Call for tender by open procedure no. 2007.CE.16.0.AT.032 for the ex post evaluation of cohesion policy programmes 2000-2006 co- financed by the European Fund for Regional Development (Objectives 1 and 2)
Work package 7: “Effectiveness of the Cohesion Policy: Gender Equality and Demographic Change”
FINAL REPORT
July 2009
IRS, Istituto per la Ricerca Sociale CSIL, Centre for Industrial Studies
Prepared for: European Commission Directorate General Regional Policy Policy Development Evaluation Unit Final Report
This study was carried out by a team selected by the Evaluation Unit, DG Regional Policy, European Commission, through a call for tenders by open procedure no. 2007.CE.16.0.AT.032.
The consortium selected comprised IRS - Istituto per la Ricerca Sociale (lead partner) and CSIL, Centre for Industrial Studies. The Core Team included: - Manuela Samek Lodovici, Project Director; - Flavia Pesce and Silvia Vignetti Project Coordinators; - Scientific Advisors: Charlotte Höhn (Federal Institute for Population Research); Gianfranco Viesti (University of Bari); Paola Villa (University of Trento). - Senior experts: Ivana Fellini (University of Milan), Julie Pellegrin (Csil); Renata Semenza (Università di Milano); Maria Letizia Tanturri (University of Pavia); Alessandro Valenza (Csil); Giancarlo Vecchi (Irs and University of Parma). - Research assistants: Silvia Beltrametti; Julien Bollati; Jessica Catalano; Valentina Patrini; Monica Patrizio.
A network of country experts provided geographical coverage for the field analysis.
The authors are grateful for the very helpful comments from the EC staff and particularly to Veronica Gaffey, Kai Stryczynski and José-Luís Calvo de Celis. They also wish to thank the stakeholders and beneficiaries who were available for interviews and data collection for the field analysis. The authors are fully responsible for any errors or omissions.
Quotation is authorised as long as the source is acknowledged
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Acronyms
DG REGIO Directorate General for Regional Policy
EAGGF European Agricultural Guidance and Guarantee Fund
EC European Commission
ERDF European Regional Development Fund
ESF European Social Fund
EU European Union
FDI Foreign Direct Investment
FIFG Financial Instrument for Fisheries Guidance
GDP Gross Domestic Product
GIA Gender Impact Assessment
ICT Information and Communication Technology
LFS Labour Force Survey
NDP National Development Programme
NGO Non-governmental Organisation
NTI New Technologies of Information
OECD Organisation for Economic Co-operation and Development
OP Operational Programme
PPS Purchasing Power Standard
RTDI Research, Technological Development and Innovation
R&D Research and Development
SME Small and Medium Enterprise
SPD Single Programming Document
TOR Terms of Reference
WP Work Package
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Work Package 7: “Effectiveness of the Cohesion Policy: Gender Equality and Demographic Change”
TABLE OF CONTENTS
EXECUTIVE SUMMARY...... 3
INTRODUCTION ...... 13
1. BACKGROUND AND METHODOLOGY ...... 15
1.1 Aim and context of the evaluation...... 15 1.2 The analytical framework ...... 16 1.3 Methodology for case studies...... 24
2. REGIONAL POLICY APPROACHES TO DEMOGRAPHIC CHANGES AND GENDER EQUALITY...... 29
2.1 Overview of the selected regions ...... 30 2.2 Strategies for demographic change...... 33 2.3 Strategies for gender equality...... 41 2.4 Demographic changes and gender equality: the need for an integrated and multi-level governance framework...... 48
3. THE ERDF CONTRIBUTION TO ADAPTATION TO DEMOGRAPHIC CHANGE...... 53
3.1 Measures addressing ageing...... 54 3.2 Measures addressing demographic imbalances and migration ...... 57 3.3 Main lessons learnt...... 67
4. THE ERDF CONTRIBUTION TO GENDER EQUALITY ...... 69
4.1 The effective ERDF contribution to female entrepreneurship and female employment ...... 70 4.2 Social infrastructures and services...... 73 4.3 Main lessons learnt...... 76
5. OVERALL CONCLUSIONS AND POLICY IMPLICATIONS...... 79
5.1 Demographic change and gender equality in the ERDF 2000-2006 programmes...... 79 5.2 Policy implications...... 86
REFERENCES...... 89
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LIST OF TABLES AND FIGURES
TABLES
Table 1 - ERDF intervention areas and working hypotheses ...... 23
Table 2 - Measures selected in relation to Demographic Change...... 39
Table 3 - Measures selected in relation to Gender Equality...... 46
Table 4 - Demographic change and gender equality dimensions addressed by ERDF interventions, working hypothesis tested, lesson learnt and condition for success...... 84
FIGURES
Figure 1 - Overview of the case study methodology...... 24
Figure 2 – Total employment (aged 15-64) and unemployment rates in the 12 selected regions, 2000 and 2006 ...... 31
Figure 3 - Per capita GDP in PPS terms in the 12 selected regions relative to the EU25 average, 2000 and 2006 ...... 31
Figure 4 - Total fertility rate in 1999 and Old age dependency ratio in 2000 and 2005 in the 12 selected regions...... 32
Figure 5 - Gender gaps in employment and unemployment in the 12 selected regions, 2000 and 2006...... 32
Figure 6 - Female employment rate in the 12 selected regions, 2000 and 2006...... 31
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Executive summary
Aim and context of the evaluation
The present evaluation provides an assessment of the extent to which the ERDF supported regions in adapting to demographic change and fostering gender equality, as well as a better understanding of what ERDF interventions can deliver in this respect during future planning periods.
Demographic change and gender equality are major concerns on the European policy agenda and are also issues closely related and particularly relevant to socio-economic development.
In recent years European regions have had to face increasing demographic challenges which put their growth potential at risk. Population ageing and a shrinking working age population may affect key drivers of regional growth, undermining regional competitiveness and increasing the need for social services, age-related infrastructures and pension expenditures, which call for additional public resources. Migration can only partially counterbalance these effects and requires socio-economic integration measures.
At the same time, most European regions (even if with differences) are still facing persistent gender inequalities in the labour market and in the social and political sphere which negatively affect their socio-economic development.
Demographic trends and gender equality are closely linked. Policies for gender equality may contribute significantly to meeting demographic challenges. They can stimulate labour supply and employment of women and at the same time support their fertility choices. Among the various factors which affect the fertility rate, one is the difficulty for women to reconcile participation in the labour market with care responsibilities. In addition, increased female employment is necessary to compensate for the projected decline in the working population, and as a strategy to reduce both the risk of female poverty (in case of divorce, for instance, or in old age) and child poverty (as children in one-income families are more at risk). Promoting gender equality, and especially supporting the work-life balance and increasing female employability and labour participation, can thus expand the workforce of a region and act as a driver for local development.
Even though demographic trends show common features across Europe, regions are affected in different ways. Ageing and migration flows have stronger and more immediate impacts in some member states and regions than in others. Thus, demographic challenges need to be better understood with specific regard to local patterns and trends in order to develop a proactive approach, able to address both the threats and opportunities raised by a changing population.
Gender gaps and the dimensions of gender (in) equality also vary greatly across European countries and regions, especially with regard to the main labour market indicators (activity, employment and unemployment rates) and political inclusion of the female population.
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Both demographic change and gender equality are long-term processes affected by social, economic and cultural variables. To address these trends, it is necessary to adopt multi- dimensional strategies, integrating different policies and involving different levels of intervention and different actors. While discussion on demographic trends initially concentrated on national policies, such as the sustainability of social security, pensions and health policies, in recent years it has become increasingly evident that these trends also require the adaptation of policies usually managed at the regional and local (sub-regional) levels, such as education and training policies, transport, health and social services, housing and urban planning.
The same approach is also useful for gender equality policies. The strategic role of the regional and sub-regional dimension in the implementation of gender equality policies has long been recognised, since it facilitates the involvement of all the relevant actors and of women’s representatives, and allows for a holistic and needs-oriented policy approach.
The ERDF focus on regional socio-economic development could thus have a potential effect (both direct and indirect) on the above-mentioned trends and ERDF interventions appear to be particularly suitable for implementing the integrated strategies needed to address demographic change and gender equality at the regional level.
Key evaluation questions and research methodology
The following questions were at the basis of the evaluation exercise:
9 To what extent have demographic change and gender equality been taken into account by the 2000-2006 ERDF programme policy design and implementation procedures?
9 How have the ERDF interventions contributed to improving gender equality and adaptation to demographic change?
9 What lessons and policy implications may be derived from the 2000-2006 experience of the conditions associated with an effective use of the Funds, in relation to demographic and gender equality challenges?
In order to answer these questions, the study was based on:
− an extensive review of the literature on gender equality and demographic trends, in order to derive the analytical framework and formulate the working hypothesis;
− the selection and analysis of those ERDF fields of interventions that, according to the literature review, were the most likely to influence gender equality and demographic change either directly or indirectly. Research hypotheses were formulated regarding the extent and typology of effects that could be observed;
− twelve regional case studies for field analysis to test the working hypotheses. The selected regional case studies are representative of the different socio-economic conditions and policy approaches relating to demographic trends and gender equality present in the European Union. The choice of the regional case studies was based on
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singling out regional clusters in relation to selected gender quality and demographic indicators together with a review of the national and regional policy strategies addressing these issues. The selected regional case studies are: Basilicata (IT); Castilla y León (ES); East of Scotland (UK); Gelderland (NL); Latvia (LV); Liguria (IT); Malta (MT); Nord Pas de Calais (FR); Norra Norrland (SE); Salzburg (AT); Saxony (DE); Southern and Eastern Ireland (IE);
− six mini-case studies on selected ERDF projects implemented in the regions considered, as examples of good practices in relation to adaptation to demographic change and gender equality.
Main findings
As emerges from the literature review, there are at least three main ERDF intervention areas that could help address the demographic and gender challenges previously described, providing measures directly aimed at specific target populations (like, for example, measures supporting female entrepreneurship and/or measures providing care, training and other social facilities for the active inclusion of women, the elderly and migrants) and/or indirectly tackling these challenges (like measures addressing the urban/rural population imbalances).
The distinction between direct and indirect impacts is particularly important in the case of the ERDF: many interventions (such as building infrastructures or designing transport systems) may appear to be neutral from a gender and demographic perspective while actually having indirect impacts on these variables, which, over the medium and long run, may be even stronger than impacts caused by interventions directly addressing specific population groups.
The three main ERDF intervention areas considered in the evaluation are:
• Developing and supporting the local system of enterprises, the expected impact being the creation of employment – female employment in the case of direct gender measures – as an opportunity to settle in or relocate to the target region. The challenges addressed are: out-migration and the participation and employment of women, migrants and older people.
• Developing and enhancing local infrastructures: social facilities (cultural centres, child care and health care facilities for the elderly, educational and training facilities, etc.), transport and ICT infrastructures. The challenges addressed by the social facilities are: ageing, in-migration, women’s employment and participation and reproductive behaviour. The challenges addressed by the transport and ICT infrastructures are: improving accessibility of peripheral (often rural and depopulated) areas, ageing, out- migration.
• Supporting the regeneration of rural and/or urban areas which may reduce demographic imbalances, improving the attractiveness of areas risking depopulation, the expected impact here being increased attractiveness and quality of life in the most deprived
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areas, often characterised by a high density of older population, migrants and other disadvantaged groups.
The case studies, albeit limited in number, have provided useful insights for understanding the extent to which demographic and gender equality issues have been internalised within programmes and policies co-financed by the ERDF, and how effective ERDF interventions have been. In addition, some lessons on how to foster a greater focus on demographic changes and gender equality may be derived.
In relation to gender equality, which was a horizontal principle of all Structural Funds in the 2000-2006 programming period, the case studies show the extent to which the European dual approach and commitment towards gender equality have been internalised in the ERDF programmes and policies not directly aimed at individuals and equal opportunities.
The case studies also provide significant examples of how some regions have considered strategies to cope with demographic changes within their ERDF programmes, even if demographic change was not a policy priority for Structural Funds, coming up on the policy agenda as an issue relevant to cohesion policy only towards the end of the 2000-2006 programming period.
The main findings from the regional case studies are as follows:
− Demographic change and gender equality issues find mention in most regional strategies and are usually considered in the context analysis of the ERDF OPs, but find little further development in the intervention design, implementation and evaluation systems. In most cases few measures were designed to address these issues explicitly, few specific selection criteria and monitoring devices have been introduced relating to demographic needs and gender gaps and no attention has been paid to involvement of the relevant stakeholders in the definition and implementation strategy. In the case of demographic changes, this was probably due to the “novelty” of these issues in policy-making and to the difficulties regional and local authorities had in translating local needs into specific interventions within the framework of the ERDF regulations, which did not mention these issues and did not identify them as explicit priorities. With regard to gender equality, on the other hand, it is quite a different matter: here a clear lack of awareness at the regional and local level emerges (among both Managing Authorities and local stakeholders) regarding the importance of gender equality in local development, together with the idea that gender equality had to be dealt with mainly by the ESF rather than the ERDF. In this case, legal and formal compliance with the Structural Funds’ regulations was evident in the context analysis and in some general declared objectives of gender equality in the labour market. In some cases, gender disaggregated programme indicators were used, but not always and not for all Axis/measures1 or in all phases of the policy cycle. This did not lead to a full and comprehensive internalisation of the gender
1 Usually for Measuresspecifically addressed to persons.
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mainstreaming principle in the OPs strategies and, in particular, in the programme implementation in most of the regional cases analysed.
− Nevertheless, the ERDF intervention areas assessed as relevant (mostly in an indirect way) to the issues at stake were carried out in all the case studies. Indicatively, the analysed ERDF measures indirectly addressing demographic issues account for 23% of the total ERDF budget in the selected regions, while the analysed ERDF measures addressing (directly and/or indirectly) gender equality account for 21%.
− The ERDF provided financial and policy leverage for the creation of: social facilities (mainly child care facilities, health care centres for the elderly, educational and training institutes, community and cultural centres for young people and migrants), local transport and ICT infrastructures, business start-ups and urban/rural regeneration projects. There is, however, little awareness and monitoring of the effects of these interventions on demographic change and gender equality. The qualitative evidence from the case studies shows that women, the elderly and migrants are usually the main beneficiaries of these measures, even if often little attention has been paid to their specific needs in the intervention design and in defining the accessibility conditions, resulting in weaker potential impacts.
− In terms of impacts, little or no quantitative evidence is available, also considering that no specific indicators were identified for the purpose and that impacts are more likely in the longer run. However, the qualitative evidence from the case studies shows that the measures analysed had a good financial performance and higher than expected outputs and beneficiaries. Social infrastructures improved the work-life balance for mothers and the living conditions of young people, the elderly and migrants; business start-ups and employment creation measures provided employment opportunities for women and young people; transport and ICT infrastructures helped in reducing the isolation of rural and sparsely populated areas; urban/rural re-generated areas improved the quality of life of residents and the social integration of migrants with community and training services. In particular:
¾ Integrated local development interventions (especially integrated urban/rural regeneration programmes and support for employment creation) have achieved positive effects in relation to regional adaptation to demographic change: they have contributed to enhancing the attractiveness of some areas, which could mitigate the migratory deficit. This was especially so where the ERDF interventions were part of multi-year local or regional development plans in synergy with national programmes.
¾ Transport and ICT interventions improved access to services and employment, especially in remote and scarcely populated areas and in regions characterised by high internal disparities. However, when their use was not directly tailored to specific population needs (such as those of the elderly and women, or of SMEs), their overall impact remained limited.
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¾ Measures supporting social infrastructures also appear to have contributed to restoring the attractiveness of an area; however, they had more limited impact when not integrated with economic measures in a wider strategic framework.
− Scant awareness of the potential of the ERDF to address demographic change and gender equality emerges in the lack of measures specifically aimed at these issues. For example, in relation to ageing, little attention has been paid to proactive interventions supporting active ageing or interventions addressing the elderly as economic agents and consumers of tourism and leisure services. As for gender equality, the only measures directly addressing this issue were in support of female entrepreneurship. However, these measures were not designed with attention to the specific needs of women entrepreneurs (like, for example the need for maternity support, the greater difficulties they face than do men in access to credit, the lack of social networks, etc.) and this reduced their effectiveness. ERDF support for care facilities for children and the elderly were more effective both in creating employment opportunities for women and in improving women’s work-life balance. Finally, women were often the main beneficiaries of the ERDF interventions in the field of rural or urban regeneration. Gender mainstreaming was not usually implemented in the regions analysed, with the exception of those regions where equal opportunity bodies were created (in Basilicata, East of Scotland, Ireland and Salzburg) with strong political commitment.
− The case studies show notable interactions between support for demographic change and gender equality, as interventions in social infrastructures and in re-generation projects in areas experiencing depopulation or deprived urban areas were indirectly beneficial for the employment and quality of life of women, with potential positive effects on fertility rates.
− Local authorities, SMEs and NGOs were relevant players for local development plans to regenerate deprived areas and provided social services, especially in rural and disadvantaged areas. These actors, however, were usually able to implement only small, often scattered, projects, difficult to sustain in the long run. They were successful only when relying on individual management capacity and the commitment of the project holders and their social networks.
− In most cases, the ERDF intervention showed high synergies with the ESF measures supporting training and counselling services (complementing these with educational infrastructure and business support) and the EQUAL projects aimed at the active inclusion of the elderly, migrant and female population. EAGGF measures (Leader +) supporting rural development also showed synergies with the ERDF measures on infrastructures and services for depopulated areas.
− The effectiveness and sustainability of the ERDF interventions was enhanced when they were included in broader strategies of regional and local development complementing national and regional measures.
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Lessons learnt
The main lessons from the case studies to improve the effectiveness and sustainability of the ERDF interventions in relation to demographic change and gender equality are relevant to the current discussion regarding the future of cohesion policy and integrated local development2.
The following are the most important:
− The ERDF may indeed support regions in adapting to demographic change and fostering gender equality, especially thanks to the focus on regional socio-economic development and the multi-year integrated programming approach. Overall, the ERDF interventions are more successful in those regions where a number of conditions are satisfied, such as better focus on demographic and gender equality priorities, integration of the ERDF interventions with other programmes implemented at the regional and national levels, the creation of effective public-private partnerships and the governance capacity of local and regional authorities.
− The regional and local dimensions are relevant in addressing demographic change and gender equality. The case studies show these issues have an important place-based nature: they are context-dependent and require interventions tailored to the specific needs of regional areas (remote rural areas or congested, degraded urban districts) and beneficiaries (such as the elderly population, migrants, and women). While all regions increasingly face the effects of demographic change and gender inequalities, the intensity varies according to different patterns, which require diverse, place-based policy mixes in order to prevent substantial, asymmetric impacts throughout Europe. Tailoring measures implies good knowledge of the regional context, integration of different measures according to local needs and the capacity to find “new” solutions when tackling new problems. For example, the ERDF interventions supporting employment creation may consider the generational turnover in enterprises and also support entrepreneurship and management capacity in local NGOs involved in the creation of social infrastructures and re-generation programmes. Programmes addressing ageing and migration inflows could adopt a more pro-active approach, tapping into the skills and resources of the elderly and migrant populations. Support for women’s business start-ups could address the specific needs of women entrepreneurs. The ERDF interventions expanding and improving transport, ICT and social infrastructures could place greater attention on the accessibility needs of potential beneficiaries, especially the elderly, the disabled and women.
− To effectively address the multiple dimensions of demographic change and gender equality, it is necessary to adopt integrated and multi-level policy solutions. The local dimension, while necessary, is not sufficient to tackle all the issues related to demographic change and gender inequalities. In addition, local actors may lack the
2 Barca, F., An Agenda from a reformed Cohesion Policy. Independent Report, mimeo April 2009, and Bachtler, J., Future of the Cohesion Policy and Integrated Local Development. Conference Report. European Policies Research Centre, University of Strathclyde, Glasgow, April 2009.
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capacity to manage the complexity of policies addressing these issues. Integrated policy delivery can be effectively implemented at the local level with the support of higher institutional levels and complementing wider regional, national and EU strategies, which are more appropriate for some policies (like, for example, transport and ICT infrastructures on a macro scale). Within this framework, the ERDF interventions should be integrated into broader strategies which clearly address demographic and gender equality priorities and exploit all the possible synergies with national/regional programmes and other co-financed programmes implemented at the regional level. This is necessary in order to avoid the fragmentation of interventions and to overcome limitations due to the scant financial resources available for the ERDF (especially in Objective 2 areas) and restrictions on eligible interventions. The long implementation times entailed with integrated, multi-actor programmes (due to the greater complexity of the decision-making mechanisms and the need to create networks and share approaches and policy solutions), should however be explicitly considered in the design of strategies and implementation procedures.
− To improve the effectiveness and sustainability of the ERDF interventions, appropriate management capacities are necessary at regional and local levels, mobilising local resources and involving public-private partnerships with a wide range of local actors to generate innovations in policy making. Support from higher level institutions and the implementation of pilot projects and guidelines for the design and implementation of local and regional strategic plans may help institutional learning among local and regional authorities.
Policy implications
The following policy implications arise from the study:
− Include ageing, migration and gender equality among the priorities of the ERDF interventions on the basis of specific local needs. These are relevant challenges for regional development and there is scope for the ERDF to address them effectively. A European framework of common intervention principles and general objectives is also necessary when tackling these issues (especially in relation to migration), because they cross-cut regions and nations;
− Support the adoption of an integrated approach, combining economic, social and environmental measures to address demographic and gender equality objectives at all institutional levels. The multi-dimensional nature of both demographic and gender equality issues requires careful consideration of their key elements in order to implement policies and interventions that may ensure results. At the European level, this calls for greater coordination between the activities promoted by the different funds and DGs, such as the ERDF (DG Regio) and the ESF (DG Employment), to enhance complementarities and consistency.
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− Promote a multilevel governance framework with a clear division of responsibilities for different types of interventions and appropriate intervention mechanisms and procedures. The urban regeneration programmes presented in the Gelderland and Saxony mini-case studies provide useful insights in this respect, showing how national, regional and local authorities and actors were effectively involved in the design and implementation of complex integrated multi-year urban regeneration programmes.
− Promote new pro-active approaches and the exchange of experiences for institutional learning. The Structural funds have promoted innovation in policy making and institutional learning both at the national and regional/local levels, especially in the case of well- focused Community Initiatives (such as Urban, Leader+, Equal). Given the complexity of the issues at stake and, in particular in the case of demographic change, the lack of tradition and experience in policy making, it would be particularly advisable to stimulate new approaches and mobilise broad partnerships both at the local and at the cross- border and inter-regional levels through the promotion of the exchange of good practices and mutual learning, with specific attention paid to pilot and innovative actions. Given the wide variety of experience across EU regions and Member States, disseminating useful information could be a way to support institutional learning. For example, in relation to demographic change, much could be learnt from the experiences of programmes which support active ageing consider the elderly, women and migrants as important economic agents for regional development. The European Commission may play a valuable role in supporting the development of policy and institutional learning in these fields by fostering the exchange of experiences and good practices and by supporting the debate on how gender equality and demographic issues may effectively be addressed in policy making.
