning  of  the  European  Union  with  unchanged  content  and  the  


application of a special procedure (unanimity in the Council, consent of the European Parliament). 

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The multi-annual financial framework 2014-2020 from a gender equality perspective 

of  legislation  on  the  basis  of  this  new  Treaty  provision,  for  example  regarding  equal 
treatment between persons irrespective of racial or ethnic origin147, and equal treatment of 
men and women regarding access to and supply of goods and services148. 

Most  developed  is  the  legislation  on  equality  between  women  and  men  in  employment, 
work and pay149. In the workplace, men and women are protected against harassment and 
sexual  harassment.  Women  are  also  protected  against  any  discriminatory  practices  on 
account  of  pregnancy.  In  this  respect,  the  Council  Directive  to  implement  the  principle  of 
equal  treatment  between  women  and  men  in  self-employment150  is  a  further  policy 
development.  This  Directive  provides  for  a  maternity  allowance  for  female  self-employed 
workers and female spouses and life partners, enabling them to interrupt their professional 
activities.  

1.4.	 

A  new  approach  to  the  concept  of  Dignity,  Freedom,  and 
Citizens’ Rights 

The  relevance  of  the  Charter  from  a  gender  perspective  is  not  limited  to  the  equality 
principle but extends to other transversal gender issues associated with the six chapters of 
the Charter (Dignity, Freedoms, Equality, Solidarity, Citizens’ Rights and Justice). 

In  this  respect,  it  should  be  recalled  that,  according  to  present  understanding,  the  rights 
enshrined in the Freedoms chapter are guaranteeing rights without taking into account the 
preconditions  for  being  able  to  exercise  these  rights.  For  gender  equality  to  be  truly 
realised, this approach to the rights enshrined in the Charter would have to be changed in 
accordance with Sen’s notion of capabilities151 integrating in the concept of the Charter the 
ability  to  pursue  each  particular  freedom.  The  concept  of  the  Charter  guaranteeing  today 
the  absence  of  obstacles,  barriers  or  constraints  through  so  called  "negative"  freedoms 
would in such a way be turned into a "positive" freedom concept based on the possibility of 
acting.  This  approach  is  very  much  in  line  with  gender  mainstreaming  as  it  allows  for  the 
analysis of policies by looking into their capacity to support women and men in exercising 
their fundamental rights. For example, the right to seek employment and to engage in work 
(Article 15) might be considered to cover also the access to care facilities for children. 

Also  included  in  the  Freedom  chapter  are  the  fundamental  rights  related  to  migration, 
asylum,  and  family  reunification.  The  increasing  number  of  migrant  women,  who  by  2009 
already  represented  48%  of  the  total  number  of  migrants152  and  accounted  for  30%  of 
asylum seekers in the Union153, results in growing importance of gender issues with respect 
to these rights. 

147  Council Directive 2000/43/EC of 29 June 2000,

http://eurlex.europa.eu/LexUriServ/LexUriServ.do?uri=OJ:L:2000:180:0022:0026:EN:PDF. 

148  Council Directive implementing the principle of equal treatment between women and men in the access to and 

supply of goods and services, 
http://eur-lex.europa.eu/LexUriServ/LexUriServ.do?uri=CELEX:32004L0113:EN:HTML. 

149  The Charter of Fundamental Rights (2000: Article 23) and COUNCIL DIRECTIVE 2000/78/EC of 27 November 

2000 establishing a general framework for equal treatment in employment and occupation:
http://eur-lex.europa.eu/LexUriServ/LexUriServ.do?uri=OJ:L:2000:303:0016:0022:EN:PDF. 

150  Directive 2010/41/EU of the European Parliament and of the Council of 7 July 2010 on the application of the 
principle of equal treatment between men and women engaged in an activity in a self-employed capacity and 
repealing Council Directive 86/613/EEC.
http://eur-lex.europa.eu/LexUriServ/LexUriServ.do?uri=OJ:L:2010:180:0001:0006:EN:PDF. 

151  See Sen, Amartya, Development as Freedom, Oxford, Oxford University Press, 1999. 
152  Among all immigrants into EU Member States in 2009, 18 % were nationals , 31 % were citizens of other EU 

Member States, and 51 % were third country nationals, that is citizens of non-member countries. 
http://epp.eurostat.ec.europa.eu/statistics_explained/index.php/Migration_and_migrant_population_statistics 

153  Fig.3, p4  http://epp.eurostat.ec.europa.eu/cache/ITY_OFFPUB/KS-QA-09-039/EN/KS-QA-09-039-EN.PDF 

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Policy Department C: Citizens' Rights and Constitutional Affairs 

The  Dignity  chapter  reasserts  the  fundamental  right  to  human  dignity  that  prohibits  any 
forms of violence and human trafficking and turns gender-based violence into a violation of 
human rights. It should be noted that according to the Women’s Lobby no less than 45% of 
women  in  Europe  today  have  at  some  point  experienced  such  a  violation  of  their  human 
rights154. 

Furthermore, the political objectives outlined by the Charter and the Stockholm Programme 
cannot  be  achieved  without  effectively  empowering  European  citizens  and  strengthening 
their confidence in the European judicial area. Citizens need to be able to benefit from their 
rights stemming from European integration, as well as being entitled to invoke these rights 
in any Member State. 

1.5.	 

Identification  of  areas  in  relation  to  Fundamental  Rights  of 
particular importance for gender equality 

To  build  on  what  has  been  said  above  and  in  particular  in  relation  to  Article  15  of  the 
Charter, the issue of women's full participation in the labour market has to receive special 
attention.  The  financial  crisis  has  put  in  danger  progress  reached  in  terms  of  the 
fundamental right of gender equality155. Women face not only reductions in employment in 
the public sector where they hold proportionately more jobs than men but also cutbacks in 
welfare services in support of care and reconciliation. Gender equality issues are also being 
moved  to  the  margin  of  the  agenda,  on  the  grounds  that  economic  and  financial  issues 
should  come  first.  This  approach  fails  to  recognise  that  there  is  still  an  obligation  to  fulfil 
the objective of gender equality and that gender equality has a strong impact on economic 
and  financial  developments.  If  the  objectives  of  the  Europe  2020  Strategy  are  to  be 
achieved  and  the  demographic  and  economic  challenges  countered,  there  is  an 
indispensable need for  EU funding to promote  gender equality as a common shared value 
across  the  EU.  This  funding  has  already  and  should  continue  to  support  activities  to 
increase  women’s  employment  rate  and  promote  quality  employment,  to  improve 
reconciliation policies for both women and men, to strengthen national care infrastructures, 
to tackle vertical and horizontal gender segregation in education and in the labour market, 
and  to  combat  the  gender  pay  gap  and  the  increasing  feminisation  of  poverty.  The 
macroeconomic  relevance  of  providing  more  support  for  women’s  employment  and 
reproductive  rights  needs  much  more  emphasis  and  requires  a  new  approach  to  the 
division  of  care  responsibilities  between  public  services,  the  private  care  services  market 
and the family, and within the family between men and women. 

Furthermore,  as  also  mentioned  above,  addressing  the  specific  problems  raised  by  the 
“feminisation”  of  migration  in  Europe  should  be  high  on  the  EU  policy  agenda.  The 
“feminisation” of migration calls for targeted policy measures for migrant women. As stated 
by  the  Beijing  Platform  for  Action,  migration  and  mobility  generate  changes  in  family 
structures and introduce additional burdens for women. It also emphasised that women and 
children are more vulnerable as refugees and displaced persons. In addition, due to various 
reasons,  migrant  women  often  have  to  work  in  sectors  of  the  shadow  economy  that  are 
characterised by exploitative wages. In particular, there is a growing demand in the EU for 
cheap labour in the service sector and for domestic workers that is fuelled by the ageing of 
the  population,  the  cutbacks  to  welfare  and  by  European  women's  reduced  availability  for 
unpaid  labour  in  the  home.  Therefore,  the  adoption  of  a  focused  gender  approach  is  an 

154  http://www.womenlobby.org/spip.php?article2447&lang=en. 
155  Report  from  the  Commission  to  the  Council,  the  European  Parliament,  the  European  Economic  and  Social 
Committee  and  the  Committee  of  the  Regions.  Equality  between  women  and  men  —(2010  (COM(2009)694 
final p.3).  

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The multi-annual financial framework 2014-2020 from a gender equality perspective 

essential element in all migration policies of EU and its Member States. In this regard, the 
European Court of Human Rights rendered judgment in 2005 in the case of a Togolese girl 
working  15  hours  a  day,  with  no  days  off,  as a  domestic  servant,  cleaning  and  caring  for 
children and not being paid. The Court ruled that these conditions contravened Article 4 of 
the  European  Convention  on  Human  Rights,  which  prohibits  slavery,  servitude  and  forced 
labour156. 

Another important aim is tackling multiple discrimination. EU policy priorities should aim to 
combat all forms of discrimination, thereby using existing EU legislation to move beyond an 
exclusive  focus  on  gender  inequality  towards  policies  that  address  multiple  inequalities  at 
the  intersection  of  gender  with  racial  or  ethnic  origin,  religion  or  belief,  disability,  age  or 
sexual orientation. Recital 14 of the EU Racial Equality Directive, for instance, states that in 
implementing  the  principle  of  equal  treatment  irrespective  of  racial  or  ethnic  origin,  the 
Community  should,  in  accordance  with  Article  3(2)  of  the  EC  Treaty,  aim  to  eliminate 
inequalities, and to promote equality between men and women, especially since women are 
often the victims of multiple discrimination157 . 

The  principles  of  fundamental  rights  for  both  women  and  men  touch  on  every  aspect  of 
people's  lives  and  their  full  exercise  is  essential  for  everyone  and  in  all  areas.    Table  13 
below summarises from a gender perspective those policy objectives that should be at the 
core  of  the  political  agenda  in  the  area  of  rights  and  shows  the  correspondence  between 
each identified policy objective with the Strategy for Equality 2010-2015 and the EU 2020 
Strategy,  which  are  the  main  reference  documents  for  the  MFF  2014-2020.  As  can  be 
deduced  from  the  table,  the  EU  2020  Strategy  incorporated  few  gender  objectives,  for 
example there is no reference to measures aiming at closing the gender pay gap. 

156 	 Migrants in an irregular situation employed in domestic work: Fundamental rights challenges for the European 

Union and its Member State: 
http://fra.europa.eu/fraWebsite/attachments/FRA-report-domestic-workers-2011_EN.pdf. 

157 	 Council Directive 2000/43/EC of 29 June 2000 implementing the principle of equal treatment between persons 

irrespective of racial or ethnic origin.  
http://eur-lex.europa.eu/LexUriServ/LexUriServ.do?uri=CELEX:32000L0043:en:HTML. 

135
 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
                                                 
 
 
  
  
 
 
 
 
Policy Department C: Citizens' Rights and Constitutional Affairs 

Table 13: Gender Objectives for Fundamental Rights 

Gender Objective 

Fighting against gender based violence 
and human trafficking 

Equality between women and men: 

Gender pay gap 

Gender balance in decision-making 
positions 

Access to employment/Economic 
independence 

Addressing the feminisation of poverty 
and migration 

Measures establishing the conditions 
for the full exercise of fundamental 
rights (for both women and men): 

Participation of women as citizens of 
the Union in the Union’s democratic 
functioning 

Access to efficient and independent 
justice for women and men 

Access to health services for 
migrants (Roma and women in 
particular) 

Ensure equal access to, and the 
effective enjoyment of, fundamental 
rights including gender equality by 
third country nationals 

Ensure that asylum and immigration 
policy take into account gender 
equality 

Positive actions to address the risk 
of discrimination, abuse and 
exploitation of migrants in an 
irregular situation 

Context 
Analysis 

Strategy for 
Equality 
2010-2015 

EU 2020 
Strategy 

X 

X 

X 

X 

X 

X 

X 

X 

X 

X 

X 

X 

X 

X 

X 

X 

X 

X 

X 

X 

X 

X 

X 

X 

X 

136
 

 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
The multi-annual financial framework 2014-2020 from a gender equality perspective 

2.	  A  GENDER  PERSPECTIVE  ON  THE  2014-2020 
MULTIANNUAL  FINANCIAL  FRAMEWORK  IN  THE  AREA 
OF FUNDAMENTAL RIGHTS 

The  Regulation  for  the  MFF158  does  not  explicitly  include  a  gender  mainstreaming 
requirement.    In  contrast,  the  regulation  of  the  overarching  CSF159  funds  strongly 
integrates  gender  equality  and  the  dual  gender  equality  approach  (positive  actions  and 
gender  mainstreaming).  This  applies  for  instance  to  the  stipulation  for  gender  equality  to 
become  a  general  principle  in  the  “Common  Strategic  Framework”  (Art.7)160  as  well  as  in 
the  “partnership  contract”  between  the  EU  Commission  and  Member  States.  Furthermore 
gender equality considerations are integrated into both the set of principles for ex-ante and 
ex-post monitoring and evaluation of the CSF funds.  The proposal for the ESF Regulation 
also provides for the coherent integration of the gender equality objectives, to be put into 
practice  through  the  gender  mainstreaming  strategy/dual  gender  equality  approach.    The 
CSF  and  ESF  funds  have  among  their  specific  objectives  the  fight  against  discrimination, 
the promotion of women’s economic independence and the integration into employment of 
immigrants,  thereby  strongly  contributing  to  facilitating  the  pre-conditions  for  the  full 
exercise of fundamental rights. 

