10 Southern and Eastern Ireland · of working and living, especially at a local level. Both also...

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”

SECOND INTERMEDIATE REPORT: Regional Case Studies

SOUTHERN AND EASTERN

IRELAND (IE)

IRS, Istituto per la Ricerca Sociale CSIL, Centre for Industrial Studies Prepared for: European Commission

DIRECTORATE GENERAL REGIONAL POLICY Policy Development Evaluation Unit

Case Study – Southern and Eastern Ireland (IE)

II

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, Project Coordinator; - Scientific Advisors: Charlotte Höhn (Federal Institute for Population Research); Gianfranco Viesti (University of Bari); Silvia Vignetti; Paola Villa (University of Trento). - Senior experts: Ivana Fellini (University of Milan), Julie Pellegrin; Maria Letizia Tanturri (University of Pavia); Alessandro Valenza; Giancarlo Vecchi (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 case study presented in this report was carried out by Rona Michie (EPRC). 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.

Work Package 7: “Effectiveness of the Cohesion Policy: Gender Equality and Demographic Change”

III

TABLE OF CONTENTS SOUTHERN AND EASTERN IRELAND 1

Introduction and main findings .................................................................................................................................... 1

Methodology overview ................................................................................................................................................... 3

1. Southern And Eastern Ireland – Regional Context................................................................................... 5 1.1. Southern and Eastern Ireland – General economic and social context .............................................................. 7

1.2. Southern and Eastern Ireland – Overview of demographic change .................................................................. 9

1.3. Southern and Eastern Ireland - Overview of gender equality .......................................................................... 13

1.4. Southern and Eastern Ireland – Conclusion ........................................................................................................ 16

2. Southern and Eastern Ireland – Analysis of the EDRF regional strategy and implementation procedures in relation to demographic change and gender equality ............................................ 17

2.1. Southern and Eastern Ireland – Introduction ..................................................................................................... 17

2.2. Southern and Eastern Ireland – Analysis of the regional strategy and implementation procedure regarding demographic change ................................................................................................................................... 17

2.3. Southern and Eastern Ireland – Analysis of the regional strategy and implementation procedure regarding gender equality ............................................................................................................................................ 19

2.4. Southern and Eastern Ireland – Selected measures for the case studies ......................................................... 23

3. Southern and Eastern Ireland – Direct and indirect effects of ERDF interventions in enabling adaptation to demographic change .................................................................................................... 25

3.1. Southern and Eastern Ireland – Outputs of measures concerning demographic change ............................. 25

3.2. Southern and Eastern Ireland – Results and impacts of measures concerning demographic change ........ 26

3.3. Southern and Eastern Ireland – Complementarity of ERDF interventions, identified for demographic change, with ESF, EAGGF and FIFG .......................................................................................................................... 28

3.4. Southern and Eastern Ireland – Sustainability of measures concerning demographic change .................... 29

3.5. Southern and Eastern Ireland – Overall assessment of adaptation to demographic change ....................... 30

3.6. Southern and Eastern Ireland – Lessons learnt and policy implications for demographic change ............. 30

4. Southern and Eastern Ireland – Direct and indirect effects of ERDF interventions on gender equality: results, direct and indirect effects ....................................................................................... 33

4.1. Southern and Eastern Ireland – Outputs of measures concerning gender equality ...................................... 33

4.2. Southern and Eastern Ireland – Results and impacts of measures concerning gender equality .................. 35

4.3. Southern and Eastern Ireland – Complementarity of ERDF interventions, identified for gender issue, with ESF, EAGGF and FIFG ......................................................................................................................................... 37

4.4. Southern and Eastern Ireland – Sustainability of the measures concerning gender equality ...................... 38

4.5. Southern and Eastern Ireland – Overall assessment of gender equality ......................................................... 38

4.6. Southern and Eastern Ireland – Lessons learnt and policy implications for gender issues .......................... 40

Annex – Sources of information for Southern and Eastern Ireland ......................................................... 43


IV

LIST OF TABLES Table 1 – The Structural Funds element of Southern & Eastern Regional OP 6

Table 2: Southern and Eastern Ireland – Key socioeconomic figures 8

Table 3: Southern and Eastern Ireland – Key figures on demographic change 9

Table 4: Southern and Eastern Ireland - Policy interventions in the field of demographic change for the period 2000-2006 13

Table 5: Southern and Eastern Ireland - Key facts on equality condition 13

Table 6: Southern and Eastern Ireland – Policy interventions in the field of gender equality for the period 2000-2006 15

Table 7: Southern and Eastern Ireland – Analysis of the strategy regarding demographic change 18

Table 8: Southern and Eastern Ireland – Analysis of the implementation of demographic change 18

Table 9: Southern and Eastern Ireland – Analysis of the strategy regarding gender equality 21

Table 10: Southern and Eastern Ireland – Analysis of the implementation of gender equality 22

Table 11: Southern and Eastern Ireland – Selected measures in relation to demographic change and gender equality for the period 2000-2006 23

Table 12: Southern and Eastern Ireland – Performance of the measures adapting to demographic change 25

Table 13: Southern and Eastern Ireland – Effectiveness of the measures adapting to demographic change 27

Table 14: Southern and Eastern Ireland – Complementary of ERDF interventions, identified for demographic change, with ESF, EAGF, FIGS 29

Table 15: Southern and Eastern Ireland – Sustainability of measures concerning demographic change29

Table 16: Southern and Eastern Ireland – Performance of the measures impacting on gender issue 33

Table 17: Southern and Eastern Ireland – Effectiveness of the measures impacting on gender issue 35

Table 18: Southern and Eastern Ireland – Complementary of ERDF interventions, identified for gender issue, with ESF, EAGF, FIGS 37

Table 19: Southern and Eastern Ireland – Sustainability of the measures concerning gender equality 38


V

LIST OF FIGURES Figure 1: Southern and Eastern Ireland – Map of the region 5

Figure 2: Southern and Eastern Ireland - Annual average rate of GDP growth 2000–2005 (%) 7

Figure 3: Southern and Eastern Ireland - Population and working age population by gender 7

Figure 4: Southern and Eastern Ireland - Employment and unemployment rates by gender 8

Figure 5: Southern and Eastern Ireland - Total fertility rate, 2000 9

Figure 6: Southern and Eastern Ireland - Share of women in regional assemblies, 2006 14


VI

Abbreviations

CEBs County Enterprise Boards

CLAR Ceantair Laga Árd-Riachtanais

CSF Cohesion and Structural Fund

DG REGIO Directorate General for Regional Policy

EAGGF European Agricultural Guidance and Guarantee Fund

EC European Commission

EOCP Equal Opportunities Childcare Programme

ERDF European Regional Development Fund

ESF European Social Fund

ESIOP Economic and Social Infrastructure OP

EU European Union

FDI Foreign direct investment

FIFG Financial Instrument for Fisheries Guidance

GIA Gender Impact Assessment

GDA Greater Dublin Area

GDP Gross Domestic Product

ICT Information and Communication Technology

LFS Labour Force Survey

MA Managing Authorities

MTE Mid-Term Evaluation

NGO Non governmental organisation

NPD National Development Plan

NSS National Spatial Strategy

NTI New Technologies of Information

OECD Organisation for Economic Co-operation and Development

OP Operational Programme


VII

PSOP Productive Sector OP

RAPID Revitalising Areas by Planning, Investment and Development

R&D Research and Development

ROP Regional Operational Programme

RTDI Research, Technological Development and Innovation

SMEs Small and Medium-sized Enterprises

SPD Single Programming Evaluation

WP Work Package


1

SOUTHERN AND EASTERN IRELAND

Introduction and main findings

This case study discusses the performance of the Southern and Eastern Ireland Objective 1 (in transition) Regional Operational Programme (2000-2006) with respect to gender equality and demographic change.

The 2000-2006 programme period was the first time that Regional Operational Programmes had been in operation in Ireland. The measures contained in the OP were essentially national measures managed by central government departments with a remit in both Structural Funds regions. The Structural Funds element of the OP was overshadowed to a certain extent by the much larger amount of domestic funding available for the wider NDP. Further, the other inter-regional OPs had an impact on the regions and added to the expenditure allocated under the regional OPs.

Anyway, the case study analyses the following working hypotheses as described in the Intermediate Report:

• ERDF interventions may have a potential medium/high indirect impact on demographic changes tackling urbanisation and rural depopulation.

• ERDF interventions may have a potential high direct and indirect impact on gender equality supporting female entrepreneurship; and

• ERDF interventions may have a potential medium/high indirect impact on gender equality increasing and supporting reconciliation of family and working life and improving the quality of life for both women and men.

Although it is difficult to extract the contribution of the ERDF to demographic issues and gender equality in the Southern and Eastern region during 2000-2006, given the way domestic expenditure and Structural Funds were programmed together in the NDP, it is clear that the co-funded measures selected under this case study made a positive contribution.

The findings described along the report support the working hypotheses, with the measures demonstrating the potential to have a positive impact on rural depopulation, female entrepreneurship and supporting the reconciliation of working and family life.

The investment carried out under the two selected measures related to demographic issues (a significant investment in broadband across the region, and regeneration projects in urban and village areas) would have had a long-term impact on the attractiveness of the project areas, in terms of working and living, especially at a local level. Both also had a role to play in attracting inward investment, and in retaining and attracting population away from the major growth areas, potentially creating a critical mass.

In terms of gender equality, the NDP Gender Equality Unit worked hard to promote mainstreaming through the Structural Funds programme in Ireland. Mainstreaming was built into the NDP, representing a major commitment to gender equality and providing the potential for spillovers into domestic policy. However, the direct gender equality component of the selected


2

measures did not go far beyond meeting the reporting requirements. More broadly, the extent of required reporting on gender equality as a Horizontal Principle was reduced at mid-term evaluation stage. The micro-enterprise measure administered through the CEBs was not targeted specifically at women, apart from under the Women in Business scheme. The childcare measure was considered to be successful, creating significant childcare places in the region, particularly in disadvantaged areas. The measure marked the Irish government’s first entry into childcare provision, and it would have had an indirect but important effect on gender equality by potentially increasing women’s opportunities to access the labour market and training opportunities.