− Support management and implementation skills at the regional and local level to improve institutional capacity and access to the ERDF resources. As shown by the evidence collected in the case studies and in the mini-case studies, setting horizontal priorities is not enough to improve the focus of the ERDF interventions, since it is often considered only a legal compliance. It is necessary to provide technical assistance and support capacity building among regional and local actors and managing authorities, especially when addressing the complex issues considered in this study. Local actors (especially NGOs and SMEs) need support and technical assistance in both the project design and implementation phases, as well as in having access to the Structural Funds. Regional and, especially, local institutions need capacity building both in policy design, raising the level of awareness regarding the relevance of gender equality and demographic change for local development, and in policy delivery. Programme authorities and local actors should be supported in the development of management mechanisms that see the demographic change and gender perspective as a transversal qualifying element to reach set goals, and set out clear-cut procedures, in order to keep attention focused on these issues in all phases of the policy cycle.
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It is important that:
¾ appropriate procedures be introduced in order to internalise the gender and demographic change perspective in the selection criteria, implementation methods and monitoring systems;
¾ specific technical assistance provisions be activated to support project interventions;
¾ specific skills in programme/project management be developed, either through internal training or external expertise and the exchange of good practice.
Technical support centres may be created at the regional level to provide technical assistance to regional and local actors. This appears particularly relevant to gender mainstreaming. The case studies show that the application of the gender perspective in all policies and at all policy phases - as the gender mainstreaming principle requires - may have useful results in terms of regional development, especially when supported by the establishment of equal opportunity bodies with strong political commitment.
− Improve monitoring and evaluation tools to support the design and implementation of interventions through an institutional learning process. The monitoring and evaluation of both the potential and actual gender and demographic effects of Structural Funds should be promoted, through the definition and dissemination of guidelines, criteria and methods, the development of specific indicators and, possibly, the definition of operative targets at the European, national, and regional levels. Qualitative monitoring activities should also be carried out to derive lessons on how and why results are (or are not) achieved. Ex-post evaluations and participative evaluations, involving a broad range of key stakeholders, could offer support on how to overcome the critical aspects arising with implementation of the planned interventions.
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Introduction
The present document is the Final Report of the Work package 7: “Effectiveness of Cohesion Policy: Gender Equality and Demographic Change”. It contains the main conclusions and lessons learnt from the literature review and statistical analysis (Task 1), subsequently complemented by the field analysis carried out in twelve case studies (Task 2).
This Draft Final Report is organised in two separate parts:
− Part I: a summary report, the document at hand, summarises the actual contribution of the European Regional Development Fund (ERDF) to the adaptation to demographic change and supporting gender equality;
− Part II: contains the full reports of the twelve case studies, plus an additional report for six mini-case studies; the full list of the reports is as follows: • Basilicata (IT);
• Castilla y Leon (ES);
• East of Scotland (UK);
• Gelderland (NL);
• Latvia (LV);
• Liguria (IT);
• Malta (MT);
• Nord Pas de Calais (FR);
• Övre Norrland (SE);
• Salzburg (AT);
• Saxony (DE);
• Southern and Eastern Ireland (IE);
• Mini-case studies.
More specifically, the present document includes:
− an overview of the methodological approach and outcome of the literature review (Chapter 1);
− a description of the main regional policy approaches to adaptation to demographic change and gender equality, as highlighted in the case studies (Chapter 2);
− presentation of the main findings on the ERDF contribution to the adaptation to demographic change (Chapter 3) and support to gender equality (Chapter 4);
− main conclusions and policy recommendations (Chapter 5).
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Work Package 7: “Effectiveness of the Cohesion Policy: Gender Equality and Demographic Change”
1. Background and methodology
1.1 Aim and context of the evaluation
The aim of the present ex-post exercise3 is to assess the impact of ERDF interventions at the regional level in adapting to demographic change and supporting gender equality. As indicated in the Terms of References, the scope of the study was restricted to twelve regional case studies providing the field evidence and used to test some research hypotheses guiding the whole evaluation exercise. The regions selected were covered by regional/national Objective 1 or Objective 2 Programmes (2000-2006 or 2004-2006), financed totally or partially by ERDF. The study was carried out along the following steps4:
− a literature review on gender equality and demographic trends, especially in relevant areas of ERDF intervention, to set out the analytical framework and formulate the working hypotheses;
− a statistical analysis to derive regional clustering’s on the basis of selected gender equality and demographic indicators, and a literature review on national/regional policy strategies, to identify a long list of twenty regions where the ERDF could have been relevant and a subsequent short list of twelve regions for case studies;
− twelve comprehensive regional case studies and six mini-case studies on examples of good practices, to assess the contribution of the ERDF in improving gender equality and adapting to demographic changes;
− a horizontal reading of the case studies to draw conclusions and lessons learnt with respect to the research hypotheses formulated in the analytical framework.
The remit of the present evaluation posed a great challenge for three main reasons:
− it focuses on two aspects which were not a distinctive area of ERDF intervention;
− gender equality was a horizontal theme within Structural Funds, but was typically addressed by ESF instead of ERDF;
− demographic change was not a policy priority for the Structural Funds, coming up on the policy agendas only in the second half of the period.
3 In accordance with Article 43(1) of European Commission (EC) Regulation No 1260/1999, the ex-post evaluation of Community structural initiatives shall “cover the utilisation of resources and the effectiveness and efficiency of the assistance and its impact”, also drawing conclusions regarding policies on economic and social cohesion. In fact, it shall identify the “factors contributing to the success or failure of implementation and the achievements and results, including their sustainability”. 4 For further details, please see Istituto per la Ricerca Sociale and Centre for Industrial Studies, Effectiveness of Cohesion Policy: Gender Equality and Demographic Change, First and second Intermediate Report, 2008, disposal on the DG Regio website.
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− The methodological response to these challenges was to use a selective approach by focusing on the ERDF fields of interventions that, according to the literature review, were the most likely to influence, even indirectly, gender equality and demographic change. Research hypotheses were formulated on the magnitude and typology of effects that could be observed, and field analysis focused on testing those hypotheses. The limited number of case studies (twelve) for field analysis does not allow for generalisation of the findings, but the results identified and their ultimate effects on the selected regions provide insights into the conditions for success of such measures, whose relevance extends beyond the cases assessed.
− The analysis carried out entails assessment of the extent to which the ERDF supported the selected regions in their adaptation to these structural changes, as well as affording a better understanding of what ERDF interventions can deliver in terms of gender equality and adaptation to demographic change in the future planning periods.
1.2 The analytical framework
The analytical framework developed as the first task of the study provides the conceptual foundation for assessing the role of the ERDF in adapting to demographic change and supporting gender equality. From the literature review a comprehensive picture was obtained of the main demographic and gender equality challenges facing the EU regions with illustration of the different strategies to tackle them at the national and regional levels.
The following sections provide:
− an outline of the main demographic trends and gender equality issues which are relevant in a regional development perspective;
− concise discussion of the main policy responses put in place at the national and regional levels to tackle them;
− description of the potential role of the ERDF in favouring the adaptation to demographic change and supporting gender equality.
1.2.1 Demographic changes and gender equality: emerging needs
While gender equality was explicitly included among the aims of the Structural Funds interventions, adaptation to demographic change came up as a relevant issue for cohesion policy only during the implementation period. Nonetheless, it is currently animating the debate of the post-2013 cohesion policy, and it is one of the four regional challenges (the others being
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climate change, energy efficiency and globalisation ) the Fourth Cohesion Report identified as the future key issues that regions and Member States will be confronted with5.
The literature review6 showed that in relation to demographic change, the most critical dimensions for regional development related to the ageing of the population (mainly on account of declining fertility rates, together with rising life expectancy) and congestion/depopulation patterns, especially in an urban/rural dimension (caused by intra- and interregional as well as international migration). Key trends were:
− the rate of EU population growth is the lowest among the major regions in the world: by the year 2050, the population of the EU27 is expected to have declined from its current 461 million inhabitants to 450 million, according to the baseline variant7;
− with just a few exceptions, natural change is close to zero or even negative (all EU Member States have now total fertility rate levels below 2.1, the level needed for the replacement of generations), while net migration is the only force driving population increases;
− low fertility levels and extended longevity are the causes of the ageing of the EU population, which will become dramatic when the baby boomers reach retirement age in the next few years. Demographic ageing is especially evident in the predominantly rural regions of some Member States, notably Portugal, Spain, Greece, Italy, Germany and France, where the proportion of people over 65 is high. Moreover in Germany, the Nordic and Baltic countries and in Southern Europe, the substantial rural-urban migration of females in the economically active age groups result in a high degree of “masculinisation” of the rural population;
− population trends and distribution vary greatly among the EU regions, with the Nordic countries and cities in Southern Europe showing urban growth, whilst the central and eastern European conurbations generally show a declining population8. The Western European countries have both growing and shrinking cities;
− international migration has gained importance in becoming the major force of population growth since the early 1990s and onwards. In recent years more than three quarters of the total population increase was due to net inward migration9, significant
5 See also European Commission, Regions 2020, Demographic Challenges for European Regions, an Assessment of Future Challenges, Commission Staff working document, 2008. http://ec.europa.eu/regional_policy/sources/docoffic/working/regions2020/pdf/regions2020_en.pdf. 6 See Istituto per la Ricerca Sociale and Centre for Industrial Studies, Effectiveness of Cohesion Policy: Gender Equality and Demographic Change, First Intermediate Report, 2008. 7 Eurostat, EUROPOP 2004, and Lanzieri, G., Long-term Population Projections at National Level, Statistics in Focus, No. 3, Eurostat, Population and social conditions, 2006. http://epp.eurostat.ec.europa.eu/cache/ITY_OFFPUB/KS-NK-06- 003/EN/KS-NK-06-003-EN.PDF. 8 European Commission, Regions 2020, Demographic Challenges for European Regions, an Assessment of Future Challenges, Commission Staff working document, 2008. 9 European Commission, Regions 2020, Demographic Challenges for European Regions, an Assessment of Future Challenges, Commission Staff working document, 2008.
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exceptions being some Eastern European countries where net migration is negative (e.g. Poland, Slovakia, Latvia and Lithuania).
− European Union Regional Policy, (2007),
As regards gender equality, among the six priority areas10 identified by the ‘Roadmap for equality between women and men’11 for the EU Action on Gender Equality, the reconciliation of private and professional life is the most relevant issue in the perspective of regional development. In fact, increasing female participation in working life is a significant contribution to tackling the constraints caused by a shrinking working age population. Work-life balance is a virtuous link between demographic and gender changes, and in this light policies on gender equality may contribute to meeting demographic challenges. More specifically, they can stimulate the employment of women and at the same time support the individual choices of women and men, including decisions regarding the number of children they wish to have. Increased female employment is necessary at the macro level to offset the projected decline in the working population, and at the micro level as a strategy to reduce both the risk of female poverty (in the case of divorce, for instance, or when they get older) and child poverty (children in one-income families are more at risk).
As described in detail in the First Intermediate Report, most European regions are, however, still facing persistent gender inequalities in the labour market and in the social and political sphere which negatively affect their socio-economic growth. Gender gaps and the dimensions of gender (in) equality are also vary greatly across European countries and regions, especially with regard to the main labour market indicators (activity, employment and unemployment rates) and in relation to policy inclusion of the female population. The key features of gender inequality are the following:
− Women still have a lower employment rate than men, despite the narrowing of the gender gap observed in most countries over recent decades12;
− The degree of gender segregation in employment increased slightly in the five years up to 2005. The increase over the period is to a large extent due to the growth of jobs in health and social work, education and business activities. The degree of concentration of female employment differs relatively little across the Member States13. Vertical segregation is also still very common. Women are generally under-represented in the higher level, better-paid managerial and senior positions in organisational hierarchies and occupational career ladders, and over-represented in low-paid jobs;
10 They are: equal economic independence for women and men; reconciliation of private and professional life; equal representation in decision-making; eradication of all forms of gender-based violence; elimination of gender stereotypes; promotion of gender equality in external and development policies. 11 adopted on 1 March 2006. 12 European Foundation for the Improvement of Living and Working Condition, Working Conditions in the European Union: the Gender Perspective, Luxembourg, Office for the Official Publications of the European Communities, 2007. http://www.eurofound.europa.eu/pubdocs/2007/108/en/1/ef07108en.pdf. 13 Eurostat 2008.
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− Throughout the European Union women are more likely than men to be employed with part-time and fixed-term contracts;
− Women’s earnings remain on average below those of men in all the EU countries14. In the EU25 countries, the average gross hourly earnings of women in 2004 are estimated to be 15% less than the gross hourly earnings of men;
− Women’s representation in key positions of power and influence is still far below that of men;
− Across the EU25, the division of responsibilities in the home is highly gendered, with women spending much more time in unpaid work such as household chores and care activities for children and adult dependants.
1.2.2 Policy responses to demographic changes and gender equality
National policies addressing the emerging needs related to demographic change cover a wide range of welfare policies: pension reforms can provide incentives for late retirement, the health care system can guarantee a longer and healthier life, education policies can foster labour productivity and, by providing lifelong learning and vocational training, they can support active ageing, while family-friendly policies may influence the number of individuals who decide to become parents.
Until recently regional level responses to demographic ageing had been piecemeal. The situation is changing, however. More advanced conceptualisations of ageing and the challenges and opportunities they offer beyond the fields of pensions and welfare mean that ageing can no longer be regarded solely as a concern of national governments. It is increasingly recognised that demographic changes also call for the adaptation of public policies usually managed at the regional and local levels, such as education and training policies, local transport, health and social services, housing and urban planning. The progressive regionalisation of policy responsibilities in many EU countries has given regional level bodies a political mandate, institutional power and financial resources to initiate and/or deliver regional strategies. In addition, as noted above, there is increasing awareness of sub-national differences regarding the impact of ageing and a more sophisticated understanding of the need for multi-stranded and multi-level responses. Furthermore, the typologies of services provided are typically delivered locally.
A number of regions have already been active and are at the forefront of strategic thinking regarding proactive moves to tackle the demographic challenge15. Examples of regions with a
14 Eurostat 2007. 15 European Commission, The Demographic Future of Europe – from Challenge to Opportunity, COM (2006) 571 final. http://ec.europa.eu/employment_social/news/2006/oct/demography_en.pdf.
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proactive approach towards demographic issues are those participating in the Network of European regions affected by demographic change16 and/or the Silver Economy Network of Regions.17 In both networks, most of the Regions involved are in Scandinavian and Continental countries, while the Southern countries have only lately been starting to adopt proactive approaches in relation to demographic change.
With regard to the gender equality dimension, within the EU, Member States have different degrees of gender sensitivity and (gender) policy action is defined through differentiated approaches. The Scandinavian and Anglo-Saxon countries are usually more advanced in the mainstreaming of a gender dimension in policy-making, while the Continental and Southern European countries are still mainly relying on specific gender measures, even if declaring adoption of a dual approach.
Some innovative approaches, tools and methodologies have been developed all along the policy cycle18, but their use and dissemination have been partly limited by the limited awareness of the importance of gender equality for socio-economic growth among policy makers and administrations at both the national and regional level. From the policy point of view, it can be said that almost all Member States have some kind of documents19, as formal policy support, for the implementation of gender equality and/or gender mainstreaming, while at the local and regional level there is less evidence of systematic and institutionalised planning for gender mainstreaming across and within European countries and, at the sub-national level, official and specific plans or guidelines on Gender Mainstreaming are still unevenly distributed within countries. Only a few countries have created regional and/or local (at provincial or municipal level) governmental institutions designated to handle Gender Mainstreaming, whereas, at this territorial level, it is more common to find institutions/experts appointed with the broader task of promoting and supporting gender equality. In many cases the institution of such entities stems not from a national plan but from local initiatives or pilot projects which are successively extended to other provinces/municipalities. With specific regard to Gender Impact Assessment (GIA), the core tool for implementing gender mainstreaming, this methodology appears to be developed in a minority of regions and government agencies, given that the introduction of Gender Mainstreaming process is still at the initial stage.
16 The Network of European Regions affected by demographic change regards the issue of demographic change as a regional challenge and considers that this issue could be better tackled through structured dialogue with the Commission and the European Parliament. 17 The Silver Economy Network of Regions is a joint initiative of European regions initiated by the region of North Rhine-Westphalia (Germany) regarding ageing not as a threat but rather as a challenge and an opportunity for regional economic growth and for improving Europe's competitiveness. To realise this, the Silver Economy Network of European Regions (SEN@ER) has been established as a European-wide network of regions to promote the development and marketing of innovative products and services aimed at this new market segment, thereby contributing to regional development and job creation. 18 See, for example, European Commission, Mainstreaming Equal Opportunities in the Structural Funds: how Regions in Germany, France and United Kingdom are Putting into Practice the New Approach, DG XVI, April 1999; and Presidenza del Consiglio dei Ministri – Dipartimento per le Pari Opportunità, Linee Guida per l’Attuazione del Principio di Pari Opportunità per Uomini e Donne e Valutazione dell’Impatto Equitativo di Genere nella Programmazione Operativa, Rome, 1999. 19 Plans, laws, declarations, etc.
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As emerges from the literature review, the key areas offering the most effective regional policy responses to the challenges identified are:
− promoting more and better jobs and longer working lives, especially for women and the elderly;
− delivering local services of general interest such as health and care services;
− providing infrastructures to improve accessibility and foster territorial cohesion.
In this framework there is room for ERDF action to support adaptation to demographic change and improve gender equality. Gender equality and demographic change are, in fact, long-run phenomena, deriving from changes in individual and household behaviours which can be affected by interventions such as those supported by the ERDF in the medium-long run. For example, ERDF measures aimed at female entrepreneurship and social infrastructures may support female employment and the work-life balance; measures supporting infrastructures for the provision of training and care services for the elderly may improve the living conditions of the elder population and support active ageing; finally, ERDF measures developing and enhancing transportation systems, the renewal of urban and local areas, and the development of tourism and rural areas may contribute to the reduction of population imbalances.
1.2.3 Working hypotheses on the potential impact of ERDF in supporting adaptation to demographic changes and improving gender equality
On the basis of analysis of the 2000-2006 Programming documents, with careful consideration of the ERDF Measures financed, the potential impact of the ERDF has been highlighted, distinguishing between direct and indirect impacts20:
− by direct impact of an intervention is meant an impact which directly affects specific target populations (for example, female entrepreneurs, ageing people, migrants, etc.) present in an area;
− by indirect impact is meant an impact which indirectly affects specific population targets present in an area (for example, social infrastructures or transportation and environmental infrastructures indirectly affecting the living conditions and behaviours of women, older people and migrants which, even if not directly geared to the purposes of equal opportunities or demographic change, may contribute, if properly designed
20 See European Commission, Evalsed, INFOREGIO. 2003, downloadable from http://ec.europa.eu/regional_policy/sources/docgener/evaluation/evalsed/index_en.htm. The principles described in this guide generally apply to the evaluation of socio-economic programmes, policies, projects and thematic evaluations.
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and implemented, to improving gender equality and adaptation to demographic change) 21.
This distinction between direct and indirect impacts is particularly important in the case of the ERDF interventions. Many interventions (such as building infrastructures or designing transport systems) may in fact, at a first sight, appear to be neutral (because indirect) from a gender and demographic perspective, but may have strong impact on these areas, possibly proving over the medium and long run even stronger than impacts caused by interventions directly addressing specific population groups.
From a broader literature review it emerges that three areas of intervention, even if not directly linked to demographic change and gender equality issues, could help address the demographic and gender challenges previously described. They are:
− Developing and supporting enterprises, the expected impact being the creation of employment –female employment in the case of direct gender measures –, improving the opportunity to stay or relocate in the target region. The challenges addressed are: out-migration, and the participation of women, migrants and older people in working life.
− Developing and enhancing local infrastructures, regarding three types of infrastructures: social (cultural centres, care facilities, training and educational facilities etc.), transport and ICT. The challenges addressed by social infrastructures are: fertility rate, ageing, in- migration, women’s employment and reproductive behaviour. The challenges faced by transport and ICT infrastructure are: better accessibility to peripheral (often rural and depopulated) areas, ageing and out-migration.
− Supporting local development and the regeneration of urban and rural areas, the expected impact here being enhanced attractiveness for more deprived areas (often rural, depopulated and greatly affected by ageing).
On these intervention areas, some working hypotheses were formulated with regard to the magnitude and typology (direct/indirect) of the impact of the ERDF (see Table 1 for a comprehensive summary of the working hypotheses). These working hypotheses were tested in the case studies and the results are described in Chapter 3 and 4.
21 The distinction between direct and indirect impacts is related to the effects of interventions, not to the type of interventions or their objectives, even if direct impacts are usually the result of interventions targeted to specific population groups (specific measures or positive actions), while indirect effects are usually related to “system interventions”, such as infrastructures, which are not targeted to specific population groups (mainstreamed measures).
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Table 1 - ERDF intervention areas and working hypotheses
Working hypothesis on the potential effects of ERDF Broad areas of ERDF interventions interventions on gender equality and demographic intervention changes − Support for SMEs ERDF interventions may have a potential high direct and (incentives, business Developing and indirect impact on gender equality supporting female services, etc.) for supporting the entrepreneurship. female/immigrants/senior local system of workers’ enterprises ERDF interventions may have a potential medium/high enterprises − Creation of business indirect impact on demographic changes supporting incubators migration and senior workers business start ups. ERDF interventions may have a potential medium/high indirect impact on gender equality increasing and supporting reconciliation of family and working life and Financing care improving the quality of life for both women and men. infrastructures for children, These interventions might also have a direct impact on the elderly, the disabled women’s employment opportunities. ERDF interventions may have a potential medium/high indirect impact on the adaptation to demographic changes Developing and (population ageing and depopulation). enhancing local ERDF interventions extending and improving the infrastructures accessibility of transport infrastructures may have at the urban medium/high indirect impact on adaptation to demographic and regional Financing and adapting changes and gender equality, supporting population level transport infrastructures mobility and reducing the isolation of women, the elderly, the disabled and immigrants; reducing population decline in rural areas and the congestion of urban areas. Financing infrastructures in ERDF intervention may have a medium – high direct and the framework of active indirect impact on adaptation to demographic change and ageing policies (lifelong gender equality by supporting active ageing and female learning, health, ICT, etc.) human capital, reducing the isolation of disadvantaged and population groups (women, the elderly, the disabled, human capital enhancement immigrants), improving health and living conditions. Supporting − Financing basic services local for the local economy and development ERDF interventions may have a potential medium/high population and the renewal indirect impact on demographic changes improving the − Financing renovation and of urban and living conditions in deprived urban/rural areas. the development of rural densely and urban areas populated areas
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1.3 Methodology for case studies
In order to carry out the field analyses, first 20 and then 12 regions were identified with a selection procedure, after which the case studies were carried out. The following sections illustrate the methodology adopted in greater detail.
