Gender Action Plans an Effective Instrument for Promoting Gender Equality in the Sixth EU Framework Programme?

Transcription

1 Gender Action Plans an Effective Instrument for Promoting Gender Equality in the Sixth EU Framework Programme? Results of a Survey carried out by the FiF Contact Point Women into EU Research July 2005 Cornelia Schneider Contact Point Women into EU Research EU-Bureau of the Federal Ministry of Education and Research The FiF Contact Point Women into EU Research is a project promoted by the Federal Ministry of Education and Research in Germany. Copyright FiF Contact Point Women into EU Research

2 Summary This report presents the results of a survey on Gender Action Plans (GAPs) conducted by the FiF Contact Point Women into EU Research. A total of 27 GAPs were analysed, and 16 gender experts of ongoing projects were asked about their experience with GAP implementation. The main results are: The introduction of the GAPs has started an important and unprecedented process of creating awareness for gender equality in research projects There is a discrepancy between planned and actually realized measures The success of the GAPs depends on the structure of the involved institutions and the composition of the consortium The GAPs cause a conflict of interest for scientists between gender politics and scientific excellence The success of the implementation of the GAPs depends on the gender awareness and gender competence of the participating partners and institutions It is very important that the GAPs continue to be part of the gender mainstreaming strategy of the European Commission in the future. To ensure gender equality in EU-research programmes in the long Run, however, more efficient support and control measures will be necessary. This results in the following recommendations for the 7th Framework Programme: More control mechanisms and interest from the Commission (GAP reporting) Improved information (GAP guideline, GAP help desk) More transparency and exchange (GAP network) Stronger orientation to practical experience (GAP study) Zusammenfassung Der vorliegende Bericht enthält die Ergebnisse einer Befragung der Kontaktstelle FiF - Frauen in die EU- Forschung zum Thema Gender Action Plans (GAPs). Insgesamt wurden 27 GAPs analysiert und 16 Interviews mit Genderverantwortlichen aus laufenden Projekten zum Stand der Umsetzung der GAPs geführt. Die wichtigsten Ergebnisse lassen sich in 5 Thesen zusammenfassen: Die Einführung der GAPs hat einen wichtigen und bisher einmaligen Sensibilisierungsprozess für Gleichstellungsfragen auf Projektebene erreicht Es gibt eine Diskrepanz zwischen den geplanten und den tatsächlich umgesetzten Maßnahmen Der Erfolg der GAPs ist abhängig von den strukturellen Voraussetzungen der beteiligten Institutionen und der Zusammensetzung des Konsortiums Die GAPs führen bei den Wissenschaftler / innen zu einem Interessenskonflikt zwischen den Zielen der Gleichstellungspolitik und ihrem Streben nach wissenschaftlicher Exzellenz Der Erfolg der Umsetzung der GAPs hängt ab von dem Genderbewusstsein und der Genderkompetenz der am Projekt beteiligten Personen und Institutionen Es ist wichtig, dass die GAPs auch in Zukunft ein wichtiger Bestandteil der Gender Mainstreaming Strategie der EU-KOM sind. Um Chancengleichheit langfristig und nachhaltig in der EU- Forschungsförderung zu verankern, sind jedoch effizientere Unterstützung- und Kontrollmaßnahmen in der Handhabung des Instruments notwendig. Daraus ergeben sich u.a. folgende (Handlungs-) Empfehlungen für das 7. Forschungsrahmenprogramm: Verstärkte Kontrollmechanismen und Interesse von Seiten der KOM (GAP-Berichterstattung) Verbesserte Information (GAP-Leitfaden, GAP-Helpdesk) Mehr Transparenz und Austausch (GAP- Netzwerk) Stärkere Orientierung an der Projektpraxis (GAP-Studie) 2

