8 Gender Equality and Women's Empowerment
| Committee's assessment |
Politically important |
| Committee's decision | Not cleared from scrutiny; further information requested; drawn to the attention of the International Development Committee and the Women and Equalities Committee; relevant to the European Committee debate on the Sustainable Development Goals (recommended on 21 July 2015)
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| Document details | Commission Staff Working Document: Gender Equality and Women's Empowerment: Transforming the Lives of Girls and Women through EU External Relations 2016-2020
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| Legal base | — |
| Department | International Development
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| Document Numbers | (37117), 12249/15, (SWD)15 182
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Summary and Committee's conclusions
8.1 Gender equality is one of the eight Millennium Development
Goals (MDGs) that, in 2000, the UN set itself to achieve, most
by 2015.[ 66]
8.2 A 2007 Commission Communication set out the overarching
aims: to promote progress in achieving: equal rights (political,
civil, economic, employment, social and cultural) for women and
men, girls and boys; equal access to, and control over, resources
for women and men; and equal opportunities to achieve political
and economic influence for women and men.
8.3 The subsequent EU 2010-2015 GAP (Plan of Action
on Gender Equality and Women's Empowerment in Development (GEWE)),
known as GAP I, set out nine objectives, 37 actions and 53 indicators,
which the European Commission, European External Action Services
(EEAS), the 117 EU Delegations that have external cooperation
activities and EU Member States are committed to implement and
to report upon annually. The story thus far was of the Commission/EEAS
"talking the talk", but failing to "walk the walk"
(see previous Reports for details).[ 67]
8.4 This was the thrust of an independent evaluation
of GAP I. For the Commission, the requirement could not have been
more clearly put: revitalise their commitment to GEWE; lead the
development of a successor to the GAP and engage more effectively
with Member States; clarify leadership and management arrangements
at EU Delegation level for achieving GEWE results and delivering
against the GAP; and clarify reporting and accountability arrangements
for achievement of GEWE results and delivery of the GAP successor.
8.5 Responding to the Committee's earlier Reports
concerning the Commission's own latest report on implementation
of GAP I, the Parliamentary Under-Secretary of State at the Department
for International Development (Baroness Verma) said that the May
"Development" Council Conclusions on this report reflected
all of the UK's broad GEWE priorities, and noted Development Commissioner
Mimica's avowed commitment to the fight against gender-based violence,
the promotion of human rights, and an "institutional shift"
in the Commission's approach to gender. The Minister was also
pleased that the Conclusions noted the concern of Member States
on the slow progress in implementing the current GAP, and characterised
"the strong emphasis on results" as "a useful impetus",
as well as "the need for sufficient resources to support
implementation of the next GAP". [ 68]
The Minister agreed with the main recommendations of the independent
evaluation; had ensured that a strong reference was included in
the Council Conclusions; and, along with other Member States,
had called for its main recommendations to be reflected in the
successor to the current Gender Action Plan (GAP II).
8.6 This Commission Joint Staff Working Document
contains GAP II, i.e., the new EU Action Plan on Gender Equality
and Women Empowerment (2016-2020). It was published by the Commission
on the 21 September 2015, with a view to its formal adoption at
the 26 October 2015 "Development" Foreign Affairs Council.
8.7 The document outlines the Commission Services'
and the EEAS's planned activities and commitment to transforming
the lives of girls and women through external relations over the
next five years. It aims to reinforce EU coordination regarding
gender equality policies in order to increase impact on the ground.
Annex 1 outlines specific objectives, expected activities and
meaningful indicators for GAP II; Annex 2 discusses the monitoring
and reporting process.
8.8 GAP II focuses on four pivotal areas; one horizontal,
and three thematic:
· Shifting
the Commission services' and the EEAS's institutional culture
to more effectively deliver on EU commitments;
· Ensuring
girls' and women's physical and psychological integrity;
· Promoting
the economic and social rights/empowerment of girls and women;
and
· Strengthening
girls' and women's voice and participation.
8.9 The Parliamentary Under-Secretary of State at
the Department for International Development's (Baroness Verma)
says GAP II is seen as a step change from the 2010-2015 GAP I,
"which has largely failed to be implemented properly, and
shifts to be a more results-oriented than process heavy document"
(see "Background" for further details).
8.10 So far, so good. But, as noted earlier, the
Commission has already been good at "talking the talk";
it is what actually happens over the next five years that will
be important. In the first instance, the forthcoming Council Conclusions
will set the tone and direction. We should therefore be grateful
if the Minister would write to us once they have adopted, with
her assessment of how they will ensure that words are turned into
actions, and actions are properly evaluated in terms of accountability
and effective delivery of commitments.