One of the challenges of funding in the area of fundamental rights is ensuring that there is 
efficient  and  sufficient  distribution  of  resources  across  specific  programmes  to  address 
horizontal  and  cross-cutting  priorities  such  as  gender  equality.  Fundamental  rights 
necessarily  address  issues  with  common  and  interlinked  dimensions  which  require  an 
integrated rather than a fragmented approach to implementation. It is therefore important 
that horizontal and cross cutting issues are made visible throughout the budgetary process. 
However, in the absence of such an approach in the current documentation presenting the 
MFF  programme,  our  approach  has  to  be  more  limited  and  focused on  those  programmes 
most  directly  concerned  with  gender  equality  and  fundamental  rights.  Firstly,  the  most 
pertinent  programmes  in  the  MFF  2014-2020  are  evaluated.  Secondly,  given  the  lack  of 
detailed information on the budget of the specific programme for the period 2014-2020, the 
present  programmes  have  been  analysed  in  order  to  highlight  the  potential  future  gender 
impact. 

2.1. 

Budget evaluation of the most pertinent programmes  

In  order  to  develop  a  gender  perspective  on  MFF  in  the  area  of  fundamental  rights  we 
restrict the analysis to the most pertinent programmes with specific objectives rooted in the 
promotion  and  advance  of  fundamental  rights.  In  particular,  according  to  the  European 
budget document “A Budget for Europe 2020”161, the most relevant programmes are i) the 
Rights  and  Citizenship  Programme  including  Daphne  III,  Fundamental  Rights  and 
Citizenship and the “Antidiscrimination and Diversity" and "Gender Equality" sections of the 
Programme  for  Employment  and  Social  Solidarity  (PROGRESS).  In  addition,  the  Progress 
Programme  budget  supports  the  Fundamental  Rights  Agency  (FRA)  and  the  European 

158 

159 

http://ec.europa.eu/budget/library/biblio/documents/fin_fwk1420/proposal_council_regulation_COM­

398_en.pdf. 

http://ec.europa.eu/regional_policy/sources/docoffic/official/regulation/pdf/2014/proposals/regulation/general/ 
general_proposal_en.pdf. 

160  Gender equality is the third of five general principles of support after partnership and  multi-level governance 

and before sustainability and compliance with applicable EU and national law. 

161  http://europa.eu/press_room/pdf/a_budget_for_europe_2020_-_part_ii_policy_fiches_en.pdf. 

137
 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
                                                 
 
 
 
  
  
 
Policy Department C: Citizens' Rights and Constitutional Affairs 

Institute  of  Gender  equality  (EIGE);  ii)  the  Migration  and  Management  Fund  and  iii)  the 
Europe for Citizens Programme. 

Table  14  below  reports  the  information  available  from  the  MFF  2014-2020  on  budget 
allocation. 

Table 14: Budgeting the Gender Objectives 

Rights and Citizenship Programme 
2014-2020 

Europe 
for 
Citizens 

Migration and 
Asylum 
Management 
Fund 
2014-2020 

Fundamental 
Rights 
and 
Citizens 
Programme 
2014-2020 

Daphne III 
Programme 
2014-2020 

“Antidiscrimination” 
and “Gender 
equality” section of 
PROGRESS 2014­
2020 

No detailed  
documentation 
available 

No detailed  

women and  documentation 

available 

-

No detailed  
documentation 
available 

No detailed  
documentation 
available 

-

No detailed  
documentation 
available 

No detailed  
documentation 
available 

No detailed  
documentation 
available 

No detailed  
documentation 
available 

No detailed  
documentation 
available 

No detailed  
documentation 
available 

€439m 

€203m 

€3.869 m 

95.6% 

94.4% 

not applicable 

Note: *please refer to Table 1 for a detailed description of the main policy objects included 

under Equality between women and men. 

#35% of the budget allocated to the whole PROGRESS programme. 


The  scarce  monetary  information  makes  it  difficult  to  assess  the  gender  impact  of  the  

future budget allocation in the MFF in the area of Fundamental Rights for the period 2014­

138
 

Policy/ 
financial 
instrument 

Gender 
Objective 

Fighting 
against 
gender 
based 
violence 
Equality 
between 

men* 
Addressing 
the 
feminisation 
of poverty 
and 
migration 
Measures 
establishing 
the 
conditions 
for the full 
exercise of 
fundamental 
rights (for 
both women 
and men) 

Total by 
Programme 

Budget 
2014-2020 
as 
percentage 
of 2007-13 
(100%) 

 
 
 
 
 
 
 
 
 
      
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
The multi-annual financial framework 2014-2020 from a gender equality perspective 

2020. Table 14 does not report any information broken down by gender objective but only 
the total for each programme. 

In  order  to  provide  nevertheless  some  assumptions  on  the  possible  impact  of  the 
programmes  as  proposed  by  the  Commission,  the  proposals  are  compared  to  the  current 
ones of the MFF 2007-2013. The first conclusion that can be made is that the total funding 
in  the  area  of  Fundamental  Rights  for  the  2014-2020  period162  will  be  lower  than  in  the 
present programming period.  

2.1.1. 

Rights and Citizenship Programme 

In  “A  Budget  for  Europe  2020”,  the  Commission  identified  the  principal  objectives  of 
simplifying  the  existing  funding  structure  by  reducing  the  number  of  EU  funding 
instruments and by establishing a set of overarching provisions applicable to all EU funding 
in the area of Fundamental Rights. In order to ensure clear focus on European added value 
and  to  cater  for  rationalisation  and  simplification  of  the  funding  mechanisms,  the 
Commission  has  proposed  the  creation  of  the Rights  and Citizenship Programme163  as  the 
successor of three current programmes: 

Fundamental Rights and Citizenship164, 

– 	
– 	 Daphne III165, 
– 	

The  Sections  "Antidiscrimination  and  Diversity"  and  "Gender  Equality"  of  the 
Programme for Employment and Social Solidarity (PROGRESS)166. 

In  particular,  this  Programme  should  promote  the  rights  deriving  from  European 
citizenship, the principles of non-discrimination and equality between women and men, the 
right to the protection of personal data, the rights of the child, the rights deriving from the 
Union  consumer  legislation  and  from  the  freedom  to  conduct  a  business  in  the  internal 
market. 

The  “Proposal  for  a  regulation  of  the  European  Parliament  and  of  the  Council  establishing 
for  the  period  2014  to  2020  the  Rights  and  Citizenship  Programme”  mentions  gender  six 
times  but  four  of  these  times  are  in  relation  simply  to  the  fact  that  the  new  programme 
includes  the  gender  equality  element  of  PROGRESS.  The  other  two  mentions  refer  to  the 
need for gender equality issues to be included in monitoring and evaluation: the regulation 
requires the monitoring to "provide a means of assessing the way in which gender equality 

162 	 The  total  budget  for  the  Fundamental  Rights  and  Citizens  programme,  the  Antidiscrimination  and  Gender 
equality section of Progress and the Daphne programme amounts for the period 2007-2013 at EUR 495.4 mln.. 
The  total  budget  allocated  for  the  period  2014-2020  is  EUR  439  mln,  that  is  95.6%  of  the  2007-13  total. 
Equally  there  is  a  reduction  for  the  Europe  for  Citizens  programme,  that  has  a  budget  of  EUR  215  mln  for 
2007-2013 that is reduced to EUR 203 mln (94.4%) for the next period. 

163 	 Proposal  for  a  Regulation  of  the  European  Parliament  and  of  the  Council   establishing  for  the  period  2014  to 

2020 the Rights and Citizenship Programme:  
http://ec.europa.eu/justice/newsroom/files/1_en_act_part1_v5_frc_en.pdf. 

164	  Council Decision of 19 April 2007 establishing for the period 2007-2013 the specific programme ‘Fundamental 

rights and citizenship’ as part of the General programme ‘Fundamental Rights and Justice’(2007/252/JHA:
http://eur-lex.europa.eu/LexUriServ/LexUriServ.do?uri=OJ:L:2007:110:0033:0039:EN:PDF 

165 	 Decision No 779/2007/EC of the European Parliament and of the Council of 20 June 2007 establishing for the 
period  2007-2013  a  specific  programme  to  prevent  and  combat  violence  against  children,  young  people  and 
women and to protect victims and groups at risk (Daphne III programme) as part of the General Programme 
‘Fundamental Rights and Justice 
http://eur-lex.europa.eu/LexUriServ/LexUriServ.do?uri=OJ:L:2007:173:0019:0026:EN:PDF. 

166 	 Decision No 1672/2006/EC of the European Parliament and of the Council  of 24 October 2006 establishing a 

Community Programme for Employment and Social Solidarity — Progress:  
http://ec.europa.eu/social/main.jsp?langId=en&catId=327. 

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Policy Department C: Citizens' Rights and Constitutional Affairs 

and anti-discrimination issues have been addressed across the programme’s actions"167. It 
also  calls  for  gender  disaggregation  of  indices  by  sex,  age  and  disability  but  adds  the 
provision ‘where relevant’ which may result in only limited disaggregation as no criteria are 
given  for  determining  when  this  may  be  relevant.  Beyond  monitoring  and  evaluation,  no 
specific issues relating to gender equality are highlighted. 

Of  even  greater  concern  is  the  intention  to  introduce  flexible  funding  across  the  different 
areas  of  interest  in  the  programme.  The  impact  assessment  in  the  “Proposal  for  a 
regulation of the European Parliament and of the Council establishing for the period 2014 to 
2020  the  Rights  and  Citizenship  Programme”  concern  the  future  funding  activities  for  the 
whole area of justice, rights and equality, which currently comprise six programmes168. The 
impact assessment has considered three options169: 

Option  A:  to  maintain  six  programmes  and  to  address  some  of  the  identified  problems 
through changes in the internal management of the programmes. Improving management 
and fostering strong synergies between the programmes would address some of the issues. 
However, the main cause of the problems, i.e. the multitude of programmes would not be 
directly addressed and consequently the improvements to be achieved by this option would 
be limited. 

Option  B:  to  maintain  all  measures  of  option  A  and  additionally  to  merge  the  current  six 
programmes into two programmes. This option would allow for flexibility in the use of funds 
and  in  addressing  annual  policy  priorities.  It  would  achieve  increased  simplification  (both 
for  the  beneficiaries  and  the  administration)  and  efficiency  of  the  programmes,  since 
significantly  fewer  procedures  would  be  needed.  The  effectiveness  of  the  programmes 
would  also  be  improved  as  the  fragmentation  and  dilution  of  funds  would  be  addressed 
better  within  two  programmes.  Human  resources  could  be  freed,  since  fewer  procedures 
would reduce the administrative burden and they would be allocated to activities improving 
the  effectiveness  of  the  programmes  (dissemination  of  results,  monitoring,  providing 
information, etc). 

Option C: to implement only one programme. This option addresses all problems caused by 
the  multiple  legal  instruments  and  by  the  increased  administrative  burden  of  managing 
multiple  programmes.  However,  due  to  legal  constraints  the  scope  of  this  programme 
would not be able to cover the funding needs of all policy areas. A choice would have to be 
made  between  the  area  of  justice  and  the  area  of  rights  and  citizenship.  Although  this 
solution can deliver maximum impact in terms of management, it would not be possible to 
address sufficiently the policy priorities and needs of the whole policy area. 

Flexible funding across the different areas of interest in the programme was mentioned as 
one  of  the  reasons  for  selecting  option  B  which  consolidates  the  six  justice  programmes 
into two (Justice programme and Rights and Citizens programme) as opposed to option A 
which would be to maintain the six separate programmes. This option was said to ‘allow for 
flexibility in the use of funds and in addressing annual policy priorities’. On this basis it  is 
not predetermined how much would be spent on gender equality issues directly within the 

167  See footnote 20. 

168  Civil  Justice  Programme  (JCIV),  the  Criminal  Justice  Programme  (JPEN),  the  Fundamental  Rights  and
 
Citizenship  Programme  (FRC),  the  Daphne  III  Programme  (DAP),  the  Drug  Prevention  and  Information 
Programme  (DPIP)  and  the  sections  "Antidiscrimination  and  Diversity"  and  "Gender  Equality"  of  the 
Programme for Employment and Social Solidarity (PROGRESS). 

169  Proposal  for  a  regulation  of  the  European  Parliament  and  of  the  Council  establishing  for  the  period  2014  to 

2020 the Rights and Citizenship Programme”.
http://ec.europa.eu/justice/newsroom/files/1_en_act_part1_v5_frc_en.pdf. 

140
 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
                                                 
   
  
 
 
 
 
 
 
 
 
 
 
The multi-annual financial framework 2014-2020 from a gender equality perspective 

six  year  framework  of  the  MFF,  even  if  indicative  budgets  had  been  provided.  As  issues 
such as migration, asylum and cross border cooperation on which the Fundamental Rights 
and  Citizenship  Programme  has  focused  are  more  likely  to  have  immediate  short  term 
effects  on  political  agendas  than  gender  equality,  there  is  a  danger  that  this  flexibility,  if 
implemented,  would  work  to  reduce  rather  than  increase  expenditure  on  programmes 
directly addressing gender equality. 

The overall budget for the implementation of the Rights and Citizenship Programme for the 
period 1 January 2014 to 31 December 2020 shall amount to EUR 439 m.  No break down 
of information on the budget allocation of specific projects under the Rights and Citizenship 
Programme is provided, making it difficult to assess the beneficiaries and the impact of the 
programme in terms of gender170. 

2.1.2. 

Asylum and Migration Fund 

As  set  out  above,  another  policy  area  where  we  believe  a  gender  integrated  approach 
would be fundamental for the success of the programme is migration. The new Asylum and 
Migration Fund draws on the capacity building process developed with the assistance of the 
European  Refugee  Fund,  the  European  Fund  for  the  Integration  of  third-country  nationals 
and  the  European  Return  Fund  and  extends  it  to  cover  more  comprehensively  different 
aspects  of  the  common  Union  asylum  and  immigration  policy,  including  actions  in  or  in 
relation  to  third  countries  addressing  primarily  EU  interests  and  objectives  in  those  policy 
areas, and takes into account new developments171. 