3 New approaches in the EU's gender-equality policy With the 6 th Framework Programme for Research and Technological Development, the EU Commission has set itself the aim of systematically implementing gender mainstreaming. One important instrument of this gender-equality policy consists of so-called "Gender Action Plans" (GAPs), which have been introduced and made binding for Integrated Projects (IPs) and Networks of Excellence (NoEs). To date, a total of over 240 GAPs have been submitted to the EU Commission, and practical implementation of these GAPs is now being tested in the ongoing relevant projects. The basis for the GAPs consists of a pertinent statement in the COM's tendering documents: "Write an action plan indicating actions and activities that will be developed to promote gender equality in all forms within your project. (Recommended length one page)". 1 Very few additional specifications only suggestions as to content have been issued relative to preparation of GAPs. According to the instructions issued, a GAP should consist of two elements: firstly, an analysis of the current situation relative to participation of women in research, and to integration of the gender dimension in the research area in which the application is being submitted; secondly, specific proposals, based on the analysis, for implementation of gender-equality and women's-promotion measures of measures with clear chances of success. Significantly, the decisive aspect is not the outset situation, i.e. the participation of women in the research area in question, but the progress to be achieved in the framework of the project! The present report provides a first impression of the status of implementation of GAPs in current projects of the 6 th Framework Programme. The report presents results of a study carried out by the Contact Point Women into EU Research in the period April June The aim of the study was to identify key factors for GAP effectiveness and to formulate recommendations for the instrument's improvement in the 7 th Framework Programme. 2 Central result of the survey positive overall results and key factors Introduction of gender action plans has brought about an important, unprecedented process of creating awareness for gender-equality issues at the project level. A majority of those surveyed (13 of 16 projects) assess the GAPs as positive: "GAPs accomplish something simply by requiring the projects to focus on the issue." In the main, respondents highlighted GAPs' role in raising awareness, along with the importance of this role with regard to the quality of the scientific work concerned. Respondents also positively assessed the binding nature of gender-equality measures carried out in the GAP framework. "The fact that the GAP is an institutional requirement is very significant; if it had not been such a requirement, gender mainstreaming might not even have been possible in our project." 1 Cf. Proposal Part B: Guide for proposers. B.10.1: Gender Action Plan 2 The survey results were presented on 30 June 2005 in the Bonn, in the framework of an event of the FiF Contact Point on the topic: Gender Action Plans an Effective Instrument for Promoting Gender Equality in the Sixth EU Framework Programme? 3

4 Only 3 of the surveyed projects explicitly voiced a desire to do away with the Gender Action Plan. The main argument for eliminating the GAP was that the GAP distracts participants from the real, substantial content of their applications and is counterproductive with regard to their scientific work i.e. it threatens the competitiveness of applications and ongoing projects. According to survey respondents, successful implementation of the GAPs depends on the following factors: GAP implementation must fit within the project framework in question. It should take the relevant project's individual circumstances (such as the field concerned, the number and type of partner institutions concerned, etc.) into account. GAP measures within a project should be integrated within the scientific discussion, and they should never be separated from the research focus and scientific activities. This is the only way to foster acceptance for gender-equality measures among scientists. Gender mainstreaming in a project should not be seen and managed as special support for women. Men should be included in the gender-equality discussion and in planned and implemented measures. It is centrally important for projects to foster communication regarding gender-equality issues. Such communication is best initiated via kick-off meetings and other types of project meetings. Contacts and exchanges of experience with other projects, especially projects from similar areas and disciplines, facilitate mutual learning and help projects to identify particularly suitable measures. Outset situation the first steps toward practical implementation There is still a lack of solid scientific findings and experience regarding implementation of gender mainstreaming in the framework of European-wide research projects. GAP implementation has proven to be difficult in practice. The result: commitment to GAP implementation varies widely. Scientific discussion on the topic has little relevance to actual project practice, and it is carried out on a separate, theoretical level. Evaluation of the GAPs As of February 2005, the FP6-contract database showed that a total of 244 projects had submitted a GAP, including 169 IPs and 75 NoEs. In the framework of FiF's planned survey, projects with German co-ordination are being contacted and asked to provide their GAPs. Of 38 projects contacted, 27 made their GAPs available to us. Analysis of the GAPs revealed that they describe high-quality measures and that they formally fulfil the COM's relevant requirements. Most of the GAPs can be assessed as "good". Their planned measures can be divided into 4 different categories: Quantitative measures for promoting women in projects: recruiting strategies (genderequality statements, contacting of women's organisations in connection with invitations to tender, inclusion of female doctoral candidates); statistics on participation of women in the project and related monitoring; efforts to increase the numbers of women in management positions; quotas for training courses, workshops and further training programmes; 4