Figure 1 - Overview of the case study methodology
Statistical analysis 1. identification of relevant indicators at NUTS2 level; 2. descriptive analysis of initial 1 conditions and trends in EU regions; 3. ranking and clustering; Identification of 20 regions 4. additional qualitative criteria (ERDF relevance, programme and territorial coverage)to pick up the 20 regions.
Programme analysis 1. review of the existing literature on national/regional strategies;
2. selection of 12 regions where ERDF 2 interventions were or could be relevant in addressing gender equality and Selection of 12 regions demographic change; 3. formulation of a number of hypotheses on ERDF interventions to be tested in
Field analysis 1. case study template; 2. statistical dataset; 3. methodology for selection of measures. 3
12 case study reports
1.3.1 Selecting the regional case studies
In order to carry out twelve regional case studies, a mixed methodology was applied with quantitative (statistical analysis with clustering) and qualitative (representativeness of countries, Obj.1 and 2 regions and relevance to the ERDF funding) criteria. First, a longer list of twenty cases was drawn up, and then twelve cases were selected.
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For the selection of the 20 regions, the following methodology was used22:
1. identification of a set of demographic change and gender equality indicators;
2. descriptive analysis of the demographic and gender equality initial conditions and trends in EU regions according to the indicators identified;
3. ranking and clustering of the EU regions according to the indicators identified;
4. identification of criteria to select the 20 regions.
A limited set of indicators23 at NUTS2 level24 describing the main trends for demographic change and gender equality issues was considered. These indicators were calculated for the initial and the final year of the programming period under evaluation. The indicators were calculated for all the EU regions in order to have an initial overall picture of demographic change and gender equality conditions and trends across the EU regions. The result was a descriptive analysis based on the selected indicators, mapping the situation across European regions, and identification of those regions affected by specific demographic change and gender equality issues.
The subsequent step was a clustering of the EU regions according to the selected set of indicators, in order to identify clusters of similar EU regions in relation to demographic change and gender equality. A set of 9 regional clusters was identified.
In order to select the 20 regions among those clustered in a given group25, integrative criteria were considered, with special focus on:
− ERDF resource allocation (priority was given to regions that presented the highest value of ERDF expenditure within the same cluster);
− Programme coverage (coverage for Programme/Objective 1 and 2 regions was considered);
− Territorial coverage (no more than two regions per country were considered).
The 20 regions selected were: Nord Pas de Calais, Pohjois-Suomi, Salzburg, Baden- Württemberg, Gelderland, Saxony, Latvia, Közép-Magyarország, Dolnoslaskie, Praha, Bratislavský kraj, Eastern Scotland, Liguria, Castilla y Leon, Malta, Southern and Eastern Ireland, Thessalia, Basilicata, Övre Norrland, Cornwall and Isles of Scilly.
22 The methodology followed for the selection of the case studies is presented in greater detail in the WP7 Inception report and in the First Intermediate Report 23 See Annex I for details. 24 Except for Germany, where, according to the ToRs, the NUTS1 level is considered 25 The final selection of the 20 regions was made with the consideration that all clusters were to be represented. Additionally, the overall size of the clusters had to be taken into account as the larger clusters had to register a greater number of regions in the final sample selection than the smaller clusters.
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In order to select the 12 regions the following steps were performed:
− review of the existing literature on the 20 regions’ national/regional strategies regarding gender equality issues and demographic change;
− selection of 12 regions where the ERDF interventions were or could be relevant in addressing gender equality and demographic change;
− formulation of a number of hypotheses on ERDF interventions addressing gender equality and demographic change to be tested in the case studies.
In order to identify the 12 regional case studies, the 20 Operational Programmes were analysed in depth. Particular attention was paid to those regions where scrutiny of the Planning documents showed ERDF interventions with potential high/medium impacts on gender equality and adaptation to demographic changes.
For a detailed description of the selection process, please refer to the first intermediate report of the WP7 “Effectiveness of the Cohesion Policy: Gender Equality and Demographic Change“.
The final list of the twelve cases is as follows: Basilicata (IT), Castilla Y Leon (ES), Gelderland (NT), Southern and Eastern Ireland (IE), Latvia (LT), Liguria (IT), Malta (MT), Norra Norrland26 (SE), Nord Pas de Calais (FR), Saxony (DE), Salzburg (AT), Eastern Scotland (UK).
1.3.2 Performing the regional case studies
In order to perform the field study, the following levels of analysis were considered:
− the programme and measure level, in order to assess how much evidence there was that gender equality and demographic change issues were explicitly taken into account in the design and implementation of the regional programmes and the specific measures under analysis, as well as the extent to which the programmes and measures specifically targeted these issues;
− the project level: among the measures considered, those interventions and projects which were more likely to contribute to gender equality and adaptation to demographic change in the programming period were selected. For these projects, outputs, results and impacts were considered in greater detail.
The case studies were carried out by country experts, on the basis of a common methodology and a pre-defined template to facilitate comparative assessment.
Overall, factual evidence was acquired based on:
1. Quantitative desk analysis of:
− monitoring data: either presented in the managing documents and/or through direct access to the monitoring system;
26 Norra Norrland is the name of the Program of the Övre Norrland Region (SE).
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− complementary regional and national statistical and administrative data;
2. Qualitative desk analysis of:
− relevant programming documents: Regional and National Sector based Operational Programmes;
− managing documents: Annual Implementation Reports, Evaluation – Mid-term Updates, other evaluation reports, Terms of Reference for the selection of projects;
3. Semi-structured interviews with:
− independent evaluator(s);
− representatives from stakeholders’ associations (women, immigrants, older people associations);
− academics and experts;
− regional officers in charge of policies aimed at Gender Equality/Demographic Change (or national officers, depending on the degree of decentralisation);
− main officer(s) of the Managing Authority in charge of managing the ERDF interventions.
4. In some cases, interviews were carried out with beneficiaries and project managers for a limited number of relevant projects.
When the monitoring systems did not contain sufficient data on impacts, beneficiaries and project managers, interviews and surveys were carried out for selected projects considered relevant in addressing gender equality and demographic change issues.
A common template was used for data gathering (see Annex 2). The template, together with a statistical dataset, was developed by the Project Team, tested in two pilot cases and then delivered to the country correspondents.
In addition, the country experts identified six “mini-case studies” as examples of good practices promoted by the ERDF interventions in the fields of gender equality and adaptation to demographic change. The mini cases identified are: − Gelderland (NL): Establishment of the Multi-cultural Educational – and Care Centre (MOZC); − Liguria (IT): The Don Bosco Institute – at the crossroads of gender equality and social inclusion; − Nord Pas de Calais (FR): Support for the transmission of enterprises; − Norra Norrland (SE): Development of the “Lapponia World Heritage”; − Salzburg (AT): Implementation of company all-day child care facilities in the rural area of Salzburg; − Saxony (DE): Support for urban and local infrastructures.
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− Full description of the mini cases is contained in an ad hoc report provided in addition to the regional cases.
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2. Regional policy approaches to demographic changes and gender equality
This chapter sets out the main findings of the field analysis concerning the extent to which demographic changes and gender equality have been taken into consideration in the overall regional strategy design and the implementation arrangements of the selected 2000-2006 OPs.
Acknowledgement of the importance of emerging needs in the demographic domain is normally followed by an effort on the part of national and regional authorities to adapt service and basic infrastructure delivery, but a comprehensive and pro-active policy approach to the issues is in most cases still lacking.
In this framework, the ERDF intervention design has been only indirectly influenced by some of the most pressing demographic needs of the regions which are related to the specific age structure of the local population: better services for elderly and children, balancing urban/rural population disparities, better integration of the elderly, women and migrants within social and especially productive life.
As regards gender equality, the 2000-2006 regulations called for a dual approach to be pursued: specific positive actions27 together with gender mainstreaming28. According to Regulation 1260/1999 the promotion of equality between men and women was a horizontal principle of all Structural Funds; however, as compared to the demographic issues, there is less awareness of the importance of gender equality for ERDF measures in the regional development perspective. The widespread attitude of policy-makers in the selected regions was to consider the ESF the only tool to tackle equality between men and women, thus missing the real potential of ERDF.
Evidence from the case studies, even if quantitatively limited, shows that positive actions (in the ERDF context they mainly relate to supporting female entrepreneurship) were often designed with scant consideration of the specific needs of women (and this dramatically hampered their success potential), while gender mainstreaming was most of all considered with a compliance attitude in the programming phase, and this has meant poor implementation.
Analysis of the case studies shows that demographic change and gender equality are usually considered in the context analysis but seldom find further development in intervention design, implementation and evaluation systems. In the case of demographic changes, this was probably due to the “novelty” of these issues in policy making and to the difficulties regional and local authorities had in translating local needs into specific interventions within the framework of the ERDF regulations that did not address these issues and did not identify them as explicit priorities in the 2000-2006 programming period. With regard to gender equality, on the other
27 Targeted to a particular group and intended to eliminate and prevent discrimination or offset disadvantages arising from existing attitudes, behaviours and structures. 28 Ensuring that effects on gender equality are considered in all the general measures and operations implemented and in all the phases – from planning to evaluation – irrespective of sector of type of project.
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The chapter is organised as follows:
− in the first section, there is a brief overview of the socio-economic context of the selected regions, in order to have a broad picture of the context in which the analysis took place;
− the second section considers whether, and if so to what extent, the demographic challenges faced by the regions found appropriate responses at the policy level and how the ERDF strategy fits with this framework;
− the third section illustrates the same in terms of needs and policy responses on the gender equality issues.
2.1 Overview of the selected regions
The regions selected are a fair, balanced representation of the main trends, in terms both of the main socio-economic indicators and demographic and gender equality dimensions.
The main socio-economic conditions of the selected regions at the beginning and end of the 2000-2006 programming period are presented in Figures 2 to 6. Even if the labour market and economic situation shows marked regional variance (with the Southern and Eastern regions usually presenting socio-economic conditions worse than the other regions and the EU25 average), for the 2000-2006 period most of the 12 regions show:
− an improvement in employment rates (except for Saxony, Malta and East of Scotland), and a reduction in the unemployment rate in most regions, except Malta, Saxony, Salzburg and Gelderland, and Southern and Eastern Ireland (Figure 2).
− per capita GDP, relative to the EU average expressed in PPS terms, presented a different dynamic: it increased in half of the selected regions, while declining in the others (Figure 3).
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Figure 2 – Total employment (aged 15-64) and unemployment rates in the 12 selected regions, 2000 and 2006
Employment rate 2000 2006 Unemployment rate 2000 2006 70 18
16 60 14 50 12
40 10
30 8 6 20 4 10 2
0 0 EU25 EU25 Malta Malta Latvia Latvia Saxony Saxony Liguria Liguria Salzburg Salzburg Calais Calais Basilicata Basilicata Gelderland Gelderland Nord Pas de de Pas Nord Nord Pas de de Pas Nord Southern and and Southern Southern and and Southern Castilla y León y Castilla Castilla y León y Castilla Övre Norrland Övre Norrland Eastern Ireland Eastern Ireland Eastern Scotland Eastern Scotland
Source: CSIL and IRS processing of Eurostat data, General and Regional Statistics
Figure 3 - Per capita GDP in PPS terms in the 12 selected regions relative to the EU25 average, 2000 and 2006
GDP per capita 2000 2006 180 160 140 120 100 80 60 40 20 0 EU25 Malta Latvia Saxony Liguria Eastern Scotland Salzburg Calais Basilicata Gelderland Nord Pas Nord Pas de Southern and Castilla y León y Castilla Övre Norrland Övre Eastern Ireland Eastern
Source: CSIL and IRS processing of Eurostat data, General and Regional Statistics
In relation to demographic indicators, the old age dependency rate increased in all regions between 2000 and 2005, except for Malta and South-Eastern Ireland, which are also the regions with the lowest ratio. The total fertility rate in 1999 ranged between 0.9 in Castilla y Leon and 2.0 in Nord Pas de Calais (Figure 4).
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Figure 4 - Total fertility rate in 1999 and Old age dependency ratio in 2000 and 2005 in the 12 selected regions
2.5 Total fertility rate 1999 Old age dependency ratio 2.0 2000 2005 1.9 45.0 2.0 1.7 1.7 1.5 1.5 1.5 40.0 1.4 35.0 1.5 1.2 1.2 1.2 0.9 1.0 30.0 1.0 25.0 20.0 0.5 15.0 0.0 10.0 5.0 0.0 EU25 Malta Latvia Saxony Liguria Salzburg Basilicata EU25 Malta Gelderland Latvia Saxony Liguria Salzburg Basilicata Castilla y León y Castilla Övre Norrland Gelderland Eastern Scotland Eastern Nord Pas de Calais de Pas Nord Castilla y Leon y Castilla Övre Norrland Eastern Scotland Eastern Nord Pas de Calais de Pas Nord Southern and Eastern Ireland Eastern and Southern Southern and Eastern Ireland Eastern and Southern
Source: CSIL and IRS processing of Eurostat data, General and Regional Statistics; ESPON for the total fertility rate
Gender equality indicators show the widest gender gaps in employment and unemployment29 in the Southern European regions and the lowest in some of the Nordic and Eastern regions (Norra Norrland, East of Scotland, Latvia) and Saxony and Salzburg. The gender gaps decreased during the considered period in all regions except for Övre Norrland and Latvia (Figure 5), which however show a higher male unemployment rate than female.
Figure 5 - Gender gaps in employment and unemployment in the 12 selected regions, 2000 and 2006
Gender employment gap 2000 2006 10 Gender unemployment gap 2000 2006 45
40 5
35 0 30 -5 25
20 -10
15 -15 10 -20 5
0 EU25 Malta Latvia Saxony Liguria Salzburg Basilicata Gelderland EU25 Malta Latvia Castilla León y Övre Norrland Saxony Liguria Eastern Scotland Eastern Salzburg Calais Basilicata Nord Pas de Calais Gelderland Nord Pas de de Pas Nord Southern and and Southern Castilla y Leòn y Castilla Övre Norrland Övre Eastern Ireland Eastern Scotland Southern and Eastern Ireland Eastern and Southern
Source: CSIL and IRS processing of Eurostat data, General and Regional Statistics
29 They are defined as the difference between male and female employment/unemployment rates.
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Figure 6 - Female employment rate in the 12 selected regions, 2000 and 2006
Female employment rate 2000 2006 Male employment rate 2000 2006
70 80 60 70
50 60 50 40 40 30 30 20 20 10 10 0 0 EU25 EU25 Malta Malta Latvia Latvia Saxony Saxony Liguria Liguria Salzburg Salzburg Basilicata Basilicata Gelderland Gelderland Ireland Castilla y Leon y Castilla Leon y Castilla Övre Norrland Ireland Övre Norrland Eastern Scotland Eastern Scotland Nord Pas de Calais de Pas Nord Calais de Pas Nord Southern and Eastern Eastern and Southern Southern andEastern
Source: CSIL and IRS processing of Eurostat data, General and Regional Statistics
Except for Eastern Scotland, the female employment rate increased in all the twelve selected regions between 2000-2006, while a slight decrease in the male employment rate has been observed for Malta, Gelderland, East of Scotland, Saxony and Salzburg. In other regions (Basilicata, Castilla y Leon, Liguria, Nord Pas de Calais, Southern and Eastern Ireland) the female employment rate increased more than the male rate. The two regions experiencing an increase in the gender employment gap (Latvia and Övre Norrland) show instead an increase in the male employment rate higher than the female one.
2.2 Strategies for demographic change
2.2.1 Regional emerging needs and policy responses
With the exception of Ireland and, to a lesser extent, Nord Pas De Calais, progressive ageing and depopulation due to outmigration were already the most pressing demographic problems in the 2000-2006 period in all the twelve regions considered. However, in most of the case studies, no comprehensive policy framework was in place at the national or regional levels to tackle demographic changes, and policy interventions have been implemented in a rather fragmented and uncoordinated manner. Only in a minority of the analysed cases (such as Ireland, Liguria and, to a certain extent, Gelderland and Saxony) has a comprehensive framework of interventions been put in place. In the exceptional cases where demographic challenges are still not so pressing (for example as in the case of Ireland for the ageing of population), some interesting policy responses may be found30, especially addressing the rural – urban population imbalances.
30 For example, in Ireland the current (2007-2013) NDP makes provision for an ageing population with an annual transfer of 1% of GNP (Gross National Product) to the National Pensions Reserve Fund.
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2.2.1.1 Ageing
A low fertility rate and little propensity to parenthood, or late parenthood, are the main reasons leading to the low or null natural growth rate. The best performing regions in terms of fertility rates (Gelderland, Southern and Eastern Ireland and Nord Pas de Calais) confirm the crucial role of national or regional family-friendly policies in influencing the trend.
Within our regional case studies sample, the most common policy response to ageing at the national level are social security and pension reform policies, while the provision of social services targeted to the elderly – basically health and care facilities – typically remains a field of action for regional and local governments, as shown in the Liguria case.
These measures usually aim at adapting existing schemes by providing the elderly with services, alleviating the effects of their inactivity (through health care or recreational activities) rather than promoting innovative measures to involve the elderly in a more active way in economic and social life: only in a minority of cases (as in Scotland) have active ageing measures been implemented. The range of services that an active ageing policy would require goes from Lifelong Learning activities to transport and ICT accessibility and measures promoting employability.
Box 1 – East of Scotland (UK): a good example of active aging policy
The Scottish Executive introduced a range of support policies for older people, providing services to enable them to remain in their own homes for as long as possible, to improve the accessibility of transport services to enable older people to participate and access opportunities, or the Lifelong Learning Strategy, where colleges and universities are encouraged to respond to the demands of the ageing population by providing appropriate training and learning opportunities. Employability of elder people was also supported through the campaign “Workforce Plus - an Employability Framework for Scotland”31 , which was designed to help older people of working age to get back into work. For the future, there were plans for the enterprise networks to monitor older people’s interest in setting up new businesses, and to consider developing marketing approaches specifically aimed at older people. For example, Scottish Enterprise piloted Personal Enterprise shows with specific emphasis on people aged over 50.
Source: East of Scotland (UK) case study
Within the regional case studies, the involvement of the private sector in implementing these policies differs and varies according to the national context and background. For example in the case of East of Scotland, the responsibility for dealing with this demographic trend was seen as primarily belonging to the private sector, the government’s role being to facilitate the transition to new patterns of work that took account of an ageing workforce, by making sure that people had access to information and life-long learning opportunities. In the majority of cases, however, national and regional governments bear the major responsibility not only to provide the general framework but also to deliver the services to the elderly.
31 The Scottish government, http://www.scotland.gov.uk/Publications/2006/06/12094904/2.
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2.2.1.2 Migrations and urban-rural population disparities
Within Member States and also within regions, population disparities between depopulated rural areas and congested urban areas are quite common. Regional disparities in population distribution mainly relate to urban-rural or coastal-inland locations: in Latvia, people migrate from the peripheral areas to Riga, the capital; in Ireland people are concentrated in the Greater Dublin Area and in Liguria and Övre Norrland the most developed coastal areas are the most densely inhabited. The main drive for relocating to urban centres is better employment opportunities, especially for young skilled workers. For this reason, the depopulation of rural areas is often coupled with ageing rural populations.
National and regional policy responses to population disparities relate to regeneration interventions and investments in infrastructures to improve the living conditions of the resident population and accessibility to services. Infrastructural investments (essentially transport, but also ICT) and the provision of social services are the most common responses, especially to overcome accessibility shortcomings. A more indirect policy response is the support for employment opportunities, although they are often generic measures for the entire region and not specifically targeted to areas most in need of repopulating.
Improving the quality of life of the residents, through infrastructural endowments, better services and in particular employment possibilities, was expected to give the population stronger motivation to stay in rural and depopulated areas. The most promising interventions were those targeting rural areas with integrated plans, strategically combining infrastructural and business measures, especially in the typical industries of the rural and most peripheral areas, like tourism, agriculture and the food industry. Different stakeholders and different levels of government are supposed to be involved in such comprehensive strategies. The Irish strategies represent a good example of such policies.
Box 2 – Southern and Eastern Ireland: examples of national/regional policies addressing depopulation in rural areas
One of the most important policy interventions in the field of demographic change is the Irish National Spatial Strategy (NSS) (2002-2020). The NSS was launched in 2002 and sets out a long-term, strategic approach to planning for the development of the country at the national, regional and local level and reducing imbalances in the distribution of the population across regions. At the regional level, Regional Planning Guidelines (RPGs) were adopted by all the Regional Authorities in mid-2004. These guidelines are expected to be linked to National Spatial Strategy priorities. Elements of the strategies outlined in the RPGs echo the demographic issues outlined in the OP. For example, the issues identified included the need to strengthen the established structure of villages and smaller towns (South East), and the need for the provision of broadband services to a wide range of towns and villages to help achieve balanced regional development (South-West, Mid-West).
Two initiatives specifically aimed at rural areas were launched during the 2000-2006 programme period to help prioritise funding under the National Development Plan (NPD). CLAR (Ceantair Laga Árd- Riachtanais), launched in 2001 with a budget of €25.4m, is a fund for special projects addressing depopulation and the decline in and lack of services in rural areas. The initiative provides funding and co-
35 Final Report funding to Government departments, State agencies and local authorities to step up investment in selected priority fields, supporting physical, economic and social infrastructure, and targeting specified rural areas. The funding was to be spent in 16 selected areas, expediting NDP expenditure and supporting public and community projects, including roads, infrastructure developments, broadband and infrastructure for the provision of facilities for the very young. CLAR has been used, for example, to co-fund LEADER projects. The RAPID (Revitalising Areas by Planning, Investment and Development) Programme targets 45 disadvantaged areas, including urban areas and provincial towns.
Source: Southern and Eastern Ireland (IE) case study
Another issue that emerges from the regional case studies is that the out-migration of young people looking for better employment conditions outside their region of origin is often associated with ageing population in the most remote rural areas. Specific measures to attract the young and women to settle down in the region or in specific rural areas are interesting ways of responding to this specific need.
Box 3 –Basilicata (IT), Latvia (LT) and East of Scotland: Examples of regional measures fostering in- migration
In view of the large scale of migration, the regional Government has passed a specific law (Regional Law 16/2002) regarding Basilicata citizens living abroad. The law defines the essential measures to sustain emigrant return through forms of solidarity and protection for the emigrants and their families, reinforcement of original identity, intervention for reintegration in the local labour market and social life, and financing of conventions and agreements with areas most affected by migration, starting from university institutions.
In Latvia: The Law on Labour Protection can be read as an attempt by the Latvian Government to encourage people to remain in the Region and contribute to local market growth.
In Scotland, in 2003 the Scottish Executive introduced the Fresh Talent Initiative, which aimed to counter the effects of population decline through greater retention of people and in-migration. Its objectives were to: - encourage people to think about coming to live and work in Scotland, as well as supporting efforts to retain people already living in Scotland who wished to begin, or to further, their careers in Scotland; - attract talented individuals to consider Scotland as a relocation destination; - help achieve the view of Scotland as a safe, open, tolerant society offering people an attractive lifestyle; and to - help Scotland’s economic performance and add to the diversity of its population32. Source: Basilicata (IT), Latvia (LT) and Scotland (UK) case studies
The other aspect of migration is the social inclusion of foreign migrants. National governments mainly regulate the general framework for the recognition of citizenship and basic rights. In the
32 Scottish Executive (2004), Framework for Economic Development in Scotland.
36 Work Package 7: “Effectiveness of the Cohesion Policy: Gender Equality and Demographic Change” cases where those measures have been more restrictive, they have had the ultimate effect of reducing the in-migrant flow in the long-term: such is the case of the Netherlands and Austria.