On this basis, the case study allows to identify the following lesson learnt:

1. As regards Demographic issues, both measures examined have been continued in some form in the new 2007-2013 OP for the region. The new priority for sustainable urban development is, in part, a continuation of the support for urban and village renewal. The opportunity has been taken to make the priority consistent with the 2002 National Spatial Strategy, more closely assisting the gateways and hubs identified in the Strategy and focusing expenditure on those particular areas. The benefits of operating a measure for urban and village renewal were confirmed during the period - not only do people like to live and work in an area where there are businesses, they also like to live in pleasant, well kept areas.

Support for broadband will also continue in 2007-2013. Broadband delivery will now be focused on the outermost regions where it is not economically viable for major private operators to deliver. A lesson learnt from the 2000-2006 period is that a degree of public sector intervention will be required to ensure ubiquitous provision. A further lesson is that just because broadband is available doesn’t mean that it will be used optimally. For example, a very high proportion of SMEs in the region are not using it to its full capacity. In this regard, the new OP aims to support pilot initiatives to stimulate broadband usage among SMEs.

2. As regards gender equality, it should be noted that the 2000-2006 period marked an ambitious attempt to integrate gender equality issues so widely across the NDP, into areas where gender based analysis had certainly not existed, particularly for ERDF infrastructure-type measures. A few of the ERDF measures were exempted from the gender impact analyses, but many were not. The collection of gender disaggregated indicators was done relatively well, in particular under the micro-enterprise measure. However, the data collected had little impact on policy, and the validity of gender equality in policy was not accepted on a wide scale. However, the collection of data did make impact analysis more feasible.

The rationalisation that took place after the mid-term review simplified the reporting requirements for the Implementing Bodies involved in administering the selected measures, but did not concern the fact that gender equality was seen as having been ‘attached’ to measures, rather than integrated into their design. The need to build gender equality considerations into measures from the programme design phase has been recognised, and was an aspect of the championing work carried out by the NDP Gender Equality Unit during the period.

Looking to the future, experts have suggested that a more long-term approach should be taken – as it will require a long-term strategy to make the necessary social and political; changes to ensure the will and buy-in to fully implement gender equality.


3

Significant gaps remain in some areas of employment, decision-making structures and resource allocation, the cost and availability of childcare remains a barrier to labour market participants, particularly for low income households. Evaluations (the mid-term and mid-term update) pointed out that there was a need for wider mainstreaming of learning emerging under the Equality for Women measure and the EQUAL initiative.

Methodology overview

The research was carried out during November-December 2008, and was based on desk research on relevant programme documentation and literature, plus telephone and face-to-face interviews with programme managers and gender equality experts (see Annex for details).


4


5

1. SOUTHERN AND EASTERN IRELAND – REGIONAL CONTEXT

The Southern and Eastern region of Ireland bounds an area of 36,414 km² which corresponds to 53% of the total landmass of the country. It includes 13 counties, five Regional Authorities and four cities. It is the larger of two designated Structural Funds regions in Ireland, with the Border Midlands and Western region comprising 47% of the state’s landmass. The region extends from the south west of the country (Kerry) up to county Meath and it includes the capital, Dublin. The other main cities of the region are Cork, Limerick and Waterford.

Figure 1: Southern and Eastern Ireland – Map of the region

Source: DG Regio.


6

The Southern and Eastern Regional Operational Programme operated within the framework of the Irish National Development Plan (NDP) 2000-2006, as the Structural Funds (CSF, Cohesion and Structural Fund) and the NDP were implemented as an integrated investment plan and strategy. As it is one of two Regional Operational Programmes in Ireland, Southern and Eastern Ireland was eligible for Structural Funds as an ‘Objective 1 in transition’ region (with Structural Funds contribution to the OP of €571.74 million). The co-financed element of the six-year ‘phasing out’ programme was front-loaded in terms of funding, with 73% of funding concentrated in the years 2000-2003 and 27% being expended in the remaining years of 2004-2006. The programme benefitted from funding from the ERDF, ESF, EAGGF and FIFG, with the largest single element of Structural Funds coming from the ERDF (€399.59 million)1.

The two regional OPs complemented four inter-regional OPs; for Employment and Human Resources Development, Economic and Social Infrastructure, the Productive Sector and PEACE II. The Regional OPs were designed to extend the impact of these inter-regional OPs at local level and across the regions. The two inter-regional OPs most relevant to this report are the Productive Sector OP, which received ERDF and FIFG co-funding for priorities covering RTDI, support for indigenous industry and FDI, and marketing, forestry and fisheries/seafood industry development, and the Economic and Social Infrastructure OP, which received ERDF and Cohesion Fund co-funding for infrastructural investment in roads, public transport, environmental infrastructure, sustainable energy, housing and health facilities (although housing and health were not co-funded).

The NDP represented significant domestic expenditure by the Irish Exchequer, and the OPs included a mixture of EU co-financed and non co-financed measures. Around 90% of total NDP funding was provided from domestic sources, and the framework incorporated several long-standing government initiatives. Some of the measures included in the Southern and Eastern Region OP were also important components of national level policies. The Structural Funds element of the Regional OP (€571.74 million) represented 10% of total OP expenditure (€5,378.21 million) while what was known as the ‘CSF element’ (Structural Funds plus national co-financing and private investment) totalled €1,733.41 million, or 32% of the OP as a whole (see below)2.

Table 1 – The Structural Funds element of Southern & Eastern Regional OP

Total NDP

expenditure (€ M)

Total CSF* (€ M)

Total Structural

Funds (€ M)

ERDF (€ M)

ESF (€ M)

EAGGF (€ M)

FIFG (€ M)

Non-co-financed

expenditure (€ M)

Southern & Eastern Regional OP

5,378.21 1,733.41 571.74 399.58 82.33 80.20 9.61 3,645.31

* Structural Funds plus national co-financing and private investment.

1 Operational Programme for the Southern and Eastern Region 2000-2006. 2 Operational Programme for the Southern and Eastern Region 2000-2006.


7

1.1. Southern and Eastern Ireland – General economic and social context

The Southern and Eastern Region of Ireland had an estimated population of just over 3 million people in 2005, representing 73% of the total estimated State population of 4 million. The region is divided between urban and rural areas, but is characterised by a predominantly urban population concentrated in a relatively small number of centres. The Southern and Eastern Region’s population grew by 9.3% between 2000 and 2005, with the largest increase being in the Mid-East.

Figure 2: Southern and Eastern Ireland - Annual average rate of GDP growth 2000–2005 (%)

3.6% 3.6% 3.7%

0.0%

1.0%

2.0%

3.0%

4.0%

5.0%


IRELAND EU25

Source: CSIL and IRS processing on Eurostat data, on the base of a GDP at current prices (in millions of euro).

The GDP per capita in the Southern and Eastern Region was just below 110% of the national average and 155% of the EU average in 2004. However, there are great differences within the region, ranging from 188% in Dublin to only 104% in the Mid-East.

A steady increase in the population of the Greater Dublin Area (GDA) is projected up to 2013; Dublin’s population is expected to increase to 1.3 million. The Southern and Eastern Region as a whole is expected to have a population of just below 3.4 million in 2013, an increase of approximately 18% from 2002.

Figure 3: Southern and Eastern Ireland - Population and working age population by gender

50.5% 49.5% 50.2% 49.8%

50.3% 49.7% 50.0% 50.0%

51.3% 48.7% 51.2% 48.8%

0%

10%

20%

30%

40%

50%

60%

70%

F M F M

2000 2006

% of Total PopulationSOUTHERN AND EASTERN IRELANDIRELANDEU25

50.0% 50.0% 49.6% 50.4%

49.7% 50.3% 49.5% 50.5%

50.0% 50.0% 49.9% 50.1%

0%

10%

20%

30%

40%

50%

60%

70%

F M F M

2000 2006

% of Total Working age PopulationSOUTHERN AND EASTERN IRELANDIRELANDEU25

Source: CSIL and IRS processing of Eurostat data.


8

The proportion of the working age population (the 15-64 age group) has increased significantly in all Irish regions since 1996, while the proportion of young dependents has declined and that of old age dependents has stayed roughly the same. In the Southern and Eastern Region, the working age population increased by 13.5% between 2000 and 2006; as compared to an increase of 2.7% at EU level. The total employment rate increased to 61%, and remains higher than the EU average (53%). The unemployment rate in the region has risen marginally, but at 4.3% remains lower than the EU average (8.2%).

Figure 4: Southern and Eastern Ireland - Employment and unemployment rates by gender

47.2

69.7

52.0

70.1

45.7

68.5

50.8

69.8

42.4

60.5

45.4

60.9

01020304050607080

F M F M

2000 2006

Employment rate by genderSOUTHERN AND EASTERN IRELANDIRELANDEU25

3.8 4.1 3.8 4.64.2 4.4 4.1 4.6

10.7

8.19.0 8.3

0

3

6

9

12

15

F M F M

2000 2006

Unemployment rate by gender SOUTHERN AND EASTERN IRELAND

IRELAND

EU25

Source: CSIL and IRS processing of Eurostat data. Data refer to the population aged 15 and over.

External migration (from outside the State) was expected to play an important part in the region’s demographic profile in future, although natural increase would account for the largest part of the projected population increase. In the Dublin region, migration was projected to have an even stronger impact on overall population growth than natural increase in the period 2002-2021. This was certainly the case in the latter part of the programme period – in 2006, Ireland had the third highest rate of immigration in Europe3. In the event, levels of immigration peaked in 2006, although still high in 2007. In the first ten months of 2008, almost 140,000 new PPS numbers (equivalent of Social Security cards) were issued to non-nationals; 50,000 fewer than were issued during 2007. Immigrants currently make up an estimated 12% of the population.