5 Measures for promoting awareness of gender issues: establishment of gender groups; informational events; monitoring of GAP implementation; collection and publication of statistics; use of gender-sensitive language; Measures for networking and exchanges: contacts to women's groups; networking between women scientists; platforms for discussion (Internet, newsletters); events in cooperation with women's groups and other projects; creation of databases on women scientists; Measures for promotion of young scientists: contacts to schools and universities; "Girl s Day"; training programmes; Other: measures to promote and facilitate balancing of work and life (child care, telecommuting, flexible working hours and videoconferences); customised GAPs at partner institutions; special mobility grants and prizes for women scientists. The telephone survey Of the 27 projects who made their GAPs available to us, a total of 16 agreed to participate in a telephone interview (4 men and 12 women). Our contacts included scientists (men and women) who were not primarily responsible for gender issues; they had additional tasks in their projects and had been appointed on short notice to GAP implementation. The selected projects are spread out evenly among the Thematic Priority Areas of the 6 th Framework Programme. The interviews were carried out on the basis of a survey guide and lasted an average of 45 minutes. 3 Results from project practice 1. Discrepancy between planned and actually implemented measures! The survey showed a large gap between planning and implementation. In most cases, the persons responsible for project implementation of planned measures were not the same people who wrote the GAP. As a result, ambitious aims were not implemented in practice. To date, only a few projects have carried out concrete steps for GAP implementation. Measures carried out to date have involved preparation of gender-differentiated statistics, in the framework of interim reports 4, as well as various measures to promote women, with implementation usually separate from projects' scientific work for example, participation in Girl s Day, special mobility grants and science prizes for women scientists and establishment and cultivation of networks for women scientists. GAPs are thus at risk of being moved to projects' peripheral areas, as well as into women's areas of responsibility. Most projects report having established gender action groups or gender committees, etc., or at least having made one or more persons responsible for GAP implementation. 3 The interview guide has been attached as an annex 4 Project reporting in FP Appendix 11 Gender Action Plans 5

6 The points mentioned include establishment of a gender platform in the Internet or relevant intranet, on the relevant project's home page, and provision of opportunities, in kick-off and project meetings, to enhance awareness of gender issues. Integration of gender aspects in research work itself has proven more difficult in practice; as a result, most projects have not provided for such integration. Many projects argue that gender issues do not lend themselves to integration in their research work. One survey participant described this problem as follows: "Gender aspects can certainly be integrated in the project, but it is also easy to ignore them." A higher willingness to integrate gender aspects in research was found in projects in the 1 st, 5 th and 7 th Priority Thematic Areas; in part, it was also found in projects in the 6 th Priority Thematic Area. Such willingness results not primarily from the Commission's requirements; instead, it results, in each case, from the knowledge of gender issues or acceptance of such issues that people in the relevant field have. Implementation of planned measures needs to be monitored and checked. This is the only way to increase projects' commitment to relevant implementation. At the same time, such monitoring highlights COM's interest in these measures, interest that also enhances identification with GAPs. 2. GAP implementation depends on the structural basis! Europe-wide research networks, with up to 50 and more participating partners, create structures that can be difficult to manage also in connection with implementation of gender-equality measures. In addition to its own organisational structure and working methods, each project partner brings to the project its own awareness and experience with regard to the issue of gender equality. One project participant described the relationship between project structures and GAP implementation as follows: "Acceptance of GAPs depends [ ] on the institution concerned. Institutions that already have structures for gender-equality efforts tend to be more active. Where additional structures first have to be created, GAP implementation becomes problematic, since all additional project work is seen only as a burden." While the project co-ordinator is responsible for GAP implementation, he or she has neither a legal basis nor financial latitude for influencing implementation of gender-equality measures in partner organisations. Some projects have thus been calling for GAPs to be enshrined in consortium agreements. 3. Conflict of interest: political aims vs. scientific excellence Gender mainstreaming, as a political instrument for achieving gender equality, seems for scientists to be hopelessly at odds with the need for scientific independence. Or, in one project participant's words: "It isn't our job to get involved in politics." Project scientists are concerned that pressure from Brussels will reduce the quality of their work and thus endanger their scientific excellence. One project participant stated this concern especially clearly: 6