The  “Proposal  for  a  regulation  of  the  European  Parliament  and  of  the  Council  establishing 
the Asylum and Migration Fund172” does not mention gender at all. There is no reference to 
gender  mainstreaming  or  a  reference  to  specific  gender  issues  to  be  tackled.  Women  are 
only  mentioned  when  listing  the  most  vulnerable  persons  amongst  migrants  and  refugees 
and  mostly  when  referring  to  pregnant  women.  The  proposal  maintains  a  gender-neutral 
approach to immigration that ignores women's specific needs and does not uphold women’s 
fundamental  rights.  The  management  of  migration  flows  is  an  important  area  in  which 
contributions  from  the  EU  budget  could  bring  added  value  if  a  gender  perspective  was 
integrated  by  addressing  particular  gender  sensitive  issues  such  as  the  feminisation  of 
poverty and migration. 

2.1.3.

 The Europe for Citizens Programme  

Finally,  the  Europe  for  Citizens  Programme’s  objectives  build  on  the  Charter  for 
Fundamental Rights by promoting the development of shared values, tolerance and mutual 
understanding  through  creating  opportunities  for  participation,  dialogue  and  sharing  of 
experiences  The  proposal  for  the  Europe  for  Citizens  programme  2014-2020  does  not 
specifically address any gender issues nor report detailed information on the activities that 
will be carried on. For the assessment of the gender impact of this programme, the current 
activities will be analysed in the section below. 

2.2. 

Experiences from the present programming cycle  

The  scarce  information  provided  on  the  budget  break  down  of  the  future  2014-2020 
Programmes in the area of fundamental rights makes it very difficult to assess their future 

170  See footnote 19. 

171  SEC(2011) 1358 final, p.2  http://ec.europa.eu/home-affairs/news/intro/docs/751.pdf. 

172  See footnote 11. 


141
 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
 
 
 
 
                                                 
  
 
 
Policy Department C: Citizens' Rights and Constitutional Affairs 

gender  impact.  In  order  to  overcome  the  lack  of  information  we  refer  to  the  budget  and 
mid-term  evaluations  of  the  past  programmes  that  will  be  included  in  the  Rights  and 
Citizens Programme in the next MFF 2014-2020. 

First  the  Fundamental  Rights  and  Citizenship  Programme  for  2007-13  had  a  mid-term 
evaluation173  which,  even  though  the  programme  clearly  states  equality  between  women 
and men among its objectives, did not include any particular information on the impact the 
programme generated on the specific issue. The evaluation was carried out at more general 
level, attesting to a general good compliance between the projects funded and the general 
aims of the programme and positively evaluating the projects’ outcomes so far in terms of 
relevance,  effectiveness,  adequacy,  efficiency,  utility  and  sustainability.  The  lack  of  clear 
ex-ante  requirements  to  include  the  gender  impact  in  the  past  Regulation  of  the 
Programme  resulted  in  a  failure  to  collect  the  substantial  information  that  is  needed  to 
prepare a gender impact assessment. Furthermore a scan of the work programmes for the 
years 2007 to 2012 only revealed one mention of gender, in relation to actions to address 
gender imbalance in participation in European Parliament elections in 2011. In contrast the 
annual  report  of  the  Fundamental  Rights  Agency174  which  also  will  be  funded  through  the 
Rights and Citizens Programme, does provide both detailed information on developments in 
gender  equality  in  a  dedicated  chapter  that  includes  a  section  on  multiple  discrimination 
and some analysis of gender issues within a range of other chapters, notably Roma in the 
EU and protection of victims. It is also launching a survey against women violence. 

The  second  programme  that  of  Daphne  III175  "to  prevent  and  combat  violence  against 
women,  children  and  young  people  and  to  protect  victims  and  groups  at  risk”  can  be 
considered  of  great  relevance  from  a  gender  perspective  given  its  specific  gender 
objectives.  The  mid-term  evaluation  stressed  the  importance  of  the  programme  in 
achieving  its  objectives  by  taking  preventive  measures  and  by  providing  support  and 
protection  for  victims  and  groups  at  risk.  The  programme  funded  successful  projects  that 
established  European  networks,  shared  best  practices,  produced  various  publications  and 
studied  the  phenomenon  of  violence.  According  to  the  mid-term  evaluation,  improvement 
could be made by strengthening the link of the programme with policy developments.  

Finally,  the  “Antidiscrimination  and  Diversity"  and  "Gender  Equality"  sections  of  the 
Programme  for  Employment  and  Social  Solidarity  (PROGRESS)  also  fall    under  the  Rights  
and  Citizens  programme176.  These  sections  of  the  PROGRESS  programme  represent  35% 
of its overall budget and amount to € 241.52 million for the period 2007-2013. According to 
the annual evaluation report, the PROGRESS Programme contributes to the achievement of 
the  EU’s  goals  in  gender  equality  through  the  regular  monitoring,  analyses  and 
recommendation  to  the  Commission  on  the  cross-cutting  issues  of  gender  equality  in  all 
areas  of  PROGRESS  policies.  Furthermore,  PROGRESS  supports  the EGGE177  and EGGSI178 

173  http://eur-lex.europa.eu/LexUriServ/LexUriServ.do?uri=COM:2011:0249:FIN:EN:PDF. 
174  Fundamental Rights Agency (2011) Fundamental rights: challenges and achievements in 2010 FRA – European 

Union Agency for Fundamental Rights, Vienna:  
http://fra.europa.eu/fraWebsite/research/publications/a:nnual_report_on_fundamental_rights/annual_report_ 
on_fundamental_rights_en.htm. 

175  Decision No 779/2007/EC OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL of 20 June 2007 establishing 
for the period 2007-2013 a specific programme to prevent and combat violence against children, young people 
and  women  and  to  protect  victims  and  groups  at  risk  (Daphne  III  programme)  as  part  of  the  General 
Programme ‘Fundamental Rights and Justice.
http://eur-lex.europa.eu/LexUriServ/LexUriServ.do?uri=OJ:L:2007:173:0019:0026:EN:PDF. 

176  Proposal  for  a  Regulation  of  the  European  Parliament  and  of  the  Council  establishing  for  the  period  2014  to 

2020 the Rights and Citizenship Programme:  
http://ec.europa.eu/justice/newsroom/files/1_en_act_part1_v5_frc_en.pdf. 

177  The European Commission's Expert Group on Gender and Employment (EGGE) was set up under the European 
Commission's fourth action programmes on equal opportunities for women and men in the European Union to 

142
 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
                                                 
 
 
 
  
 
 
 
 
  
  
 
 
  
 
 
 
 
 
 
 
The multi-annual financial framework 2014-2020 from a gender equality perspective 

networks  of  gender  experts  and  the  European  Institute  for  Gender  Equality  (EIGE). 
PROGRESS can be considered as an essential policy instrument through which the EU can 
pursue  gender  equality  objectives  including,  on  the  one  hand,  positive  actions  enhancing 
women’s participation in the labour market, promoting a more balanced share of care work 
in the society and within couples, tackling gender-based violence and boosting the number 
of women in decision-making position, and on the other hand through the implementation 
of gender mainstreaming in all PROGRESS policy areas. 

The last programme analysed is the Europe for Citizens programme. Although the themes 
of  this  programme  are  all  gender  sensitive  issues,  such  as  the  promotion  of  basic  values, 
fighting  racism  and  xenophobia,  gender  equality  is  not  explicitly  mentioned.  Likewise,  the 
specific  priorities  for  2012  of  the  theme  Citizens  and  the  EU:  values,  democratic  life  and 
institutional  issues  within  the  Europe  for  Citizens  Programme  mention  equal  opportunities 
directly (not specifically gender equality) while gender equality is missing on the list of the 
second  priority  theme  of  the  Europe  for  Citizens  Programme.  Nonetheless,  in  2009  the 
programme  did  contribute  to  the  objective  of  improving  women’s  representation  in 
decision-making  by  making  women’s  participation  in  political  life  a  priority  theme.  In  its 
horizontal features, the Europe for Citizens’ Programme also includes not only the principle 
of  equal  access  and  calls  for  particular  attention  on  equality  between  men  and  women  as 
well  as  senior  citizens,  but  includes  a  specific  requirement  for  gender  balance  and  states 
that  the  programme  aims  at  reaching  a  balanced  participation  of  men  and  women  in  the 
supported projects, not only globally, but also within each measure. 

provide  expert  advice,  research  and  policy  evaluation  to  assist  the  Commission's  Equal  Opportunities  Unit 
located in DG Employment, Social Affairs and Equal Opportunities. The EGGE network consists of independent 
academic experts with long standing experience of working in the field of equal opportunities and employment. 
There is one expert appointed per member state. The experts are appointed by the Commission. 

178	  EGGSI (Group of experts on Gender Equality, Social Inclusion, Health, and Long Term Care) is an independent 
network  of  experts  in  the  fields  of  gender  equality,  social  inclusion,  health  and  long  term  care  issues, 
commissioned  by  the  European  Commission,  DG  Employment,  Social  Affairs,  and  Equal  Opportunities.  The 
network  comprises  33  national  experts,  covering  the  27  Member  States  plus  Iceland,  Liechtenstein,  Norway, 
Croatia, FYROM and Turkey. 

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3.  CONCLUSIONS 

The analysis of the documentation for the MFF 2014-2020 and the Programme in the area 
of  fundamental  rights  points  to  challenges  and  policy  implications  that  can  serve  as 
guidelines for a better gender integrated approach to the EU budget process. As a general 
recommendation, it is clear that the MFF 2014-2020 needs to make a stronger commitment 
to  gender  equality  and  gender  mainstreaming.  Furthermore,  the  dual  approach  of  gender 
mainstreaming  and  positive  action  in  favour  of  women  in  contexts  where  they  are 
disadvantaged  should  be  implemented  for  all  EU  financing  programmes.  Sufficient 
information  has  to  be  provided  during  the  budgetary  process  from  planning  to  monitoring 
and evaluation to facilitate an accurate and efficient assessment of the impact of funding on 
gender equality. This should be a basic requirement for all EU programmes. Within the area 
of fundamental rights clearly dedicated budget lines for women’s rights and gender equality 
should be provided with targets that can be verified. 

Following the analysis of the present Regulations relevant for the realisation of fundamental 
rights for women, these requirements can only be regarded as fulfilled in those cases where 
specific  gender  objectives  exist  (i.e.  Daphne  III,  the  “Gender  Equality”  and  anti­
discrimination  sections  in  PROGRESS,  FRA  annual  report),  while  the  gender  dimension 
tends to disappear in those programmes with only general objectives and is limited at best 
to the generic concept of gender equality, with no specific actions or conditions laid down to 
provide concrete assistance in realizing the objective. 

A failure to adequately address gender equality issues could lead to  an attenuation of the 
attention  paid  to  women’s  rights  and  gender  equality.  The  main  risks  that  apply  to  all 
programmes when gender equality is not directly specified are: 

	  gender  equality  will  be  blended  with  other  forms  of  inequality  and  dissimulate 
multiple  discrimination,  making  the  policy  intervention  less  efficient  in  addressing 
and promoting equality between women and men;  

	  due to the lack of proposals for concrete positive actions, the promotion of equality 
between  women  and  men  is  dependent  only  on  the  application  of  gender 
mainstreaming, which by itself is not sufficient to ensure that gender inequalities are 
made visible or to address specific gender gaps; 
the  budget  provisions  for  ensuring  that  gender  equality  is  promoted  as  a 
fundamental  human  right  are  proposed  to  be  more  limited  under  the  next  MFF  (as 
shown  by  the  last  row  of  table  2)  and  could  furthermore  be  subject  to  reduction  if 
forced to compete with more pressing immediate policy concerns. 

	 

These risks may be mitigated or avoided by:  

	 

inclusion of direct and feasible targets for gender equality allocated with dedicated, 
predictable and visible budgets; 

	  adoption  of  the  dual  approach  of  gender  mainstreaming  complemented  by  specific 
actions  to  overcome  inequality  between  women  and  men  (including  measures  to 
improve  equal  participation  of  women  and  men  in  projects  and  the  collection  of 
gender disaggregated statistics); 

	  monitoring  and  evaluation  of  the  effects  of  budgetary  implementation  on  gender 

equality, including collection of gender disaggregated statistics. 

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Particular concerns created by the crisis 

In  view  of  the  potential  negative  effects  of  the  current  financial  and  economic  crisis  it  is 
also  suggested  that,  instead  of  cuts  to  the  budgets,  at  a  minimum  the  same  level  of 
funding  for  gender  equality  as  a  fundamental  right  should  be  maintained  for  the  period 
2014-2020. Improvements in the allocation and use of resources should be sought so that 
more can be achieved with the same funding levels. 

It is particularly important to ensure that the integration of programmes in the 2014-2020 
period  under  a  general  regulation  on  fundamental  and  citizens  rights  does  not  result  in  a 
diminution  of  spending  on  gender  equality.  This  means  that  it  is  vital  to  monitor  and  to 
make  visible  any  changes  in  funds  directed  to  gender  equality,  particularly  in  the  current 
and next phases of the crisis, a task that was easier under the 2007-13 funding period with 
specific  budget  lines  related  to  gender  equality  (particularly  Daphne  III  and  the  gender 
equality  section  of  PROGRESS).  The  Charter  of  Fundamental  Rights  provides  the  freedom 
for everyone to seek employment and choose an occupation but there are real dangers that 
such  freedoms  may  be  put  in  question  for  women  if  there  are,  for  example, 
disproportionate  cuts  in  the  support  for  childcare  and  working  mothers.  This  necessitates, 
firstly,  assessment  and monitoring  of  the  impact  of  economic  and  social  developments  on 
gender equality. These evaluations could be used as input into the decision-making process 
and direct political priorities as well as budget allocations to where they are needed.  