8.11 When she does so, we would also appreciate
receiving the Minister's views on how the requirements set out
in the independent evaluation of GAP I have been reflected in
the Commission proposals on GAP II (c.f. paragraph 8.18 below).
8.12 In the meantime, we shall retain the Joint
Staff Working Document under scrutiny.
8.13 The MDGs are to be replaced by the Sustainable
Development Goals, or SDGs.[ 69]
SDG 5 is: "Achieve gender equality and empower all women
and girls".[ 70]
We have already recommended the Commission Communication on the
EU's contribution to realising the new SDG's for debate in European
Committee.[ 71]
We recommend that this chapter of our Report be included in the
document pack for that debate.
8.14 We are again drawing these developments to
the attention of the International Development Committee and the
Women & Equalities Committee.
Full
details of the document:
Commission Staff Working
Document: Gender Equality and Women's Empowerment: Transforming
the Lives of Girls and Women through EU External Relations 2016-2020:
(37117), 12249/15, SWD(15) 182.
Background
8.15 Looking ahead to the post-2015 development agenda,
the previous Committee agreed that a successor GAP should indeed
focus on results; but, before then, there was the question of
implementation of what had been agreed thus far. The then Minister
was accordingly asked to provide her (or her successor's) assessment
of whether the May 2015 Council Conclusions on this GAP I implementation
report took the vital issue of GEWE forward in the right way,
and with genuine commitment.[ 72]
8.16 The Minister (Baroness Verma) said that the
Council Conclusions reflected all of the UK's broad GEWE priorities,
and noted Development Commissioner Mimica's avowed commitment
to the fight against gender-based violence, the promotion of human
rights, and an "institutional shift" in the Commission's
approach to gender.
8.17 The Minister was pleased that the Conclusions
also noted the concern of Member States on the slow progress in
implementing the current GAP, and characterised "the strong
emphasis on results" as "a useful impetus", as
well as "the need for sufficient resources to support implementation
of the next GAP". [ 73]
Our assessment
8.18 We noted in particular that, in the Conclusions,
the Council also "urges the Commission to implement the report's
recommendations" and "looks forward to a final report
on the implementation of the current GAP"; and said that
we, too, expected a full assessment from the Minister of the extent
to which the Council's exhortations had been taken on board, and
what further action she then judged to be necessary.
8.19 The Council Conclusions also referred to a report
on the Evaluation of the EU Support to GEWE in Partner Countries
in 2007-2013, with regard to which the Council "urges the
Commission and the EEAS to implement its main recommendations,
notably in the successor to the current GAP, starting with a fully-fledged
management response", and expressed its concern "with
the performance of most EU Delegations which are not sufficiently
taking gender equality into consideration". [ 74]
8.20 In responding to the Committee's question about
the nature of this evaluation,[ 75]
the Minister explained that it was completed by an independent,
external body. The Government agreed with its main recommendations;
had ensured that a strong reference was included in the Council
Conclusions; and, along with other Member States, had called for
its main recommendations to be reflected in the successor to the
current Gender Action Plan (GAP II). GAP II was currently going
through inter-service consultation within the Commission; the
Minister would provide "a full assessment of the proposals
once we have received them from the Commission".
8.21 The Minister also undertook to provide a full
assessment of the 2015 Report on the GEWE Implementation once
it was published, which she expected to be before the end of the
year. We looked forward to receiving this.
Our further assessment
8.22 The Minister's outline of the recommendations
in the independent evaluation are set out in our most recent relevant
Report.[ 76] Not surprisingly,
there was a familiar ring about them. For the Commission, the
requirements could not have been more clearly put: revitalise
their commitment to GEWE; lead the development of a successor
to the GAP and engage more effectively with Member States; clarify
leadership and management arrangements at EU Delegation level
for achieving GEWE results and delivering against the GAP; and
clarify reporting and accountability arrangements for achievement
of GEWE results and delivery of the GAP successor. We look forward
to receiving the Minister's views on how these requirements were
reflected in the Commission proposals on GAP II.[ 77]
The Commission Staff Working Document
8.23 GAP II begins by defining gender equality as
"the foundation of democratic societies and good governance,
and the cornerstone of inclusive sustainable development",
and declaring:
"Equality between men and women is at the core
of values of the European Union (EU) and enshrined in its legal
and political framework.
The EU is at the forefront
of the protection and fulfilment of girls' and women's rights
and vigorously promotes them in its external relations."