7 "The involved scientists, and not the Commission, should be the ones to decide what is important for their project and whether it would be useful to carry out gender-equality measures." The projects strongly reject the idea of quotas for women. They maintain that eligibility for project participation should be based on scientific excellence, and not on gender: "We hire people on the basis of their scientific qualifications, and not on the basis of their sex." This highlights a common misunderstanding: even with the introduction of GAPs as a gendermainstreaming instrument, assurances that the goal is not to promote "bad" women scientists have been unable to dispel wariness. Gender competence is a criterion of excellence in and of itself, and only a gender-sensitive project can be excellent. 4. Gender awareness and gender competence The success of GAP implementation depends very strongly on project participants' knowledge about gender issues and commitment to gender equality. As a result, projects in which competent, committed participants are responsible for GAP implementation tend to report success more frequently. Often, participants first have to be convinced of the need for such measures. "The GAP aims should not have to be pushed aggressively; they should fit into the project framework." Where gender competence is lacking, commitment to GAP implementation varies widely. Many participants tend to view the GAP solely as a measure for promoting women. Here is a relevant sample statement from a male project participant: "The aims and content of the Gender Action Plan are best formulated by those affected [i.e. the women] instead of by (male) project co-ordinators." A significant number of those responsible for gender issues criticise such attitudes on the part of male participants. Persons responsible for gender issues are especially likely to raise such criticism if they view such attitudes as an obstacle to their own gender-relevant work. One female participant reported as follows concerning the negative reactions she received from her male colleagues: "There is no acceptance for gender issues in the projects. When I requested the necessary statistics, I received sharply worded s along the lines of: 'What kind of nonsense is that?'" Most contacts simply report a lack of interest on the part of female project participants. They explain this by noting that, due to a lack of awareness of gender issues and a lack of incentives to communicate their own experience, women tend not to call attention to whatever need for action may be present. Some contacts (as a rule, male contacts) argue that gender equality has become a routine matter in their projects and thus no GAP-implementation measures are required. One of the female participants interviewed criticised this attitude as follows: "Many female scientists, especially the younger ones, assume that gender equality was achieved a long time ago; as a result, they see no need to do anything on the gender front." There is a lack of experience in GAP implementation. Many of those responsible for genderequality issues feel left alone with their task and voice a desire for more top-down support, for best-practice examples and for exchanges of experience with other projects. 7