The approach to social inclusion at the regional level is multi-faceted, including housing, social services or targeted interventions aimed at areas and groups affected by poverty and social exclusion. An example of the regional approach is offered by the Liguria, where regional legislation was enacted in 2007 to promote the social inclusion of immigrants.
Box 4 – Liguria (IT): an example of regional policy aimed at the social integration of migrants
In Liguria, the issue of migration was only recently included in the regional political agenda, with the approval of regional law no. 7/2007, which promotes the social integration of non-EU citizens, in order to protect their fundamental rights, ensure equal opportunities in access to services and improve the protection of women and minors. The law established a council for the integration of foreign migrant citizens, which is involved at the policy/project programming and planning level. The council includes four sub-commissions (labour conditions, cultural inclusion, health and housing). A sum of €960,000 was allocated for implementation of the regional provision.
Source: Liguria (IT) case study
On the other hand, urban policies are carried out at the regional and local level to tackle congestion and provide better infrastructures to serve the needs of the growing communities. Saxony and Gelderland provide interesting examples of national and municipal policies aimed at the regeneration of urban centres, to which the ERDF funds also contributed.
Box 5 – Gelderland (NL): example of national and municipal policies for the larger cities
Policies for larger cities (GSB - Grote Stedenbeleid) was introduced in 1994 and aims at improving the physical, social and economic environment in large cities. The Investment Budget Urban Renewal focuses on the physical aspects of the urban environment. It is based on a multi-year programme setting the budget allocation for urban renewal (ISV- Investment Budget Urban Renewal) on the basis of city-wide targets. Under the GSB, priority neighbourhoods were selected which require an integrated approach for rehabilitation and ISV funds were matched with other investments in social cohesion and economic development measures. In the 30 largest cities, 56 of such neighbourhoods were identified.
Source: Gelderland (NL) case study
2.2.2 ERDF strategies
Demographic change was not a policy priority for Structural Funds in the 2000-2006 programming period, coming up in the policy agenda as a relevant issue for cohesion policy only towards the end of the period.
However, context analyses of the selected OPs show widespread policy awareness regarding the demographic challenges. Ten of the twelve case studies refer, in the parts of their ERDF OPs devoted to the context analysis, to specific demographic changes such as:
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− progressive ageing and depopulation;
− migratory trends and population disparities between urban and rural peripheral centres.
With only some exceptions (the case of Ireland and to a less extent Nord Pas de Calais), the ageing of the population and depopulation due to outmigration are the most pressing demographic problems of all the regions analysed33. The decline of the working age population in particular is felt to be a threat to the future development of most of the regions analysed.
Parallel to national/regional policy responses, ERDF general objectives place attention on demographic changes mostly in an indirect way. Economic development is the main objective of the regional Operational Programmes, also to be achieved by tackling the negative demographic trends in order to increase regional attractiveness, from both the economic and social point of view. Interventions addressing demographic issues were mainly framed in terms of measures supporting local development, employment and local infrastructures.
The regional OPs indicate specific local development objectives (linked to specific Measures) which may have indirect effects on the region’s adaptation to demographic change, reducing depopulation and out-migration in peripheral and rural areas and improving local living conditions in rural and urban areas.
As shown in Table 2, all the regional case studies have included in their OPs the ERDF measures selected as relevant (mainly indirectly) for addressing demographic change:
− supporting local business start ups;
− developing social infrastructures and supporting the social economy;
− supporting urban/rural regeneration;
− reinforcing transport infrastructures;
− supporting tourism promotion;
− increasing ICT usage and networks.
Table 2 also presents the ERDF funds allocated to the selected measures in the twelve regional case studies and their incidence over the total ERDF resources available for the regional OPs considered. Overall, the selected measures for demographic change account for 22% of the total ERDF budget for the selected regional case studies. Their incidence goes from 55.9% of total ERDF allocations in Salzburg (where however the ERDF budget was very small), to 5.33% in Latvia. The most relevant measures in financial terms are local transport infrastructures and urban regeneration programmes.
33 However, also in the case of Ireland it is recorded that ageing will become a serious problem in the next decade, with an elderly dependency ratio expected to triple by 2050.
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Table 2 - Measures selected in relation to Demographic Change ERDF % of the total REGIONS MEASURES ALLOCATION (€) ERDF - Hydro-geological risk mitigation 7,385,308 3.67 Liguria - Supporting social economy 7,999,154 3.97 - Urban regeneration 16,168,024 8.03 - Support for creation and transmission of enterprises 5,290,936 0.95 Nord pas de Calais - Territorial development 29,068,512 5.23 - Urban policy 48,022,000 8.63 Southern and Eastern - Urban and village renewal 44,188,000 10.8 Ireland - E-Commerce and advanced communications system 43,780,000 10.7 - IT infrastructure 25,632,002 9.87 - Transport infrastructure and transport solutions 25,580,000 9.85 - Natural and cultural environment 18,207,187 7.01 Övre Norrland - The living environment, cultural life and local development 17,383,656 6.69 - Development of Sami countryside and culture 2,499,112 0.96 - Improvement of tourist facilities through enterprise investments and cooperation 3,710,899 20.02 - Improvement of infrastructure and destination attraction 3,108,719 16.77 Salzburg - Innovative investments for Start-ups and established enterprises, maintain existing companies and attract SME 3,039,267 16.40 - Improvement of equal opportunities through further education and provision of childcare facilities 503,018 2.71 - Improving education infrastructure 229,905,280 6.71 Saxony - Local and urban infrastructures 151,491,413 4.42
Latvia - Development of ICT 20,381,000 5.33
- Infrastructure (Sub Measure Transport Infrastructures) 9,396,198 20.12 - Support for the Tourism Sector 3,475,505 7.44 Malta* - Basic Infrastructure and development of the tourism Sector 6,105,000 13.07 - Support for Enterprises 1,875,000 4.02 - Ecological network 15,136,500 3.49 - Education facilities 19,345,000 4.46 - Improvement of infrastructures for industry, crafts and services 25,135,000 5.79 Basilicata - Development and promotion of tourism 32,003,000 7.38 - Promotion of internalization of Basilicata 1,206,500 0.28 - Development of local transport networks 58,817,442 13.56 - Non material networks 38,010,058 8.76 - Strengthening of social cohesion and cultural identity (SPD EN) 17,596,827 11.89 Gelderland** - Functioning of labour market (SPD UA) 2,183,891 1.05 - Socio-economic activation (SPD UA) 2,137,794 1.03 - Information society 29,162,001 1.27 - Infrastructures and collective facilities in municipalities Castilla y Leon with fewer than 20,000 inhabitants 30,293,000 1.32 - Health and social infrastructures and facilities 121,393,113 5.27 - Roads and highways 689,560,324 29.96 - SME creation and development 27,903,500 10.53 - CED capacity Building 498,350 0.19 East of Scotland - CED spatial 49,374,650 18.63 - CED Implementation – Thematic Activity 1,487,000 0.56 Source: CSIL and IRS processing on DG Regio data. *Data from Malta Objective 1 2004-2006 SPD; **Data from the Objective 2 Programmes “East Netherlands” and “Urban Areas Netherlands”.
Only in a limited number of cases were objectives explicitly and directly related to specific demographic issues, as in the case of the Norra Norrland programme, with the objective of
39 Final Report supporting the “Development of the Sami Culture”34. Another interesting case is the Nord Pas de Calais programme, where the SPD deals explicitly with the issue of the ageing of entrepreneurs who may neglect to provide for transmission of their businesses. This measure explicitly takes into account a demographic trend (ageing), but does not deal with the older population per se: it is in fact destined to preserve jobs and redistribute them among the active workforce.
As a consequence of the relatively little attention paid to demographic changes in the formulation of specific objectives, implementation procedures were not specifically designed for demography-related issues:
− in all the case studies no specific stakeholder groups with a demographic focus (such as, for example, migrants’ associations, or old people’s associations, etc.) were involved either during the Programme design phase or during monitoring and evaluation;
− as a result, very few arrangements to monitor demographic variables were implemented. When present, monitoring indicators were only indirectly related to population growth and/or improving the regional socio-economic conditions (such as, for example, indicators regarding participants in social and/or qualification interventions, population growth rates, jobs created or safeguarded, etc.). Specific demography-related indicators were internalised in the monitoring system only in a few cases: for example, in the case of Saxony, the impact indicator for the measure supporting urban and local infrastructures included “net migration in supported areas”; in the case of Liguria, the result indicator for the urban regeneration measure included ”population growth within potentially targeted areas”;
− project selection criteria did not consider demographic issues in half of the case studies. Even when present, selection criteria were only indirectly related to vulnerable target groups or marginal areas. This is exemplified in the case of Liguria, where the project selection criteria for the measure supporting the social economy included “employment opportunities aimed at […] assisting dependent people” and “new structures for areas lacking social services”, while the selection criteria for the measure supporting intervention for urban regeneration was based on “infrastructural interventions in marginal areas”. Also in Basilicata some selection criteria were indirectly related to demographic variables, as for example for the measure supporting the local transport network, which included the “improvement of the accessibility of urban centres”. Other interesting examples of demography-sensitive selection criteria were offered by the Saxony Programme (where the selection criteria for interventions in local and urban infrastructures included the “inclusion of disadvantaged groups” and “participation of the local population) and by the Norra Norrland Programme (where criteria related to “positive effects in inland areas and islands” and to “positive effects on population health”).
34 Priority 6 (Sami programme) aimed to develop Sami industry and culture by safeguarding traditional industry while also creating conditions for new activities.
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2.3 Strategies for gender equality
2.3.1 Regional emerging needs and policy responses
In the regional development perspective, the still limited participation of women in the labour market is a major constraint on growth. Together with in-migration, higher participation of women in productive life is a possible solution to a shrinking labour force influenced by depopulation and ageing trends. Participation in the labour force is closely related to the reconciliation of work and family life, which is also related to reproductive choices. The interrelationship with demographic aspects of gender equality in labour market access is thus evident.
There is great awareness at the national and especially at the regional level of the pressing need to increase female employment and the quality and extent of female participation in the labour market.
Box 6: Austria: an example of national legislation to improve women’s integration in the labour market
The Austrian legislation provided for particular measures for the encouragement of women at the federal and local levels, in order to achieve de facto equal opportunity between women and men.
Two decrees were implemented in order to improve women’s integration. On 1 April 2000, the Decree for the support of female employees in public hospitals (Frauenförderplan für die Landeskliniken) was implemented, addressing the particular needs of employed women. This included adaptation of working times and improvement of working conditions. On May 2004, a second decree to support female employees in Federal institutions (Frauenförderplan für den Landesdienst) was introduced. Several measures were also set out for career advancement, work life balance, and gender-divided collection of statistics in public institutions.
Source: Salzburg (DE) case study
The main policy response at the regional level is, however, limited to supporting female entrepreneurship, seen as a way to increase the female presence on the labour market and, given the greater flexibility that the self-employed or entrepreneurs may have, especially in working time, to tackle the working and family life balance. In some cases, especially in those countries – like Italy – showing marked differences from one Region to another, national intervention to favour the implementation of female entrepreneurship was reinforced with regional interventions.
Box 7: Italy: Example of integrated strategies between national and regional intervention in the field of female entrepreneurship
Italian National Law 215/1992 aims to support women’s entrepreneurship. The scheme applies to investment projects carried out by small firms managed and held by a woman or large majority of
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women. Assistance takes the form of capital grants for projects related to setting up a new business, or to an existing business take-over, to the reorganisation or modernisation of an existing business or to advisory service sourcing. The eligibility and grants of applicant firms are decided after evaluation of the projects submitted. The available funds are granted on the basis of regional and sectoral shortlists. Project ranking depends on specific criteria related to the percentage of women partners in the firm or company shares held by women, number of jobs created and women employed, project types and regional priorities.
Implementation of this law at the regional level shows the great interest there is (high and increasing number of applications submitted) in female entrepreneurship, especially in the new economic sector associated with tourism and arts and crafts. At the same time, it shows the real need to obtain financial support from the Government (at both national and regional level) given the rigidity of the Basilicata banking system, considered more unfavourable than in other Italian regions, especially towards women35.
Source: Basilicata (IT) case study
Other regional policy responses are related to the provision of services improving the work-life balance.
Box 8: Liguria: an example of regional intervention for child-care services and infrastructures
With Regional Council Resolution no. 737 of 8/07/04 the Liguria Region allocated about €2 million for the realisation of nurseries, integration and innovative services; and €1 million for testing nursery services to be provided at workplaces or close to them.
Source: Liguria (IT) case study
In a wider perspective, the general equal opportunity principle is also related to the social and political dimension of discrimination between men and women. In this respect, national and regional authorities may engage in interventions mainly to set legal frameworks and to state and enforce the concept and principle of equal opportunities in different dimensions of life. These are typical initiatives in countries or regions where there is little political awareness, such as Latvia. In such a framework capacity building, communication and awareness rising are the implementation measures.
Box 9 – Latvia: Example of national programme for Gender Equality
A national strategy in Latvia aimed to raise awareness about gender issues has recently been promoted by the Latvian government. In 2005, a Programme for the Implementation of Gender Equality was adopted in order to ensure public awareness regarding gender equality issues, to facilitate an increase in the community’s knowledge and understanding of the subject and to create a positive attitude in the community with regard to gender equality. The Programme is a mid-term policy planning document.
35 Ernst & Young, Valutazione indipendente del POR Basilicata 2000-2006 - Rapporto di Valutazione Intermedia, Dicembre 2003.
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According to common perceptions, comprehension of the concept of equal opportunities between genders is not widespread and subject to misunderstandings that often lead to diffidence and rejection. For this reason, the programme and measures aim to educate and inform. Implementation of the programme is expected to broaden the set of targets due to information and awareness-raising.
Source: Latvia (LV) case study
2.3.2 ERDF strategies
Gender equality, as defined by the Council of Europe (1998), “means an equal visibility, empowerment and participation of both sexes in all spheres of public and private life. Gender equality is the opposite of gender inequality, not of gender difference, and aims to promote the full participation of women and men in society.”
In tackling gender equality the EU has adopted an integrated strategy which encompasses both pro-active intervention (gender mainstreaming) and reactive intervention (specific measures such as policies tackling gender gap, reconciling policies, etc). This strategy implies the adoption of both vertical priorities (for example, positive actions to overcome barriers to access employment and services or to increase women’s participation to the labour market) and horizontal priorities, aimed to integrate a gender perspective into every policy and into every step of policy processes (gender mainstreaming approach). In particular, 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 at all stages, by the actors normally involved in policy-making.” (Council of Europe, 1998)36. Gender mainstreaming is thus a policy approach which aims at the integration of a gender perspective into every policy and into every step of policy processes, from design to implementation, monitoring and evaluation37. It is based on the recognition that women and men do not have the same resources, needs and preferences and that many structures, systems and policies are not gender neutral, but treat men’s experience as the norm.
The General Regulation38 of Structural Funds (2000-2006) adopts the gender mainstreaming approach by providing that the gender equality dimension must be incorporated into all
36 The concept of Gender Mainstreaming (GM) appeared for the first time in the United Nations Third World Conference on Women (Nairobi, 1985), in relation to the debate on the Status of Women and on the role of women in development, and was adopted in the Platform for Action defined at the United Nations Fourth World Conference on Women (Beijing, 1995). 37 In 1996, the Commission defined the adopted GM approach as: “The systematic consideration of the differences between the conditions, situations and needs of women and men in all Community policies and actions: this is the basic feature of the principle of 'mainstreaming', which the Commission has adopted. This does not mean simply making Community programmes or resources more accessible to women, but rather the simultaneous mobilisation of legal instruments, financial resources and the Community’s analytical and organisational capacities in order to introduce in all areas the desire to build balanced relationships between women and men. In this respect it is necessary and important to base the policy of equality between women and men on a sound statistical analysis of the situation of women and men in the various areas of life and the changes taking place in societies.” COM (96) 67 final. 38 Council Regulation (EC) No 1260/1999 of 21 June 1999 laying down general provisions on the Structural Funds. In the General Regulation for Structural Funds, the issue of gender equality is explicitly mentioned in 10 of the 56 articles.
43 Final Report operations co-financed by the Funds. The equal opportunity principle must be considered in every step of the policy cycle: ex-ante evaluation of the national plans must take equal opportunities into account (Article 41); statistics and monitoring indicators are to be broken down by sex (Article 36); the contribution of the Funds must be differentiated according to whether measures promote equality (Article 29); the Monitoring Committees have to guarantee a balanced participation of men and women (Article 35) and the Managing Authorities shall be responsible for ensuring that publicity is given and for informing bodies which promote equality for men and women (Article 46).
The regulations of European Regional Development Fund (ERDF)39, even if not fostering specific policy fields devoted to equal opportunities, underline gender parity as a horizontal priority and a specific commitment for the Programming period 2000-2006; in particular, according to Art. 2 1783/1999 the financial contribution of the ERDF shall support, among others “equality between women and men in the field of employment, principally through the establishment of firms and through infrastructure or services enabling the reconciliation of family and working life”.
Adoption of the gender mainstreaming approach in ERDF strategies
The selected regional case studies show that over the 2000-2006 period much has been done to prepare the necessary conditions for successful gender mainstreaming, acknowledging the legitimacy of such a strategy and, especially in some countries, developing the necessary tools to apply this principle concretely to policy making. However the inclusion of gender mainstreaming policies in ERDF must be perfected and strengthened and more should be done to translate broad and specific objectives into practice and effective actions.
Indeed, if looking along the policy cycle, in all the twelve case studies, the context analysis refers to gender equality issues, usually focusing on women’s participation in the labour market and in education. In many cases (Basilicata, Liguria, NPC, Salzburg, Castilla y Leon, East of Scotland), there was a specific section dealing with gender and equal opportunity issues. Whether gender-specific context analyses are carried out does not automatically mean that concrete actions are taken on this basis and that gender mainstreaming is spread along all policies.
Within the general objective of economic growth and development, gender equality is, in fact, only related to women’s access to the labour market, with women as a specific target group in employment enhancing measures and business support.
This is, of course, reflected, in the specific objectives (linked to specific Measures) addressing gender equality. In many cases there is still confusion between gender mainstreaming and positive actions for equal opportunity in employment, and the inclusion of measures directly
39 Regulation (EC) No 1783/1999 of the European Parliament and of the Council of 12 July 1999 on the European Regional Development Fund.
44 Work Package 7: “Effectiveness of the Cohesion Policy: Gender Equality and Demographic Change” targeted to women (such as those related to female entrepreneurship40) is taken as evidence for carrying out gender mainstreaming approach.
The difficulties in considering gender equality issues in measures not directly aimed at improving female employment are a concrete sign of a still scarce dissemination of the gender mainstreaming approach in programming systems and infrastructure interventions.
The shift from a simple, analytical “female condition” approach to a more complex incorporation of the “gender perspective” into all aspects and policies still poses great difficulties. It entails shifting to a new approach in relation to programmes and policies in which gender aspects may represent an essential element if viewed from the gender perspective.
In many cases, gender relevant measures41 (such as the implementation of day-care facilities or social infrastructures) were envisaged, but not, always, with the acknowledgment of their importance in terms of gender equality. In particular:
− developing child care infrastructures was explicitly indicated in three cases (Salzburg- AT, Saxony-DE, Southern and Eastern Ireland-IE) and implicitly (within the development of social and care infrastructures) in many others (for example, in Liguria- IT, Gelderland-NT, Malta);
− The employment effects for women in the promotion of tourist facilities and infrastructures and in supporting historical and cultural resources were also addressed by many regional programmes, even if none explicitly set employment objectives for women.
Table 3 presents ERDF measures considered relevant to addressing gender equality as well as the ERDF funds allocated to the selected measures in the twelve regional case studies and their incidence over the total ERDF resources available for the considered regional OPs.
Overall, the selected measures for gender equality account for 21% of the total ERDF budget for the selected regional case studies. Their incidence goes from 97.6% in Liguria to 6.5% in Salzburg. Among the measures selected, the most relevant measures in financial terms are those supporting enterprises, in particular SMEs, and productive investments.
40 Promoting female entrepreneurship was explicitly considered in many of the regional case studies. 41 By gender-relevant measures are meant those measures that, even if not explicitly, entail some gender relevance.
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Table 3 - Measures selected in relation to Gender Equality
ERDF % of the total REGIONS MEASURES ALLOCATION ERDF (€) - Female entrepreneurship 2,190,000 1.09 - Promoting small investments and
Investments of small traders associations Liguria* 170,230,000 84.51 (C.I.V.) 7,999,154 3.97 - Supporting social economy 16,168,024 8.03 - Urban regeneration - Support for creation and transmission of 5,290,936 0.95 enterprises Nord pas de Calais - Territorial development 29,068,512 5.23 - Urban policy 48,022,000 8.63 Southern and Eastern - Micro-enterprises 39,702,601 9.74 Ireland - Childcare 46,076,000 11.30 - IT infrastructure 25,632,002 9.87 Övre Norrland - Support for SMEs (2.2a) e General initiatives for the economy (2.2b) 79,761,281 30.70 - Improvement of equal opportunities through further education and provision of Salzburg childcare facilities 503,018 2.71 - Regional Management 709,410 3.83 - - Supporting productive investments 642,943,371 18.77 Saxony - Innovation assistants 8,249,999 0.24 - Local and urban infrastructures 151,491,413 4.42
Latvia - Access to finance for SMEs 25,811,844 6.76
- Infrastructure (Sub Measures 1.2.2 and 4,478,802 9.59 Malta** 1.2.3) 1,875,000 4.02 - Support for Enterprises - Preservation and valorisation of historical
and cultural 34,085,000 7.86 - Market policies for industrial, hand-craft,
trade and services enterprises 15,000,000 3.46 Basilicata - Support for tourism and business ventures 17,136,000 3.95 - Promotion of enterprises in the sectors of
industry, crafts, trade and services 19,036,000 4.39 - Services for individuals and for the 2,080,000 0.48 community 17,596,827 11.89 - - Strengthening of social cohesion and
cultural identity (SPD EN) Gelderland*** 2,183,891 1.05 - - Functioning of labour market (SPD UA)
- - Socio-economic activation (SPD UA) 2,137,794 1.03 - Improvement of financing conditions for enterprises 110,957,998 4.82 Castilla y Leon - Construction, reform and facilities for educational and vocational training centres 162,762,451 7.07 - SME creation and development 27,903,500 10.53 East of Scotland - CED spatial 49,374,650 18.63 - Technology and knowledge transfer 25,250,000 9.53 Source: CSIL and IRS processing on DG Regio data. * Data from Liguria 2000-2006 SPD for the Sub Measures Promoting small investments and Investments of small traders associations (C.I.V.); **Data from Malta Objective 1 2004-2006 SPD; ***Data from the Objective 2 Programmes “East Netherlands” and “Urban Areas Netherlands”.