The fundamental right of gender equality is a clear example of European added value and 
must be protected and advanced and certainly not marginalised and neglected in a period 
of economic crisis and change. Awareness has to be raised of the possible need to mitigate 
the impact of financial adjustment on women’s ability to exercise their fundamental rights 
and the possible need to disseminate good practice in this respect across the EU. 

Finally,  the  EU’s  support  of  networks,  civil  organizations  and  stakeholders  working  to 
promote gender equality in order to increase awareness continues to be even more vital to 
empower women for their benefit in the smart, sustainable and inclusive growth announced 
by the 2020 EU strategy. 

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4.  REFERENCES 

	  European  Commission 

(2010)  Equality  between  women  and  men2010, 

COM(2009)694 final p.3. Brussels. 

	  European  Commission  (2011)  A  Budget  for  Europe  2020  -  Part  II:  Policy  fiches, 
Communication  from  the  Commission  to  the  European  Parliament,  the  Council,  the 
European  Economic  and  Social  Committee  and  the  Committee  of  the  Regions, 
Brussels, 29.6.2011 COM(2011) 500 final. 

	  European  Commission  (2011)  Proposal  for  a  Council  Regulation  laying  down  the 
multiannual  financial  framework  for  the  years  2014-2020,  Brussels  June  2011, 
COM(2011) 
at: 
2011/177 
http://ec.europa.eu/budget/library/biblio/documents/fin_fwk1420/proposal_council_ 
regulation_COM-398_en.pdf 

Available 

(APP). 

final 

398 

	  European  Commission  (2011)  Proposal  for  a  REGULATION  OF  THE  EUROPEAN 
PARLIAMENT  AND  OF  THE  COUNCIL  laying  down  common  provisions  on  the  
European  Regional  Development  Fund,  the  European  Social  Fund,  the  Cohesion 
Fund,  the  European  Agricultural  Fund  for  Rural  Development  and  the  European 
Maritime  and  Fisheries  Fund  covered  by  the  Common  Strategic  Framework  and 
laying  down  general  provisions  on  the  European  Regional  Development  Fund,  the 
European  Social  Fund  and  the  Cohesion  Fund  and  repealing  Regulation  (EC)  No 
1083/2006, Brussels, COM(2011) 615 final 2011/0276 (COD) 

	  European Commission (2011) Proposal for a Regulation of the European Parliament 
and  of  the  Council  establishing  for  the  period  2014  to  2020  the  Rights  and 
Citizenship Programme, Brussels, COM(2011) 758, 2011/0344 (COD). Available at: 
http://ec.europa.eu/justice/newsroom/files/1_en_act_part1_v5_frc_en.pdf 

	  European  Commission  (2011)  Proposal  for  a  regulation  of  the  European  Parliament 
and  of  the  Council  establishing  for  the  period  2014  to  2020  the  Rights  and 
Citizenship Programme, Brussels, COM(2011) 758, 2011/0344 (COD). Available at: 
http://ec.europa.eu/justice/newsroom/files/1_en_act_part1_v5_frc_en.pdf 

	  European  Council  (2000)  Council  Directive  on  Establishing  a  general  framework  for 
equal  treatment  in  employment  and  occupation,  November  2000,  2000/78/EC, 
available 
http://eur-
at: 
lex.europa.eu/LexUriServ/LexUriServ.do?uri=OJ:L:2000:303:0016:0022:EN:PDF 

	  European  Council  (2000)  Council  Directive  on  Implementing  the  principle  of  equal 
treatment  between  persons  irrespective  of  racial  or  ethnic  origin,  June  2000, 
2000/43/EC. 
http://eur-
lex.europa.eu/LexUriServ/LexUriServ.do?uri=OJ:L:2000:180:0022:0026:EN:PDF 

Available 

at: 

	  European  Council  (2004)  Council  Directive  on  Implementing  the  principle  of  equal 
treatment  between  women  and  men  in  the  access  to  and  supply  of  goods  and 
services, 
http://eur-
lex.europa.eu/LexUriServ/LexUriServ.do?uri=CELEX:32004L0113:EN:HTML 

2004/113/EC. 

Available 

at: 

	  European  Council  (2009)  Council  Conclusions,  17024/09,  adopted  by  the  European 

Council on 10/11 December 2009. 

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	  European Parliament and European Council (2007) Joint decision on establishing for 
the period 2007-2013 a specific programme to prevent and combat violence against 
children,  young  people  and  women  and  to  protect  victims  and  groups  at  risk 
(Daphne  III  programme)  as  part  of  the  General  Programme  ‘Fundamental  Rights 
http://eur-
and 
lex.europa.eu/LexUriServ/LexUriServ.do?uri=OJ:L:2007:173:0019:0026:EN:PDF 

Justice’,  DECISION  No 

779/2007/EC, 

available 

at: 

	  European  Union  Agency  for  Fundamental  Rights  (2011)  Fundamental  rights: 
at: 
in 
challenges 
http://fra.europa.eu/fraWebsite/research/publications/annual_report_on_fundament 
al_rights/annual_report_on_fundamental_rights_en.htm 

achievements 

Available 

Vienna. 

2010, 

and 

	  European  Union  Agency  for  Fundamental  Rights  (2011)  Migrants  in  an  irregular 
situation  employed  in  domestic  work:  Fundamental  rights  challenges  for  the 
European  Union  and  its  Member  States,  Publications  Office  of  the  European  Union, 
Luxembourg.  

	  Rhonda  Sharp  (2003) Budgeting  for  Equity: Gender  Responsive  Budgeting  within  a 

Framework of Performance Oriented Budgeting, UNIFEM: New York, 

	  Sen, A. (1999) Development as Freedom, Oxford, Oxford University Press. 

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The multi-annual financial framework 2014-2020 from a gender equality perspective 

BRIEFING NOTE ON EXTERNAL RELATIONS 


KEY FINDINGS 


External action funded by the EU budget is mainly targeted to developing countries through 
the  Development  Cooperation  Instrument,  the  European  Neighborhood  Instrument,  the 
Humanitarian Aid Instrument and other smaller financial envelopes. 

Gender  equality  is  a  fundamental  value  of  EU  external  relations  and  is  integrated  into  its 
underlying  policy  documents.  Gender  equality  is  both  considered  an  intrinsic  EU  value,  as 
well  as  instrumental  in  fighting  poverty,  the  paramount  goal  of  EU’s  development 
cooperation. 

Likewise most programmes under the Global Europe Heading of the Multi Annual Financial 
Framework 2014-2020 identify gender as one of the areas in which support actions might 
be funded and identify gender equality among the funding principles of their actions. 

These  instruments  are  likely  to  have  a  positive  impact  on  gender  equality  and  women’s 
empowerment.  However,  these  instruments and  underlying  policies  mostly  rely  on  gender 
mainstreaming and fail to define clear financial allocations for reaching the gender equality 
targets. A clear gender strategy does not emerge from the MFF proposal and the legislative 
package  for  external  actions  analyzed  and  it  is  therefore  not  possible  to  estimate  the 
resources that will be allocated to achieving gender objectives. Key actions and milestones 
are set only at the level of gender specific strategies and no clear indications have yet been 
reported as to the level of compliance to these strategies. 

The lack of systematic monitoring and evaluation of data concerning the support of gender 
equality objectives by current external action instruments (both in terms of funding as well 
as  of  impact  and  effectiveness)  represents  a  further  obstacle  in  assessing  the  gender 
impact of MFF and related instruments. 

The implementation of gender equality interventions - and the relevant allocation of funds ­
will greatly depend on the extent to which a gender perspective is integrated in country and 
regional strategies and multiannual plans. 

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1.  INTRODUCTION 

This  briefing  paper  aims  at  assessing  the  extent  to  which  the  objectives  and  financial 
allocations proposed by the European Commission for the Multiannual Financial Framework 
(MFF) 2014-2020179, and further detailed in the relevant legal instruments180, promote and 
support gender equality and women’s empowerment in the Union’s external relations, and 
if they abide with the relevant objectives set out in the corresponding Union strategies. 

The EU is a major player on the international scenario and a key actor in global governance 
mechanisms, as it accounts for over 25% of the world’s GDP and a fifth of global trade. It 
provides  more  than  half  of  all  international  development  aid  (taking  into  account  Member 
States’  Official  Development  Assistance  flows)  and  is  the  world’s  biggest  donor  of 
humanitarian assistance. External policies are a major field of action for the EU, which have 
been reinforced by the new institutional framework foreseen by the Lisbon Treaty, covering 
a  wide  range  of  policy  priorities  and  instruments  and  involving  different  institutions  and 
bodies in its framing and implementation. 

Broadly  speaking,  EU’s  external  actions  are  the  instruments  through  which  the  Union 
carries  out  its  external  relations  and  foreign  policy  agenda.  Such  agenda  is  focused  on 
promoting  EU  values  abroad,  such  as  human  rights,  democracy  and  the  rule  of  law; 
addressing major  global  challenges;  increasing  the  impact  of EU development  cooperation 
and investing in the long-term prosperity and stability of the EU’s Neighborhood; enhancing 
European  solidarity  following  natural  or  man-made  disasters;  and  improving  crisis 
prevention  and  resolution.  The  European  Union’s  added  value  in  external  action  derives 
from its worldwide presence and long-standing experience in development cooperation and 
the promotion of democracy and human rights. 

The  relevance  of  EU’s  action  on  the  global  scene  has  important  implications  for  the 
progression of the goals of gender equality worldwide, as the EU’s external action, further 
strengthened  and  streamlined  by  the  Lisbon  Treaty,  can  have  an  important  impact  in 
promoting universal values and principles at the core of the EU’s functioning, including the 
promotion of human rights and of equality between women and men. 

The report is structured in three sections as follows: 

	 

	 

	 

After  providing  a  few  glimpses  of  the  main  gender  gaps  on  a  global  level,  with  a 
particular  focus  on  developing  countries,  Section  1  analyses  the  broad  policy  fields 
and  priorities  of  EU’s  external  action  and  identifies  the  underlying  gender  sensitive 
objectives  and  policies,  assessing  whether  they  have  been  integrated  into  the 
Strategy  for  Equality  between  men  and  women  2010  and  Europe  2020,  the  latter 
providing the blueprint for the development of the MFF 2014-2020. 

Section 2 analyses in a gender perspective the financial instruments through which 
the  EU  will  pursue  its  external  relations’  goals  in  the  next  programming  period,  as 
they  have  been  tabled  by  the  European  Commission  in  the  MFF  documents  and 
ensuing draft regulations that will have to be approved by the European Parliament. 

Finally,  Section  3  provides  an  overall  assessment  of  the potential  gender  impact  of 
the aforesaid instruments. 

179  COM(2011) 500 final and related documents. 

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The multi-annual financial framework 2014-2020 from a gender equality perspective 

2.  CONTEXT ANALYSIS 

2.1.	 

The situation of women in countries and regions covered by 
EU external actions 

Although with notable differences, the status of women worldwide is characterized by very 
low  levels  of  well-being  in  terms  of  human  development  indicators  (education,  health, 
income), coupled by high inequality levels with respect to men. This is the case particularly 
for  developing  and  emerging  countries  where  the  bulk  of  EU’s  external  action  is  focused.  
The  Millennium  Development  Goals  (MDGs)181  represent  a  benchmark  against  which 
progress  towards  a  world  free  of  poverty  and  multiple  deprivation  can  be  assessed, 
including  progress  towards  gender  equality  and  women’s  empowerment.  Few  glimpses  of 
these disparities182, taken from the United Nations’ Report on the achievement of MDGs183, 
provide an idea of women’s vulnerability in developing countries: 

	 

In  2008,  for  every  100  boys  enrolled  there were  96  girls  in  primary  school  and  95 
girls  in  secondary  school  in  developing  regions.  Since  2000,  gender  gaps  in  access 
to  education  have  narrowed,  but  disparities  remain  high  in  some  regions  (e.g. 
Oceania,  sub-Saharan  Africa  and  Western  Asia),  while  Latin  America  has  already 
met the target of equal primary enrolment. 

	  Despite  progress  made,  men  continue  to  outnumber  women  in  paid  employment, 
and women are often relegated to vulnerable forms of employment characterized by 
inadequate  earnings, 
low  productivity  and  substandard  working  conditions 
(especially  in  Western  Asia  and  Northern  Africa).  The  share  of  women  employed 
outside  of  agriculture  against  total  working  population  remains  as  low  as  20%  in 
Southern Asia, Western Asia and Northern Africa. 

	  Despite  significant  progress  in  maternal  health,  maternal  mortality  remains 
unacceptably high and is highest for adolescent girls. More than 350,000 women die 
annually from complications during pregnancy or childbirth (99 per cent of maternal 
mortality is in developing countries). 

Women’s  vulnerability  is  not  only  linked  to  access  to  basic  social  and  economic  resources 
such  as  health,  education,  paid  employment,  land  or  credit.  It  extends  to  several  other 
areas of fundamental rights such as political empowerment, with the global share of women 
in parliament set at 19 per cent in 2010, and women’s physical integrity and security, with 
women  and  children  representing  72  per  cent  of  the  world’s  33  million  refugees184.  It 
should be pointed out that there has been an increase in trafficking in women and girls for 

180	  The legislative package for Global Europe presented by the Commission on December 7, 2011 can be found at 

ec.europa.eu/europeaid/how/finance/mff/financial_framework_news_en.htm. 
181	  In 2000, 189 nations committed to the attainment of eight such goals by 2015:

http://www.un.org/millenniumgoals/.  MDG3  on  gender  equality  as  well  as  MDG2  on  universal  education  and 
MDG5 on maternal health cover explicit gender relevant objectives. 

182	  There are significant differences across different geographical areas/countries in terms of gender equality and 
women’s  empowerment  indicators.  More  detailed  information  can  be  found  on  the  United  Nations  MDG 
database (mdgs.un.org) or UNDP statistics portal (http://hdr.undp.org/en/statistics/gii/). Table I.1 in Annex 1 
provides  a  comparative  analysis  on  the  status  of  gender  inequality  according  to  the  UNDP  Gender  Inequality 
Index at regional level. 