Table 2: Southern and Eastern Ireland – Key socioeconomic figures

Indicator Regional level National level EU25 level

2000 2006 ∆ 2000 2006 ∆ 2000 2006 ∆ GDP per capita (in PPS EU27=100) 144.1 158.1* 14.0 131.0 145.3 14.3 105.0 103.9 -1.1

Total employment rate (15 years and over, %) 58.2 61.0 2.8 56.9 60.2 3.3 51.1 52.9 1.8

Total unemployment rate (15 years and over, %) 4.0 4.3 0.3 4.3 4.4 0.1 9.2 8.2 -1.0

Population (thousands) 2,788 3,121 11.9% 3,805 4,262 12.0% 452,658 464,765 2.7%

Working age population (15-64 years, thousands) 1,903 2,160 13.5% 2,551 2,922 14.5% 303,701 312,014 2.7%

Source: CSIL and IRS processing of Eurostat data. * Data at 2005.

3 Irish Examiner, 20 January 2006.


9

1.2. Southern and Eastern Ireland – Overview of demographic change

1.2.1. The regional situation of demographic change

The population in the Southern and Eastern Region is growing strongly. The crude rate of natural population increase in 2005 was 8.6%, which corresponds to the Irish average in 2006, but it is significantly higher than the EU average of just 1.2%. This increase was complemented by a net migration rate of 14.9% in 2005, which was slightly below the national average, but still considerably higher than in the whole of the EU.

Table 3: Southern and Eastern Ireland – Key figures on demographic change


2000 2005 ∆ 2000 2006 ∆ 2000 2006 ∆

Crude rate of population natural increase (%)

6.8 8.6 1.8 6.1 8.6 2.5 0.8 1.2 0.4

Crude rate of net migration (%)

7.8 14.9 7.1 8.4 15.7 7.31 1.6 3.5 1.9

Old age dependency ratio (%)

15.7 15.4 -0.3 16.8 16.2 -0.6 23.4 25.1 1.7

Source: CSIL and IRS processing on Eurostat data.

The region’s fertility rate of 1.9 - as at 2000 - was also above EU average (1.5), but still below an ideal replacement fertility rate of 2.1. The region’s fertility rate had increased to 2 by 2006, still above the EU average (1.52), but still below the ideal replacement fertility rate. However, it is worth noting that in 2008, the fertility rate reached 2.03, the first time since 1991 that the rate had exceeded 24.

Figure 5: Southern and Eastern Ireland - Total fertility rate, 2000

1.9 1.9

1.5

0.0

0.5

1.0

1.5

2.0

2.5


IRELAND EU25

Source: ESPON for the regional total fertility rate, data available at 1999. Eurostat for the National and European total fertility rate.

4 Irish Examiner, August 28, 2008.


10

The old age dependency ratio reflects the increase of the working age population. It fell from 15.7 in 2000 to 15.4 in 2005, confirming the Irish trend, but clearly contradictory to the EU trend of high and rising dependency ratios (25.1 in 2006). This makes clear that ‘ageing population’ was not an issue in Ireland during the 2000-2006 period, although the phenomenon is expected to occur after 20255. The elderly dependency ratio is expected to triple by 2050, increasing from about 16% in 2006 to 45% in 2050. The working age population is projected to begin declining gradually by mid-2020, although total population growth is expected to remain positive until 20506. 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.

The Operational Programme for the Southern and Eastern Region is one of the vehicles for delivering the objectives of the Irish National Development Plan (NDP). In terms of demographic change, the relevant objective of the NDP is the promotion of balanced regional development within Ireland. The unprecedented growth experienced during the previous 1994-1999 period had raised issues in terms of increasing urbanisation and clustering of economic activity, leading to imbalance within and between regions. For the Southern and Eastern Region, the congestion arising from the growth and expansion of the Greater Dublin area, the rapid growth of major urban centres outside Dublin and the implications for smaller towns, villages and rural areas were key issues.

The mid-term evaluation of the OP reported that data indicated unplanned shifts in population to new commuter towns in the Greater Dublin Area and the continued decline of smaller rural communities in the region. The evaluation stressed the need to put in place the required infrastructure to service the needs of the growing communities, as well emphasising the continued rationale for positive action initiatives to bolster the sustainability of peripheral communities.

1.2.2. The regional policy context in relation to demographic change

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 built on four objectives: continuing sustainable national economic and employment growth; consolidating and improving Ireland’s international competitiveness; fostering balanced regional development; and, finally, promoting social inclusion. The approach to social inclusion was multi-faceted, including targeted interventions aimed at areas and groups affected by poverty and social exclusion throughout the community. 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.

Demographic issues were mainly framed in terms of labour market issues. Targeted interventions to tackle specific issues were provided primarily in the Regional OPs. However, the inter-regional OPs also included relevant interventions, for example the Economic and Social Infrastructure OP (ESIOP) funded a package of investments in national infrastructure, including roads and public

5 Paper by Dr. Alan Barret, consultant to the Department of Finance, Long Term Issues Group at ‘Ageing Ireland: Shaping our Future’ Conference, January 2004. 6 Botman D and Iakora D (2007) Policy Challenges of Population Ageing in Ireland, IMF Working Paper WP/07/247.


11

transport. Total investment of €4,269 (millions) was planned on national roads within the Southern and Eastern region, and €2,574 (millions) on public transport7. This had regional development implications, including improving the access of inhabitants of rural areas to employment and services, and potentially boosting the attractiveness of rural areas as locations for economic activities. ERDF assistance under the ESIOP in the Southern and Eastern region was concentrated on improvement of the Dublin suburban rail system and DART network; the investment increased their capacity significantly over the period and helped reduce the congestion in the Dublin area caused by in-migration.

The Productive Sector OP (PSOP) also included interventions relevant to demographic issues in the regions. A total of €4,631 million was to be spent in the Southern and Eastern region on PSOP priorities over the 2000-2006 period, of which €197 million was EU-funded8. The PSOP priorities included RTDI, support for indigenous industry and FDI, and marketing, forestry and fisheries/seafood industry development. Support for the fisheries/seafood sector, in particular, was expected to contribute to the avoidance of further rural depopulation. In addition, the PSOP supported tourism, which was expected to have a positive impact in rural areas, providing an additional source of income for families on low incomes, who might otherwise have to relocate.

The equality measure of the Employment and Human Resources Development OP outlined a range of measures complementing the allocations for the promotion of equality contained in the Regional OPs. This included equal opportunities promotion and monitoring in the education sector, an education equality initiative (part-funded by ESF), support for gender mainstreaming through the set-up of the NDP Gender Equality Unit (also part-funded by ESF) and a (domestically funded) Refugee Language Support Unit to overcome the language difficulties of non-EU nationals who have acquired the right to reside in Ireland and thus ease their integration into Irish society.

Two related domestic initiatives were launched during the programme period to help prioritise funding under the NDP. CLAR (Ceantair Laga Árd-Riachtanais), launched in 2001 with a budget of €25 million, is a fund for special projects aimed at reducing depopulation and the decline and lack of services in rural areas. The initiative provides funding and co-funding to Government departments, State agencies and local authorities to accelerate 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.

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 national, regional and local level. The NSS strategy is to develop the “full potential of each area to contribute to the

7 ERDF investment under the national roads and public transport priorities of the ESIOP in the Southern and Eastern region amounted to €430.3 million over the 2000-04 period. 8 From a total OP budget of €7,341 million, with €333 million from


12

optimal performance of the State as a whole - economically, socially and environmentally”.9 The Strategy, which covers a 20 year period, aims for a better spread of activities across the counties, by focusing on promoting development. The Strategy’s approach is the designation of strategically placed engines of growth, regional ‘gateways’ and ‘hubs’,

Ireland’s economic success in recent years has been accompanied by spatial patterns of development which have seen employment opportunities becoming more concentrated in some areas, while economic weaknesses remain in others. The Greater Dublin Area has experienced rapid development, which has driven much of the country’s economic success. The successful aspects of the Greater Dublin Area’s development need to be emulated in other areas to deliver a more even distribution of successful economic development. Strengthening the critical mass of the existing gateways of Cork, Limerick/Shannon, Galway and Waterford offers the most immediate prospects of establishing more balanced patterns of development over the next few years.

The NSS identifies and prioritises policies that must be put in place to attract and generate investment and jobs and encourage more people to live in every region. Five of the national level gateways identified in the NSS are in the Southern and Eastern Region (Dundalk, Dublin, Waterford, Limerick/Shannon and Cork). The NSS also identifies five strategically located medium-sized hubs in the Southern and Eastern region, which will support and be supported by the gateways, and will link out to wider rural areas. The hubs include Ennis, Kilkenny, Mallow, Wexford and Tralee/Killarney. However, the Strategy also recognises that many other counties and larger sized towns in Ireland are critical elements in the structure for realising balanced regional development, acting as a focus for strengthening their own areas. More balanced regional development would help relieve the pressure and congestion on Dublin and other large cities as people migrate towards employment opportunities.

The NSS was important from an agenda-setting perspective. However, during the 2000-2006 period, the NSS was not explicitly linked to the allocation of financial resources, which negatively affected the profile of the strategy and its impact. Over the longer-term, the NSS is linked to the priorities, and resources, of the new (2007-2013) NDP and is likely to have a greater impact in the future.

At regional level, Regional Planning Guidelines (RPGs) were adopted by all the Regional Authorities in mid-2004. These guidelines are expected to be linked to NSS priorities. Elements of the strategies outlined in the RPGs echo the demographic issues outlined in the OP. For example, 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).

9 National Spatial Strategy, 2002.


13

Table 4: Southern and Eastern Ireland - Policy interventions in the field of demographic change for the period 2000-2006

Name and year of the intervention

Main category of intervention) Brief description Level of

government

Resources Allocation

National Development Plan 2000-2006

Covers all domestic investment - infrastructure, business support, social services etc.

The NDP provides the framework for all domestic and Structural Funds investment. One of its objectives is support for balanced regional development.

National €55 billion

CLAR 2001 - ongoing

Infrastructure Fund for projects aimed at reducing depopulation

National €25.4

National Spatial Strategy 2002-2020

Planning framework Outlines priorities for the next 20-year period.

National

Note: ranked in a chronological order with thematic separation.