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The case studies analysis confirms that implementation procedures specifically designed to tackle gender equality issues were present only in a few cases, often due to unclear definition of gender equality as a horizontal objective, lack of awareness of the importance of gender equality for local development and lack of clear guidelines and selection criteria in project selection.
− Stakeholder groups with a gender equality focus (such as women’s associations, gender equality commissioners, etc.) were only partially involved during the Programme design phase, while only in two cases (Basilicata and East of Scotland) were these stakeholders involved in monitoring and evaluation.
− Few of the analysed regions (4 out of 12) showed specific governance assets to support local awareness on gender equality issues. For example, in Övre Norrland (SE), Salzburg (AT) and East of Scotland (UK), gender equality experts or Equal Opportunity Commissioners were involved in the design, monitoring and evaluation of the ERDF programme. In Basilicata (IT), an Equal Opportunity Authority was created with a consultative role. In most of these cases, specific governance assets have been a driving force to increase regional awareness on gender equality issues. Nevertheless, their mere formal and consultative role implied the fact that implementation of their advice was mainly based on the willingness of regional officials engaged in applying the single Measures.
− Selection criteria usually considered gender equality only for those measures directly aimed at women (such as projects promoting female business start-ups), and in some cases (such as Liguria-IT) employment opportunities for women were considered as a selection criteria for projects supporting the social economy. In Gelderland (NL), East of Scotland (UK) and Basilicata (IT), a sort of “equal opportunity” test was introduced among the selection criteria for some measures, but it was seldom applied, due to the lack of awareness and training among the regional authorities regarding its use.
− Not all the monitoring arrangements include gender-disaggregated data and indicators for employment creation, business support and programme beneficiaries, and this created difficulties in providing quantitative evidence within case studies. In some cases (Salzburg-AT, Nord Pas de Calais - FR, Basilicata - IT), qualitative criteria with an equal opportunity focus were created on the basis of Gender Impact Assessment (GIA) methodology which considers the project’s actual and/or potential effects on equal opportunities as negative, positive or neutral, but this was not connected to actual effects, again causing a lack of solid evidence to be collected during monitoring.
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2.4 Demographic changes and gender equality: the need for an integrated and multi-level governance framework
From the literature review and the evidence from the case studies it emerges that the complexity of the governance aspects of policies addressing demographic change and gender equality should be carefully taken into account when discussing different policy responses. Different layers of government have different responsibilities in tackling those challenges and an appropriate response is necessarily based on a suitable combination of multi-level governance frameworks. While some policies require a national legislative framework (such as pension reform, the regulation of parental leaves, the regulation of migration flows, health care systems, anti-discrimination policies, national transport and ICT infrastructures, etc.), others (such as local development policies, the provision of social services and facilities, urban planning and local transportation, training policies) are better implemented at the regional and sub-regional level.
Evidence from the case studies shows that the regional and sub-regional dimension is particularly relevant to adaptation to demographic trends and supporting gender equality for at least two reasons:
− Even if demographic trends and gender inequalities show common features across Europe, the regions are affected in different ways. Regional and sub-regional disparities in population patterns (age structure of the population and density in urban/rural or coastal/inner land), call for diversified interventions at the regional and local level in order to develop a proactive approach, able to address both the threats and opportunities of a changing population. Gender gaps and the dimensions of gender (in)equality are also very different across European countries and regions, especially with regard to the main labour market indicators (activity, employment and unemployment rates) and policy inclusion of the female population;
− some of the most common policy responses to such challenges require the provision and adaptation of local goods and services (often provided at the municipal level), such as housing for the elderly, adaptation of local transport facilities, supply of care services and support for local business and NGOs.
However, the regional and local dimension, while necessary, is not sufficient to tackle all the issues related to demographic trends and gender equality. In addition, local actors may be self- referential and not open to external inputs and actors and may lack the capacity to manage complexity, especially in the implementation phase. For example, the difficulty previously identified (see section 2.3.1.1) in putting into practice the Gender Mainstreaming approach, especially in development policies not directly addressing individuals, such as infrastructural interventions, showed the importance of specific monitoring and evaluation skills in addition to a change in values and attitudes toward gender issues. Without dedicated support and capacity
48 Work Package 7: “Effectiveness of the Cohesion Policy: Gender Equality and Demographic Change” building there are risks that waning interest in this approach may not only imply the elimination of specific intervention in favour of women, but also water down gender issues in general. The lack of adequate instruments and dedicated resources (both human and financial) for the effective implementation of Gender Mainstreaming may also reduce its effectiveness in improving gender equality.
Thus addressing demographic change and gender equality requires integrated and multi-level policy responses, combining different measures (economic, social and environmental) at the local level, within a broader regional and national development strategy, cutting across administrative boundaries. While integrated policy delivery can be effectively implemented at the regional and local level, regional and sub-regional interventions have to be complementary to wider national and EU strategies that are more appropriate for some policies (like, for example, transport infrastructures on a macro-scale).
Box 10 – Examples of integrated and multi-level policy framework addressing demographic change and gender equality
Liguria (IT): example of integrated and multi-level policy framework addressing ageing
In Liguria a regional law promotes an integrated system of socio-health services, targeting old people who are not self-sufficient. The policy operates within the framework of a national law, aimed at implementing an integrated system of interventions and social services in order to ensure the social inclusion of the weakest sections of the population. Through the regulations, a new governance system is proposed at the national, regional and local levels, in line with the principle of subsidiary. The Liguria regional law gives municipalities the authority to open new residential structures, to set the requirements for accessing social services and to promote assistance services integrating the national and regional ones. Also, considering the high percentage of ageing residents, the Liguria region promotes initiatives to encourage an active social role for them. The municipalities or associations of municipalities are identified as being responsible for financing these social services.
Gelderland (NL): a good example of multi-governance framework in the national approach to urban regeneration
Investment Budget Urban Renewal (ISV) was designed at the national level to provide investments in physical infrastructure in urban areas, based on a four-year planning strategy, (MOP’s-Meerjarig Ontwikkelingsplan). MOPs are prepared by municipalities and may receive a target-related subsidy based on contributions from MinVROM, the Ministry of Housing, Physical Development and Environment, and MinLNV, Ministry of Agriculture, Nature and Food Quality. ISV I was implemented over the period 2000 – 2004 with the aim to improve the physical (and social) living environment of cities and maintaining/ (re-) establishment of interest with the middle–upper income population groups living in the city. Public funds are used to improve the public space and to facilitate the planning process, while investments in the housing stock are left to the responsibility of private/semi-public parties. ISV II covers the period 2005 – 2009 and, relative to ISV I, provides a better definition of targets, the promotion of inter-municipal cooperation and more emphasis on the aspects of integration of social and physical aspects and quality of the living environment. Thirty of the larger municipalities receive funds directly from the central government (the list of eligible municipalities is established by the Government). For the Gelderland
49 Final Report region these are Arnhem and Nijmegen. Smaller municipalities can also apply for funding under this programme. In this case, the Province is the management authority and channelizes the funds42.
Scotland: example of integrated policy addressing entrepreneurship with attention to gender
Within the context of the Scottish Executive’s Framework for Economic Development in Scotland (FED), A Smart, Successful Scotland (SSS) was developed to give strategic direction to the enterprise networks. The strategy recognised that discrimination and occupational segregation inhibit Scotland’s ability to capitalise on its talent pool and create a flexible and responsive workforce. The enterprise network’s approach to equal opportunities (the Scottish definition includes race, age, ethnicity, sexual orientation and disability alongside gender) encouraged entrepreneurship and business growth among under-represented groups; raised awareness among businesses of their legal responsibilities and supported businesses as employers; and tackled discrimination by assisting companies to realise the business benefits of equality and diversity. In addition, Scottish Enterprise runs the Women into Business programme, covering a range of targeted services grouped under the programme’s umbrella in 2000. The programme is now overseen by the National Unit for Women’s Enterprise (NUWE), which was set up in 2003.
Source: Liguria (IT), Gelderland (NL) and Scotland (UK) case studies
The nature of the ERDF, which on the one hand internalises European priorities and guidelines, and on the other focuses on regional development, could have an important role to play in supporting multilevel governance on these issues, complementing national and regional policies. More specifically, those ERDF measures which were integrated within broader national and/or regional strategies clearly addressing a limited number of priorities have been particularly successful, being able to exploit the possible synergies with national/regional programmes and other co-financed programmes carried out at the regional level and to avoid the fragmentation of interventions and the limitations due to the scant financial resources available for the ERDF (especially in Obj.2 areas) and the restrictions on eligible interventions.
These synergies have been exploited in particular in Basilicata (IT), Gelderland (NL), Eastern and Southern Ireland (IE), Liguria (IT), Övre Norrland (SE) and Saxony (DE), which present interesting examples of national/regional programmes explicitly considering the potential ERDF contribution.
42 A distinction is made between programme - and project municipalities. The first category of municipalities prepares MOPs, in Gelderland 12 municipalities, while the second category, smaller municipalities only, do not. Preparation of an MOP would be too costly for them and a simpler form of planning is allowed. The Province of Gelderland received a contribution of about € 48 million, of which Arnhem received € 23.2 million and Nijmegen € 18.7 million.
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Box 11 - Examples of synergies between ERSF strategies and regional growth programmes
In Övre Norrland, the Regional Growth Programmes, implemented since January 2004, formed the basis for the implementation of regional development policy in the counties of Norrbotten and Västerbotten. These programmes, together with the Structural Funds programmes, were the key instruments for addressing regional problems largely related to demographic challenges such as ageing and continuous depopulation in the sparsely populated areas. The Regional Growth Programmes provided the foundation for all development activities at the county-level, and were closely linked to Structural Funds programmes, not least through co-funding procedures (i.e. the programmes provided co-funding for each other). Like the Structural Funds programmes, the Regional Growth Programmes did not include any specific Priorities or Measures that addressed demographic change. However, the issue was addressed as part of the overall objectives of the programmes. For instance, under the Regional Growth Programme of Norrbotten, one of the key objectives was to ensure an increase in population by the end of 2007 (255,000 in Norrbotten). The overall focus of the programmes was on the promotion of sustainable economic growth, with interventions of the programme in Norrbotten focusing on: development of the economy, enhancement of the region’s attractiveness and support for competences.
In Ireland, the NDP 2000-2006 was the main vehicle for domestic regional policy intervention, and also provided a framework for Structural Funds spending during the period. The NDP represented significant domestic expenditure by the Irish Exchequer; around 90% of total NDP funding was provided from domestic sources, and the framework incorporated several long-standing government initiatives. The NDP was implemented through four inter-regional OPs and two regional OPs, which included a mixture of EU co-financed and non co-financed measures.
In Basilicata, Measure IV.19 – “Promoting industrial, craft, commercial and service enterprises” aims at the promotion of new entrepreneurial initiatives while supporting those already in place. The Measure was created ex novo after the mid-term review in order to unify similar interventions previously implemented by Measure IV.2 and IV.3. and to establish a connection with the National Operative Programme on Local development, aimed to implement the so-called “Integrated aids pack” (PIA in the Italian acronym). At the same time, Measure IV 19 was implemented through Territorial Integrated Projects (PIT in the Italian acronym) that gave considerable support to entrepreneurial initiatives. Contrary to other previous measures supporting entrepreneurship, Measure IV.19 showed fewer problems in maintenance of the initiatives and/or in meeting the economic and administrative requirements for running a female enterprise. The differences in the results obtained with Measure IV.19 were accounted for by the involvement of several stakeholders in the Territorial Integrated Projects (PIT in the Italian acronym), which may contribute to finding other financial resources at the local level to sustain the enterprises working in their territories, and by the synergies with the National Operative Programme on Local Development.
Sources: Southern and Eastern Ireland (IE), Norra Norrland (SE) and Basilicata (IT) case studies
The mini-case studies show good examples of how in Gelderland, Saxony, Liguria the ERDF, even if financially limited, was able to leverage other contributions by public and private stakeholders in multi-year urban regeneration projects which involved different institutional levels and public-private partnerships.
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Box 12 - Examples of ERDF synergies with regional/national programmes in urban regeneration programmes In Liguria, the regional administration involved private and public parties within the framework of a coordinated action. Private-public partnerships had to submit a joint proposal. Regional and sub-regional administrations and private partners thus had to cooperate in order to identify both the areas of intervention and the nature of the projects in order to access SPD resources. Thanks to the cooperation arrangements set up in advance, the procedure promoted public choices that were both shared by private stakeholders and adjusted to satisfy the requirements of the local partners.
In Gelderland the Multi-functional Educational and Care Centre (MOZC) provides a multitude of social and cultural activities and services for a wider community, also providing meeting rooms, Internet access and a games room. Situated within a newly established school, the centre was created in terms of large- scale and integrated restructure programme for the urban district. It is part of a national programme coordinated by the Ministry of the Interior, providing financial support to municipal authorities on the basis of local multi-year development plans, also including the regional and/or local authorities. The municipality implementing the project acted as facilitator of the development process and managed the investment funds, also providing for the activation of other resources, such as the ERDF and public/private investments. The project was based on an extensive consultation process with different stakeholders, including housing corporations, business associations, the justice department and neighbourhood organizations and private sector initiatives. A management company is responsible for operating the MOZC facility, including representatives of organizations responsible for providing the facilities. The project has a high level of sustainability as compared to programmes formulated on an ad hoc basis. The MOZC, being the first of its kind in Arnhem, provided important lessons for other similar facilities created at a later stage and has become an example for community development. On the basis of this experience, a more programmatic approach with less strictly defined budget lines for priorities and measures which reduce the administrative burden for the municipality was introduced for the 2007 – 2013 ERDF programme for East Netherlands.
In Saxony, municipalities and local stakeholders cooperated in developing possible fields of action for urban development, coordinating and supporting the activities included in the local development strategy. The major challenge was to create awareness of the necessity for a territorial, integrated approach. This included a learning process for the municipalities involved, in order to develop ideas for activities and stimulate public-private partnerships with local stakeholders. The close involvement of the municipalities in the development of strategies, together with the local stakeholders, was a relatively new approach for this region. To support this process, a platform for a “pilot scheme” to investigate possible intervention areas was created, which helped the municipalities to develop their individual activities by considering local needs.
Source: Liguria (IT), Gelderland (NL), Saxony (DE) case studies
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3. The ERDF contribution to adaptation to demographic change
The present chapter reports the main findings on the contribution of the ERDF to adaptation to demographic change. It does so on the basis of the evidence collected through the case studies.
The analysis shows that:
− despite the fact that in none of the selected regions did the ERDF strategy explicitly consider demographic change among its priorities, all the regions have implemented measures which have spill over effects on demographic change. This is due to the type of measures eligible for ERDF funding, but also to the capacity of the regional authorities to single out demographic needs emerging at the local level;
− as described in the preceding chapter, ERDF interventions have addressed demographic variables mainly in an indirect way, impacting on employment creation, better living conditions, improved accessibility of remote rural areas. Only some measures have directly addressed demographic change, by targeting the needs of the older population, young people and migrants. However the scale of these projects is often so small that little impact can be seen at a wider level;
− Many of the selected measures address both demographic change and gender equality, as interventions in social infrastructures and regeneration programmes were indirectly beneficial for women’s employment and their work-life balance, with potential beneficial effects on fertility rates;
− The lack of demographic indicators in the monitoring systems prevents them from providing quantitative evidence of actual effects... However, more qualitative information collected in the field and perceptions of stakeholders show that overall the implemented measures paved the way for significant improvements, especially in those cases where a number of conditions were satisfied, such as a better focus on demographic priorities, the integration of ERDF interventions within other national/regional programmes implemented at the regional and sub-regional level, the creation of effective public-private partnerships and the governance capacity of local authorities.
In the following sections, the main findings from the case studies are discussed in relation to each of the main challenges related to demographic change (ageing, demographic imbalances and migration) in order to describe the type of interventions financed by the ERDF funds, their main strengths and weaknesses in relation to effectiveness and sustainability and the lessons which may be learnt for future programming. Annex IV presents the main quantitative evidence emerging from the case studies in relation to outputs and results of the analysed measures.
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3.1 Measures addressing ageing
The case studies show that the ERDF has addressed ageing mainly by supporting the creation of social infrastructures for health care and for life-long learning at the regional level.
In all the case studies the ERDF support for social infrastructures was linked with the ESF support for the training of workers in the health care sectors and provision of training and lifelong learning services. The synergies between the two funds were higher in those regions where the ERDF and ESF were managed together by a sole Managing Authority (as in Basilicata).
The accessibility needs of the elder population in implementing transport and ICT infrastructures were considered only in a few cases (as in Norra Norrland and Castilla).
Interventions directly supporting employment opportunities for older workers were only implemented in some urban or rural regeneration projects (as in Gelderland, Saxony and Norra Norrland), where measures aimed at the transmission of the cultural heritage facilitated the involvement and employment of older workers.
Only in Basilicata and Malta was older people considered, even if not explicitly, as potential economic drivers for regional development: in these regions the ERDF support for leisure and tourism facilities considered the needs of older and/or disabled tourists.
One case (Nord Pas de Calais) shows how the ERDF may address the problem of the ageing of local entrepreneurs and support the generational turnover in local small firms.
3.1.1 Care facilities for the elderly
The provision of care facilities for the elderly in rural or urban disadvantaged areas has come up with good results in all the regions analysed which have supplied these services (Basilicata- IT, Liguria-IT, Norra Norrland-SE, Castilla y Leon-ES, Gelderland-NL), with high demand (in some cases, as in Gelderland, higher than expected) and coverage rates relative to the regional older population.
These interventions show strong synergies with ESF projects (which usually support the training of care workers) and other programmes implemented at the regional level. Complementarities are weaker when the funds are administered by different bodies (as seen in Norra Norrland-SE). Their sustainability is highly dependent on the capacity of the regional and local authorities to address the main local needs, integrate interventions within regional and/or national strategies and attract private investors. For example, the choice to adapt ICT infrastructures for the provision of health care in Norra Norrland was particularly effective and highly sustainable due to the specific challenges related to the region’s remote location, size and vast distances. Exploitation of the opportunities created by new technologies in health care and local cooperation is particularly important in order to mitigate the potential negative effects of the recent trend to rationalise the supply of health care services by cutting decentralised local facilities.
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On the other hand, in Liguria, the small and local dimensions of the NGOs and municipalities managing the provision of social infrastructures is a risk factor for sustainability, especially when there is little capacity to attract and involve the private sector and manage public-private partnerships.
Box 13 - Examples of interventions providing care facilities for the elderly
In Norra Norrland Program, the ‘SIV’ project – financed under Measure 1.1 (IT Infrastructure) - focused on cooperation between municipalities and counties within the care sector for the elderly with the help of the ICT technology. The project provided remote solutions for a whole range of therapeutic services. It consisted of two key parts: first, the development of mobile access to a journal system (VAS) and a field bag for nurses carrying out home visits; and, second, distance-based consultation between the elderly and the health centre. Overall, the results confirmed the potential of ICT technology in overcoming distances, and the new working methods could result in significant savings (both for the health centres and for the patients), and improve the quality of the care sector. The project contributed to better health and care services for the elderly, as patients benefited from better and faster information, improved safety, as well as better follow-up on their illnesses.
In Castilla y Leon the ERDF supported the construction of 47 health centres and the enlargement and refurbishment of 91 health centres, 24-hour medical attention centres and hospitals offering resources and services at the local level to the elderly, the disabled and other vulnerable groups. These facilities have provided services for an approximate yearly flow of 16,900 users. These projects were carried out in rural and urban locations, and small-sized municipalities (with a population of less than 20,000) benefited the most. These interventions improved the living conditions of rural populations by reducing the need to travel to larger towns to access health care services and receive medical treatment. Also the work-life balance of carers in rural areas, generally women, improved due to the reduction in their caring work- load. Finally, they increased the employment opportunities at the local level, especially for women. In total, 2,900 jobs were created and 1,750 jobs maintained. The total budget was about 8.7% of the total ERDF investments.
Source: Norra Norrland (SE) and Castilla y Leon (ES) case studies
3.1.2. Training and educational facilities for lifelong leaning
The provision for training and educational facilities to support lifelong learning and active ageing is another type of intervention directly addressing population ageing. Examples of this approach are seen in Basilicata, East of Scotland, Gelderland, Salzburg and Saxony.
In these regions the ERDF supported the creation or modernisation of training and educational facilities in rural or disadvantaged urban areas, which offer training courses to different groups of the population: young people, women, the disabled and the elderly, in this way also overcoming the problem of a shrinking student population. In Basilicata, Gelderland and
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Saxony the educational facilities also include the local library and Internet services which facilitate access to public services and information for the local community.
The capacity of these interventions to reach and involve the elderly population effectively depends largely on the provision of specific accessibility devices and training modules for the elderly and disabled population as was the case in Basilicata and Saxony, but not in Salzburg, where the shortcomings of the local transportation system prevented the elderly from accessing the new training facilities.
In the regions considered these interventions were closely linked to ESF programmes providing training and educational services. Their sustainability requires continuous maintenance and management of the training structures, which is more likely when public-private partnerships are created and when these interventions are included in national strategies.
Box 14 - Examples of interventions supporting lifelong learning
In Basilicata the overall school facilities (especially in remote areas) were adapted and renovated with new technologies and new services, in order to increase accessibility also for the elderly and disabled population. This measure made it possible for the small urban centres in isolated areas to maintain their school services. The interventions have enhanced the facilities of 15% of the total regional schools with new technical laboratories, multimedia libraries and support facilities (like ITC stations), also open to the local community with more than 7,300 users.
In Saxony the ERDF supported the modernisation of 113 education and training infrastructures to cope with the expected workforce scarcities in the near future and to provide better starting conditions for life- long learning. More than 25,000 qualification places have been improved, and in particular almost 4,000 places were made available to students with disabilities, while 5,600 additional qualification places were created (2,000 for the disabled). The total budget expenditure was 172 million Euro, or 6.4% of the total ERDF budget. The vocational training created the precondition to offer vocational training even in areas with considerable population losses, as they provided lessons in small classes with modern IT infrastructures. Some of the modules offered by the schools were designed for older workers seeking life- long learning.
In Salzburg the ERDF supported the creation of a training centre offering courses coordinated by the “Lungauer Bildungsverbund”, a consortium of training institutions (financed by the ESF and TEP), which are also attended by the elderly. IT courses, to learn how to chat and use online-banking or online-shopping, or English or courses on alternative medicine are mainly attended by the older population. The elder participants (over 60 years old) numbered 100 per year (equivalent to 10% of the total yearly participants), a number limited by the difficulties in accessing the training centre due to inadequate public transport facilities and the relatively long distances in the rural area.