183	  United Nations (2010), The Millennium Development Goals Report 2010. 
184	  UNHCR (2006) UNHCR Statistical Yearbook 2006: http://www.unhcr.org/statistics.html.  

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Policy Department C: Citizens' Rights and Constitutional Affairs 

forced labor and sexual exploitation between 1995 and 2005185, largely as a result of war, 
displacement, and inequalities between and within countries.186 

2.2. 

Policy priorities of EU’s external actions 

EU’s  external  actions  encompass  a  wide  spectrum  of  policy  fields  and  priorities  ranging 
from  diplomacy  to  security,  trade,  development,  humanitarian  aid  and  international 
negotiations.  Here,  two  broad  policy  fields  can  be  identified:  cooperation  strategies  with 
third  countries/regions  grouped  on  the  basis  of  geographical  or  socio-economic  criteria 
(such  as  cooperation  with  least  developed,  neighboring  countries  or  with  potential  EU 
candidates) and thematic policy areas based on the promotion of EU’s values and interests 
abroad (such as democracy and humanitarian intervention). 

2.2.1. 

Neighbourhood, enlargement, development and cooperation 

Cooperation based on geographical and socio-economic criteria is the most relevant policy 
field  of  EU’s  external  action,  at  least  in  terms  of  allocation  of  financial  resources.  The 
objectives of such cooperation may have a different focus depending on countries targeted: 
from  “traditional”  development  cooperation  goals  to  more  strategic  objectives  of  socio­
economic integration. 

EU  development  cooperation  is  focused  on  poverty  eradication,  the  promotion  of  good 
governance,  human  and  economic  development  and  finally  tackling  universal  issues  (i.e. 
fighting hunger and preserving natural resources in developing countries). In this field, the 
EU  is  committed  to  the  attainment  of  the MDGs,  as  stated  in  the  European Consensus on 
Development  of  2005187,  a  key  policy  document  of  EU’s  development  cooperation.  The 
Consensus identifies the areas in which the Union shall concentrate its activities188 as well 
as  the  issues  in  relation  to  which  mainstreaming  shall  be  strengthened,  including  gender 
equality. 

In  October  2011,  the  European  Commission  presented  its  Agenda  for  Change189,  with  the 
aim of paving the way for a more strategic and streamlined approach to development and 
poverty  eradication,  including  a  more  targeted  allocation  of  funding.  Development 
cooperation policy is integrated by regional strategies, such as the EU neighborhood policy 
(ENP)190  or  Joint  Africa-EU  Strategy191.  The  ENP  pursues  broad  development  objectives 
while  at  the  same  time  seeking  to  reinforce  relations  with  neighboring  countries  to  the 
South and the East of the Union in order to promote prosperity, stability and security at its 
borders,  while  the  EU-Africa  Strategy  is  the  overarching  political  framework  guiding  the 
relations between the two continents. 

Gender  equality  is  one  of  the  main  cross-cutting  issues  of  development  cooperation.  The 
2005  European  Development  Consensus  commits  the  EU  to  include  a  strong  gender 

185  Ellsberg, M. & Heise, L. (2005) quoted in:

http://www.usaid.gov/our_work/cross-cutting_programs/wid/wid_stats.html. 

186  These data are not meant to provide an accurate or complete analysis of the status of women in the world  -
this would not fall within the scope of the present report – rather to sketch some of the most urgent challenges 
to gender equality worldwide. 

187  OJ C 46 of 24.2.2006. 
188  These  are:  trade;  infrastructure;  rural  development,  agriculture,  and  food  security;  governance,  democracy, 
human rights and support for economic and institutional reforms; prevention of conflicts and of state fragility; 
human development; and social cohesion and employment. 

189  COM(2011) 637 final. 
190  COM(2004) 373 final. 
191  Http://www.africa-eu-partnership.org. 

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The multi-annual financial framework 2014-2020 from a gender equality perspective 

component  in  all  its  policies  and  practices  in  its  relations  with  developing  countries  and 
identifies  gender  equality  as  one  of  the  five  common  principles  of  EU  development 
cooperation. The 2007 Communication on Gender Equality and Women’s Empowerment in 
Development  Cooperation192  sets  the  basis  for  a  coordinated  EU  approach,  identifying  the 
key areas of policy intervention (governance, employment, education, health and domestic 
violence).  The  document  contains  guidelines  on  how  to  improve  the  integration  of  gender 
equality  into  development  policy  and  the  different  budget  lines  available  to  promote  it.  In 
March  2008  the  European  Parliament  adopted  a  critical  assessment  report  on  the 
Commission’s  strategy,  entitled  Resolution  on  Gender  Equality  and  Women  Empowerment 
in Development'193. 

The  2010  Staff  Working  Document  EU  Plan  of  Action  on  Gender  Equality  and  Women's 
Empowerment  in  Development194  implements  the  2007  Communication  and  Council 
Conclusions.  It  is  an  operational  document  aiming  to  improve  the  EU’s  work  to  advance 
gender  equality  in  developing  countries  and  is  particularly  aimed  at  speeding  the 
attainment  of  MDG  3  on  Gender  Equality  and  Empowerment  and  MDG  5  on  Maternal 
Health.  The  Council  Conclusions  reiterate  the  Union’s  “strong  commitment  to  gender 
equality  as  a  human  right,  a  question  of  social  value  and  a  core  value  of  the  EU 
development  policy.”  Accordingly,  it  aims  at  meeting  the  goals  of  the  main  international 
agreements  on  support  to  gender  equality  such  as  the  Convention  on  the  Elimination  of 
Discrimination  against  Women  (CEDAW),  the  Beijing  Platform  for  Action  and  the  Cairo 
Program  of  Action.  The  2010  action  plan  reiterates  the  need  to  systematically  include 
gender  equality  in  political  and  policy  dialogues  with  partner  countries  so  as  to  raise 
awareness and encourage change. Furthermore, it proposes training on gender equality for 
staff  in  the  European  External  Action  Service  (EEAS)  and  relevant  Commission  services. 
Finally,  it  calls  for  integrating  gender  equality  issues  into  the  annual  and  multi–annual 
planning process and to apply internationally accepted standards such as the OECD Gender 
Equality Policy Marker to track aid devoted to this issue. The Plan includes 37 actions and 
53  indicators  and  foresees  an  accountability  system  for  Member  States,  the  Commission, 
the  EEAS  and  EU  Delegations.  The  first  report  on  the  implementation  of  the  Action  Plan, 
taking  stock  of  reports  from  Member  States  and  EU  Delegations  and  covering  indicators 
foreseen for 2010-2011, was delivered by the EC on November 23, 2011.195 

The EU adopts a dual-track strategy for the support of gender equality in external actions, 
on  the  same  lines  as  it  does  for  internal  actions.  This  strategy  foresees  both  gender  
mainstreaming activities as well as specific positive actions. It is further supported by the 
inclusion  of  gender  equality  and  women’s  empowerment  issues  in  political  and  policy 
dialogue with partner countries.  

The EC strategy on gender and development is also reflected in regional external policies. 
The Joint Communication on a New Response to a changing neighborhood of May 2011196, 
for  example,  reviewing  the  European  Neighborhood  Policy,  underlines  the  commitment  to 
human rights and fundamental freedoms by supporting the ratification of instruments and 
full  compliance  with  their  provisions,  including  a  strong  commitment  to  promoting  gender 
equality.  Women’s  participation  in  political  and  economic  life  is  recognized  as  a  crucial 
challenge  in  addressing  sustainable  economic  growth  and  job  creation,  the  major  pillar  of 
the neighborhood strategy. The Joint Africa EU Strategy identifies gender equality as one of 

192  COM (2007) 100 final.
 
193  2007/2182(INI).
 
194  SEC (2010) 265 final.
 
195  SEC (2011) 1437 final.
 
196  http://ec.europa.eu/world/enp/pdf/com_11_303_en.pdf.
 

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Policy Department C: Citizens' Rights and Constitutional Affairs 

the  founding  principles  of  the  partnership  and  integrates  gender  empowerment  objectives 
across  several  of  its  partnerships,  namely  governance,  health,  education  and  economic 
growth. 

To  some  extent,  also  enlargement  policy  is  part  of  the  broader  development  agenda.  It 
should  be  added,  however,  that  the  overall  objective  of  enlargement  policy  is  not  the 
eradication of poverty, but rather to support candidate or potential candidates in improving 
the socio-economic conditions, institutional and legal frameworks that would put them in a 
position  to  accept  and  transpose  the  European  acquis,  including  provisions  for  gender 
equality, with a view of becoming a Member of the Union. 

2.2.2. 

Thematic policy areas 

Human rights, stability and peace building 

The  promotion  of  women’s  rights  is  at  the  heart  of  the  EU’s  interventions  on  this  theme. 
With  the  Guidelines  on  violence  against  women  and  girls  and  combating  all  forms  of 
discrimination  against  them,  adopted  in  2008,  the  EU  has  made  a  clear  commitment  to 
address one of the major human rights violations, thus recognizing women’s rights, hence 
gender equality, as a political priority197. As a result, the issue is introduced in all relations 
with  non-EU  countries  and  regional  organizations,  mainly  concerning  the  compliance  and 
application  of  national  legal  frameworks  with  international  standards  and  commitments. 
Support  for  human  rights  defenders  is  another  long  established  element  of  the  Union’s 
policy.  In  addition,  in  2008  the  Council  adopted  the  United  Nations  Security  Council 
Resolutions  1325  and  1820  on  Women,  Peace  and  Security198.  Both  resolutions  recognize 
the close link between the prevention of gender-based violence and the opportunities made 
available to women to participate politically, to achieve a sustainable livelihood and to feel 
secure in their communities during and after conflict. With this political decision the EU has 
adopted a comprehensive approach particularly relevant for the EU’s external actions. 

Humanitarian Aid and Protection 

The Lisbon Treaty recognizes humanitarian aid as a self standing policy in the area of the 
EU’s external action promoting the active participation of women in humanitarian aid. The 
increase in the number of natural and man-made disasters and their economic impact calls 
for  systematic  action  at  European  level  to  strengthen  preparedness  and  to  enhance 
response  capacities,  both  inside  and  outside  the  EU.  Women,  with  children  and  other 
disadvantaged groups, are oftentimes the worst hit by these disasters. In accordance with 
the  European  Consensus  on  Humanitarian  Aid199,  gender 
the  commitments  of 
considerations and women's specific needs shall be systematically taken into account in EC 
humanitarian assistance. In particular Section 2.5 of the Consensus makes specific mention 
of  the  “gender  dimension  in  Humanitarian  Aid”  with  commitments  to  focus  on  difference 
and  participation.  The  gender  dimension  is  further  reinforced  in  paragraph  39  with 
commitments to focus on particular vulnerabilities and protection strategies against sexual 
and  gender  based  violence.  The  European  Union  also  recognizes  that  the  active 
participation of women in humanitarian aid is essential, and shall be promoted. 

197  The guidelines are aimed at: i) promoting gender equality and combating discrimination; ii) gathering data and 
developing  indicators;  iii) designing  strategies  to  prevent  violence  and  protect  victims;  iv) combating  the 
impunity of perpetrators. 

198  Council of the European Union, 15671/1/08 REV 1. 
199  OJ, C25 1, 30.01.2008. 

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The multi-annual financial framework 2014-2020 from a gender equality perspective 

2.3.	 

Europe 2020 and the Strategy for Equality between men and 
women 

The  Strategy  for  equality  between  women  and  men  2010-2015200,  endorsed  by  the 
Commission on the 21 September 2010, represents the Commission's work programme on 
gender equality for 2010-2015. The Strategy spells out actions under the five priority areas 
defined  in  the  Women’s  Charter,  and  one  area  addressing  cross-cutting  issues.  For  each 
priority area, key actions to stimulate change and achieve progress are described. Gender 
equality  in  external  action  is  included  as  the  fifth  priority  area  of  the  Strategy.  It  is 
acknowledged  that  “through  all  relevant  policies  under  its  external  action,  the  EU  can 
exercise  significant  influence  in  fostering  gender  equality  and  women’s  empowerment 
worldwide”.  Key  actions  include  encouraging  EU’s  partners  in  supporting  gender  equality 
by, inter alia, monitoring adherence to the Copenhagen criteria for  accession to the EU in 
the field of equal treatment between women and men, accompanied by assistance for the 
Western Balkan countries and Turkey with the transposition and enforcement of legislation, 
by  implementing  the  EU  Plan  of  Action  on  Gender  in  Development,  by  encouraging  ENP 
partner  countries  to  promote  gender  equality  through  regular  policy  dialogue,  and  by 
further integrating gender considerations into EU humanitarian aid. 

The Europe 2020 Strategy does not bear explicit reference to gender equality priorities or 
objectives,  nor  sets  specific  gender  equality  targets201.  Likewise  in  Section  3.3  of  the 
Strategy  titled  “Deploying  our  external  policy  instruments”,  gender  equality  does  not 
appear to be among the concerns or underlying principles guiding the future strategy of the 
EU  in  this  policy  field.  Instead  of  integrating  a  gender  perspective  within  the  Strategy,  as 
called  for  by  the  European  Parliament  and  several  contributors  during  the  Consultation 
process,  the  approach  has  been  to  keep  Commission  and  Member  State  action  on  gender 
equality separate from the Europe 2020 Strategy, being located in the mechanisms of the 
Women’s  Charter,  the  Gender  Equality  Strategy  for  2010-15  and  the  Pact  for  Gender 
Equality 2011-2020. 

2.4.	 

