ESF 2007-2013 support to gender equality Evaluation of the European Social Fund’s support to Gender Equality Under the Multiple Framework Contract ‘Provision of evaluation and evaluation related services to DG EMPL, including support for Impact Assessment Activities’ (Lot N° 3, VT/2009/057, Identification N° 003) ESF 2007-2013 support to gender equality Evaluation’s aims, methodology, main conclusions and recommendations Paola Casavola Presentation to the ESF Committee – Plenary Session-March 10th 2011

Content Aims (evaluation questions), working methodology, judgment criteria (slide 2 to 6) Deliverables/products of the study (slide 7) Main findings/conclusions [… there is more in the Report] (slide 8 – 12) Main recommendations [more details in the Report] (slide 13 and 14) 1

Three evaluation questions: Aims of the Evaluation Three evaluation questions: To what extent ESF programming in Member States has taken into consideration the promotion of gender equality ? (focus on the ‘dual approach’) To what extent the gender-equality objective is visible in OPs’ initial implementation , in monitoring organization, monitoring systems and evaluation activities ? In which areas the ESF will generate the most European added value (EAV) as far as gender equality ? 2

Methodology (1) –research tasks accomplished Information collection and analysis for each MS documents on ESF programming financial data on past and current ESF programming Other context information Face to face Interviews Survey covering all ESF MA Reconstruction of the main intervention logic for the gender equality objective for each MS Update of the 2006 version of the European Gender Equality Index for all 27 MS Comparative analysis across MS of the information collected /analysed and of the reconstructed intervention logics 3 4

Methodology (2) - focus of the factual analysis Identification for each MS of overall importance granted to the gender equality objective degree of adoption of the <<dual approach>> main scope for gender mainstreaming presence and characteristics of gender equality infrastructure actual policy effort in pursuing gender equality in ESF considering 5 dimensions in an ad hoc indicator. main objectives and corresponding specific actions speed and coherence of initial implementation areas in which ESF reinforces, complement, innovate pre-existent strategies and actions (to investigate EAV) 4 5

Methodology (3) Judgement criteria– main theory concepts for assessing collected evidence Gender equality should be measured with a multidimensional approach in which all identified critical aspects of equality among men and women (for the GEI: paid work, income, decision power, time) are equally relevant Causes of gender inequality typically compound in complex ways, hence also effective gender equality policies are inherently multidimensional Capacity issues are key Institutional and organizational settings particularly key within the ‘recommended dual approach to gender equality’ 5 6

Products of the Evaluation study 27 Country Reports 6 Thematic Reports a Synthesis Report similarities and differences in Member States’ approaches and strategies and areas of EAV enlightening issues of common interest putting forward general recommendations for a) improving implementation b) future action 6 7

Main findings (1) Importance granted to the gender equality objective within ESF Most managing authorities (MA) rate this importance quite high (especially when GEI is lower or GE national stance traditionally strong) 7 8

Main findings (2) – Dual approach in comparison with previous cycle much less ESF resources for gender-equality enhancing specific actions (estimate of the study: 1 billion Euro less in ESF EU contribution) Why ? Some specific actions to be carried out under other headings much reliance on gender-mainstreaming practices However MA acknowledge difficulties in applying gender-mainstreaming Lack of a common understanding of theoretical underpinnings and operational implications Less has been done at the strategic level, mostly gender mainstreaming considered at the implementation level Widespread concerns about gender skills of project promoters and implementers (and also of project assessors) 8 9

Main findings (3) Gender-equality Infrastructure at the OP level Everywhere there is some kind of specialized support (which is good), but only in some cases also some permanent structure with staff leading on gender-equality issues (which is better) 9 10

Main findings (4) Focus of gender-equality specific actions 10 Main objective is Promoting Women's employment and participation in the labour market (quantity and/or quality objectives). Other objectives present, but less spread and different among MS 11

Main findings (5) Theories underlying gender-equality specific actions in MS Most programmed actions are still of the SUPPLY SIDE type (reinforcing women’s own capacity to compete). This implies assuming that markets and contexts work reasonably well, … it is just a matter of making individual women stronger However, multidimensional strategies are emerging, combining SUPPLY SIDE measures with DEMAND SIDE actions (incentives to firms), and with CONTEXT measures (reinforcing the sensitivity to gender equality of the general social, economic and institutional environment). This implies recognizing that discriminations occur, … it is important to influence many actors’ capacity of acting and deciding with greater gender sensitiveness + supporting services that ease explicit or hidden gender conflicts. 11 12

Main findings (6) Initial implementation and EAV In the majority of MS implementation had started more slowly for gender-equality specific actions than for other parts of the ESF OPs and various difficulties have been reported For a limited number of MS, the economic crisis has shifted attention and resources away from the gender-equality objective a lack of status of the gender-equality objective ? European Added Value The two realms in which ESF added value is mostly acknowledged are creation of a recognized and autonomous policy space for gender equality gender-equality capacity building Mostly ESF actions are now reinforcing national gender-equality strategies (already funded/pursued at the national level). Many crucial aspects and causes of gender inequality are, however, not sufficiently addressed by current ESF OPs. Should ESF reinforce its traditional innovative drive ? 12 13

Main recommendations (1) To improve/reinforce current implementation To Member States A permanent structure to lead on gender equality issues in OP activities should be set up where this does not already exist. Actions should be taken to encourage participation in projects by suitable applicants equipped with gender skills. As gender mainstreaming will be a critical source of impact, self-assessment or evaluation exercises on its application are particularly recommended. To the Commission Reinforce attention to the effective application of gender mainstreaming through requesting : a specific focus on gender mainstreaming implementation for the next round of national strategic reports; an evaluation exercise concentrating on how Member States have implemented/are implementing gender mainstreaming in this programming cycle 13 14

Main recommendations (2) – suggestions for the future To the Commission have one main category of expenditure for all types of gender-equality specific actions space for policy innovation and experimentation to be formally defined and protected by the ESF Regulation To the Commission and Member States Primary purposes of gender-equality specific actions and primary aims of applying gender mainstreaming to be discussed Core ESF objectives, as employability, mainly objects of gender mainstreaming. Gender-equality specific actions directed to other objectives now not sufficiently addressed (e.g. tackling gender stereotypes; vertical and horizontal work segregation; women’s empowerment in public life). Implications of gender mainstreaming (both a the strategic and at the implementation level) to be explicitly and pragmatically clarified either in Regulations or (better) in Guidelines 14 15