1.3. Southern and Eastern Ireland - Overview of gender equality

1.3.1 The regional situation of Gender Equality

Table 5: Southern and Eastern Ireland - Key facts on equality condition


2000 2006 ∆ 2000 2006 ∆ 2000 2006 ∆

Gender gap in employment rate* (%)

22.5 18.1 -4.4 22.8 19.0 -3.8 18.1 15.5 -2.6

Gender gap in unemployment rate** (%)

0.3 0.8 0.5 0.2 0.5 0.3 -2.6 -0.7 1.9

* Difference between the male and the female employment rates ** Difference between the male and the female unemployment rates

The gender gap in the employment rate in the Southern and Eastern Region fell significantly from 22.5% to 18.1% between 2000 and 2006 (narrowing each year of the OP). However, it still remains above the EU average (15.5%). During the course of the OP, female employment rate increased steadily, exceeding 800,000 for the first time at the end of 200410.

The gap in the unemployment rate rose in both the Southern and Eastern Region and Ireland as a whole, in response to relatively low female unemployment rates. The regional male unemployment rate is 0.8% higher than the female one, compared to a difference of 0.5 at the national level. The EU

10 Mid-term Evaluation Update (2005)


14

average shows a different picture, where female unemployment is 1.5% higher than male unemployment.

Figure 6: Southern and Eastern Ireland - Share of women in regional assemblies, 2006

18.0

30.0

0.0

5.0

10.0

15.0

20.0

25.0

30.0

35.0

40.0


EU25

Source: DG Employment for the share of women in regional assemblies, data available at 2006. No data are available for the national level.

At a political level, women’s representation in Regional Assemblies in the Southern and Eastern Region is 18% and hence still lower than the EU average of 30%.

More widely, the Irish Programme for Government commits government to achieving a minimum of 40% representation of women on State boards. In 2002, ministers were asked to review the gender balance composition of the State boards and committees under the aegis of their department and to take measures to redress gender imbalances where the 40% target had not been reached.

1.3.2 The regional policy context in relation to gender equality

As mentioned above, the National Development Plan 2000-2006 was the main vehicle for domestic regional policy intervention, and included Structural Funds expenditure within its framework. The NDP built on four objectives: continuing sustainable national economic and employment growth; consolidating and improving Ireland’s international competitiveness; fostering balanced regional development; and, finally, promoting social inclusion. The approach to social inclusion was multi-faceted, including targeted interventions aimed at areas and groups affected by poverty and social exclusion throughout the community. Priorities in terms of gender equality included:

• tackling attitudinal and cultural barriers to participation by women in the work force;

• supporting women’s access to education and training;

• continuing to develop the strategy to combat violence against women;

• increasing women’s input to the decision-making process.

Much of the support and intervention is aimed at increasing women’s participation in the labour market, for example, via a national Childcare Policy. The Department of Justice, Equality and Law Reform had lead responsibility for the coordination of the Government’s National Childcare Policy. The National Childcare Strategy launched in 1999 featured gender equality and the development of


15

quality childcare services as two key considerations. The strategy contained 27 recommendations, many of which were included in the design of the Equal Opportunities Childcare Programme (EOCP) 2000-2006. The EOCP formed part of the Social Inclusion Sub-Programme of the two Regional OPs, and was part-financed by the Structural Funds (both ERDF and ESF). Childcare was accorded high priority under the NDP, and funding of €349.49 million was allocated in total (with approximately €170 million coming from the Structural Funds). Of this, €252 million was allocated to the Southern and Eastern Regional OP (€38 million from ERDF and €82 million from ESF). Day to day management of the EOCP was carried out by Pobal (formerly ADM). The aim of the EOCP was to facilitate parents to take advantage of training, education and employment opportunities through the provision of quality childcare support.

The Department of Justice, Equality and Law Reform also led on the Equality for Women measure. The measure, which was a positive action programme for women, aimed to advance the role of women in the Irish economy and in decision making at all levels. The Equality for Women measure was allocated (domestic) funding under both the Regional OP11, plus received additional (ESF and domestic) funding under the Employment and Human Resource Development OP. Since 2001, €30 million has been provided for projects promoting NDP gender equality objectives.

A National Womenʹs Strategy was launched in 2007, and outlines the Irish Governmentʹs statement of priorities in relation to the advancement of women in Irish Society for the period 2007-2016. The strategy covers three key themes: equalising socio-economic opportunity for women; ensuring the wellbeing of women; and engaging as equal and active citizens.

The investment in the provision and improvement of public transport under the inter-regional Economic and Social Infrastructure OP was also considered beneficial to women, who account for a high proportion of users of public transport12, as was activity under the Productive Sector OP, including the positive impact expected from FDI, the provision of training grants under the Industry priority and support for researchers under the RTDI-education measure.

Table 6: Southern and Eastern Ireland – Policy interventions in the field of gender equality for the period 2000-2006

Name and year of the intervention

Main category of intervention Brief description

Level of government

Resources Allocation

Equality for Women measure 2000-2006

Positive action programme

Support for equal opportunities projects

National/Region €35m over

period

Equal Opportunities Childcare Programme - Childcare 2000-2006

Childcare - infrastructure and staffing

Support the provision of new and improved childcare facilities

National/Region €449m

Note: ranked in a chronological order with thematic separation.

11 All the Irish OPs include Structural Funds co-financing, but not all Measures within the OPs are co-financed from Structural Funds. 12 The ESIOP Priority for Housing was also relevant in terms of its gender equality impact, but was not ERDF co-funded.


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1.4. Southern and Eastern Ireland – Conclusion

In terms of demographic change, the main issues facing the Southern and Eastern Region during the 2000-2006 programme period was the growth of the Greater Dublin Area and other large cities in the region, and the corresponding migratory pull on the population - both to the growth cities and from weaker, rural parts of the region. In addition, the problem has been exacerbated by external migrants coming in from outside the country, placing pressure on services, housing etc. This would have a potential negative effect on the pursuit of balanced regional development - one of the objectives of the NDP, which provided the overarching framework for investment in Ireland, covering both domestic spending and the Structural Funds.

In terms of gender equality, the participation of women in the labour market was growing, and its continued growth was supported by national-level support for childcare provision. In addition, there was high-level support for equality through a national strategy. For the first time, gender mainstreaming was to be pursued throughout the NDP, covering both domestic and Structural Fund expenditure.


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2. SOUTHERN AND EASTERN IRELAND – ANALYSIS OF THE EDRF REGIONAL STRATEGY AND IMPLEMENTATION PROCEDURES IN RELATION TO DEMOGRAPHIC CHANGE AND GENDER EQUALITY

2.1. Southern and Eastern Ireland – Introduction

This section describes the main characteristics of the Southern and Eastern Ireland Regional OP strategy and implementation in relation to demographic change and gender equality.

The economic growth of the Greater Dublin Area and other large cities in the region had a potential demographic impact, with population being attracted to employment opportunities in growth areas. This caused congestion problems for growth areas, and the out-migration from smaller towns and villages also had significant economic and social implications. Part of the regional strategy tackled making smaller towns and villages more attractive places to live and work. In term of gender equality, there was significant national emphasis on increasing the participation of women in the work force, and the regional strategy was consistent with this national approach.

2.2. Southern and Eastern Ireland – Analysis of the regional strategy and implementation procedure regarding demographic change

Population movement has been a key issue for the Southern and Eastern region, and is considered in the programme’s development strategy, particularly in terms of how the growth of Dublin and other major urban centres have placed strains on infrastructural services, and how smaller towns are lagging behind in terms of economic development. These smaller towns and rural areas are identified as requiring investment in infrastructural activities and urban and village renewal in order to increase their attractiveness as places to live and work. This has the aim of encouraging more spatially balanced development and easing the strain on the major urban centres. Disadvantaged rural areas were experiencing sustained outward migration, in particular a ‘thinning out’ of the working age population.

It should be noted that three of the inter-regional OPs were also expected to play an important role in this regard. In particular, the Economic and Social Infrastructure OP set to improve road and rail links, reducing congestion and supporting more balanced development within the region; while the Employment and Human Resources Development OP supported education, training and lifelong learning.


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Table 7: Southern and Eastern Ireland – Analysis of the strategy regarding demographic change

General objective Consolidation of the Region’s economic growth and the promotion of future growth which will encourage the development of the Region in a sustainable, socially equitable and spatially balanced manner.

Axis objectives All the programme priorities (Local Investment, Local Enterprise, Agriculture and Rural Development and Social Inclusion and Childcare) included elements relevant to facing demographic changes in the region.

Specific Objective (Measure)

The following measures were most relevant for demographic change issues (through ERDF):

1.4. Urban and village renewal - renewal and rejuvenation schemes enhancing selected areas as places to live and work, alleviating pressure on large urban centres. 1.5 E-commerce/advanced communications - the provision of advanced communications and e-commerce infrastructure and services, to facilitate the redistribution of economic activity from more congested areas to less developed and peripheral areas. Included the provision of public information and services electronically in the region to enhance access, reduce costs and deliver a wide range of services to all citizens.

Context analysis Population growth of large urban centres was a central feature of the programme analysis, and underlay the regional strategy.

Involvement of the stake holder in the design phase

There was extensive consultation on the National Development Plan (of which this OP formed part), including with the Social Partners and the Regional Authorities.

Table 8: Southern and Eastern Ireland – Analysis of the implementation of demographic change

Monitoring arrangements specific for demographic change No specific arrangements.

Stake-holder participation to the Monitoring Committee

Some representatives of the voluntary and community sector did have a remit covering the issues e.g. Combat Poverty.

Stake-holders participation to the evaluation activities/process Not known.

Design and effectiveness of the project selection criteria regarding demographic change No specific selection criteria.

There was extensive consultation on the National Development Plan, including with the Social Partners and the Regional Authorities. The Irish Social Partners include: Government, trade unions, employers, farming organisations and the community and voluntary sector13.