Gender objectives in external relations 

The  most  urgent  gender  equality  challenges  identified  by  the  international  debate  on 
development  and  gender  as  embodied  by  the  main  development  organizations202,  in 
particular covering key objectives of the Millennium Development Declaration, are identified 
in  the  list  below.  These  objectives  are  in  line  with  the  priorities  identified  by  the  main 
international agreements on gender equality203. They are (the list not being exhaustive): 

	 

	 

Improve women’s access to education (including fighting illiteracy and promoting 
access  to  basic  education  for  girls,  as  foreseen  by  MDG3  on  Gender  equality  and 
empowerment; 

Improve women’s economic empowerment including access to employment and 
paid work, as foreseen by MDG3; 

200  COM (2010) 0491 final.
 
201  For a more detailed analysis of the issue Smith M.J., Villa P. (forthcoming), “Gender Equality and the Evolution 


of the Europe 2020 Strategy”, in: Bulletin of Comparative Labour Relations. 

202  Such as OECD/DAC, UNIFEM or UNDP. 
203  Such as the Beijing Platform of Action, the Cairo Plan of Action and CEDAW. 

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Policy Department C: Citizens' Rights and Constitutional Affairs 

	 

	 

	 

Improve  women’s  health,  with  particular  attention  to  sexual  and  reproductive 
health  and  rights,  including  the  achievement  of  MDG5  (improve  maternal  health) 
and MDG 6 (combat HIV/AIDS); 

including  political 
Improve  women’s  civil  and  political  empowerment, 
representation,  as  foreseen  by  MGD3,  their  role  as  peace  builders,  protecting  their 
human rights; 

End gender  based violence (including victims’ protection during civil and military 
interventions). 

Table 15. shows the coherence of these objectives with the EU external relations policies as 
emerging  from  the  main  EU  documents  related  to  external  actions  policy  areas204  and 
indicates  whether  they  have  been  integrated  in  the  Strategy  for  equality  between  women 
and men and the Europe 2020 Strategy. 

Complementary to the five objectives identified in the list above, the EU also supports the 
enforcement  of  gender  equality  legislation  and  transposition  of  EU  acquis  on  gender 
equality as key instruments of gender equality. 

Table 15. Gender objectives for EU’s external actions 

Gender Objectives 

Context 
Analysis 

EU external 
relations 
policies 

Improve women’s access to education 
Improve women’s economic 
empowerment 
Improve women’s health 
Improve women’s civil and political 
empowerment 
End gender based violence 
Support enforcement of gender equality 
legislation 
Support the transposition of EU acquis on 
gender equality 

X 

X 

X 

X 

X 

X 

X 

Gender equality 
and women’s 
empowerment 

Strategy 
for 
Equality 
2010-15 
X 

X 

X 

X 

X 

X 

X 

Europe 
2020 
Strategy 

-

-

-

-

-

-

-

Table 15 shows that the gender objectives emerged from the context analysis in Section 1 
are  integrated  in  the  main  EU  external  policy  documents  under  the  macro  objective  of 
gender equality and women’s empowerment - which is one of the cross-cutting principles of 
EU’s external action – as well as in the Strategy for Equality 2010-2015. The Europe 2020 
strategy instead does not adopt a gender perspective. 

204  See in particular: the 2005 Development Consensus, the 2011 Agenda for Change, the European Neighborhood 

Policy or the joint EU-Africa strategy. 

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The multi-annual financial framework 2014-2020 from a gender equality perspective 

3.  GENDER ANALYSIS OF THE FINANCIAL INSTRUMENTS 

The Communication on the MFF 2014-2020, ‘A Budget for Europe 2020’ sets the budgetary 
framework  for  EU  external  action  instruments  under  Heading  4  (Global  Europe)  for  an 
overall  allocation  of  €  70,000  million,  corresponding  to  approximately  6%  of  the  total 
budget  allocation.  In  December  2011  the  Commission  presented  a  legislative  package  as 
part of the proposals for the next MFF, consisting of a joint Communication entitled ‘Global 
Europe’205,  a  Common  Regulation  for  External  Instruments206  and  legislative  proposals  for 
nine  geographic  and  thematic  instruments.  The  total  amount  proposed  for  this  external 
relations  package,  to  be  financed  by  the  EU  budget,  is  € 61,975  million  (current  prices) 
over  the  period  2014-2020  (see  tab.  2).  This  allocation  will  be  complemented  by  funding 
for  the  European  Development  Fund  (€ 34,276  million),  outside  the  EU  budget207.  In 
addition  to  the  above,  instruments  such  as  Humanitarian  Aid  and  Civil  Protection  will 
continue  to  be  funded  under  the  “Global  Europe”  Heading  of  the  MFF  2014-2020,  with  an 
estimated budget of € 6,400 million. 

Table  16:  MFF  2014-2020:  allocation  of  appropriations  for  Heading  4  “Global 
Europe” (M €) 

Development Cooperation Instrument (DCI) 
Instrument for Pre-Accession (IPA) 
European Neighborhood Instrument (ENI) 
Partnership Instrument (PI) 
Instrument for Stability (IfS) 
Eu Instrument for Democracy and Human Rights (EIDHR) 
Instrument for Nuclear Safety and Cooperation (INSC) 
Instrument for Greenland 
Total 

 23,295  
 14,110  
 18,182  
1,131 
2,829 
1,578 
631 
219 
61,975 

External action funded by the EU budget is mainly targeted, at least in terms of importance 
of  financial  resources,  to  developing  and  emerging  countries  in  Africa,  the  Middle  East, 
Asia,  and  Latin  America208.  These  countries  receive  approximately  70%  of  EU  external 
action  budget 
the  European 
Neighborhood  Instrument,  the  Humanitarian  Aid  Instrument  and  other  smaller  financial 
envelopes. EU pursues a differentiation approach in its development cooperation activities, 
conveying more resources to those countries that are more in need of assistance. 

the  Development  Cooperation  Instrument, 

through 

Candidate  and  potential  candidate  countries209  receive  approximately  18%  of  EU  external 
action resources through the Instrument for Pre-Accession. They could also be  considered 
developing  countries  (with  the  exception  of  Croatia  and  Iceland),  as  they  fall  under  the 
Upper Middle Income Countries group of the OECD DAC210 list. 

205  COM(2011) 865 final. 
206  COM(2011) 842 final. 
207  The  biggest  program  financing  development  cooperation,  covering  Sub-Saharan  Africa  (except  South  Africa) 

and Caribbean and Pacific countries, is thus outside of the EU budget. 

208	  Sub-Saharan  countries  (with  the  exception  of  South  Africa)  as  well  as  developing  countries  in  the  Caribbean 
and  Pacific  receive  their  main  funding  through  the  European  Development  Fund,  which  is  not  part  of  the  EU 
budget. 

209	  At the moment, there are five candidate countries: Croatia (whose Accession Treaty is to be signed on 9 Dec 
2011¸  Croatia  is  expected  to  become  a  Member  State  on  1  July  2013),  Iceland,  Montenegro,  the  Former 
Yugoslav Republic of Macedonia and Turkey. Albania, Bosnia and Herzegovina, Serbia, and Kosovo also share 
the European perspective, they are called potential candidate countries. 

210	  The  DAC  List  of  ODA  Recipients  shows  all  countries  and  territories  eligible  to  receive  Official  Development 
Assistance.  These  consist  of  all  low  and  middle  income  countries,  except  G8  members,  EU  members,  and 
countries with a firm date for entry into the EU. 

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Policy Department C: Citizens' Rights and Constitutional Affairs 

The  proposal  of  a  Regulation  establishing  common  rules  and  procedures  for  the 
implementation  of  the  Union’s  instruments  for  external  action  outlines  the  main 
implementing  rules  and  covers  all  the  legal  instruments  of  external  actions  mentioned 
above.  The  regulation  does  not  foresee  any  procedure  concerning  gender  mainstreaming 
nor  provides  targets  or  benchmarks  concerning  gender  (in  terms  of  financial  allocation, 
reporting,  integration  in  other  issues,  etc.),  while  for  example  it  requests  a  separate 
reporting on environmental issues. 

The  following  sub-sections  will  present  a  quick  overview  of  the  main  legal  instruments 
foreseen  under  Heading  4  (Global  Europe),  their  objectives,  components  and  financial 
allocation  as  well  as  their  underlying  gender  strategy  as  it  can  be  evinced  from  the 
proposed regulations. 

3.1. 

Development Cooperation 

The  proposal  for  a  Regulation  establishing  a  financing  instrument  for  development 
cooperation211  outlines  the  main  regulatory  framework  for  the  renewed  Development 
Cooperation  Instrument  (DCI),  the  main  instrument  in  the  area,  receiving  under  the  new 
MFF  an  allocation  of  € 24  bn,  making  it  the  biggest  instrument  under  the  Global  Europe 
Heading. 

Box 1: The Development Cooperation Instrument 
The main elements of the renewed DCI are: 

  geographic  programmes:  they  will  support  bilateral  and  regional 
cooperation  with  developing  countries  (outside  those  covered  by  the 
ENI, IPA and the EDF); 

  two thematic programmes benefiting all developing countries (including 

countries covered by the ENI and the EDF):  

a) 

iii) human  development, 

'Global  public  goods  and  challenges':  this  programme  should 
address the main global public goods and challenges, organised 
in  five  macro  areas:  i) environment  and  climate  change, 
iv) food  security,  and 
ii) energy, 
v) migration  while  ensuring  coherence  with  the  poverty 
reduction objective. No less than 25% of this programme will be 
spent  on  climate  change  and  environment  objectives.  At  least 
20% of the programme will support social inclusion and human 
development. 

b) 

this 
'Civil  society  organisations  and 
programme will provide greater support to civil society and local 
authorities  to  encourage  these  actors  to  play  a  bigger  role  in 
development strategies. 

local  authorities': 

The  DCI  will  also  include  a  new  Pan-African  programme  to  support  the 
implementation  of  Joint  Africa-Europe  Strategy.  This  programme  will  support 
activities  of  trans-regional  and  continental  nature  in  Africa  and  also  specific 
initiatives. 

211  COM(2011) 840 final. 

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The multi-annual financial framework 2014-2020 from a gender equality perspective 

According  to  the  proposed  Regulation,  gender  equality  and  women’s  empowerment  are 
cross-cutting issues to be mainstreamed in all DCI actions, along with ten more issues212. 
Objectives  and  general  principles  of  the  DCI  have  been  formulated  in  line  with  the  Lisbon 
Treaty  and  the  latest  development  policies,  notably  the  'Agenda  for  Change'  which  places 
the objective of gender equality and women’s empowerment within the macro objective of 
supporting human rights, democracy and other elements of good governance. Furthermore 
gender equality and women’s empowerment is identified, under the heading “Human rights, 
democracy and other key elements of good governance”, as one of the Common Areas of 
Cooperation  around  which  geographic  programmes  might  be  drawn  (Annex  IV  to  the 
Regulation). 

As regards specific areas of cooperation per region (Annex V): 

-

-

Gender  equality  and  women’s  empowerment,  together  with  decent  work  and  social 
inclusion, is one of the seven areas under which DCI action can be funded in Latin 
America and the Middle East. 

Sexual  and  gender  based  violence  and  health  issues,  including  HIV/AIDS  is  one  of 
the five areas under which DCI action can be funded in South Africa. 

The proposed regulation for the DCI does not  provide indications as to how much funding 
should  be  devoted  to  gender  specific  actions  or  to  supporting  gender  mainstreaming  in 
geographical programmes and gender equality and women’s empowerment is not a priority 
area of intervention per se. 

The  Global  Public  Goods  thematic  programme  foresees  gender  equality  and  women’s 
empowerment  among  the  different  areas  of  cooperation  under  the  macro  area  of  Human 
Development. Within this context gender equality and women’s empowerment actions shall 
support both: 

(i)  	 country  level  programmes  to  promote  women's  economic  and  social  empowerment 

and political participation; and  

(ii)  initiatives to promote the integration of this issue in the aid effectiveness agenda. 

Human  Development  foresees  other  fields  of  activity  with  a  specific  focus  on  gender 
equality objectives such as: 

a)  supporting maternal, sexual and reproductive health and improving equal access to 

education; and 

b)  strengthening social inclusion of specific disadvantaged groups, including women. 

The  DCI  Regulation  foresees  that  at  least  20%  of  the  Global  Public  Goods  programme, 
equivalent  to  € 1,206.44  million  shall  support  Human  Development.  It  does  not  specify 
however how  much  of  the  Human  Development  resources  will  be  targeted  to  gender.  The 
current DCI 2007-2013 foresees a specific envelope for gender equality under the thematic 
programme ‘Investing in People’ (€ 57 million). The mid-term review of the programme213 
however shows that this funding is extremely limited and mostly targeted at ENI countries, 
and  that  no  concrete  actions  have  been  undertaken  to  mainstream  gender  equality  as  a 
cross cutting issue. Under the new programming, Investing in People has been discontinued 

212  Such as non discrimination, democracy, good governance, rights of child and indigenous people. 
213  http://ec.europa.eu/development/icenter/repository/investing_people_mid-term_review.pdf. 

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Policy Department C: Citizens' Rights and Constitutional Affairs 

and merged in the Global Public Goods programme; as such it is not possible to say at this 
stage whether the current allocation will be increased in the future programming.  

3.2.	 

Neighbourhood 

The  new  European  Neighborhood  Instrument  (ENI)214  (€18.2  bn)  is  the  second  largest 
financial instrument under Heading 4 and will continue to provide the bulk of funding to the 
European Neighborhood countries (that will also receive assistance from the DCI’s thematic 
programmes),  essentially  through  bilateral,  regional  and  cross  border  co-operation 
programmes.  Funding  would  increase  by  over  50%,  compared  to  the  current  European 
Neighborhood and Partnership Instrument. 