8 Recommendations submitted to the Commission All those surveyed maintained that the structure and content of GAPs instruments for promoting gender equality urgently need to be improved. Drawing on their own practical experience, they called attention to a number of weaknesses in GAPs and made suggestions for improvement. These suggestions are directed primarily at the European Commission: More transparency with regard to the European Commission's aims and requirements: many projects do not have a clear understanding of the aims that GAPs are designed to achieve. In addition, most projects are unaware of the degree to which GAPs are binding. Persons responsible for gender issues need effective advising and support, as well as clear goals and specific relevant examples and guidelines. Adaptation of GAPs to projects' institutional, financial and legal circumstances. Greater consideration of GAPs in evaluation and in negotiations for contracts. Some projects assume that the European Commission views GAPs simply as "homework", as something to be "checked off" that it does not study and review them carefully. It is urgently necessary for COM staff and reviewing experts to treat and manage GAPs in consistent ways. Relevant instructions should be couched in more emphatic language. A system of control mechanisms and sanctions is recommended for ensuring that GAPs are implemented in all projects. Since projects tend not to give top priority to gender-equality measures, the Commission should back GAP implementation with financial incentives for example, additional funding for maternity leaves. Summary Most survey respondents view the introduction of Gender Action Plans in the 6 th EU Framework Programme positively. Apart from any concrete successes or failures experienced in the various projects, it is clear that this instrument has sparked increasing awareness of gender issues in EU research projects. For effective, long-term implementation of gender-equality measures in the EU research sector, projects will require active support and monitoring by the European Commission, however. The following measures are urgently recommended as ways of enhancing the effectiveness of GAPs in the 7 th Framework Programme: Establishment of a gender help desk Establishment of a network of persons responsible for gender issues A study for evaluation of results of GAPs For more information please contact: Cornelia Schneider, EU-Bureau of the Federal Ministry of Education and Research Königswinterer Strasse , Bonn, Germany Phone: ++49 (228) , Fax: ++49 (228) cornelia.schneider@dlr.de 8

9 Annex Interview guide 1. General questions concerning the project: - How long has the project in which you are involved been underway? How many partners, and what partners, are involved in it? What phase is the project now in? - How many staff persons are involved in the project? What is the ratio of male to female project staff? 2. Questions regarding organisational aspects of GAP implementation in the project: - How are the GAP, and the project staff responsible for its implementation, integrated within the project structure? - Do the various partners have officers/commissioners for gender-equality issues? - Does the project have gender audits? - How are gender-equality measures communicated in the project? o internally o externally 3. Questions regarding the budget for gender-equality measures: - Does the project have a special budget for gender-equality measures? If so how large is it? Do you think this funding is adequate? 4. Questions regarding the early circumstances relative to GAP design (need for action) and implementation in the project: - Was GAP design subject to special circumstances, or a special need for action, that prevailed in advance of the project? 5. Questions regarding the GAP planning phase: - How did GAP planning progress, and what insights / experience did you base such planning on? What were the main aims for such planning? - Did you rely on advising bodies / aids in order to optimise the planning / design of the GAP? 6. Questions on concrete GAP measures and their implementation: - What measures were planned and implemented in your project? Please specify these in accordance with the areas mentioned by the Commission: "gender balance within project workforce", "raising gender awareness", "promotion of women in science", "monitoring Action Plan implementation", "gender issues in the research", "other". - Are you satisfied with the way in which the planned measures were implemented? Where were special difficulties encountered, and why? - What measures proved to be particularly successful? What aims were achieved? - What measures were unsuccessful, and why? What aims were not achieved? - How would you assess the overall success of GAP implementation in your project? - What factors contributed to the success / failure of the GAP in your project? - What framework or organisational structure, in your opinion, would be optimal for GAP implementation? 9

10 7. Questions on the position of the European Commission on the subject of GAP and gender-equality policy: - How would you assess the European Commission's approach to gender-equality issues and to GAPs in the projects? o In connection with applications and agreement negotiations? How important are GAPs with respect to applications' success? How would you assess the Commission's requirements in connection with GAPs upon application? Are these requirements suitable in light of the relevant practical need for action? o While projects are in progress: how would you assess COM's approach and requirements, with regard to GAPs, during the implementation phase? 8. Questions regarding the instrument's effectiveness and future: - How would you assess the effectiveness of the GAP, as an instrument, in bringing about gender equality in the EU-research sector? - Do you wish to call attention to special problems or difficulties that arise in connection with this instrument? - What suggestions for changes would you like to make, in light of your experience to date with this instrument? What measures could enhance this instrument's effectiveness? - Do you wish to express special suggestions / wishes with regard to the design and future of this instrument? 10