The selected measures were implemented through Intermediary Bodies, who received and assessed project applications. The Urban and Village Renewal measure was managed by the Department of Environment, Heritage and Local Government. The E-commerce and advanced communications

13 Including, for example, Irish National Organisation of the Unemployed (INOU), Congress Centres Network, CORI Justice Commission, National Youth Council of Ireland (NYCI), Society of Saint Vincent de Paul, Age Action Ireland, The Carers Association, The Wheel, The Disability Federation of Ireland, Irish Rural Link, The Irish Senior Citizens’ Parliament, The Children’s Rights Alliance, Protestant Aid and the National Council for Women.


19

measure was managed by the Department of Communications, Marine and Natural Resources. Demographic change issues were not part of the selection criteria used.

2.3. Southern and Eastern Ireland – Analysis of the regional strategy and implementation procedure regarding gender equality

Prior to the programme period, there had been a dramatic increase in the degree of female participation in the labour market in the region. However, the rate was still low compared to several other EU Member States, and many women were in part-time employment. There were also still relatively high levels of gender segregation in the labour market. The programme analysis recognised that women in rural parts of the region faced particular difficulties accessing training and employment opportunities, finding childcare and elder care support, and through lack of representation on decision-making bodies.

Equal opportunities was a horizontal principle in the National Development Plan, taking a gender mainstreaming approach, in addition to the use of positive actions and existing legislation to maximise equality of opportunity for women and men. Under the NDP, the impact of a proposed project on equality of opportunity, particularly gender equality, was included in the selection criteria. That the NDP took a mainstreaming approach is considered by experts to be a very significant and influential step, as the NDP was the major framework for both domestic and Structural Funds expenditure in Ireland during 2000-2006. According to a report by the NDP Gender Equality Unit:

“This was the first time that such a large swathe of Government policy was asked to meet specific gender equality objectives. This involved new areas, such as productive investment and infrastructure, in promoting equality between women and men14.”

The NDP Gender Equality Unit played an important role during the period. The Unit was set up in 2000 within the Department of Justice, Equality and Law Reform (part-funded by the Structural Funds) to support the process of mainstreaming gender equality into programme measures, and also to monitor results. Technical Assistance was used in the Unit’s pre-launch year to fund research on what kind of support there should be for gender mainstreaming. Ideally, the intention was to use the funding to gender mainstream the NDP while it was being developed and written, although this didn’t happen as no staff was employed to do this until after the NDP was written and published. For the remainder of its seven-year existence, 50% of the Unit’s funding came from ESF. The Unit’s work included the development of guidance materials, genders disaggregated statistics and a gender proofing handbook, and carried out training for project promoters and programme managers to raise awareness of how a range of policy areas and sectors raise different issues for women and men15. A new coordinating committee - the NDP Equal Opportunities and Social Inclusion Coordinating Committee - was established.

14 NDP Gender Equality Unit 2008. 15 At the end of 1997, the work undertaken by the NDP Gender Equality Unit was integrated within the Gender Equality Division of the Department for Justice, Equality and Law Reform to support the implementation of the National Women’s Strategy and mainstreaming across other Government departments.


20

A dedicated gender equality unit was also set with ESF funding within the Department of Education and Science, to co-ordinate and monitor the process of gender mainstreaming into all areas of the education system. Gender equality work had been carried out for many years within the Department, for example on stereotyping in the school curriculum, school textbooks, career guidance, and subject availability. The unit was to liaise with the wider NDP Gender Equality Unit described above.

Most measures funded under the NDP were required to promote gender equality, and policymakers were asked to actively promote gender equality as measures were developed, implemented and reviewed. These requirements were spread beyond Structural Fund co-financed elements, moving the gender equality focus beyond the labour market for the first time.

Each section in the Southern and Eastern Region OP describing the programme priorities is followed by a section which provides an analysis of how the interventions envisaged under the priority could potentially impact on gender equality in the region.

The selected measures were implemented through Intermediary Bodies, who received and assessed project applications. The Micro-enterprise measure was managed the Department of Enterprise, Trade and Employment. Projects were selected by the City and County Enterprise Boards (CEBs), membership of which is drawn from local elected representatives, agencies such as Enterprise Ireland, the social partners and community interest groups. There were two sub-measures: Selective Financial Intervention and Entrepreneurial and Capability Development. Under the Selective Financial Intervention sub-measure, there were no gender specific criteria in place for project selection at programme start; although the collection of gender disaggregated data was planned. The second sub-measure, Entrepreneurial and Capability Development, included the Women in Business Initiative.

The Childcare measure was managed by the Office of the Minister for Children under the Department of Health and Children; Pobal (formerly ADM) was responsible for the day to day management of the programme on an agency basis. Project promoters were asked to demonstrate how their project would provide opportunities to parents to participate in education training or avail themselves of employment opportunities, and were assessed against this in the appraisal process. However, data was not collected on the status of parents accessing EOCP-funded facilities and gender disaggregated data on project promoters was not collected.


21

Table 9: Southern and Eastern Ireland – Analysis of the strategy regarding gender equality

General objective Consolidation of the Region’s economic growth and the promotion of future growth which will encourage the development of the Region in a sustainable, socially equitable and spatially balanced manner.

Axis objectives Each of the programme’s priorities is followed by a section which provides an analysis of how the interventions envisaged under the priority could potentially impact on gender equality in the region. The programme has a dedicated priority for Childcare Provision.

Specific objective (Measure)

The following measures were most relevant for gender equality issues (through ERDF): · 2.2 Micro-enterprises - including selective financial intervention and entrepreneurial

and capability development. Under this second sub-measure, the Women in Business initiative was promoted. This (national) scheme supported the development and establishment of women’s networks, the design of strategies to remove barriers to women entrepreneurs and the design and implementation of management development programmes.

· 4.1. Childcare - one of the objectives of this measure was to facilitate greater participation of women in the workplace and business. The measure offered a capital grant scheme for childcare facilities.

Context analysis The situation of women in the region is considered in the OP’s analysis, particularly in terms of participation in the labour market.

Involvement of the stake holders in the design phase

Women’s groups were to be consulted on the rejuvenation of local and urban areas.

There was extensive consultation on the National Development Plan, including with the Social Partners and the Regional Authorities. The Irish Social Partners include: Government, trade unions, employers, farming organisations and the community and voluntary sector.

It should be noted that the Childcare measure also provided support for staffing costs and a quality improvement programme (both ESF-funded). In addition, the OP also encompassed an Equality measure which was not Structural Funds co-funded. The Equality measure funded positive action to tackle attitudinal, cultural and structural barriers to equal participation for women in the workplace and in business, to support women’s access to the labour market, to help parents combine work and family responsibilities and to increase women’s input into decision-making. A number of measures were put in place in partnership with mainstream education and training providers, including:

• up skilling and retraining of women employees;

• encouraging entrepreneurship and career development among women;

• gender proofing personnel policies;

• a research and information campaign for return to work women;

• employer based family friendly projects and sharing of family responsibilities;

• innovative projects for disadvantaged women over 50;

• women in decision making16.

16 Southern and Eastern Ireland Operational Programme 2000-2006


22

Table 10: Southern and Eastern Ireland – Analysis of the implementation of gender equality

Monitoring arrangements specific for gender issues Gender disaggregated data was collected for the micro-enterprise measure.

Stake-holder participation to the Monitoring Committee

NDP Gender Equality Unit attended the PMC as an Advisory Member. In addition, an official from the Department of Justice, Equality and Law Reform attended the PMCs as a representative of the Implementing Government Department in respect of the gender equality measure in the OP.

Stake-holders participation to the evaluation activities/process

Varied, but were consulted in some cases, for example, the national evaluation of the Equal Opportunities Childcare Programme in 2003 included consultations with stakeholders such as the Department of Justice, Equality and Law reform, ADM, the European Commission, the MAs and members of the National Childcare Coordinating Committee.

Design and effectiveness of the projects selection criteria used for gender mainstreaming

Dependent on the approach of the Intermediary Body. In the case of the Micro-enterprise measure, aid was ultimately awarded by the CEBs, who did not use gender as part of the selection criteria, apart from in the dedicated Women in Business scheme. Selection criteria under the Childcare measure focused heavily on social inclusion.

The NDP made a series of specific commitments with regard to gender mainstreaming (which also applied to the ROPs), including:

• Monitoring Committees should include representatives of equal opportunities bodies;

• Gender balance was to be promoted on Monitoring Committees;

• Impact indicators and monitoring statistics were to be broken down by gender where possible;

• Gender mainstreaming was to be used as a criteria for project selection (including in the project selection procedures of Implementing Bodies); and

• Equal opportunities were to be a required element of evaluations17.

The mid-term evaluation was asked to assess how the horizontal principles (including equal opportunities) were being reported on across all measures, focusing on the wider definition of equality, including people with disabilities, older people, refugees and Travellers. The mid-terms at both OP and NDP/CSF levels revealed widespread unhappiness with how the Horizontal Principles (social inclusion, rural development, gender equality and wider equality grounds) were being dealt with. One factor was the ‘perceived over-zealousness and lack of practicality on the part of proponents of the Horizontal Principles, and a degree of perceived tokenism and lack of genuine concern for the Horizontal Principles on the part of some implementing bodies18.’

17 NDP Gender Equality Unit 2008. 18 Mid-term Evaluation of the Employment and Human Resources Development OP (p183), as reported in NDP/CSF Evaluation Unit (2004)


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The Southern and Eastern OP mid-term evaluation recommended that a smaller number of measures be prioritised for Horizontal Principle monitoring purposes, and that reporting should be reduced to ‘those areas where clear relevance (and a smaller number of meaningful indicators) has been agreed and accepted at monitoring committee level’. As a result, gender equality was selected as a relevant principle for all the education and training measures, three priorities in the Regional OPs (including the micro-enterprise and childcare measures) and the housing priority in the Economic and Social Infrastructure OP. Gender equality was not considered relevant for any measures in the Productive Sector OP - ’no measure or sub-measure showed a potential to impact upon the Horizontal Principle of gender due to the sectoral focus of the OP’. However, one measure was selected anyway (because it was considered inappropriate not to monitor any measure for gender, given the Structural Funds co-finance). Very few measures were selected under more than two horizontal principles.