8.24 The Commission says that this Joint Staff Working
Document:
— provides
the framework for results-oriented measures for "Gender Equality
and Women's Empowerment: Transforming the Lives of Girls and Women
through EU External Relations 2016-2020";
— builds on the lessons learnt from, and
achievements of, the previous Gender Action Plan 2010-2015;
— consolidates the context, rationale and
priorities of "a refreshed approach" that reaffirms
and translates the EU's policy and political commitments to gender
equality into more effective delivery of concrete results for
girls and women; while
— promoting more efficient coordination,
implementation and monitoring of EU activities in this area.
8.25 In her Explanatory Memorandum of 1 October 2015,
the Minister (Baroness Verma) helpfully summarises GAP II as follows:
"The document outlines the Commission Services'
and the European External Action Service's (EEAS) planned activities
and commitment to transforming the lives of girls and women through
external relations over the next 5 years. It aims to reinforce
EU coordination regarding gender equality policies in order to
increase impact on the ground in this important area. The GAP
II marks a step change from the first Gender Action Plan (2010-2015)
which has largely failed to be implemented properly, and shifts
to be a more results-oriented than process heavy document.
"The document contains three sections: The SWD
itself acts as a political narrative; Annex 1 outlines the specific
objectives, expected activities and meaningful indicators (this
is in effect the action plan); Annex 2 discusses the monitoring
and reporting process for the GAP II.
"The GAP II focuses on four pivotal areas —
one horizontal and three thematic.
HORIZONTAL AREA:
"Driving an institutional culture shift to more
effectively deliver on EU commitments:
I. "A significant culture shift is recognised
as critical to the success of the GAP II. The implementation of
this pivotal area is seen as a precondition for success of the
three thematic areas.
¾ "The
Commission services and EEAS have committed to invest in strengthening:
leadership — both political and institutional; accountability;
coordination across the Commission services and EEAS; their results-oriented
and driven approach; investment into high quality gender analysis;
their human and financial resources to fully implement the SWD
and its annexes.
THEMATIC AREAS:
II. "Ensuring girls' and women's physical
and psychological integrity:
¾ "The
Commission services and EEAS have committed to invest in strengthening
their work to: eliminate all forms of violence against women and
girls, and gender-based violence; eradicate the trafficking of
women and girls; end sexual violence and gender based violence
in conflict and post conflict situations; increase access to quality
affordable health care; ensure access to sexual and reproductive
health services and rights; eliminate gender-based sex selection;
and end child, early and forced marriages.
III. "Promoting the economic and social
rights / empowerment of girls and women:
¾ "The
Commission services and EEAS have committed to invest in strengthening
their work to: increase the number of girls and women receiving
quality education; improve access by women to decent work; drive
equal access to financial services, land, and other productive
resources; support female entrepreneurs; increase girls' and women's
access to, use of, and control over, clean water, energy, information,
communications and technology, and transport infrastructure.
IV. "Strengthening girls' and women's voice
and participation:
¾ "The
Commission services and EEAS have committed to invest in strengthening
their work to: increase women's participation in policy, governance,
and electoral processes at all levels; empower girls' and women's
organisations and human rights defenders; shift negative social
or cultural norms, including via active engagement with men and
boys; increase women's participation in decision making processes
on climate and environment issues.
"Annex 2 sets out the reporting methodologies.
Reporting against all institutional culture shift indicators is
mandatory for all EU actors. For the thematic areas, EU actors
will be able selectively to pick the indicators they wish to focus
their efforts on. This method is aimed at enhancing coherence
with current country priorities, as set out in the agreed National
Indicative Programmes. The EU will report annually on its progress."
The Government's view
8.26 The Minister welcomes the Plan of Action, supports
it "as a timely indicator of increased commitment" by
the Commission and Member States to making greater progress towards
gender equality and women's empowerment through its external relations,
and wants "to see faster and deeper progress than was made
through the last GAP, and see this as a welcome opportunity to
deliver on this".
8.27 She goes on to note:
"The UK has inputted greatly into setting the
direction of GAP II both through ministerial engagement and at
senior official/official working level. A Task Force comprising
representatives of UK, Sweden, Netherlands, France, Germany, Spain
and Malta was set up to be a reference group for the document,
and has actively contributed to the drafting process."
8.28 The Minister is also "glad to see explicit
links in the action plan to alignment with the Sustainable Development
Goals".