The  new  ENI’s  support  will  be  provided  in  the  areas  of  democracy  and  human  rights  – 
including  principles  of  equality  -,  the  rule  of  law,  good  governance  and  sustainable 
development. The Regulation adopts a strong gender mainstreaming approach as it states 
that  “Gender  equality  and  anti-discrimination  should  be  a  cross-cutting  objective  in  all 
actions  undertaken  under  this  Regulation”  as  one  of  its  founding  principles.  However, 
beside  a  general  support  to  the  “principle  of  equality”,  ENI  does  not  foresee  specific 
objectives or areas targeted to gender equality. 

3.3.	 

Enlargement 

A  single  Instrument  for  Pre-Accession  Assistance  (IPA)215  for  Community  assistance  to 
candidate  and  potential  candidate  countries  has  been  foreseen  by  the  MFF  with  a  total 
allocation of €14.1 bn. According to the needs of each beneficiary country, assistance under 
IPA shall pursue the objectives of support for (a) political reforms and (b) economic, social 
and territorial development. Assistance under this Regulation shall be provided on the basis 
of country or multicountry indicative strategy papers. 

Gender equality is seen as one of the key areas for the promotion of political reforms and 
for  supporting  human  rights  and  fundamental  freedoms  (Art  2.1  point  (a)  ii  of  the 
Regulation). According to the key actions of the Strategy for Equality, the EC shall monitor 
and support adherence to the Copenhagen criteria in the field of equal treatment between 
women  and  men,  and  assist  Western  Balkan  countries  and  Turkey  with  the  transposition 
and  enforcement  of  legislation.  However,  no  further  specific  elements  are  provided  in  the 
Regulation as to the monitoring of actions in a gender perspective or as a minimum rate of 
expenditure  to  be  allocated  to  gender  specific  actions,  or  to  actions  supporting 
mainstreaming. 

3.4.	 

Human 
intervention 

rights,  crisis  management  and  humanitarian 

The  MFF  foresees  a  reinforced  European  Instrument  for  Democracy  and  Human  Rights 
(EIDHR)216,  an  instrument  allowing  for  assistance  independent  from  the  consent  of  third 
country governments and other public authorities regarding the support of democracy and 
the  rule  of  law  in  third  countries  as  well  as  respect  for  all  human  rights  and  fundamental 
freedoms.  Within  this  broad  objective,  the  EIDHR  addresses  several  fields  of  action, 
including  the  equal  participation  of  men  and  women  in  social,  economic  and  political  life, 
the participation and political representation of women; the fight against discrimination; the 

214  COM(2011) 839 final. 
215  COM(2011) 838 final. 
216  COM(2011) 844 final. 

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The multi-annual financial framework 2014-2020 from a gender equality perspective 

rights of women including measures to combat any form of violence against them. Art 2.2 
of  the  proposed  regulation  states  that  gender  equality  and  principles  shall  be  integrated 
across all assistance measures. 

The  Instrument  for  Stability  (IfS)217  receives  an  allocation  of  €2.8  bn.  It  will  focus  on 
conflict prevention, peace building and state building. Among a wide range of technical and 
financial assistance, areas foreseen by the IfS, the proposed Regulation (Art. 3) identifies, 
firstly,  the  development  of  democratic,  pluralistic  state  institutions,  including  measures  to 
enhance the role of women in such institutions; and, secondly, support for specific needs of 
women  and  children  in  crisis  and  conflict  situations,  including  their  exposure  to  gender-
based violence and support for their rehabilitation and reintegration when victims of armed 
conflict.  The  Instrument  shall  also  support  development  and  organisation  of  civil  society 
and  its  participation  in  the  political  process,  including  measures  to  enhance  the  role  of 
women in such processes. 

The Humanitarian Aid Instrument (€6.4 bn) – not part of the legislative package presented 
by  the  Commission  in  December  2011  -  provides  response  to  natural  and  man-made 
disasters, based on the international principles of humanitarian law, and through the use of 
specialised organisations. 

3.5.	 

Strategic cooperation with third countries 

The  Partnership  Instrument218  is  a  new  programme  foreseen  by  the  MFF  2014-2020  (€1 
bn)  providing  ad  hoc  support  for  cooperation  with  all  third  countries  (non-developing  and 
developing219). It will aim to advance and promote EU interests and to address major global 
challenges.  It  will  also  allow  the  EU  to  pursue  agendas  beyond  development  cooperation 
with  industrialised  countries,  emerging  economies,  and  countries  where  the  EU  has 
significant  interests.  For  this  instrument,  the  proposed  regulation  does  not  mention  the 
promotion  of  gender  equality  issues  (whether  as  a  cross  cutting  principle  or  as  a  specific 
objective). 

4.	  ASSESSING  THE  GENDER  RELEVANCE  OF  EU’S 

EXTERNAL ACTIONS 

4.1.	 

Gender  budgeting  of  the  financial  instruments  for  external 
action 

It is not possible at this stage of the MFF programming cycle to provide an estimate of the 
funds  that  are  likely  to  be  allocated  through  the  different  instruments  to  gender  equality, 
let  alone  to  the  attainment  of  specific  gender  objectives  of  external  action  identified  in 
Section  1.  On  the  basis  of  available  information,  as  summarized  in  Section  2,  table  3 
identifies  the  main  gender  objectives  that  are  likely  to  be  addressed  by  the  different 
instruments here considered. 

217  COM(2011) 845 final. 
218  COM(2011) 843 final. 
219  Except developing countries receiving bilateral assistance from DCI. 

161
 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
                                                 
  
 
  
 
  
 
Policy Department C: Citizens' Rights and Constitutional Affairs 

Table 17: Budgeting the gender objectives in external action instruments 

Gender objectives 

DC 
I 

Financial Instruments 
IfS 
EN 
I 

EIDH 
R 

IP 
A 

P 
I 

IH 
A 

+  + 

+  + 

+  + 

+  + 

1. Improve women’s access to 
education (incl MDG3) 
2. Improve women’s economic 
empowerment (incl MDG3) 
3. Improve women’s health (incl 
MDG5) 
4. Improve women’s civil and 
political empowerment 
5. End gender based violence, 
incl. in emergency situations 
6. Support enforcement of gender 
equality legislation 
7. Support the transposition of EU 
acquis on gender equality 

+ 

+ 

+ 

+ 

+ 

+  + 

DCI  and  ENI  are  expected  to  have  a  positive  impact  on  gender  objectives  1,  2  and  3  as 
these are closely related to the overall objective of poverty eradication and the attainment 
of the relevant MDGs. They are expected to have a positive impact also on objective 4 as 
this  is  closely  related  to  the  promotion  of  democracy,  the  rule  of  law  and  fundamental 
rights  and  freedoms  that  are  also  key  objectives  of  the  two  programmes.  EIDHR  and  IfS 
are likely to have a positive impact on the gender objective 4 (improving women’s political 
empowerment)  and  5 (ending  gender  based  violence).  IPA  is  expected  to  support  partner 
countries  in  the  transposition  of  EU  acquis,  including  gender  equality  and  enforce  gender 
equality  legislation  mainly  in  the  areas  of  non  discrimination  and  equal  opportunities.  The 
Instrument for Humanitarian Aid will likely focus on protection strategies against sexual and 
gender based violence. 

The  new  Partnership  Instrument  (PI)  does  not  make  any  reference  to  a  gender  strategy. 
This would be instead particularly important as it deals with areas that are only apparently 
“gender neutral” (such as trade, cooperation on strategic issues and global challenges) but 
that could have a relevant impact on gender issues. For example, while the positive impact 
of trade and liberalization on economic growth is generally recognized, it is important that 
developing  economies,  and  within  them  the  most  vulnerable  population  groups  –  such  as 
women -, are protected from the adverse effects of market openings, including the gradual 
erosion  of  benefits  deriving  from  preferential  trade  agreements.  Women  are  particularly 
vulnerable  both  as  final  consumers  and  as  small  producers.  Furthermore,  this  new 
instrument  provides  for  cooperation  with  developing  countries  that  “graduated”  from 
bilateral  development  cooperation  assistance  (such  as  Argentina,  Ecuador,  Colombia  or 
Thailand) under the current programming. These countries, although on a path of sustained 
development,  are  still  characterised  by  high  inequality  levels  and  will  see  part  of  their 
official  development  aid  replaced  by  more  strategic  and  less  concessionary  aid  that  might 
be less “gender sensitive”. 

At least five programmes (DCI, ENI, IPA, EIDHR, IfS) identify gender as one of the areas in 
which support actions might be funded, mostly within the ambit of the promotion of human 
rights  and  fundamental  freedoms.  They  additionally  identify  gender  equality  among  the 
funding principles of their actions, thus recognising the horizontal nature of gender equality 
support.  However,  they  mostly  rely  on  gender  mainstreaming  and  fail  to  define  clear 

162
 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
The multi-annual financial framework 2014-2020 from a gender equality perspective 

financial allocations for reaching the gender equality targets. Furthermore, even if strategic 
documents  underlying  the  main  instruments  of  EU  external  actions  acknowledge  the 
importance of gender equality principles they also still fall short of setting clear and binding 
gender relevant targets. As it has been mentioned, key actions and milestones are set only 
at  the  level  of  gender  specific  policies,  such  as  the  Strategy  for  equality  between  women 
and  men  2010-2015  and  the  action  plan  for  women  in  development  (2010).  The  2011 
report  on  the  implementation  of  the  action  plan  surely  represents  an  important  step  in 
providing a more detailed and focused gender analysis of development cooperation actions. 
However, indications as to the level of compliance to this plan do not emerge clearly as the 
report is still considered a “learning exercise to be followed by discussions with EU Member 
States, the EEAS and Delegations in order to reach a common understanding of indicators” 
(p. 27). 

Lack of systematic monitoring and evaluation data 

A  major  obstacle  to  the  assessment  of  the  gender  impact  of  MFF  and  related  instruments 
concerns  the  lack  of  systematic  monitoring  and  evaluation  data  concerning  the  support  of 
gender equality objectives by current external action instruments (both in terms of funding 
as  well  as  of  impact  and  effectiveness).  In  addition,  gender  relevant  information  collected 
from  evaluation  of  past  programmes  and  mid-  term  reviews  of  current  programming  is 
scarce  and  dispersed,  not  making  possible  to  predict  future  impact  on  the  basis  of  past 
results. 

The  most  recent  gender  evaluation  in  an  external  action  policy  field  dates  back  to  2003 
when  the  EC  published  the  report  "The  integration  of  Gender  in  EC  Development  Co­
operation  with  Third  Countries220".  The  report  showed  that  the  endorsement  of 
mainstreaming  and  adoption  of  a  consistent  gender  equality  regulatory  framework  by  the 
EU did not translate into structural change. In particular, the financial resources specifically 
allocated to support the integration of gender in development co-operation were negligible. 
Most  importantly,  it  denounced  the  “near  total  absence  of  information  and  data,  and  no 
systematic  monitoring  or  evaluation”  that  “makes  it  nearly  impossible  to  identify  any 
positive  or  negative  impact  on  women  and  men  relative  situation.  This,  in  turn,  places  a 
severe constraint on informed policy-making and the formulation of appropriate strategies 
and interventions to reduce gender inequalities”. 

Since  2003,  the  EU  has  made  important  steps  in  the  direction  of  a  more  effective  and 
substantial implementation of its gender equality strategy in development, notably with the 
publication of the 2010 Plan of Action, which will likely have a positive impact on some of 
the  major  deficiencies  identified  by  the  evaluation.  However,  to  date,  the  allocation  of 
gender  specific  resources  is  still  very  limited,  especially  compared  to  other  cross-cutting 
themes, and so is the availability of information and data. 

Available  evaluation  reports  for  the  MEDA  II  and  TACIS  programmes  (approximately 
covering  ENI  countries)  noted  that  cross-cutting  issues,  in  particular  gender  and 
environment,  have  not  been  generally  addressed  and  systematically  integrated  into  EC 
interventions, outside the interventions targeted on them. They were recognised as critical 
per  se  and  key  for  economic  and  social  development  and  received  attention  in  the 
Commission’s programming documents. However the nature of the problems and especially 
the  solutions  to  offer  were  not  the  object  of  an  in-depth  analysis.  A  few  specific 
interventions  both  at  bilateral  and  regional  levels  addressed  cross-cutting  issues:  in 

220  http://ec.europa.eu/europeaid/how/evaluation/evaluation_reports/reports/sector/951644_vol1_en.pdf. 

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Policy Department C: Citizens' Rights and Constitutional Affairs 

particular  gender  issues  received  attention  through  interventions  in  the  field  of  human 
rights, civil society and agriculture for gender221. 

The  Annual  Reports  on  Development  Cooperation  only  provide  very  limited  qualitative 
information on gender equality actions or progress and no quantitative breakdown. 

Some valuable information in this regard is provided by OECD/DAC data collected through 
the  Gender  Equality  Policy  Marker  of  the  Creditor  Reporting  System  requesting  donor 
member  countries  to  screen  their  Official  Development  Aid  (ODA)  flows  as  either  (i) 
targeting gender equality as a “principal objective” or a “significant objective”, or (ii) “not 
targeting”  the  objective222.  Flows  falling  under  point  i)  are  defined  “gender  focused”. 
According to OECD data, on average EU institutions223 commitments in 2007-2009 covered 
approximately  10%  of  total  gender  focused  ODA  flows  worldwide,  corresponding  to 
approximately  to  22%  and  16%,  respectively  in  2007  and  2008,  of  total  EU’s  institutions 
ODA screened against the Gender Equality Policy Marker. It should be noted that by far the 
largest  share  of  gender  focused  aid  targets  gender  as  a  “significant”  rather  than  as  a 
“principal”  objective.  In  absolute  values,  Government  and  civil  society  programs  receive 
almost  one  fifth  of  gender  focused  EU’s  ODA,  followed  by  Education,  other  social 
infrastructure and services. Concerning the share of gender equality focused aid in total aid 
screened against the gender equality marker (Table 4), the sector with by far the highest 
gender  focus  is  education,  followed  by  health  with  respectively  42.5  and  29.8  percent  of 
funds allocated to these sectors being gender focused, followed by water supply, sanitation 
and other social infrastructures together with government and civil society. It is interesting 
to note that only 10% of funds allocated to agriculture and rural development are gender 
focused.  The  sectors  with  the  least  gender  focus  are  transport  and  storage  and  other 
economic infrastructure.  