2.4. Southern and Eastern Ireland – Selected measures for the case studies

The specific programme measures selected for further analysis in relation to demographic change and gender analysis are outlined in Table 11.

Table 11: Southern and Eastern Ireland – Selected measures in relation to demographic change and gender equality for the period 2000-2006

Measure Main category of intervention Brief description Beneficiaries Focus

Resources allocation in

absolute value (€ M) and % of

total ERDF resources

2.2 Micro-enterprises

Business support

Grants, employment subsidies, feasibility study subsidies, entrepreneurial development including training and mentoring/advice

County and City Enterprise Boards, then enterprises

G 32.58(8%)

4.1 Childcare

Social services Grants to childcare providers

Pobal/ADM, then childcare providers

G 38.00

(10%)

1.4 Urban and village renewal

Regeneration Support for town and village renewal and rejuvenation schemes

Local authorities

D 44.19

(11%)

1.5 E-Commerce and advanced communications system

Infrastructure

Installation of advanced communications and e-commerce infrastructure and services

Telecoms providers, public and private sector

D 43.78

(11%)

Note: focus may be G=gender; D=demographic; GD=both


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Two measures each have been selected for demographic change and gender equality. For demographic change, the measures may have an indirect effect on demographic change issues; the first by making rural villages more attractive places to live and work, potentially retaining and/or attracting population, and thus alleviating pressure and congestion on Dublin and the other large cities in the region. The e-commerce and advanced communications measure had the potential to help facilitate the redistribution of economic activity from more congested areas to less developed and peripheral areas. In terms of gender equality, the first measure provides business support, with some targeting of women through the Women in Business Initiative. The second measure selected concerns childcare, one of the Irish Government’s major tools in its strategy to increase women’s ability to enter the labour market.


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3. SOUTHERN AND EASTERN IRELAND – DIRECT AND INDIRECT EFFECTS OF ERDF INTERVENTIONS IN ENABLING ADAPTATION TO DEMOGRAPHIC CHANGE

This section examines the contribution of the programme to the adaptation of demographic change, analysing results and impacts of the selected programme measures.

3.1. Southern and Eastern Ireland – Outputs of measures concerning demographic change

Table 12 shows a sample of the main outputs achieved by the programme under the selected measures, as reported in the programme’s 2007 Annual Implementation Report. These measures are those which have been selected as being the most likely to have had an indirect impact on demography within the region during the programme period.

Table 12: Southern and Eastern Ireland – Performance of the measures adapting to demographic change

Measure Expected direct/indirect* effects

Field of intervention Outputs

Budget (€ M)

% of total program

me budget

Equal access to labour m

arket

Improvem

ent of working

conditions

Improvem

ent of entrepreneurial capacities

Urban concentration /

Rural D

epopulation

Quality of life of elder

population

Other

Description

Quantification


I x x x No. villages improved No. towns improved No projects

274 104 455

44.19 (ERDF)

11

1.5 E-commerce/ advanced comms

I x x x

Addit. km fibre pairs installed Addit. km open access telecoms ducting installed No. addit. exchanges provisioned for DSL-related services No community broadband services grant aided

962

264

40

76

43.78 (ERDF)

11

* For direct measures, we mean measures directly targeted to specific target groups of population (elderly, immigrants, etc), while for indirect measures we mean measures not directly targeted to these specific target groups but that may have an indirect effects on adaption to demographic change.


26

The two selected measures, Urban and Village Renewal and E-commerce and Advanced Communications, are two of the OP measures with the most significant levels of EU funding. The Urban and Village Renewal measure was implemented through the local authorities in the region, who were required to prepare an Urban and Village Renewal Strategy Plan (this was repeated on a countrywide basis). The measure funded four strands of activity: city regeneration; urban and village renewal; architectural conservation; and Dublin Docklands regeneration. Expenditure in the early years of the programme was very low (due to the strategic planning process), but increased significantly over the next few years. In terms of town and village projects, by the end of 2007, work had been completed or was nearing completion in c. 321 locations. Total expenditure at €52,28m exceeded the revised forecast.

Under the e-commerce and advanced communications measure, identified gaps in electronic communications infrastructure were filled through private sector projects, investment in metropolitan area networks and the County and Group Broadband Scheme. The measure was managed by the Department of Communications, Marine and Natural Resources. At the time of the mid-term evaluation, expenditure was significantly behind target. During the period, delivery was delayed as a result of the downturn in the sector and a lack of interest amongst private sector companies to invest in the infrastructure. In addition, the financial management under the measure was reviewed. During the programme period, a series of reports on the need for continuing the roll-out of broadband was published, putting pressure on the authorities to speed up the delivery of the necessary infrastructure. The rolling out of the Metropolitan Area Networks (MAN) improved progress, as the programme stimulated investment by service providers by allowing them to use infrastructure provided through MANs projects to provide a competitive service to consumers. By 2007, with total expenditure at €42,37m, spend under the measure was nearing its revised forecast. In addition, expenditure on certain projects accelerated during 2007 as projects reached the construction stage. However, installation targets had not yet been met, with 17 networks remaining to be completed. Following completion in early 2008, the targets were expected to be met.

3.2. Southern and Eastern Ireland – Results and impacts of measures concerning demographic change

Table 13 shows a sample of the main results achieved by the programme under the selected measures, as reported in the programme’s 2007 Annual Implementation Report.


27

Table 13: Southern and Eastern Ireland – Effectiveness of the measures adapting to demographic change

Measure

Expected direct/indirect* effects

Field of intervention Results (direct/indirect)* Im

pacts (direct/indirect)

Equal access to labour market

Improvem

ent of working

conditions

Entrepreneurial capacities

Urban concentration / R

ural D

e population

Quality of life of elder

population

Other

Description

Quantification


I x x x n.a n.a Improvement in Tidy

Towns Competition Marks


I x x x x

Addit. households with access on demand** Target: - of which in rural areas Target: Addit. businesses with access on demand** Target: - of which in rural areas Target: Addit. public admin/educ. with access on demand** Target: - of which in rural areas Target: Addit. businesses with access on demand*** Target: - of which in rural areas Target: Addit. public admin/educ. with access on demand *** Target: - of which in rural areas Target:

237,000 237,000 85,000 85,000

36,000 36,000 13,000 13,000

1,500 1,500 1,000 1,000

6,009 7,700 2,393 3,800

866 500 311 200

No. of subscribers to broadband 476,100

The 2007 Annual Report specifies only outputs and impacts for this measure (see Table 12). * 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 at 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). ** Defined as 256 Kbps downstream and 128 Kbps upstream broadband available *** Defined as availability of >2Mbps fibre based services

The mid-term evaluation assessed that the measures were likely to achieve their impact objectives over the period. Directly attributable effects include the increased broadband provision through the region. In terms of Urban and Village Renewal, it was decided to assess impact by considering the improvement in marks achieved in (voluntary) Tidy Town Competitions. Of the 62 towns/villages that benefited from a project in 2005 and participated in Tidy Towns since 1999, all increased their marks (2006 results were still being assessed at the time the 2007 Annual Implementation report was being written). More widely, the Department of Environment, Heritage and Local Government


28

(the Implementing Body) was confident at mid-term evaluation stage that the measure had contributed to achieving more attractive locations (environmentally, socially and economically) and more balanced regional development. It is impossible to measure this at this stage, but it is anticipated that the interventions would encourage businesses and people to locate outside the growth areas.

3.3. Southern and Eastern Ireland – Complementarity of ERDF interventions, identified for demographic change, with ESF, EAGGF and FIFG

The Southern and Eastern Ireland OP included funding from four Structural Funds: ERDF, ESF, EAGGF and FIFG. The Local Infrastructure Priority (which covered both the Urban and Village Renewal and E-commerce and Advanced Communications measures) benefitted only from ERDF support, alongside national funding.

Due to the infrastructural nature of the interventions carried out under the selected measures, there was little opportunity for complementarity with the other Funds. However, the inter-regional OPs, which covered the whole of Ireland, had an impact on both regions and added to the expenditure under the regional OPs. These inter-regional OPs included both co-funded and domestically-funded elements. For example, support for broadband provision was included in the Productive Sector OP, which received ERDF and FIFG co-funding for priorities covering RTDI, support for indigenous industry and FDI, and marketing, forestry and fisheries/seafood industry development. Support for the fisheries/seafood sector, in particular, was expected to contribute to the avoidance of further rural depopulation. In addition, the Productive Sector OP supported tourism, which was expected to have a positive impact in rural areas, providing an additional source of income for families on low incomes, who might otherwise have to relocate.

The Economic and Social Infrastructure OP received ERDF and Cohesion Fund co-funding for infrastructural investment in roads, public transport, environmental infrastructure, sustainable energy, housing and health facilities (although housing and health were not co-funded). The improved infrastructure being put in place was intended to support rural areas, by improving the access of inhabitants to employment and services throughout the country, complementing interventions carried out under the Urban and Village Renewal measure. Improved access would also boost the attractiveness of rural areas as locations for economic activities and provide support for industries such as tourism, fishing and agri-food. (It should be noted, however, that the Economic and Social Infrastructure OP placed a strong emphasis on prioritising the BMW region, which had a higher proportion of the population living outside urban areas.)

The Urban and Village Renewal measure was expected to complement investment under appropriate measures funded under the inter-regional OPs, for example, the Town Renewal Tax Incentive Scheme, the Integrated Area Plans under the Urban Renewal Tax Incentive Scheme, and the Department of the Environment and Local Government’s grants scheme for private protected structures. There was also the opportunity for synergy with the domestically funded CLAR initiative, and the co-funded LEADER CI.

However, the point was made by one interviewee that there was also the danger of the multiplicity of different policy instruments (e.g. the NSS, the NDP and the ROPs) pulling in different directions.