Source: Basilicata (IT), Salzburg (AT) and Saxony (DE) case studies
Ageing also affects the generational turnover in enterprises and this may become a real problem, especially in small firms and in peripheral areas which have difficulties in attracting young entrepreneurs. An interesting and rather innovative case, showing how ERDF interventions may directly address this issue, is the Regional Plan for the Creation and
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Transmission of Enterprises” (PRCTE43) implemented in Nord Pas de Calais. The objectives of the project are to promote the creation of new enterprises and sustain the transmission of existing (generally small or very small) ones. The project contributes to adapting to demographic change by preparing the take-over of existing businesses when the entrepreneurs retire. Indirectly, the measure also contributes to the attractiveness of the region by safeguarding jobs, opening them up to younger generations and helping to contrast the outflow of the active population from the region.
Box 15 - The Regional Plan for the Creation and Transmission of enterprises (PRCTE) in Nord Pas de Calais
The Regional Plan for the Creation and Transmission of enterprises (PRCTE)44, a regional business set-up and take-over programme supported by the government, financed the services offered by a network of support structures (the Regional Council, the Chambers of Commerce, etc.) for business activities. The network aims to increase the effectiveness of actions intended to develop the enterprise spirit and a favourable environment for business activities, in order to create new firms and support the transmission of existent businesses. The services include consultancy assistance, such as on drawing up business plans, business set-up grants or organising regional and national forums. Overall, between 2004 and 2007, just fewer than 30,000 would-be entrepreneurs contacted the PRCTE network (slightly fewer than targeted), 12,812 benefited from one hour’s (or first-step) counselling, 8,727 went through the 4-10 hours’ cycle, and 1,318 took advantage of follow-up support. The intervention – implemented at regional level and co- financed by the ERDF – appears to have contributed significantly to increasing the number of enterprises created in Nord Pas de Calais, which was also profiting from the positive economic growth during that period, above the national level. Official figures for the transmission of enterprises are not available due to a discontinuity in the availability of statistical data. However, it is estimated that some 1,000 transmissions of enterprises have taken place since 2004, to which the PRCTE has contributed. The ERDF financial allocation was 3 Mio Euro (or 0.1% of the total ERDF budget).
Source: Nord Pas de Calais (FR) case study
3.2 Measures addressing demographic imbalances and migration
ERDF interventions have indirectly addressed demographic imbalances within and across regions with various measures which promoted regional development through the creation of employment opportunities, the provision of basic services and infrastructures and the regeneration of rural and urban areas. The effectiveness of these interventions was amplified when they were included in place-based, integrated development strategies explicitly
43 A detailed description of the project is presented in Annex 5. 44 Original name: Plan Régional pour la Création et la Transmission des Entreprises, Nord Pas de Calais, http://www.nordpasdecalais.fr/economie/creationTransmissionActivites.asp.
57 Final Report addressing the specific demographic needs of local communities. The governance capacity of regional and local institutions and the involvement of public and private partnerships were necessary conditions for effectiveness.
3.2.1. Support for SMEs and entrepreneurship to foster economic development and employment
Support for SMEs, when improving economic and employment opportunities at local and regional levels, may help to tackle demographic challenges by reducing outmigration and increasing area attractiveness.
To enhance the competitiveness of local SMEs and attract new settlements, the ERDF supports business start-ups, business incubators and industrial zones. In five of the case studies analysed (Basilicata, East of Scotland, Malta, Nord Pas de Calais and Salzburg) measures supporting local SMEs and local sectors (such as tourism) are considered.
In all these regions business aid and support for business start-ups are complemented with business services and training, in most cases (as in Basilicata, East of Scotland, Malta and Nord Pas de Calais) co-financed under the ESF, while in the rural areas of the Salzburg region these measures have shown powerful synergies with the Interreg and Leader programmes.
Interventions providing territorial marketing services and support for the creation of international partnerships for local firms (as in Basilicata), and interventions supporting the upgrading of the territory to improve its attractiveness for business investments or tourism (as in Malta, where specific attention was paid to the accessibility for elderly and disabled tourists with mobility problems) are considered particularly relevant for the local economy and sustainable in the long run by the local stakeholders interviewed.
The case studies show, however, that while many of the interventions supporting business start-ups have directly targeted female entrepreneurship (see Chapter 4), none has been explicitly aimed at the elderly population and migrants.
The outcomes appear to be in line with expectations in terms of business start-ups and employment creation, but there is little information on the survival rates of supported enterprises, and in some cases (as reported in the case of East of Scotland) the target outcomes were set at very modest levels.
Box 16 - Examples of intervention supporting business creation
In Basilicata the ERDF financed different measures aimed at supporting local enterprises and attracting business from outside by creating equipped areas for the localisation of productive settlements, the promotion of tourism in internal areas outside the usual tourist pathways through territorial marketing initiatives, and support for the creation of international partnerships and networks, especially focusing on operators from Basilicata working abroad. All the measures showed good results and medium-high synergies with the ESF, which provided training services. The measure “Promotion of internationalization of Basilicata” directly involved local districts and was implemented within the framework of a
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regional/national agreement for international trade. One activity in this measure was the creation of the “Regional Front Office for the Internationalization of Enterprises - SPRINT”45, under a Programme Agreement between the Regional Administration of Basilicata and the Ministry of Productive Activities and regional Chambers of Commerce, supported financially by the ERDF.
The SPRINT initiative aims to support those local enterprises opening up to international markets by offering information and consultancy services for exporting, services for the promotion of local enterprises abroad and support in the search for international partners for export and/or cooperation; training courses for managers and international trade operators; financial and insurance services. More than 400 SMEs received support for the internationalisation of their business activities and the number of enterprises opening to the international market increased by 102%, creating new employment possibilities and improving the region’s productivity capacity and attractiveness.
In Malta the ERDF co-financed a measure supporting the tourist sector through improvement of the local environment, restoration of the historical heritage, upgrading of local facilities and marketing initiatives with particular attention paid to accessibility for travellers with mobility problems. By the end of 2007, a total of 223 enterprises were being supported through the ERDF investments of 2.8 million Euro, stimulating employment (150 new jobs were created, especially in the hotel industry) and a significant volume of direct private investments (1.9 million Euro). This measure was complemented by another measure supporting the upgrading and conservation of major heritage sites and the infrastructural upgrading of scenic areas.
Source: Basilicata (IT) and Malta (MT) case studies
The importance of promotion of business incubators for the regeneration of urban areas is exemplified by the fashion incubator implemented in Lille-FR. This initiative placed business support at the heart of urban areas which are included in regeneration programmes. Besides providing business and employment opportunities for the young local population, the incubator attracts people from other areas of the Lille agglomeration, contributing to the development of the region’s traditional sector of specialisation (the textile industry).
Box 17 - The Jardin des Modes (fashion incubator) in Southern Lille, Nord Pas de Calais
The “Jardin de Modes” (Fashion Garden) is an initiative sponsored and co-financed by the municipality of Lille and supported financially by the ERDF. It is an incubator situated in a distressed area in the South of Lille which has been the object of numerous urban regeneration efforts. The incubator (a stylishly renovated cinema) hosts projects in the field of fashion and textile design. It is managed by the “Maisons de Mode”, an association also in charge of a sister structure in Roubaix. In the same street as the incubator, there are half a dozen boutiques sponsored by the Municipality as part of the same project, where “creators” can present and sell their clothes. In order to attract the creators in the long-term, the latter can also take advantage of a flat above their shop. In this way, young entrepreneurs effectively live in the area and establish deeper links with their environment. The incubator builds on previous specialisation patterns, characterising the area in the textile industry. The area is well-known for important mail-order enterprises in the clothing sector, closely related to the textile industry of the region (La Redoute, Les Trois
45 Sportello Regionale per l'Internazionalizzazione delle Imprese, http://www.basilicatanet.it/scheda_sprint_170105.htm.
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Suisses). The objective is to upgrade local know-how and skills in this field and make them competitive. Many events have been organised so far to open up the incubator to the street and vice versa (e.g. a sale night, a photo exhibition, an open air market etc). These, together with the shops, have contributed to attracting people from other parts of the wider Lille urban area for leisure purposes. Conditions are in place to make the area a trendy neighbourhood, which in the longer term could attract also other economic activities.
Source: Nord Pas de Calais (FR) case study
Other types of ERDF interventions which indirectly address demographic imbalances are those supporting the creation of vocational training facilities in close connection with the needs of the regional economic system and with the support of the regional enterprise associations and Chambers of Commerce. Saxony and Salzburg offer interesting examples of these measures, which have helped to reduce educational commuting and improve the employability of young people in the regional economy, thus raising the attractiveness of the region for outside firms. On the other hand, the reduction in educational commuting may limit the cultural broadening which is usually associated with studying away from home. In addition, as discussed in the Saxony case study, for regions with structural adjustment problems and large population losses additional activities will be necessary to prevent a “brain drain” of the people trained.
Box 18 - Examples of interventions supporting vocational training for the regional economic system
In Salzburg, the ERDF supported the upgrading of a vocational centre for apprenticeship by funding the acquisition of machinery within the “Mechatronic Cluster” for vocational training in technical fields in close cooperation with local enterprises, especially in the high-tech industry. Through cooperation with local enterprises, each graduate is guaranteed a job. Approximately 100 young people participate in the programme every year46. Another activity was an “educational unit for vocational training and education” (“Zusatz- und Höherqualifikation für die berufliche Fort- und Weiterbildung”) for young people. The creation of a high-quality education and vocational centre in the rural area might affect the proportion of educational commuters among young people.
In Saxony the old vocational training school for craft jobs in Chemnitz, built at the beginning of the 20th century was modernised over a three-year period, and now offers qualification for vocational training, further education and a technical high school. A total sum of 16.4 M € was needed (9.6 M € came from ERDF) to create modern laboratories, workplaces, all kinds of qualification rooms for painters, machinery technicians and hairdressers, and PC and Internet facilities within the ancient architecture. The modernisation plan tried to preserve the historical character with wooden doors and even an organ from 1910, funded by private donations. Saxony is a region with a relatively high percentage of industrial workplaces, and will need a fairly high number of qualified workers in the future.47 Hence, the modernisation of the schools described above can help to raise the attractiveness of the region, by improving the quality of the human capital in the region, for example, by anchoring major investments in the automotive industry (Leipzig, Chemnitz), logistics (Leipzig) and the IT industry (Dresden).
46 Interview with the Director, estimations of the Director of the Facility, Mr. Jäger. 47 Staatsministerium für Wirtschaft und Arbeit, Freistaat Sachsen, Alte Gewölbe und modernste Technik, Strukturfonds Aktuell, No. 3, Dresden, 2006.
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Source: Salzburg (AT) and Saxony (DE) case studies
3.2.2. Expanding and improving transport and ICT infrastructures to help reduce the isolation of remote areas and improve living conditions
ERDF interventions supporting transport and ITC infrastructures are particularly relevant in order to improve access to services and employment, especially in very remote and thinly populated areas (such as Norra Norrland) and in regions characterised by great internal disparities (such as Basilicata, Latvia and Castilla). The case studies show that these measures have had a positive indirect effect on overcoming some of the problems associated with demographic imbalances by improving spatial connections and facilitating access to basic services such as health care, educational, social and commercial services, especially for the populations in rural areas and/or small municipalities, the elderly and the disabled. Improved ICT and transportation infrastructures also boost the regional economy by attracting new firms and creating employment opportunities which, in the case of ICT, also involve highly-skilled young workers.
Box 19 - Examples of transport and ICT infrastructures reducing the isolation of remote areas and improving living conditions
In Basilicata, two measures were targeted towards transport and ICT infrastructure. The measure for the development of the regional transport network had a significant impact in reducing the infrastructural gap which historically affects Basilicata, improving the road network and the connections between areas with great economic disparities within the region. For example, the ERDF supported the modernisation and road safety conditions of the provincial road connecting the city of Matera (the regional capital) with Gravina, an urban centre in the province of Bari, in Puglia. The road, along the province of Matera, is 11 kilometres in length and along the way there are various settlements, such as the industrial area La Martella and the rural Borgo di Pucciano, that are not so easily connected. Moreover this intervention is also relevant in terms of social and economic integration, connecting the area of Matera with a greater catchment area.
The measure supporting ICT infrastructure aimed at promoting the widespread use of new information technologies for Public Administration and private use, with installation of 101 km cables for web connection, creation of more than 1,500 network connections, installation of more than 68,000 control points and telephone terminals, and so forth. More than 20 schools were involved, as well as 100 organisations and 200 enterprises. All the scheduled objectives have been achieved, in terms of growth of electronic signatures certificates (doubled if compared with 2006) and in terms of number of families with a personal computer. A positive result has also been achieved in terms of extended coverage of fast Internet connection for citizens and regional and local administrations, especially in the peripheral areas, impacting on regional discrepancies and reducing the isolation of the hinterland areas.
Given the remote location, size and vast distances of Övre Norrland, the infrastructural investments implemented under Measures 1.1 (IT Infrastructure) and 1.2 (Transport infrastructure and transport system) were particularly important in terms of addressing demographic challenges. They led to essential
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basic traffic infrastructure projects supported by the ERDF (37 projects, including air, train and sea transport system, coordination of transport nodes and road traffic solutions) which had improved mobility within, to and from the region, and thus set the basis for further growth and development. The transport solutions implemented provided more flexibility for commuting, while the IT infrastructures (IT applications and broadband-related construction projects) enabled households and businesses to carry out activities from a distance. Such benefits were expected to be particularly significant for the inland areas, where services and employment opportunities were more limited, and where the effects of demographic change were particularly acute. The ICT infrastructure also helped to create jobs for highly-skilled workers, supporting the creation of a “Centre for digital business” at the University of Umea, which reduced the outward migration of highly qualified young people. Overall, more than 40 cross-county projects and 20 international cooperation projects were implemented for approximately 8,500 users. More than 900 jobs (including temporary jobs) have been created or saved, including jobs for the highly skilled in the IT sector.
In less developed rural areas in Ireland, the ERDF contributed to the installation of advanced communications and e-commerce infrastructures, helping to connect approximately 100,000 units, comprising private households (85,000), public administrations and educational facilities (2,300) and businesses (13,000) to a modern communication network. These investments helped fill gaps in the electronic communication system, stimulating further private investments, which may be expected to have impacts on the population (such as the elderly, the young, etc.) and the regional economy by improving working conditions and the quality of life in rural areas. The improvement of the e-infrastructure should facilitate the redistribution of economic activities from more congested areas to less developed and peripheral areas, by providing public information and services, enhancing access, reducing costs and delivering a wide range of services to all citizens. More than 43 million Euro (11% of the total ERDF budget) have been spent for this measure. The improved access could also boost the attractiveness of rural areas as locations for economic activities and provide support for industries such as tourism, fishing and the agro-food sector. However, impacts are expected to be seen in the medium-long term.
In Saxony support for urban and local infrastructures was concentrated in rural areas or small urban centres suffering from economic decline and population loss due to the out-migration of the active age population. The ERDF activities comprised 123 million Euro (5% of the total ERDF budget). Embedded in local development strategies, investments for the improvement of the regional road system aimed at improving the connections between small rural centres to economically active regions. Investment in the transport network included the renovation of a bridge and the development of a cycle path.
In Latvia, the ERDF supported the development of the ICT infrastructure to reduce the gaps in ICT usage. The aim of the e-inclusion strategy is to promote active ageing, e-health and e-government initiatives and to improve the Internet access of libraries and educational facilities. The project E-Vidzeme run under this measure, installed Internet connections in 129 educational institutions and 133 municipal public libraries, while another project aimed to include 800 libraries to the “National Unified Library Information System (SULIN), by providing 3,158 computers, installing Internet connections (443) and creating local networks (603). Further, 899,000 household points have been installed. These interventions are important steps to improve the living conditions and e-skills of the population by enhancing connections to the modern communication system within the rural areas, where e-connection is below the national level.
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Source: Basilicata (IT), Norra Norrland (SE), Eastern and Southern Ireland (IE), Saxony (DE) and Latvia (LV) case studies
Infrastructural interventions (especially in the case of transport and ICT) are more sustainable than other local projects in the medium-long run, because they are part of larger national strategies and multi-level agreements. The considerable potential effects of these infrastructures on the reduction of demographic imbalances and the accessibility to basic services are, however, fully exploited only when the specific needs of the older population, the disabled, migrants and other disadvantaged groups are taken into account in the design of accessibility conditions.
3.2.3. Regeneration of rural/urban areas to attract business and households
ERDF interventions in the regeneration of rural and urban areas may have relevant effects in improving the development and attractiveness of degraded areas. These interventions involve the regeneration of rural areas through environmental improvement and upgrading (as in Basilicata, Liguria and Norra Norrland) and/or the renovation of degraded urban areas and the creation of social infrastructure and multi-service community centres (such as those implemented in Gelderland-NL, Saxony-DE and Nord Pas de Calais-Fr).
The creation or upgrading of social infrastructures and services for children and young people in rural or urban deprived areas may indeed be an important driver for local development and for contrasting out-migration and depopulation, providing jobs (especially for women, as discussed in chapter 4) and attracting new settlements.
Interesting projects have been launched in Basilicata, Gelderland and Saxony, where school facilities have been adapted to provide educational, recreational, social and care services to the local community, with benefits on a large scale as they are easily accessible in all districts and well-known to the local population. Schools thus become the nucleus for socio-economic development within urban/rural renewal programmes, and this also helps to overcome the problem of their underutilisation due to a shrinking student population.
Interventions aiming at the regeneration of rural areas in some cases integrate measures designed to improve their environmental sustainability with the promotion of regional natural resources and cultural heritage. The Basilicata, Norra Norrland, Saxony and Liguria cases offer good examples of the opportunities and risks resulting from these kinds of interventions. The integration of environmental preservation and sustainability together with tourism promotion and awareness raising measures should enhance the attractiveness of rural areas and the quality of life for the regional population. However this integration is often difficult to achieve due to the large number of actors and institutional levels involved. In addition, the projects implemented are in some cases (as discussed in the Liguria case study) on a very small scale and of short duration, with only marginal effects.
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Box 20 - Examples of interventions supporting the regeneration of rural areas Basilicata – The Ecological Network measure supported, on the one hand, infrastructural interventions for environmental protection and preservation, and, on the other, the promotion of events for environmental improvement and education and the definition of the ecological network’s management tools. The aim was to increase tourism and business location by improving the regional natural resources, redeveloping compromised areas and supporting eco-sustainable development. An area of about 21,000 has been protected and three information and care centres constructed. Further, two interventions on sector-based plans and programmes were financed by the ERDF, reaching more than 667,000 people within an area of 11 sq km. Many of the interventions were located in remote areas, were usually isolated and depopulated. Procedural problems connected with the activation of some integrated interventions for environmental protection slowed down implementation of the measure. The total ERDF financial investments in this measure came to 11 million Euro (37%). In Norra Norrland Program, the ERDF co-financed three measures aiming at tourism-related projects, safeguarding the region’s natural and cultural heritage in the rural area. The interventions in the cultural field, for example, provided for the stimulation of new ideas, cooperation (in total more than 50 national and international cooperation projects were supported) and activities to take place that would otherwise have had difficulties in finding the necessary funding. Such, for example, is the case in the interventions related to improvement of the economic and living conditions of the Sami people, where activities in the tourist sector were stimulated. The overall objective of this project was to stimulate the sector through sustainable ecological tourism with the aim of long-term sustainable economic growth, through the diversification of local activities and alternative income possibilities brought about by new employment opportunities, also for the local Sami population. More than 760 SME were reached by this measure. The interventions also contributed to creating interest in the region’s natural attractions, painting a more positive picture of the region, both nationally and internationally. The three interventions created more than 3,900 new jobs (even if of a temporary nature), and 100 new businesses, and had important indirect effects in terms of improved living conditions. Overall, these interventions were assessed as having improved the regional attractiveness and possibly motivated people to stay in the region. In Liguria the ERDF co-financed two important measures aimed at the regeneration of disadvantaged and depopulated areas. One aimed at mitigating the hydro-geological risk, supporting the population living in areas affected by the risk of flooding. The interventions limited the negative impacts of potentially disruptive natural events, contributing to the attractiveness and the quality of life of the target areas, and were realised with an extensive level of integration with other initiatives of the same nature, specially co- funded by the ERDF and ESF. Due to the ERDF intervention, an area of 0.25 square km has been protected (23 million Euro or 4.2% of total ERDF investments). The second measure supported both municipalities and associations of private enterprises involved in the regeneration of small urban centres located in rural/mountain areas. The 31 projects were highly diversified, including the restoration of museums, the construction of facilities to be used for different purposes (leisure/sport/social/cultural activities), the construction of parking areas, and the regeneration of small historical urban sites. The interventions were supplemented by promotional activities carried out by associations of traders and craftsmen, supporting entrepreneurial capacities and the quality of life of the local population. The measure was closely connected with the URBAN programme operating in the area. Source: Basilicata (IT), Norra Norrland (SE) and Liguria (IT) case studies
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Interventions supporting urban regeneration consisted in the regeneration of urban centres through architectural conservation and the creation of community centres providing basic services and cultural/sport/leisure activities. The most successful and sustainable interventions were those involving private stakeholders in public-private partnerships (as in Liguria and Gelderland). A good knowledge of local needs is also important to guarantee accessibility to services for the local population (as in Gelderland and in Nord Pas de Calais). Finally, urban policy measures appear to have been more effective when they were integrated with different activities, from business support to the regeneration of local and urban infrastructures and architecture and support for local networks and public-private initiatives, as well as improvement in socio-cultural conditions (as shown in the Saxony case).
Box 21 - Examples of interventions supporting urban regeneration
In Saxony, support for urban and local infrastructures was financed for 75% by the ERDF and for 25% by national resources during the 2001-2008 period. 25 disadvantaged urban districts characterized by low economic development and social problems due to unemployment, the out-migration of the young population and an increasing number of elderly people received financial support for investments in infrastructure and for the implementation of new urban regeneration strategies. The activities concerned various aspects of urban regeneration: supporting SMEs and start-ups, restructuring residential areas, creating sport, leisure, educational and child care facilities and the modernisation of streets. Infrastructure investments included support for local cultural centres, museums and tourism. All the activities were part of local development strategies, aimed at improving living conditions and stimulating economic activities in order to reduce out-migration and create employment for different groups, such as the elderly population. 141 new enterprises were created. Local stakeholders- public entities, private institutes, Chambers of Commerce and Associations – were closely involved during the implementation phase. Older people well acquainted with the historical events and structures in the city were involved in local development strategies pursued with various projects aiming at historical and cultural regeneration of Torgau, a city with houses built in Renaissance times (16th and 17th century). Besides these cultural activities, more than 30 new enterprises were supported with € 230,000, creating new services within the urban area from “wellness libraries” to textile stores, event bakeries and therapists within the old architectural structures.
In Gelderland Measure 3.2 supported investments in community multi-service centres (Kulturhusen) in small villages/towns, providing services to the community. These facilities make it more attractive for younger people to seek work in the same environment and favour the creation of employment opportunities for vulnerable groups who have difficulties accessing the labour market. The provision of day-care facilities encourages higher labour market participation rate on the part of women, while better and centralized care facilities which are more convenient to reach are offered for elderly people. More than 90 facilities have been improved, over twice as many as initially planned. The total ERDF budget was 11 million Euro.
