Multiple Meanings of Gender Equality
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Multiple Meanings of Gender Equality A Critical Frame Analysis of Gender Policies in Europe Edited by MIEKE VERLOO CPS BOOKS CENTRAL EUROPEAN UNIVERSITY PRESS BUDAPEST NEW YORK The Center for Policy Studies (CPS) works for better government and administration in Central and Eastern Europe and the former Soviet Union. Based at the Central European University in Budapest, it carries out comparative and inter-disciplinary research, develops teaching and training materials, and via the Policy Document Center, runs an on- line library of policy papers from the region. CPS is committed to strengthening indigenous capacities for policy research and analysis. The Center for Policy Studies established one of the first Masters degrees in public policy in the region and, with the Open Society Institute, it sponsors new policy research and education programs. A member of both academic and policy networks, CPS organizes conferences, workshops and public events to help promote exchange and help bring research into policymaking. Multiple Meanings of Gender Equality A Critical Frame Analysis of Gender Policies in Europe CPS BOOKS Andrea Krizsán (ed.) (2001) Ethnic Monitoring and Data Protection. The European Context. Published jointly with the Human Rights Information and Documentation Center (INDOK) Miklós Sükösd and Péter Bajomi-Lázár (eds.) (2003) Reinventing Media. Media Policy Reform in East-Central Europe Andrea Krizsán and Violetta Zentai (eds.) (2003) Reshaping Globalization. Multilateral Dialogues and New Policy Initiatives Judit Sándor (ed.) (2003) Society and Genetic Information. Codes and Laws in the Genetic Era Alina Mungiu-Pippidi and Ivan Krastev (eds.) (2004) Nationalism after Communism. Lessons Learned Multiple Meanings of Gender Equality A Critical Frame Analysis of Gender Policies in Europe Edited by MIEKE VERLOO CEU PRESS CENTRAL EUROPEAN UNIVERSITY PRESS BUDAPEST NEW YORK © 2007 Central European University Copyeditor: Tom Bass Design and typesetting: Judit Kovács • Createch Production: Center for Policy Studies Printed in Hungary by Createch Ltd. English edition published in 2007 by Central European University Press An imprint of the Central European University Share Company Nádor utca 11, H–1051 Budapest, Hungary Telephone: (+36-1) 327-3138 or 327-3000 Fax: (+36-1) 327-3183 E-mail: [email protected] Website: www.ceupress.com 400 West 59th Street, New York NY 10019, USA Telephone: (+1-212) 547-6932 Fax: (+1-646) 557-2416 E-mail: [email protected] All rights reserved. No part of this publication may be reproduced, stored in retrieval system, or transmitted, in any form or by any means, without the permission of the Publisher. Library of Congress Cataloging-in-Publication Data Multiple Meanings of Gender Equality : A Critical Frame Analysis of Gender Policies in Europe / edited by Mieke Verloo. p. cm. — (CPS books) Includes bibliographical references and index. ISBN 978 963 9776 08 1 (pbk. : alk. paper) (CPS Books, ISSN 1587 6942) 1. Sex discrimination against women—Europe. 2. Sex discrimination against women—Government policy—Europe. I. Verloo, Mieke, 1950- II. Title. III. Series. HQ1237.5.E85M85 2007 305.42094—dc22 2007034572 Contents PREFACE 7 LIST OF CONTRIBUTORS 9 LIST OF TABLES 15 ACKNOWLEDGMENTS 17 PART ONE MAPPING THEORY, METHODOLOGY, AND THE EUROPEAN CONTEXT I. Mieke Verloo and Emanuela Lombardo Contested Gender Equality and Policy Variety in Europe: Introducing a Critical Frame Analysis Approach 21 II. Emanuela Lombardo and Petra Meier European Union Gender Policy Since Beijing: Shifting Concepts and Agendas 51 PART TWO COMPARING GENDER EQUALITIES III. Emanuela Lombardo, Vlasta Jalušič, Maro Pantelidou Maloutas, and Birgit Sauer Taming the Male Sovereign? Framing Gender Inequality in Politics in the European Union and the Member States 79 IV. Petra Meier, Elin Peterson, Karin Tertinegg, and Violetta Zentai The Pregnant Worker and Caring Mother: Framing Family Policies across Europe 109 V. Andrea Krizsán, Maria Bustelo, Andromachi Hadjiyanni, and Fray Kamoutis Domestic Violence: A Public Matter 141 5 PART THREE FOCUSED CHAPTERS VI. Karin Tertinegg, Majda Hrženjak, and Birgit Sauer What’s the Problem with Prostitution? Prostitution Politics in Austria and Slovenia since the 1990s. A Comparison of Frames 187 VII. Raquel Platero Méndez Overcoming Brides and Grooms The Representation of Lesbian and Gay Rights in Spain 207 VIII. Tamás Dombos, Anna Horváth, and Andrea Krizsán Where Did Gender Disappear? Anti-discrimination Policy in the EU Accession Process in Hungary 233 IX. Conny Roggeband and Mieke Verloo A Closer Look at the Intersection of Gender Equality and Migration in the Netherlands (1995–2005) 257 PART FOUR LOOKING FORWARD X. Mieke Verloo, Maria Bustelo, and