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Table 14: Southern and Eastern Ireland – Complementary of ERDF interventions, identified for demographic change, with ESF, EAGF, FIGS

Measure Synergy with ESF Synergy with EAGGFF Synergy with FIFG


L L L


L L L

Note: synergy may be H (high), M (medium), L (low), N (null)

3.4. Southern and Eastern Ireland – Sustainability of measures concerning demographic change

Table 15: Southern and Eastern Ireland – Sustainability of measures concerning demographic change

Measure Field of intervention Sustainability


Improvement in working conditions

Urban concentration/rural depopulation

Quality of life in elder population

H/M

1. 5 E-commerce/ advanced comms


Improvement in working conditions

Urban concentration/rural depopulation

Quality of life in elder population

H

Note: sustainability may be H (high), M (medium), L (low), N (null)

The impacts of local infrastructure improvements through regeneration schemes and broadband provision were considered by the mid-term evaluation update to be mainly sustainable, with impacts being felt in the long and short term. In terms of urban and village renewal, the collective approach to renewal would not occur without public investment to stimulate private investment. However, where works have been completed, the impact is considered to be likely to be long term. In terms of e-commerce and advanced communications, the physical infrastructure is now in place, and the impact will be long term.


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3.5. Southern and Eastern Ireland – Overall assessment of adaptation to demographic change

The findings are as follows:

1. The Structural Funds element of the Southern and Eastern Region OP was overshadowed to a certain extent by the much larger amount of domestic funding available for the wider National Development Plan. This was exacerbated by the fact that the measures contained in the OP were essentially national measures managed by central government departments with a remit in both Structural Funds regions, and by the sometime lack of availability of NUTS3 level information for the measures.

2. Further, the inter-regional OPs had an impact on the regions and added to the expenditure under the regional OPs. For example, support for broadband provision was included in the Productive Sector Operational Programme (PSOP). In addition, support for the fisheries/seafood sector under the PSOP was expected to contribute to the avoidance of further rural depopulation. The PSOP also supported tourism, which could provide an additional source of income for families on low incomes, who might otherwise have to relocate out of rural areas. Support for infrastructural investment in roads and public transport under the Economic and Social Infrastructure OP (ESIOP) was intended to support rural areas, by improving the access of inhabitants to employment and services throughout the country, complementing interventions carried out under the Urban and Village Renewal measure. 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 agri-food.

On this basis it is possible to draw the following conclusions:

1. Nevertheless, the investment carried out under the two selected measures (a significant investment in broadband across the region, and regeneration projects in urban and village areas) would have had a long-term impact on the attractiveness of the project areas, in terms of working and living, especially at a local level.

2. Both measures also had a role to play in attracting inward investment, and in retaining and attracting population away from the major growth areas, potentially creating a critical mass.

3.6. Southern and Eastern Ireland – Lessons learnt and policy implications for demographic change

The main lessons learnt are the following:

1 Both measures have been continued in some form in the new 2007-2013 OP for the region. The new priority for sustainable urban development is, in part, a continuation of the support for urban and village renewal. The opportunity has been taken to make the priority consistent with the 2002 National Spatial Strategy, more closely assisting the gateways and hubs identified in the Strategy and focusing expenditure on those particular areas. The


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benefits of operating a measure for urban and village renewal were confirmed during the period - not only do people like to live and work in an area where there are businesses, they also like to live in pleasant, well kept areas.

2 Support for broadband will also continue in 2007-2013. Broadband delivery will now be focused on the outermost regions where it is not economically viable for major private operators to deliver. A lesson learnt from the 2000-2006 period is that a degree of public sector intervention will be required to ensure ubiquitous provision. A further lesson is that just because broadband is available doesn’t mean that it will be used optimally. For example, a very high proportion of SMEs in the region are not using it to its full capacity. In this regard, the new OP aims to support pilot initiatives to stimulate broadband usage among SMEs.


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4. SOUTHERN AND EASTERN IRELAND – DIRECT AND INDIRECT EFFECTS OF ERDF INTERVENTIONS ON GENDER EQUALITY: RESULTS, DIRECT AND INDIRECT EFFECTS

This section examines the contribution of the programme to the promotion of gender equality, analysing results and impacts of the selected programme measures.

4.1. Southern and Eastern Ireland – Outputs of measures concerning gender equality

Table 16 shows a sample of the main outputs achieved by the programme under the selected measures, as reported in the programme’s 2007 Annual Implementation Report. These measures are those which have been selected as being the most likely to have had a direct or indirect impact on gender equality within the region during the programme period.

Table 16: Southern and Eastern Ireland – Performance of the measures impacting on gender issue

Measure Expected direct/indirect* effects

Fields of intervention Outputs

Budget (€ M)

% of total program

me budget


Improvem

ent of wom

en w

orking conditions

Improvem

ent of wom

en entrepreneurial capacities

Care-w

ork re-conciliation

Quality of life

Other

Description

Quantification


D x x

No of enterprises supported/created (female promoters) No of feasibility studies (female) No of recipients of training (female)

1,304

185

46, 140

32,58 (ERDF)

8

4.1 Childcare

I x x

New childcare facilities established in the region Childcare facilities upgraded

441

796

38,00 (ERDF)

10

* For direct measures, we mean measures directly targeted to women, while for indirect measures we mean measures not directly targeted to women but that may have an indirect effects on gender equality.


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At the time of the mid-term evaluation, spending under the Micro-enterprise measure was progressing very well. Both measures selected under this section had spent more than their revised forecasts by the end of 200719; total expenditure under the Micro-enterprise measure being at €69,30m and expenditure under the Childcare measure totalling €62.97m.

The Micro-Enterprise measure was managed by the Department of Enterprise, Trade and Employment, part-funded by the Regional OPs. The measure was delivered at local level by 22 City and County Enterprise Boards (CEBs) throughout the Southern and Eastern region. The CEBs provide support to facilitate the establishment, development and growth of micro-enterprises i.e. small businesses employing less than 10 people. The operating agreements with the Department of Enterprise, Trade and Employment include specific provision regarding targeted strategies to increase the number of women entrepreneurs. The mid-term evaluation found evidence of a pro-active attitude to the issue at the level of both Department and county. The measure adopted gender mainstreaming as a guiding value following the mid-term review of 2004. This led to the CEBs setting targets for women and men in all their activities (although there was reportedly little targeting of women outside the specific Women in Business network support scheme).

According to the OP’s 2007 Annual Implementation Report, the 2006 out-turn for the total number of enterprises supported/created for which the project promoter was a woman was 1,304 (29% of the 4,449 total). This is broadly in line with the figures for the percentage of business start-ups accounted for by women in 2001, which stood at 27% for the Southern and Eastern Region, and 25% for Ireland.20 The number of feasibility studies supported for women was 185 (19% of the 953 total). The number of training participants (46,140 women, out of a total of 76,752) reflects participation levels in general business-related training as well as individual mentoring and management capability development, and local enterprise awareness programmes.

The Childcare Facilities measure was implemented by the Office of the Minister for Children under the Department of Health and Children; Pobal (formerly ADM) was responsible for the day to day management of the programme on an agency basis. 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). The childcare facilities measure consisted of direct grants to childcare providers, applied for directly to the Department of Justice, Equality and Law Reform, and subsequently going through a formal appraisal process undertaken by Pobal. A total of 441 new facilities were established in the region during the period (against a target of 580), while 796 facilities were upgraded (against a target of 880).

19 Both Micro-enterprise sub-Measures had their financial allocations revised upwards following the mid-term evaluation. 20 NDP Gender Equality Unit.


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4.2. Southern and Eastern Ireland – Results and impacts of measures concerning gender equality

Table 17 shows a sample of the main results achieved by the programme under the selected measures, as reported in the programme’s 2007 Annual Implementation Report.

Table 17: Southern and Eastern Ireland – Effectiveness of the measures impacting on gender issue

Measure

Fields of intervention Results (direct/indirect)*

Impacts (direct/indirect)*


Improvem

ent of wom

en w

orking conditions

Improvem

ent of wom

en entrepreneurial capacities

Care-w

ork re-conciliation

Quality of life

Other

Description

Quantification


x x

No of jobs created in supported businesses female (Full time) No target female (Part time) No target

8,326

- 4,476

-

n.a.

4.1 Childcare

x x

New childcare places achieved Target % of parents in education/ training/ employment because of childcare No target

25,141 21,372

80 -

n.a.

* 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 at 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).

As mentioned above, the Micro-Enterprise measure within the regional OP was managed centrally by the Department of Enterprise, Trade and Employment, and delivered at local level by 22 CEBs throughout the Southern and Eastern region. The measure included two sub-measures: Selective Financial Intervention and Entrepreneurial and Capability Development. The Women in Enterprise Scheme received co-funding in the Regional OP under this measure (the Women in Enterprise scheme ran nationally – being funded under both regional OPs, therefore covering the entire country).

After the Mid-Term Review of the NDP 2000-2006, targets for both women and men were set for all the CEB activities, including those co-funded through ERDF in the regional OP e.g. at least 25% of support should be granted to women. However, data from 2006 showed that men were the majority of grant beneficiaries and women were the majority of those accessing ‘soft’ support. While the Intermediary Body and the CEBs were in a position to gather data and report on the gender effects very ably, the Women in Business networks remained the only targeted strand to the measure. The approach to gender equality for the rest of the measure centred on data collection and presentation,


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rather than being a criterion for offering grant. Grant offers were based on whether the application was consistent with the objectives of the programme, rather than being specifically targeted at women. Specific initiatives such as the Women in Business networks were launched, however, and these are anecdotally considered to be successful and high profile (they have not yet been evaluated independently). However, figures from 2006 show that only 30% of the full-time jobs created from the CEBs’ activities were female, compared to 63% of the part-time jobs.

The reported number of jobs created in supported businesses in the Southern and Eastern Region totalled 8,326 for women’s full-time employment, and 4,476 for part-time (the corresponding figures for men were 14,969 full-time and 2,223 part-time). The mid-term evaluation update assessed that both the micro-enterprise sub-measures (selective financial investment and entrepreneurial and capability development) were likely to achieve their objectives in terms of supporting the greater participation of women in the promotion and development of enterprises.