221	  Evaluation of the Council Regulation N° 2698/2000 (MEDA II) and its implementation, Final report June 2009. 
Link: http://ec.europa.eu/europeaid/how/evaluation/evaluation_reports/reports/2009/1264_vol1_en.pdf. 

222	  "Principal" means that gender equality was an explicit objective of the activity and fundamental in its design. 
"Significant"  means  that  gender  equality  was  an  important  but  secondary  objective  of  the  activity.  "Not 
targeted"  means  that  the  activity  was  screened  for  promoting  gender  equality,  but  was  found  to  not  be 
targeted to it. Data are available at: http://webnet.oecd.org/dcdgraphs/gender/. 

223	  These  data  only  cover  a  portion  of  EU  funds  allocated  to  external  actions.  In  fact  they  only  refer  to  external 
action  funds  classified  as  ODA.  Furthermore  they  also  include  commitments  from  the  European  Development 
Fund which is not part of the EU budget. 

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The multi-annual financial framework 2014-2020 from a gender equality perspective 

Table  18:  Gender  equality  focus  of  EU  institutions'  development  cooperation 
programmes by sector, 2007-2009 average  

Sector 
Education 
Health 
Water supply and sanitation 
Government and civil society 
Other social infr. and services 
Transport and storage 
Other economic infrastructure 
Production except agriculture 
Agriculture and rural development 
Multisector 
Source: OECD/DAC 

Focused 
42.50 
29.80 
21.28 
23.05 
21.25 
4.81 
6.29 
14.95 
9.65 
27.35 

4.2. 

Overall assessment 

Of  the  financial  instruments  discussed  above,  only  the  DCI  –  through  its  Public  Goods 
thematic  programme  –  earmarks  in  its  Regulation  funds  for  gender  equality  and  women’s 
empowerment,  although  within  the  broader  goal  of  Human  Development.  The  geographic 
programmes  of  DCI,  along  with  the  ENI,  the  EIDHR  and  the  IfS  also  envisage  the 
implementation  of  gender  equality  actions  –  either  through  specific  actions  or  through 
mainstreaming  –  but do  not provide  targets or  benchmarks  as to how  much funding  shall 
be devoted to these interventions. 

The implementation of gender equality interventions - and the relevant allocation of funds ­
will  thus  greatly  depend  on  the  extent  to  which  a  gender  perspective  is  integrated  in 
country  and  regional  strategies  and  multiannual  plans.  These  are  to  be  defined  by  the 
Commission  in  collaboration  with  partner  countries,  under  the  scrutiny  of  the  European 
Parliament.  It  will  also  depend  on  the  extent  to  which  guidelines  for  the  integration  of 
gender will be understood and transposed in the programming of actions224. 

To conclude, the external relations instruments to be financed by the EU budget are likely 
to  have  a  positive,  albeit  mostly  indirect,  impact  on the  objectives  of  gender  equality  and 
women’s  empowerment  identified  by  EU’s  policies  guiding  external  relations  strategies. 
Gender equality is both considered an intrinsic EU value, to be promoted and mainstreamed 
throughout  the  different  stages  of  the  external  actions  programming  cycle,  as  well  as 
instrumental  in  fighting  poverty,  the  paramount goal  of  EU’s  development  cooperation.  In 
the poorest countries, the EU’s strategy for fighting poverty passes through the attainment 
of the Millennium Development Goals which set clear gender equality targets, especially in 
the field of education, health and economic and political empowerment of women. As such, 
progress towards the MDGs is bound to have strong gender relevance. 

However, a clear gender strategy, with specific objectives, targets or allocations, does not 
emerge from the MFF proposal and the legislative package for external actions analyzed in 
the previous sections and does not allow to estimate the resources that will be allocated to 

224	  In  addition  to  the  actions  envisaged  by  the  2010  Action  Plan,  the  EC  has  elaborated  specific  working 
documents  to  this  effect,  such  as  the  Programming  Guidelines  for  Gender  Equality  Detailed  (January  2006), 
providing  information  on  how  to  address  gender  equality  in  country  programming.  Detailed  operational 
guidance can also be found in the Toolkit on Mainstreaming Gender Equality in EC Development Cooperation. 

165
 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
                                                 
  
 
 
 
 
 
 
 
 
 
Policy Department C: Citizens' Rights and Constitutional Affairs 

achieving gender objectives. As is well known, gender mainstreaming is an approach to be 
used  in  the  design  of  all  policies  that  implies  the  integration  of  a  gender  perspective  into 
every  stage  of  policy  process;  it  should  incorporate  a  gender  impact  assessment  ex  ante 
with  a  view  to  promoting  gender  equality.  Mentioning  gender  mainstreaming,  gender 
inequality and the intention to tackle the issue in budgetary documents is not sufficient to 
ensure effective actions. 

In  order  to  be  effective  gender  mainstreaming  needs  to  be operationalised  and  supported 
through predictable funding and allocations. Otherwise it runs the risk of being sidelined at 
the expense of other, seemingly more urgent, goals. 

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The multi-annual financial framework 2014-2020 from a gender equality perspective 

5.  REFERENCES 

	  European  Commission  (2004)  European  Neighbourhood  Policy.  Strategy  Paper, 
Communication  from  the  Commission,  Brussels,  12.5.2004,  COM(2004)  373  final, 
{SEC(2004) 564, 565, 566, 567, 568, 569, 570}.  

	  European  Commission  (2007)  Gender  Equality  and  Women  Empowerment  in 
Development  Cooperation,  Communication  from  the  Commission  to  the  European 
Parliament  and  the  Council,  Brussels,  8.3.2007,  COM(2007)  100  final,  SEC(2007) 
332. 

	  European  Commission  (2010)  EU  Plan  of  Action  on  Gender  Equality  and  Women's 
Empowerment  in  Development:  2010-2015,  Commission  staff  working  document, 
Brussels, 8.3.2010, SEC(2010) 265 final. 

	  European Commission (2010) Strategy for Equality between women and men, 2010­

2015, Luxemburg: Publications Office of the European Union [Document drawn upon 
the basis of COM(2010) 491 final, SEC(2010) 1079 and SEC(2010) 1080]. 

	  European Commission (2011) 2011 Report on the implementation of the “EU plan of 
action on gender equality and women's empowerment in development: 2010-2015”, 
Commission staff working paper, Brussels, 23.11.2011, SEC(2011) 1437 final. 

	  European  Commission  (2011)  A  Budget  for  Europe  2020  -  Part  II:  Policy  fiches, 
Communication  from  the  Commission  to  the  European  Parliament,  the  Council,  the 
European  Economic  and  Social  Committee  and  the  Committee  of  the  Regions, 
Brussels, 29.6.2011 COM(2011) 500 final. 

	  European  Commission  (2011)  Commission  Staff  Working  Document  accompanying 
the  Proposal  for  a  Framework  Regulation  for  Macro-Financial  Assistance,  Brussels, 
http://eur-
final. 
4.7.2011, 
lex.europa.eu/LexUriServ/LexUriServ.do?uri=SEC:2011:0865:FIN:EN:PDF. 

SEC(2011) 

Available 

865 

at: 

	  European  Commission  (2011)  Increasing  the  impact  of  EU  Development  Policy:  an 
Agenda  for  Change,  Communication  from  the  Commission  to  the  European 
Parliament,  the  Council,  the  European  Economic  and  Social  Committee  and  the 
Committee of the Regions, Brussels, 13.10.2011, COM(2011) 637 final. 

	  European Commission (2011) Proposal for a Regulation of the European Parliament 
and  of 
the 
the  Council  establishing  common  rules  and  procedures 
implementation  of  the  Union's  instruments  for  external  action,  Brussels,  7.12.2011 
COM(2011) 842 final, 2011/0415 (COD). 

for 

	  European Commission (2011) Proposal for a Regulation of the European Parliament 
and of the Council establishing a financing instrument for development cooperation, 
Brussels, 7.12.2011, COM(2011) 840 final, 2011/0406 (COD).  

	  European Commission (2011) Proposal for a Regulation of the European Parliament 
and  of  the  Council  establishing  a  European  Neighbourhood  Instrument,  Brussels, 
7.12.2011 COM(2011) 839 final, 2011/0405 (COD). 

	  European Commission (2011) Proposal for a Regulation of the European Parliament 
and of the Council on the Instrument for Pre-accession Assistance (IPA II), Brussels, 

167
 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Policy Department C: Citizens' Rights and Constitutional Affairs 

7.12.2011,  COM(2011)  838  final  2011/0404  (COD),  {SEC(2011)  1462  final} 
{SEC(2011) 1463 final}. 

	  European Commission (2011) Proposal for a Regulation of the European Parliament 
and  of  the  Council  establishing  a  financing  instrument  for  the  promotion  of 
democracy  and  human  rights  worldwide,  Brussels,  7.12.2011  COM(2011)  844  final 
2011/0412 (COD), {SEC(2011) 1478 final}{SEC(2011) 1479 final}. 

	  European Commission (2011) Proposal for a Regulation of the European Parliament 
and  of  the  Council  establishing  an  Instrument  for  Stability,  Brussels,  7.12.2011, 
COM(2011) 845 final, 2011/0413 (COD), {SEC(2011) 1481 final} {SEC(2011) 1482 
final}. 

	  European  Commission  and  the  High  Representative  of  the  European  Union  for 
Foreign  Affairs  and  Security  Policy  (2011)  A  new  response  to  a  changing 
Neighbourhood,  Joint  communication  to  the  European  Parliament,  the  Council,  the 
European  Economic  and  Social  Committee  and  the  Committee  of  the  Regions, 
Brussels, 25/05/2011, COM(2011) 303. 

	  European Council (2008) Comprehensive approach to the EU implementation of the 
United  Nations  Security  Council  Resolutions  1325  and  1820  on  women,  peace  and 
security, Brussels 1.12.2008, 15671/1/08, REV 1. 

	  European  Parliament,  Council  and  Commission  (2006)  Joint  statement  by  the 
Council and the representatives of the governments of the Member States meeting 
within the Council, the European Parliament and the Commission on European Union 
Development Policy: ‘The European Consensus’, 2006/C 46/01. 

	  UNHCR 

(2006) 

UNHCR 

Statistical 

Yearbook 

2006. 

Available 

at: 

http://www.unhcr.org/statistics.html 

	  United  Nations  (2010)  The  Millennium  Development  Goals  Report  2011.  Available 

at: 
http://www.un.org/millenniumgoals/pdf/MDG%20Report%202010%20En%20r15% 
20-low%20res%2020100615%20-.pdf 

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The multi-annual financial framework 2014-2020 from a gender equality perspective 

6.  ANNEX 

Table I.1  Gender inequality index (GII) and indicators, Human Development Index, 2005 

Reproductive health 

Labour market 

Empowerment 

GII* 

Adolescent 
fertility rate 

Maternal 
mortality 

Labour force 
participation 

Educational 
attainment 

Parliamentary 
representation 

Births per 1000 
women 15-19 

Participation rate 

Pop with at least 
secondary school 

Shares in 
parliament 

0.44 

0.32 

0.35 

0.16 

.. 

0.21 

0.20 

0.11 

0.24 

.. 

0.43 

0.15 

0.14 

0.42 

0.24 

.. 

0.32 

0.44 

0.44 

      4.63

      3.38

      2.09

      0.80

      1.38

      1.67

      1.29

      0.63

      0.75

      2.71

      5.04

      0.92

      0.54

      1.92

      1.25

      0.75

      3.38

      3.71

      5.50

  580.00

    85.00 

  165.00

    17.00 

    60.00 

    23.00 

    22.00 

      9.00

    86.00 

  231.00

  599.00

    13.00 

    12.00 

  203.00

    34.00 

    88.00 

    85.00 

  298.00

  684.00

      0.47

      0.43

      0.44

      0.53

.. 
      0.56

      0.49

      0.52

      0.55

 .. 

      0.51

      0.52

      0.46

      0.23

      0.51

      0.56

      0.43

      0.29

      0.53

      0.43

      0.67

      0.49

      0.65

      0.67

 .. 

      0.66

      0.65

      0.52

      0.48

      0.40

      0.67

      0.64

      0.45

      0.64

      0.52

      0.67

      0.36

      0.42

      0.12 

      0.15 

      0.12 

      0.17 

      0.23 

      0.13 

      0.16 

      0.20 

      0.16 

 .. 

      0.14 

      0.17 

      0.10 

 .. 

      0.08 

      0.16 

      0.15 

      0.08 

      0.14 

Africa 

Latin America & the Caribbean 

Asia 

Europe 

Oceania 

Northern America 

OECD 

EU27 

East Asia 

Pacific 

Least developed countries 

Developed: OECD 

Developed: Non-OECD 

Developing: Arab States 

Developing: Europe and Central Asia 

Developing: East Asia and the Pacific 

Developing: Latin America and the Caribbean 

Developing: South Asia 

Developing: Sub-Saharan Africa 

Source UNDP (http://hdr.undp.org/en/statistics/gii/) 

* The Gender Inequality Index (GII) reflects women’s disadvantage in three dimensions—reproductive health, empowerment and the labour 
market-. The index shows the loss in human development due to inequality between female and male achievements in these dimensions. It 
ranges from 0, which indicates that women and men fare equally, to 1, which indicates that women fare as poorly as possible in all measured 
dimensions. 

169