8.29 The Government is:
"committed to putting girls and women at the
centre of international development. We believe that investing
in girls and women has a transformative impact on growth, poverty
reduction and the achievement of the new Sustainable Development
Goals"; and
"welcomes the focus on the institutional culture
shift, and has worked hard throughout the drafting process to
strengthen this element of the document. In particular we are
pleased to see that the following priority issues have all been
addressed:
· "It
covers all external action by the Commission services and EEAS.
· "It
commits to put gender analysis at the heart of all its programming
and work.
· "It
is ambitious and pushes for greater transparency.
· "It
will be properly resourced so that implementation is not hampered."
8.30 With regard to the Financial Implications, the
Minister notes that the Joint Staff Working Document highlights
the need for the Commission services and EEAS to:
"Identify means of ensuring adequate financial
support for the implementation of this SWD and the measures set
out in Annex 1, including the institutional culture shift. This
will be done in three ways: firstly, by spending financial resources
better through more effective and efficient use of current resources
based on gender sensitive approaches; secondly, by using the full
range of the EU's means of implementation to promote gender equality
(political dialogue, targeted activities, budget support, and
mainstreaming); thirdly, by using geographic and thematic external
financing instruments in a flexible manner to both mainstream
gender across all initiatives and to fund targeted and gender-specific
actions. Opportunities provided by reviews of the external financing
instruments and multi-annual programming documents will be used
to take stock of the results achieved and to further strengthen
the efficiency of financial support devoted to the implementation
of this SWD and the measures set out in Annex 1."
Previous Committee Reports
None, but see (36645), 5732/15: Third Report HC 342-iii
(2015-16), chapter 34 (9 September 2015), First Report HC 342-i
(2015-16), chapter 47 (21 July 2015) and Thirty-seventh Report
HC 219-xxxvi (2014-15), chapter 27 (18 March 2015); also see
(35635), 17432/13: Twenty-ninth Report HC 83-xxvi (2013-14),
chapter 1 (8 January 2014).
66 For a full discussion of Gender Equality and Women
Empowerment, see the April 2003 UN Millennium Project Background
Paper of the Task Force on Education and Gender Equality Promises
to Keep: Achieving Gender Equality and the Empowerment of Women. Back
67 See (36645), 5732/15: Third Report HC 342-iii (2015-16), chapter 34
(9 September 2015), First Report HC 342-i (2015-16), chapter 47
(21 July 2015) and Thirty-seventh Report HC 219-xxxvi (2014-15),
chapter 27 (18 March 2015). Back
68 See 20 May 2015 Council Conclusions on Gender in Development for
the full Council Conclusions. Back
69 See "Sustainable Development Goals". Back
70 The SDG 5 TARGETS are:
5.1
End all forms of discrimination against
all women and girls everywhere
5.2
Eliminate all forms of violence against
all women and girls in the public and private spheres, including
trafficking and sexual and other types of exploitation
5.3
Eliminate all harmful practices, such
as child, early and forced marriage and female genital mutilation
5.4
Recognize and value unpaid care and
domestic work through the provision of public services, infrastructure
and social protection policies and the promotion of shared responsibility
within the household and the family as nationally appropriate
5.5
Ensure women's full and effective participation
and equal opportunities for leadership at all levels of decision-making
in political, economic and public life
5.6
Ensure universal access to sexual and
reproductive health and reproductive rights as agreed in accordance
with the Programme of Action of the International Conference on
Population and Development and the Beijing Platform for Action
and the outcome documents of their review conferences
5.a
Undertake reforms to give women equal
rights to economic resources, as well as access to ownership and
control over land and other forms of property, financial services,
inheritance and natural resources, in accordance with national
laws
5.b
Enhance the use of enabling technology,
in particular information and communications technology, to promote
the empowerment of women
5.c
Adopt and strengthen sound policies
and enforceable legislation for the promotion of gender equality
and the empowerment of all women and girls at all levels Back
71 See (36644), 5902/15: Commission Communication: "A Global
Partnership for Poverty Eradication and Sustainable Development
after 2015": First Report HC 342-i (2015-16), chapter 2
(21 July 2015). Back
72 See Thirty-seventh Report HC 219-xxxvi (2014-15), chapter 27
(18 March 2015). Back
73 See 20 May 2015 Council Conclusions on Gender in Development for
the full Council Conclusions. Back
74 Ditto. Back
75 See First Report HC 342-i (2015-16), chapter 47 (21 July 2015)
for background. Back
76 See (36645), 5732/15: Third Report HC 342-iii (2015-16), chapter 34
(9 September 2015). Back
77 Ditto. Back
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