Emanuela Lombardo Conclusions on Framing Gender Inequality as a Policy Problem in Europe 281 INDEX 303 6 Preface As one of its main intellectual concerns, the topic of social diversity and equal opportunity has been on the research agenda of the Center for Policy Studies from the very start of its operation. Being embedded into the academic community of the Central European University and having strong ties to the Open Society Institute, the Center has the privilege to rely on the experiences and knowledge of scholars, experts, and activists who dwell upon the problems of inequality, various forms of discrimination, and social exclusion based on gender, race, ethnicity, age, and other differences in emerging democracies in Central and Eastern Europe. These academic and practitioners’ communities are engaged in systemically mapping, understanding, and challenging the most visible and less visible social inequalities, in particular in Central and Eastern Europe, and their conceptual and ideological underpinnings. Within the multitude of social inequalities, gender has a specific position both in social practices and political debates. Feminist thinking and civil society activism do not have a permanent and long history in the post-socialist region in spite of early developments in many societies in the early 20th century. The political changes and shifts in knowledge generation following 1989 have fostered new connections, influences, and interfaces with Western and global feminism for women and a small number of men in Central and Eastern Europe but also have unleashed voices of con- testation too. As in many other fields of inquiry, contemporary currents of feminist scholarship arrived together with their critique. In the nearly two decades since 1989 in the political arena, many tasks and challenges were identified as more important than the problem of gender inequalities. This environment has not prevented, but just the opposite, encouraged commit- ted scholars in the region to seek the possibilities to engage themselves with criti- cal debates and comparative social research addressing the variety of gender regimes throughout Europe that regulate gender relations, policy debates, and institutions in different member and accession states of the European Union. For the Center for Policy Studies, it was an honor to join a consortium of institutions from old and new member states to examine the conceptual frames of European and domestic debates of various policymaking bodies that have sometimes clear, other times more ambigu- ous obligations to pursue gender equality and shape policy instruments accordingly. 7 The MAGEEQ method was hoped to serve the comparative inquiries that explore the basic properties of gender equality thinking in Europe, even when the instrument of gender mainstreaming already had been introduced and several domestic contexts even regularized. The MAGEEQ methodology also proved to be suitable for investi- gating different policy realms: one, in which the notion of gender is hardly grasped except for some obvious issues, and in another, in which gender mainstreaming is feared to be “technocratized,” respectively. The dividing line does not simply over- lap with the East-West symbolic and political geography, for an in-between position has also been detected. Finally, the research did not stem from one single stream of feminist theory, yet sought to find transformative elements of gender-related policy thinking. The Center for Policy Studies takes pride to present the results of the MAGEEQ project and to invite the readers to offer critical comments to the authors and the edi- tors. When the reader opens the volume, the QUING project will have already been launched to enhance the breadth and scope of the MAGEEQ research. The work continues in the conviction that a lot has to be done to change unfair distributions and relations of gender roles. To deconstruct unfair inequalities and build equality without denying difference seems to be conceivable and welcome in several European societies and policymaking domains, although never unanimously and unambigu- ously. It is believed that comparative research could give intellectual support and moral encouragement to that. Violetta Zentai Director, Center for Policy Studies 8 List of Contributors Maria Bustelo, Ph.D. in Political Science, is Associate Professor in the Department of Political Science and Public Administration at the Complutense University of Madrid, Spain. She has worked as an independent consultant for Spanish public administrations and agencies, the European Commission, and NGOs in the field of gender programs and policies, training and program evaluation. She is also the director of the Master on Evaluation of Program and Public Policies (UCM). She has a number of publications