In Nord Pas de Calais two measures on territorial development and urban policy dealt with a specific aspect of the demographic challenge faced by the region, namely the isolation of certain urban areas characterised by high unemployment rates, in particular among young job seekers looking for work elsewhere. The urban policy measure supported the establishment of social centres within or on the fringe of difficult neighbourhoods that characterise many municipalities in the mining areas of Nord Pas de
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Calais. The projects suggest that successful social centres (Neighbourhood Houses – maisons de quartier) are useful to increase the exchange of population between the different parts (favoured and unfavoured) of the town. The choice of the building and different investments (for example adding Wi-Fi or specific audio equipment) contribute to making the centre highly attractive, especially for the young population. However when these centres are situated within remote area and have a modest budget, they risk to respond to punctual needs, limiting the possible results. Therefore these investments should be connected to already existent structures, integrated in a overall strategy for urban development and combined with capacity building for the local authorities.
Source: Saxony (DE), Gelderland (NL) and Nord Pas de Calais (FR) case studies
3.2.4 Measures for the social integration of migrants
In East of Scotland, Liguria and Gelderland there are measures also addressing the specific needs of migrants with community multi-service centres created within urban renewal programmes. Indeed, migrants are often the main beneficiaries of urban regeneration measures, finding employment opportunities and access to social services. On the other hand, there is no evidence in the case studies considered regarding ERDF measures specifically supporting migrants in business start-ups.
The case studies show the importance of the involvement of NGOs and local actors with long experience in providing services and support to the migrant population in the design and implementation of community facilities. However, here again the issue of the often small size of local NGOs and their capacity to promote sustainable interventions arises. The cases of the West Fife Enterprise in Eastern Scotland and of the Don Bosco Institute in Liguria show how NGOs with strong partnership links with other relevant public and private stakeholders and long experience in the provision of services to the disadvantaged and fund-raising can succeed in supporting sustainable measures. The Multicultural Educational and Care Centre (MOZC) created in Gelderland is another example of a successful public-private partnership that addresses the integration needs of multiethnic districts in large urban settings. In this case, success was especially related to the integration of the project in a multi-year development strategy coordinated at the national level, where the ERDF support leveraged other contributions by public and private stakeholders48.
Box 22 - Examples of measures supporting the social integration of migrants
The West Fife Enterprise is a non-governmental organisation in Fife (East of Scotland) addressing employability, inclusion and economic regeneration. It is a community-driven organisation which operates with support from Fife Council, Carnegie College, Structural Funds, the East of Scotland European Partnership and the Fife Partnership. ERDF funding has been received to develop training facilities and extend the existing training centre, which are used to deliver training schemes such as Quest for Employment, targeting old people/young people/migrants – apparently with a very high ‘conversion’ rate in helping people enter employment. A surface of 276 sq. m. and 60 additional trainee places could be
48 A detailed description of the project is presented in Annex 5-
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created, raising the overall capacity to 100 places. The results were four new jobs created and 19 jobs safeguarded (of which 10 for women). 49
The Don Bosco Institute is located in one of the districts of Genoa (Liguria) where the increase in migrant population has been fastest in recent years, and which has been the target of other urban regeneration projects funded by the SPD. The Institute provides a wide range of services (education, assistance, sport, etc.) to different sections of the population (younger/older people, disadvantaged, migrants, etc.). This multi-functionality helps to include a large number of beneficiaries and attract the attention of the population. In achieving more efficient management thanks to economies of scale the activities offered could be extended. The same could also be said for the integration and complementarities with other interventions of urban regeneration realised in the same area, which aimed at supporting local micro- businesses and shops and promoting better social services to improve the quality of life within urban areas experiencing social problems.
The Multi-cultural Educational and Care Centre (MOZC) in Gelderland was created for social cohesion and integration in a large urban district mainly inhabited by migrants. It offers sport activities, social – and cultural activities and childcare for the migrant population, women and their children and the elderly. Offering a wide range of facilities which appeal to different age groups and ethnic communities, the centre has become the focus for community development in the neighbourhood. Future users were involved in the design of the facility, providing their suggestions. Overcoming initial resistance, the MOZC facilities currently show higher than expected participation rates and balanced participation in neighbourhoods with a mixed ethnic composition.
Source: East of Scotland (UK), Liguria (IT) and Gelderland (NL) case studies
3.3 Main lessons learnt
Traditional ERDF intervention areas have a high potential impact in addressing demographic change at the regional level, which could be enhanced by paying more explicit attention to these issues.
Overall, the main lessons emerging from the case studies are as follows:
− The potential of the ERDF interventions and their effects in relation to demographic change, have been limited by the lack of clear awareness and of a focussed strategy addressing demographic change. This scant awareness of the potential of the ERDF for addressing demographic change emerges in the scarcity of proactive measures able to address both the threat and opportunities of a changing population structure at the regional level. For example, in relation to ageing, little attention has been given to interventions supporting active ageing or to interventions addressing the elderly as economic agents and consumers of tourist and leisure services.
− Even if explicit strategies addressing demographic change were not implemented, the ERDF interventions have nevertheless had positive indirect effects on demographic
49 Information provided by the WFE to IRS.
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issues (such as ageing, depopulation and rural/urban imbalances, migration). In most of the regions analysed, the ERDF interventions acted catalysts for other contributions from public and private stakeholders, increasing the probability of sustainable results. However no monitoring was carried out on the effects of the measures on demographic needs, and no attention was paid to the involvement of relevant stakeholders in strategy definition and implementation.
− ERDF interventions supporting SMEs and entrepreneurship were more effective in enhancing the attractiveness of the regional economy when financial aid was complemented with the provision of business services (such as training and marketing services) and environmental infrastructures.
− Infrastructural and ICT interventions improved accessibility to services and supported employment creation especially in remote and scarcely populated areas and in regions characterised by great internal disparities. However, when their use was not directly targeted to specific population groups (or specific population needs in remote areas), their overall impact remained limited.
− Measures supporting social infrastructures appear to have contributed to restoring the attractiveness of an area, but risk having more limited impact if not integrated with economic measures in a wider strategic framework.
− Interventions addressing territorial and socio-economic development and employment creation with the regeneration of urban or rural areas seem to have achieved the most tangible positive effects: they appear to have contributed to the improvement of the attractiveness of some areas, which could mitigate the migratory deficit. This was especially so where the ERDF interventions were part of local development plans in synergy with regional and/or national programmes.
− SMEs, NGOs and municipal authorities are relevant players in local development plans. These actors, however, often have little awareness of the relevance of demographic change for local development and are usually able to implement only very small projects, difficult to sustain in the long run. It would be necessary to support their intervention capacity, integrating financial support with technical assistance and capacity building.
− Integrated local regeneration projects require good governance capacities from regional and local authorities, as they usually involve complex multi-level and multi-actor partnerships. Support from higher level institutions and the implementation of pilot projects and guidelines for the design and implementation of local strategic plans may help institutional learning among small local authorities, especially in rural areas.
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4. The ERDF contribution to gender equality
In this chapter we look into the ERDF contribution to gender equality. Analysis is based on the evidence collected by the case studies, which tested two main working hypotheses, more specifically the capacity of the ERDF:
− to increase female participation in working life and reduce gender inequalities in employment opportunities, especially through support for female entrepreneurship and;
− to promote and enhance the work-life balance of private and professional life, reduce gender gaps in education and training and improve the quality of life, especially through the implementation of social infrastructures (care and training infrastructures).
The measures launched in most regions aimed at:
− supporting employment creation, especially through female entrepreneurship and giving support to sectors characterised by prevalent female employment, such as tourist and social services;
− creating childcare structures;
− improving the quality of life for both men and women, especially in depressed rural/urban areas, in order to facilitate reconciliation between working and family life.
− The main outputs produced were:
− the creation of day care services;
− the creation of training and educational centres;
− the creation of female-owned firms.
Table 6 in the Annex presents the main quantitative evidence emerging from the case studies in relation to outputs and results of the measures analysed.
These interventions produced both direct and indirect effects in relation to gender equality:
− In most regions, support for female business and measures to increase the attractiveness of urban/rural areas directly increased employment opportunities for women, especially when tourist, cultural and social services were favoured.
− Measures supporting the creation of care services have both directly increased employment opportunities for women and indirectly improved the quality of women’s lives.
For each of these policy fields/areas of intervention, the following section presents and summarises the main findings and lessons from the case studies and the mini case studies. Examples drawn from the case studies are used in order to support observations and argumentation.
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4.1 The effective ERDF contribution to female entrepreneurship and female employment
Research50 shows that the percentage of female entrepreneurs in Europe is increasing, even if slowly and with different levels around Europe. However, the creative and entrepreneurial potential of women as a latent source of economic growth and a source for new jobs is widely recognised and considered a special focus in regional development strategies like those financed by the ERDF.
Research also shows that women face a number of difficulties in establishing and maintaining businesses. Although most of these difficulties are common to both genders, in many cases they tend to be more significant for female entrepreneurs. This is mainly due to factors such as the choice of business types and sectors (generally less linked to technologies and less productive), information gaps, lack of contacts and difficult access to credit, as well as the lack of training, production inputs, networking and assistance from governmental agencies, gender discrimination and stereotypes that do not consider women able to run business, weak and inflexible supply of childcare facilities, difficulties in reconciling business and family obligations, as well as differences in the way women and men approach entrepreneurship. The growing body of literature on female entrepreneurship includes exploration of the motivations, characteristics and management practices of female entrepreneurs as well as perceived barriers to the advancement of women within the workplace. Whilst the motivations of female entrepreneurs may be similar to those of their male counterparts, in terms of a desire for independence and financial gain, arguably, some women, unlike the vast majority of men, choose entrepreneurship in order to balance work responsibilities and earning potential with domestic/familial responsibilities or just because of the lack of other job opportunities.
The main findings of the case studies are in line with both these issues.
With regard to the entrepreneurial potential of women, most of the regional development strategies financed by ERDF and covered by the case studies confirm the increasing attention paid to female entrepreneurship with both direct and indirect measures in which priority gender criteria were defined. For example, unexpected positive effects emerge from some of the regional case studies, such as the high proportion of women over 40 years of age starting up enterprises in the Nord Pas de Calais case study. At the same time, the fact that women involved in starting up enterprises were over 40 years of age testify to the great difficulties that women face before that age in relation to work-life balance.
Many of the measures selected for gender equality within the case studies have achieved results in enhancing and supporting female entrepreneurship, directly impacting on female employment in relation to firm both ownership and employees (especially in strategic market
50 According to the Global Entrepreneurship Monitor, 2006 Report on Women and Entrepreneurship, female enterprises show smaller growth in the early years and higher mortality rates when compared to male enterprises.
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sectors mainly related to tourism, craft trade, cultural and social activities – see the example presented in the Box 23).
Box 23 - Tourist infrastructures in the Alto Basento and in Lagonegrese-Pollino territory, Basilicata
Measure IV.5 Support for tourist enterprises and market initiatives was mainly implemented in the areas of Basilicata covered by the regional Territorial Integrated Projects (Progetti Integrati Territoriali - PIT). In the areas of Alto Basento and Lagonegrese-Pollino, two of the interventions implemented concerned tourist facilities with emphasis on female employment and family-friendly services. In both areas, the financed interventions implemented tourist facilities that gave employment to 12 women out of 21. Within the facilities, specific services for children care for tourists were envisaged: playgrounds, cultural and nature paths (for children of different ages), children’s entertainment initiatives.
Source: Basilicata (IT) case study
Many of the entrepreneurial initiatives implemented and described in the case studies have had a positive, indirect impact on the work-life balance:
− with regard to the firm owner, in relation to the flexibility of the working-time framework;
− with regard to entrepreneurial initiatives, in relation to the implementation of family- friendly services.
In addition, support for investments and SMEs in the care, health and social sectors indirectly improved the living conditions of the elderly and contributed to the work-life balance for women.
With regard to difficulties that could arise in starting and running a business, the case studies showed that the ERDF was able to contribute positively through the financing of specific aid typologies that could be related both to hard measures – direct investment aid, physical infrastructure, purchase of machinery, etc, and soft measures – advice, counselling, access to credit, credit subventions and non-refundable grants, etc. -, and/or support for networks and associations of women business owners, and mentoring activities by and for women.
All these factors are crucial and influence the success or failure of the entrepreneurship projects, especially during the more delicate start-up phase, even if they are neither sufficient nor particularly widespread in the case studies. As previously underlined, many female enterprises financed showed problems in maintaining/sustaining the initiatives and/or in meeting the economic and administrative requirements for running a business, mainly due to lack of credibility, lack of experience and knowledge and difficulties in accessing to funds start up.
This can create implementation problems as well, which should be taken into account when financing measures supporting female entrepreneurship. When specifically designed to be addressed directly to women, this kind of measures can, in fact, if not supported with a set of soft measures, show weak performance. Such is the case, for example, of the Liguria case study.
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Box 24 – Female entrepreneurship support in Liguria
Measure 1.1.b “Female entrepreneurship”, which was financed by national Law no. 215/92, showed weak performance, being the only gender-specific measure of the programme. Many beneficiaries, including those that managed to comply with the eligibility criteria during the implementation stage, experienced problems in respecting their commitments to create additional employment made during the project proposal phase: about half of the selected projects were revoked and co-financing cancelled.
Source: Liguria (IT) case study
On the contrary, the figures presented in some case studies51 for women’s job creation and women’s business start-ups are positive, especially when closely linked to support action for business start-ups and maintenance during the first years and in areas of most need. Of the large number of measures that could have a strong-medium indirect impact on gender equality, those supporting the renewal of distressed areas showed the greatest impact. Although women are not explicitly addressed by the projects implemented, they are often, indirectly and somewhat unexpectedly, the main beneficiaries of the ERDF interventions in the field of urban regeneration, territorial development and business support. For example, the establishment of a “Fashion incubator” in the southern suburbs of Lille presented in Box 17 in Chapter 3 (source: Nord Pas de Calais case study) aimed at improving the attractiveness of the area and supporting regional development. However, this intervention, considering that most beneficiaries were women, indirectly contributed to improving women’s entrepreneurial capabilities and providing equal access to the labour market.
At the same time, by helping to bridge the geographical and socio-economic isolation of some difficult urban areas and their populations, measures aimed at renewing specific areas contributed to improving the quality of life of social groups at risk of exclusion, among which women, or to be precise some disadvantaged categories of women (elder women, low-income women, etc.) which, nowadays, are found to be far more numerous than their male counterparts52.
51 Such is the case, for example, of the Basilicata and Scotland case studies in which financing female entrepreneurs when associated with support actions yielded good results. 52 Though gender gaps are decreasing, according to EU-SILC common overarching indicators, women in all age groups have higher at-risk-of-poverty rates than men. The risk of poverty is especially increased for single mothers and older women, but women members of certain other disadvantaged groups, such as immigrants, ethnic minorities and the disabled, as well as the long-term unemployed and inactive, or those living in rural areas, may also face more difficulties than men. Thus, gender mainstreaming has been emphasized as a key requirement in the social inclusion process since its beginning in 2000.
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4.2 Social infrastructures and services
Case study findings show that the ERDF measures supporting the creation of social infrastructures and care services in particular have both directly increased employment opportunities for women and indirectly improved the quality of women’s lives.
Interventions supporting the implementation of infrastructures devoted to the provision of social services for the population, especially for non self-sufficient groups (elderly people and children), have been proven to have a high impact on female employment, both offering employment opportunities and supporting the work-life balance.
In fact, by supporting sectors with a majority of female employees (such as the social economy sectors) and/or providing care facilities (for children or elderly people) the participation of women in working life is fostered because supported in care activities still mainly covered by them.
Thus, case study findings show that social services are a crucial field of gender intervention for at least two reasons:
a. Enhanced care services for young/old/disadvantaged people favour a better work-life balance, indirectly promoting women’s participation in the labour market; these types of interventions (especially child care facilities) may also have a positive demographic effect, since families can have the children they desire.
b. Social economy organisations employ a considerable number of women and can have a twofold effect on female employment, by providing care services (for children or elderly people), thus enabling women to delegate some family duties, as well as offering employment opportunities;
Some interesting initiatives are presented in the Salzburg case study, where childcare facilities were created with opening hours related to the parents’ working times (see Box 25).
Box 25 – All day childcare facilities in Salzburg
The Hapimag company (Lungau) in the tourist sector, employing approximately 90% women, created the first company childcare facility in 2004. Three female child minders care for 20-25 children (aged 2-14), all of them children of company employees. The facility is open during holidays, when employment and working hours in the tourist sector are higher.
The Pagitsch company (Lungau) is specialized in construction and construction-design and has approximately 180 employees. A company childcare facility was created in 2006. While in 2003 only 3 women were employed in the company, by 2008 the Pagitsch company was employing 27 female employees, mostly in technical jobs. Four female child minders care for approximately 30 children (aged 2- 14 years) until evening. Three are children of employees, while 27 are non-company children.
Two child care facilities for children aged 1.5-14 years were created by the Pfifferlingplatzl Association (Pinzgau). These facilities serve two companies (one tourism and one textile company) and accept both the
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children of employees and external children (20%). Eight female child-minders care for approximately 50 children. There is the possibility for one flexible childcare place in the afternoon, were one child can be looked after for a small fee (3 €/hour), to be reserved the day before. Opening times are related to the company opening times (until 18:00), but may be extended due to the great demand for evening childcare services. The facility is open all year, except during general holidays.
Source: Salzburg (AT) case study
A similar initiative was presented in the Ireland case study regarding a specific measure devoted to child care implementation.
Box 26– Childcare measures in Southern and Eastern Ireland
The Childcare measure, co-financed by the ERDF, involved investment in childcare in the region (allocation of 62 million Euro), which has indirectly supported labour market entry for women and the chance to access training opportunities, especially in disadvantaged areas. Around 25,000 child care places within 441 new facilities and 796 upgraded facilities were provided, around 80 job possibilities being created. According to the mid-term evaluation of the programme, the childcare measures remain highly relevant in view of their potential to serve growth and increased labour market participation even if no quantified effects are mentioned. Delivery of the measure is also highlighted as a component of the European Employment Strategy. The Childcare measures funded under both the Regional OPs were jointly known as the Equal Opportunities Childcare Programme 2000-2006, and included a childcare facilities measure (ERDF) and childcare staffing and quality improvement measure (ESF).
Source: Southern and Eastern Ireland (IE) case study
Together with child care services, case study findings also show that the enhanced quality and increased capacity of the care services supported a better work-life balance as the Gelderland and Basilicata case studies showed.
Box 27 - Kulturhus Ruurlo
Financed under Measure 3.2., some activities relating to community centres have been carried out. It included more than 90 social and cultural facilities, with a total ERDF investment of approximately 47.4 million Euro. One example is the community centre of Ruurlo, the Kulturhus, which offers accommodation to 13 care and recreational organizations in the town. It offers medical services, physiotherapy, day-care facilities for children, a music school, a pre-school, societies for art, music and the elderly, services for the elderly and the handicapped and also a service desk of the municipality of Berkelland. The latter was necessitated by the merger of 4 municipalities into the municipality of Berkelland. The owner of the building is the housing corporation and management of the facility is the shared responsibility of participating organisations which are independent and self-financing entities. A major advantage of the shared facility is cost saving by being able to share the running and operation costs. Customer visits to different organizations can be combined and they are able to plan and coordinate their services for better accessibility. Residents of the home for the elderly make use of the facility which is
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shared with the day-care facility and feel integrated in society. The Kulturhus also has a large auditorium which offers music and theatre performances, and meetings.
Sources: Gelderland (NL) case study
Box 28 – Social Infrastructures in Basilicata
The results obtained by the interventions financed under Measure V.2 - Services for people and the community- indirectly impacted positively on the work-life balance. Among the 12 social infrastructures implemented (with a total ERDF amount of 1.2 million Euro):
- 5 are for the elderly;
- 4 are for disadvantaged children and teenagers;
- 2 are for the disabled;
- 1 crèche is for babies.
Given their characteristics, these interventions also impacted positively on the quality of life for women and men, fighting marginalization and social exclusion and improving social promotion within the community.
Source: Basilicata (IT) case study
Developing and supporting social infrastructures is particularly relevant for gender equality. The promotion of equality between women and men and the facilitation of greater female participation in the workplace and in business (especially for mothers wishing to take up a full- time employment) can be positively achieved through investment in the development of affordable, quality child care facilities, particularly in disadvantaged areas, and/or health and care services for older people. The ERDF interventions also had an effect on gender equality by increasing and supporting the work-life balance, increasing women’s employment and improving the quality of life by providing gender-oriented education facilities also in countries where gender gaps are still very acute, as the Malta case study shows.
Box 29 - Social infrastructures targeted education in Malta
Sub-Measure 1.2.2 Education and Social Infrastructures targeted education and social infrastructures primarily within the context of further development for vocational training infrastructures and skills upgrading.
The interventions supported by ERDF (approximately 5 million €) under this measure covered upgrading of current educational facilities, as well as provision of public support service infrastructures in order to enable greater participation in the educational/training programmes provided and increase the number of courses offered.
Under this measure, intervention typologies were:
- construction of educational infrastructures (including the purchase of equipment) leading to an increase in enrolment capacity/new courses offered (number of new places for women: 66);
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- developing practice centres focusing on technology training;
- developing public support centres (provision of three childcare facilities with 120 places) to facilitate female participation in educational/technical courses;
- developing educational tools to facilitate life-long learning.
Source: Malta (MT) case study
4.3 Main lessons learnt
The attention paid in regional development measures to the gender specificities of the interventions, due to the choice of sustaining and enhancing the creation and the development of female entrepreneurial activities, shows that these measures, when related to specific economic sectors, increased their potential impact on gender equality. This is the case, for example of sectors aiming at the improvement of the architectural and cultural resources, the local culture, or the tourist sector, which often involve female competences and aptitudes that may be better exploited, thus impacting positively on the local economy. The link between female capacity and local development (especially in the tourist sector) has been seen by some Managing Authorities (like in Basilicata), as an opportunity for concrete answers to many needs, such as the development of the territory, tourism promotion and female entrepreneurship. Moreover, some sectors, like tourism, offer flexible employment opportunities, especially to women wishing to return to paid employment.
The case studies clearly show that, as regards the promotion of female entrepreneurship, technical assistance, counselling and training services aiming at supporting women in their business start-ups by enhancing their entrepreneurship capacity (especially in those sectors typically employing female staff) are more effective than simply targeting a standard grant aid scheme to women. In order to improve the performance of measures devoted to female entrepreneurship, a more strategic approach aimed at reinforcing the entrepreneurial capacity of applicants should thus be adopted. In particular, the following issues should be considered:
• Strengthened institutional capacity of private sector associations, government sector counterparts and NGOs to serve market economy goals;
• Policy Environment: improvement of policy environment to enhance women’s entrepreneurship, by adopting measures based on practical experience and policy lessons- should be shared and disseminated;
• Business environment: more effective partnerships among governments, business development services, NGOs, business associations, etc.;
• Networking: the facilitation of national, regional and international networking for women entrepreneurs.
• Creation of regional business development services for women entrepreneurs.
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All these elements, if valid for supporting and increasing entrepreneurship at a general level, can be considered as particularly important when involving women, considering the higher failure rates that female enterprises have in comparison to male ones, especially in the first year of activity.
It is also important to underline a pre-condition for success: all these elements were favoured by the acknowledgment that the application of a gender perspective may have useful results in terms of regional development when supported by the appointment of equal opportunity dedicated bodies as shown in several case studies, such as the establishment of Equality Project Managers and women’s networks in Salzburg or Equality Task Forces -in Ireland and East of Scotland- or the Equal Opportunity Task Force and Authorities in Basilicata.
The case study findings regarding this issue are contradictory, but they deserve to be taken into account, considering that they may be very relevant in the long run if the role of equal opportunity bodies is adequately supported and extended to all programme interventions, and not limited to women-specific ones.
On the one hand, the case studies show the difficulties faced by equal opportunity bodies in supporting gender equality at the regional level often meeting with strong resistance among the managing authorities to include the gender aspects in ERDF interventions not targeted at women directly or in ERDF policies aimed at systems and infrastructures. These interventions and policies are considered to have “nothing to do” with gender, and are thus thought to be “gender neutral”, contravening the spirit of the gender mainstreaming approach which considers no policies and interventions as neutral, on the grounds that women and men have different needs and thus require different policy responses.
As previously underlined (see paragraph 2.3.1), the entire study shows that the transition from the programming phase to implementation is delicate, and is still based on the willingness of regional officials engaged in the implementation of the single measures, especially in the absence of equal opportunities bodies with strong formal authority.
On the other hand, a more formalised and structured approach, like the appointment, in Basilicata, of a specific Regional Authority for Gender Policies as well as Local Task Forces on gender equality (see Box 30), have significantly contributed to achieving concrete results, not only from a governance point of view, but also, increasing regional awareness of gender equality issues. Regional officials were “obliged” to take gender aspects into consideration in all phases of the policy cycle with the general aim of achieving a positive impact on equal opportunities for women and men and reducing gender gaps at the regional level, such as those related to labour market segregation. Their presence in the Regions, reflecting an ever broader decentralisation of activities, has enabled the implementation of more effective and efficient technical support to develop regional programming from a gender viewpoint, with particular reference to the activities linked to the mid-term review and to the need for progressive diversification of technical assistance activities in the various regional contexts.
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Box 30 - Regional Authority for Gender Policies and Local task forces on gender equality
The launch of Authorities for Gender Policies is an organisational and managerial solution to integrate correctly and efficiently the principle of gender mainstreaming in all the initiatives undertaken by the Regional Operational Programmes (ROP). This structure is represented by an Officer for Equal opportunities in the Managing Authority, making use of the support of the Local task forces of the Department of Equal Opportunities of the Italian Presidency of the Council of Ministries (DEO) and the team of the network of equal opportunity promoters, the latter consisting of one or more managers working in the regional administration offices and the operating bodies of the Region. The body acts in all the implementation stages of the programme and plays a role of consultation, proposal and promotion with regard to equal opportunities in relation to the ROP Managing Authority. It also performs the function of bringing together the various institutional players who, for various reasons, take part in the implementation of equal opportunity policies. This Authority also has the task of taking action in the stage of drawing up public tenders, through an initial opinion, which is set as obligatory, even if not binding, in order to suggest adjustments and corrections should adequate account not have been taken of the equal opportunity cross-cutting priority during definition of the initiative. In the Basilicata Region, the Authority for Gender Policies is established at the Managing Authority offices and it is regulated by the Regulation of the Regional governance system for issues of Community relevance (DGR 847/2003) that identify its functions as ensuring, on the basis of European, national and regional principles, integration of the principle of equality and of gender equal opportunities within the interventions co-financed by Structural Funds.
Source: Basilicata (IT) case study
Indubitably, developing a gender mainstreaming approach takes time. In general, the impetus provided by Structural Funds together with the emphasis given to good governance, with the decentralisation of policies and the concept of subsidiaries, takes on an increasingly important role, and has yielded appreciable results. However, these practices must still become institutionalised throughout Europe, establishing specific procedural and administrative guidelines and rules able to allow “pilot actions” or “experimentations” to become practice, especially in the ERDF. Despite the undeniable evolution, various obstacles still remain in the conception and designing of gender mainstreaming policies, as well as in their implementation. Defining a system able to follow the programming and implementation process within a gender perspective calls for a specific political position, adequate instruments and dedicated resources, as well as greater awareness and ability within the administrative culture to consider the different phases of the policy cycle, independent yet closely linked to each other in a process of reciprocal influence.
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5. Overall conclusions and policy implications
The mandate of the present evaluation was challenging due to the focus on two issues which were not directly addressed by ERDF interventions. For this reason the present evaluation aims to provide some factual and concrete evidence about what the ERDF actually produced in the 2000-2006 period in terms of the outputs, results and effects on gender equality and adaptation to demographic change. The aim is to provide evidence of the types of outputs and results, beneficiaries affected, aspects of gender equality and adaptation to demographic change that are more effectively addressed by the ERDF.
The following questions were at the basis of this evaluation exercise:
1. To what extent have demographic change and gender equality been taken into account by the 2000-2006 ERDF programme policy design and implementation procedures?
2. How have the ERDF interventions contributed to improving gender equality and adaptation to demographic change?
3. What lessons may be derived from the 2000-2006 experience based on the conditions associated with an effective use of the Funds, in relation to demographic and gender equality challenges?
4. What are the main policy implications?
The case studies, even if not exhaustive, have provided useful insights into the extent to which demographic and gender equality issues have been internalised within programmes and policies not directly aimed at individuals and equal opportunities, such as those financed by the ERDF, and how effective they have been. In addition, some lessons on how to foster a greater focus on demographic changes and gender equality may be derived from the 2000-2006 experience.
5.1 Demographic change and gender equality in the ERDF 2000-2006 programmes
During the 2000-2006 programming period, demographic changes were not identified as a priority to be addressed by Structural Funds and by the ERDF in particular, while gender equality, even if considered by the Structural Funds Regulation as a horizontal priority for all Structural Funds, was mainly dealt by the ESF rather than the ERDF.
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5.1.1 The contribution of the ERDF to adaptation to demographic change and gender equality
1. The regional case studies show that demographic change and gender equality issues are mentioned in most regional strategies and have usually been considered in the context analysis of the ERDF OPs, but they find little further development in the intervention design, implementation and evaluation system. In most cases few measures have been designed to address these issues explicitly, few specific selection criteria and monitoring devices have been introduced relating to demographic needs and gender gaps and no attention has been paid to the involvement of relevant stakeholders in the definition and implementation of the strategy.
2. Nevertheless, many of the measures implemented address adaptation to demographic change and gender equality issues, mostly in an indirect way. The focus of the ERDF interventions on regional development has led to the implementation of social, transport and ICT infrastructures and urban/rural regeneration projects which may reduce demographic imbalances and gender inequalities, improving the attractiveness of areas at risk of depopulation. There is, however, little awareness and monitoring of these effects on demographic change and gender equality. The qualitative evidence from the case studies shows that women, the elderly and migrants are usually the main beneficiaries of these measures, even if often little attention has been paid to their specific needs in the intervention design and in defining the accessibility conditions, resulting in weaker potential impact.
3. Few measures have specifically aimed at demographic change and gender equality, due to scant awareness of the ERDF potential for addressing these issues. For example, in relation to ageing, little attention has been given to proactive interventions supporting active ageing or to interventions addressing the elderly as economic agents and consumers. As for gender equality, the measures supporting female entrepreneurship usually failed to consider the specific needs of women entrepreneurs (like, for example, the need for maternity support, their greater difficulties relative to men in access to credit, the lack of social networks, etc.) and this reduced their effectiveness. The ERDF support for care facilities for children and the elderly were more effective in both creating employment opportunities for women and improving women’s work-life balance. Gender mainstreaming was not usually implemented and supported in the regions analysed, with the exception of those regions where equal opportunity bodies were created (in Basilicata, East of Scotland, Ireland and Salzburg) with strong political commitment.
4. ERDF interventions in most of the cases analysed showed marked synergies with ESF measures (such as those present in Operational Programmes and in the Community Initiative EQUAL) supporting training and counselling services (complementing with ERDF provision for educational infrastructure and business support) and EAGGF measures (Leader +) supporting rural development (for the ERDF measures regarding
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infrastructures and services for depopulated areas). In some regions the ERDF interventions were included in broader regional and local development strategies, complementing national and regional measures and increasing their sustainability in the long run.
5. The case studies also show the interactions between support for gender equality and adaptation to demographic change. For example, supporting local development and regeneration projects in depopulated rural areas or distressed urban areas indirectly benefited women’s employment and entrepreneurship; social facilities to improve service provisions at the local level indirectly benefited women by improving their conditions of employment and quality of life (work-life balance, safer environment, etc.).
6. SMEs, NGOs and municipal authorities played significant roles in local development plans. These actors, however, often had little awareness of the relevance of demographic change and gender equality for local development and were usually able to implement only very small projects, difficult to sustain in the long run.
5.1.2 Lessons learnt
Some lessons may be derived from the case studies to improve the effectiveness and sustainability of the ERDF interventions in relation to demographic change and gender equality. Many are related to the issues currently under discussion regarding the future of cohesion policy and integrated local development53.
The main lessons are the following:
1. The ERDF may indeed support regions in adapting to demographic change and fostering gender equality, especially thanks to the focus on regional socio-economic development and the multi-year integrated programming approach. Overall, the ERDF interventions are more successful in those regions where a number of conditions are satisfied, such as better focus on demographic and gender equality priorities, integration of the ERDF interventions within other programmes implemented at the regional and national levels, the creation of effective public-private partnerships and the governance capacity of local and regional authorities.
2. The Regional and local dimensions are relevant in addressing demographic change and gender equality. The case studies show these issues have an important place-based nature: they are context-dependent and require interventions tailored to the specific needs of the regional areas (remote rural areas or congested, degraded urban districts) and the beneficiaries (such as the elderly population, migrants, and women). While all
53 Barca, F., An Agenda from a reformed Cohesion Policy. Independent Report, mimeo April 2009, ec.europa.eu/regional_policy/policy/future/pdf/report_barca_v2104.pdf. Bachtler, J., Future of the Cohesion Policy and Integrated Local Development. Conference Report. European Policies Research Centre, University of Strathclyde, Glasgow, April 2009.
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regions are increasingly confronted with the effects of demographic change and gender inequalities, this happens with varying intensity following different patterns, which require different, place-based policy mixes. Tailoring measures implies a good knowledge of the regional context, the integration of different measures according to the local needs and the capacity to find “new” solutions when tackling new problems. For example, the ERDF interventions supporting employment creation may consider the generational turnover in enterprises and also support entrepreneurship and management capacity in local NGOs involved in the creation of social infrastructures and re-generation programmes. Programmes addressing ageing and migration inflows could adopt a more pro-active approach, valorising the skills and resources of the elderly and migrant population, Support for women’s business start-ups could address the specific needs of women entrepreneurs. The ERDF interventions for expanding and improving transport, ICT and social infrastructures could place greater attention on the accessibility needs of potential beneficiaries, especially the elderly and disabled population and women.
3. The importance of integrated and multi-level policy responses to address the multiple dimensions of demographic change and gender equality54. The local dimension, while necessary, is not sufficient to tackle all the issues related to demographic change and gender inequalities. In addition, the local actors may lack the capacity to manage the complexity of policies addressing these issues. Integrated policy delivery can be effectively implemented at the local level with the support of higher institutional level and complementing wider regional, national and EU strategies. Within this framework, ERDF interventions should be integrated into broader strategies which clearly address demographic and gender equality priorities and exploit all the possible synergies with national/regional programmes and other co-financed programmes implemented at the regional level. This is necessary in order to avoid the fragmentation of interventions and to overcome the limitations due to the scant financial resources available for the ERDF (especially in Objective 2 areas) and restrictions on eligible interventions.
4. The need for appropriate management capacities at regional and local levels to improve the effectiveness and sustainability of the ERDF interventions. Overall, the success of regional development policies in addressing the risks and opportunities related to demographic change and gender (in)equality largely depend on the governance and implementation capacity of local and regional institutions and actors:
a. the capacity of institutions to single out local needs, set strategic priorities, provide a supportive policy framework, facilitate the implementation of integrated measures coherently with regional/national development strategies and the inputs of the European Cohesion policy, mobilise the relevant stakeholders and cooperation and networking among local actors;
54 See section 2.4 of this Report.
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b. the capacity of local actors to build public-private partnerships and implement effective and sustainable policies, tailored to the needs of local communities;
c. the capacity to strengthen complementarities and synergies between the ERDF funding and other financing sources and programmes operating at the local level;
d. the capacity to learn from the experience.
Support from higher level institutions and the implementation of pilot projects and guidelines for the design and implementation of local and regional strategic plans may facilitate institutional learning among local and regional authorities.
Table 4 summarises the main demographic and gender equality dimensions addressed by the ERDF interventions in the 2000-2006 programming period, the hypotheses tested and the conditions for success.
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Table 4 - Demographic change and gender equality dimensions addressed by ERDF interventions, working hypothesis tested, lesson learnt and condition for success
Issues addressed ERDF areas of interventions Working hypothesis tested in the cases studies Lessons learnt and conditions for success
Demographic change ERDF support for ICT and community-based health services Financing care infrastructures for the Interventions better targeted at the needs of the elderly directly improved the living conditions of the elderly elderly population, on the basis of a specific context analysis. population in remote areas Strengthening of synergies with the ESF and with national/ regional programmes aimed at active ageing. Financing infrastructures in the Development of programmes supporting the employment Ageing population framework of: ERDF support for training facilities providing lifelong training of older workers − active ageing policies for the elder population in rural and deprived urban areas Improvement of the monitoring and information system. − human capital enhancement directly improved their living conditions and reduced their Small-scale actors or stakeholders (NGOs or − reduction of the isolation of the isolation. municipalities) in rural areas need technical support in elderly/disabled population accessing ERDF funding and designing focussed and sustainable strategies. ERDF support for transport and, especially in ICT infrastructures, had important indirect effect in improving the living conditions and economic attractiveness of remote and Infrastructure availability is necessary, but not sufficient. sparsely populated areas for people, economic activities and Demographic imbalances Need for greater attention to the accessibility of ICT and Financing transport infrastructures, tourism. within regions and migration transport infrastructures for disadvantaged groups such as ICT, cross-border commuting ICT also helped to create employment for highly skilled flows the elderly, the poorly educated and the disabled in order young workers and supported accessibility to health, to increase coverage and use. educational services and other public services for the population and business in remote or geographically disadvantaged areas. Increasing the attention paid to the long term sustainability of supported businesses Integrating economic incentives, with the provision of The ERDF interventions had important indirect effects on the business services Support for business creation and creation of employment and increased the attractiveness of Improving the monitoring system to increase knowledge economic development depopulated or degraded areas on the types of jobs created and the beneficiaries of the measures Need to support the management capacity of local NGOs, besides SMEs
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Issues addressed ERDF areas of interventions Working hypothesis tested in the cases studies Lessons learnt and conditions for success
To improve the effectiveness of these interventions it is necessary to leverage public funds with private investments by tying public intervention to coordinated and synergic investments to be activated by private Financing the renovation and partners The ERDF interventions had important indirect effects on the development of declining rural/urban Small-scale actors or stakeholders (NGOs or creation of employment and increased the attractiveness of areas and the protection and municipalities) in rural areas need technical support in depopulated or degraded areas. conservation of the rural heritage accessing ERDF funding and designing focussed and sustainable strategies. Need for systematic cooperation and integration of projects, within a wider development strategy, addressing the issue of multilevel governance Need to better fine-tune interventions to the need of the The ERDF interventions may have important direct effects migrant population, on the basis of a specific context Providing basic services for the social through the creation of employment and the provision of analysis. Migration from other and economic inclusion of migrants social services. Only a few programmes explicitly targeted Strengthening of synergies with ESF and national/regional countries and disadvantaged populations migrants; however migrants were among the beneficiaries of programmes aimed at the social and economic inclusion of community centres and social infrastructures. the immigrants and ethnic minorities. Improvement in the monitoring and information system. Gender equality ERDF Business investments in specific economic sectors in which mostly women are employed (i.e. social and care sector) and/or in which women present specific competences and talents (e.g. tourism, cultural activities, etc.) have been useful The socio-economical analysis of the local context should Financing Business investment; to increase female employment. consider the female dimension within economic sectors. ERDF support for female entrepreneurship both directly Gender gaps in employment Financing Female entrepreneurship through specific measures and interventions and indirectly Support for female entrepreneurship can be achieved through measures aimed at supporting entrepreneurship have Work-life balance when related to specific economic sectors and linked to Financing social infrastructure proved to be a useful tool to reduce gender gaps in business support interventions. The specific needs of (especially childcare) employment (as female business owners and as employees) women entrepreneurs should be considered. ERDF support for increasing the number of and access to social infrastructures (with particular emphasis on childcare facilities) have proved a powerful tool for addressing the work-life balance
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5.2 Policy implications
Some policy implications arise from the regional case studies and the mini-case studies on the ways to increase the effectiveness of the ERDF interventions in relation to demographic change and gender equality as horizontal objectives:
1. Include ageing, migration and gender equality among the priorities of the ERDF interventions, as these issues may be better addressed by the interaction of regional, national and European policy making. They represent relevant challenges for regional development and there is scope for the ERDF to address them effectively. In addition, a European framework of common intervention principles and general objectives is relevant when tackling these issues, because they cross-cut regions and nations.
2. Promote the adoption of an integrated approach, combining different measures (economic, social, and environmental) to address demographic and gender equality objectives at all institutional levels. At the European level, this calls for greater coordination between the activities promoted by the different funds and DGs, such as the ERDF (DG Regio) and the ESF (DG Employment), to enhance complementarities and consistency.
3. Promote a multi-level governance framework, with clearly defined roles among the different levels of governance and among public-private stakeholders, and identification of the interventions better implemented at the regional, national or European levels. The urban regeneration programmes presented in the Gelderland and Saxony mini-case studies provide useful insights in this respect, showing how national, regional and local authorities and actors were effectively involved in the design and implementation of complex integrated urban regeneration programmes.
4. Promote new pro-active approaches in policy making and the exchange of experiences for institutional learning. Structural Funds promoted innovation in policy making and institutional learning, both at the national and regional/local levels, especially in the case of well-focused Community Initiatives (such as Urban, Leader +, Equal). Given the complexity of the issues at stake, in the case of demographic change and gender equality, it would be particularly relevant to stimulate more pro-active approaches and mobilise partnerships at the regional, cross-border and inter-regional levels. This can be accomplished through the promotion of the exchange of good practices, with specific attention paid to pilot and innovative actions. For example, in relation to demographic issues, much could be learnt from the experiences from programmes that support active ageing and consider the elderly population, women and migrants as important economic agents for regional and local development. In relation to gender equality, the 2000-2006 experience suggests that equal opportunities for men and women are relevant for socio-economic development but they are no longer attainable through gender-specific policies alone. They also require a holistic approach, which incorporates equality goals into all policy areas (gender mainstreaming). This means horizontal integration across all policy areas, as well as vertical integration within all levels of the policy hierarchy. The European Commission may play a relevant role in supporting the development of policy and institutional learning in these fields by fostering the exchange of
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experiences and good practices among countries and regions and by supporting the debate on how gender equality and demographic change may be addressed in policy-making.
5. Support management and implementation skills at regional and local levels to improve institutional capacity and access to the ERDF resources. As shown by the evidence collected in the case studies and in the mini-case studies, setting horizontal priorities is not enough to improve the focus of the ERDF interventions, often considered only a legal compliance. It is necessary to provide technical assistance and support capacity building among regional and local actors and managing authorities, especially when addressing the complex issues considered in this study. Local actors (especially NGOs and SMEs) are often on a micro-scale, with poor capacity in terms of project design and management. They need support and technical assistance in both the project design and implementation phases, as well as having access to the Structural Funds. Regional and, especially, local institutions need capacity building both in policy design, raising the level of awareness regarding the relevance of gender equality and demographic change for local development, and in policy delivery. Programme authorities and local actors should be supported in the development of management mechanisms that see demographic change and the gender perspective as a transversal qualifying element to reach set goals. They need to set out clear-cut procedures, in order to keep attention focused on these issues in all phases of the policy cycle. It is important that:
9 appropriate procedures be introduced in order to internalise the gender and demographic change perspective in the selection criteria, implementation methods and monitoring systems;
9 specific technical assistance provisions be activated to support project interventions;
9 specific skills in programme/project management be developed, either through internal training or external expertise and the exchange of good practice
Technical support centres may be created at the regional level to provide assistance to regional and local actors. This is particularly relevant for gender mainstreaming, which still needs to be supported in all the phases of the policy cycle, especially in the ERDF programming and implementation. Policy decision-making and design could be improved by involving female representatives in (local) partnerships, the development of gender-disaggregated and gender relevant data and indicators, the implementation of gender impact assessment (GIA) procedures (at least with regard to the more relevant measures in terms of a gender perspective) in order to identify the level of internalisation of gender approach within Programmes. Policy implementation could be enhanced by the creation of gender coordination structures within and between administrative departments, training and capacity-building for public administrations on gender issues, the availability of sufficient resources to achieve gender objectives and the involvement of gender experts and/or structures in all the programming stages, from tendering to project generation, project selection and implementation.
6. Improve monitoring and evaluation tools to support the planning and implementation of interventions through an institutional learning process. The monitoring and evaluation of the potential and actual gender and demographic effects of Structural Funds may be supported
87 Final Report and improved through the definition and dissemination of specific guidelines and criteria, the development and diffusion of gender and demographic relevant data and indicators at the European and national/local levels. This could support the Managing Authorities in defining targets and monitoring systems for co-financed interventions. Qualitative monitoring activities should also be implemented to derive lessons on how and why results are (not) reached. Ex-post evaluations and participative evaluations, involving a broad range of key stakeholders, could offer support by drawing conclusions on how to overcome the critical aspects arising from the implementation of the planned interventions.
88 Work Package 7: “Effectiveness of the Cohesion Policy: Gender Equality and Demographic Change”
References
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European Foundation for the Improvement of Living and Working Condition, Working Conditions in the European Union: the Gender Perspective, Luxembourg, Office for the Official Publications of the European Communities, 2007. http://www.eurofound.europa.eu/pubdocs/2007/108/en/1/ef07108en.pdf
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Websites
The Scottish government, http://www.scotland.gov.uk/Publications/2006/06/12094904/2
Nord Pas de Calais, Plan Régional pour la Création et la Transmission des Entreprises, http://www.nordpasdecalais.fr/economie/creationTransmissionActivites.asp
Sportello Regionale per l'Internazionalizzazione delle Imprese, http://www.basilicatanet.it/scheda_sprint_170105.htm
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