Although the provision of childcare places was found to be low at the time of the 2002 evaluation of the Equal Opportunities Childcare Programme - EOCP (the name by which the childcare support measures replicated across both regional OPs were collectively known), with noticeable levels of deadweight and lack of capacity of the beneficiaries to draw down funding, the situation at the end of 2007 had improved. The number of additional childcare places achieved in the Southern and Eastern region through the Childcare measure totalled 25,141 at the end of 2007 (13,454 part time and 11,687 full time); exceeding the targets for both full and part-time places. The rate of expenditure continued to improve over the lifetime of the programme as larger capital projects completed their construction phase. In addition, 17,622 existing childcare places benefitted from support for either enhancement or staffing. A total of 80% of parents using the childcare took advantage of the opportunity to engage in education, training or employment opportunities (49.5% male; 50.5% female). Even at mid-term evaluation update stage, the Childcare measure was expected to achieve its impact objectives. With the buoyant economy increasing employment opportunities for parents, the demand for childcare exceeded supply. By affecting the availability of childcare places the measure was expected to have impacts on family, education, anti-poverty, and not least equality and employment objectives. Participation by women in the labour market had been increasing faster than that of men, and the absence of childcare represented a significant barrier to in this regard. The strongest motivator in terms of determining whether groups received funding was social inclusion, so provision was concentrated in areas of most need.

The EOCP was considered by programmers to have proved to be highly successful. It was also pointed out that many more childcare places would eventually be created and supported as a result of grants approved up to 31 December 2007. However, as noted in the 2002 evaluation of the EOCP, the absence of gender disaggregated data or indicators for this measure makes it difficult to comment on equality impacts, although these would be expected to appear more broadly in the economy.


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4.3. Southern and Eastern Ireland – Complementarity of ERDF interventions, identified for gender issue, with ESF, EAGGF and FIFG

The Southern and Eastern Ireland OP included funding from four Structural Funds: ERDF, ESF, EAGGF and FIFG. The micro-enterprise measure under the Local Enterprise Development Priority only used ERDF. The most synergy and complementarity would be expected under the Childcare measure, where one sub-measure, childcare facilities, received ERDF alongside national funding from the Capital Grant Scheme for Childcare Facilities, while ESF supported two further complementary sub-measures for Staffing Costs and the Quality Improvement Programme, which supported improvements in the quality of childcare service provision through education and training of childcare workers, and established support networks. Specifically, ESF funding of €82.33 million supported the Childcare sub-measures.

The micro-enterprise measure would have been complemented by the expenditure under the Employment and Human Resources inter-regional OP on integration/reintegration training for groups wishing to enter the labour force, including women. Under the Productive Sector OP, a number of the measures to support indigenous industry included individual elements for women, for example, through the development of workshops, networks and mentoring and participation in the European Network to Promote Women’s Entrepreneurship. In addition, the emphasis in the inward investment support on regional development was expected to create job opportunities away from the cities – creating additional employment opportunities for women in the regions. These interventions would have been complemented by the activity supported by the selected measures.

More widely, the interventions under the selected measures are coherent with and complemented by action taken under the Government’s National Childcare Strategy, and with the Equality for Women measure, which was allocated (domestic) funding under both the Regional OPs, plus received additional (ESF and domestic) funding under the Employment and Human Resource Development OP.

Table 18: Southern and Eastern Ireland – Complementary of ERDF interventions, identified for gender issue, with ESF, EAGF, FIGS

Measure Synergy with ESF Synergy with EAGGFF Synergy with FIFG


N N N

4.1 Childcare

H N N

Note: synergy may be H (high), M (medium), L (low), N (null)


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4.4. Southern and Eastern Ireland – Sustainability of the measures concerning gender equality

Table 19: Southern and Eastern Ireland – Sustainability of the measures concerning gender equality

Measure Field of intervention Sustainability



Improvement of women’s entrepreneurial

capacities

M

4.1 Childcare


Care-work reconciliation H

Note: sustainability may be H (high), M (medium), L (low), N (null)

Impacts under the micro-enterprises measure were considered by the mid-term evaluation to be sustainable or part sustainable, as commercial projects which are grant aided are evaluated for financial viability, and the majority should be sustainable in the medium to long term. However, in the absence of CEB support, the number of enterprises and associated jobs created in the region would be reduced. Ongoing provision of training courses would require continued financial support, but the skills and capacity gained by training participants would be retained.

The childcare facilities created under the programme were showing a 98% rate for retention of facilities after two years following full expenditure of grant aid. Demand for childcare places, which exceeded supply, was also expected to facilitate retention, although this was of course dependent on economic buoyancy. The fact that project appraisal assessed the capacity of promoters was another factor facilitating retention. However, continued financial support was considered by the mid-term evaluation update to be an essential requirement to sustain long-term impact. Privately-run childcare facilities in receipt of grant aid would be financially sustainable as described above, but the majority of grant-aided facilities was community-based, and would require continued support. A successor programme (the National Childcare Investment Programme) followed on, overlapping with the EOCP for a short period to allow a seamless transition between the two programmes.

4.5. Southern and Eastern Ireland – Overall assessment of gender equality

The case study findings in terms of gender equality are as follows:

1. The NDP Equality Unit (which was ESF co-funded) provided institutional support for the mainstreaming process, producing guidance, statistics and supporting measure managers to analyse the issues in more depth. The guidance produced by the NDP Gender Equality Unit was very highly regarded; the mid-term evaluation described it as being ‘very comprehensive’ and had been widely circulated, as well as being available on the Unit’s website. However, some Implementing Bodies were still reporting a lack of awareness of its availability.


39

2. At mid-term evaluation stage, the architecture for reporting on the Horizontal Principles was considered to be weak, with no sanction against persistent non-reporting or the practice of simply repeating statements made in the Programme Complement. Although a lot of time and effort went into producing reports on the Horizontal Principles (including by the Managing Authority and the NDP Gender Evaluation Unit), the information generated provided very little insight into what might be being achieved.

3. The mid-term evaluation of the Southern and Eastern Regional OP found that there were significant difficulties in the reporting of Horizontal Principles (including gender equality) across the programme. It also found that there was an absence of baseline material against which progress/impacts could be assessed and that there was an absence of a common language or terminology for reporting on Horizontal Principles. The report stated that there had been “limited proactive uptake of the assistance and support available from the Gender Equality Unit”.

4. The selected programme measures (Micro-enterprises and Childcare) were administered by implementing bodies (Department of Enterprise, Trade and Employment and the Office of the Minister for Children under the Department of Health and Children; via the CEBs and ADM/Pobal). These bodies were considered by evaluators to have a relatively good sense of the importance of the application of the Horizontal Principles.

5. The Childcare measure has involved major investment in childcare in the region, which has indirectly supported women’s entry to the labour market and opportunities to access training opportunities, especially in disadvantaged areas. However, the measure’s direct focus on gender was only in terms of reporting. According to the programme’s mid-term evaluation, the childcare measures remain highly relevant in view of their potential to service growth and increased labour market participation. The delivery of the measure is also highlighted as a component of the European Employment Strategy.

6. The Micro-enterprises measure was more difficult to assess, although the CEB’s commitment to equality was thought to be high, particularly after the mid-term evaluations. According the NDP Gender Equality Unit, the CEBs adopted gender mainstreaming as an integral part of their operations, and, as a result of gender equality being mainstreamed through the NDP, there was considerable involvement of the main actors such as key policy makers, evaluators and Managing Authorities. However, the main gender-related activity was in terms of reporting; measure delivery (apart from the targeted Women in Business’ scheme) was fairly mainstreamed. The mid-term evaluation also reported that the overall quality of reporting on the Horizontal Principles in Monitoring Committee reports was very poor, with a lack of analysis of programme beneficiaries.

On this basis it is possible to draw the following conclusions:

1. The fact that it was agreed to mainstream gender equality throughout the Irish NDP (which provided a framework for both domestic and Structural Fund expenditure) is very significant. In terms of economic development more broadly, therefore, the mainstreaming approach promoted initially through the Structural Funds also spilled over into national domestic public policy.


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2. There was a lack of understanding of the overall goals of the Horizontal Principles and how they could be integrated into programme implementation; there was poor quality and unclear ex ante analysis of the relevance of the Principles to Measures in Programme Complements; and there was an absence of indicators or other data to capture progress in terms of the Horizontal Principles. There was poor overall understanding of what was expected of the Implementing Bodies in that regard, and a lack of guidance or support to them.

4.6. Southern and Eastern Ireland – Lessons learnt and policy implications for gender issues

The case study lessons learnt in terms of gender equality are as follows:

1. The mid-term evaluation recommended that the focus of gender mainstreaming should concern those areas where structured gender inequalities existed – and that in this regard the emergent learning from the “Equality for Women” measure should be more widely mainstreamed across the Programme. Thereafter certain measures were prioritised for gender equality, including both the micro-enterprise and childcare measures, but also measures for regional innovation strategies, childcare ESF measures, youth services and the general rural development measure (EAGGF).

2. The rationalisation that took place after the mid-term review simplified the reporting requirements for the Implementing Bodies, but did not consider the fact that gender equality was seen as having been ‘attached’ to measures, rather than integrated into their design. The need to build gender equality considerations into measures from the programme design phase has been recognised, and was an aspect of the championing work carried out by the NDP Gender Equality Unit.

3. The work done by the NDP Gender Equality Unit was highly regarded regionally, as well as by gender experts in other Member States. The Unit trained over 1,000 policy makers and social partners, developed a databank of gender disaggregated statistics and sectoral statistical reports in agriculture, business and entrepreneurship, transport and housing; produced a gender proofing handbook and measure-specific gender equality relevance sheets, carried out annual assessments of progress of Government commitments to gender equality, and organised an international conference to raise awareness. The Unit also actively championed gender equality and a mainstreaming approach at PMC meetings, pushing measure managers to be more proactive, and to look at how measures could be designed to integrate gender equality concerns. For example, the Unit gave a lot of encouragement to the micro-enterprise measure at PMC meetings, encouraging them to design the measure for the next programme so that it builds gender equality into the theme.

4. However, there was limited pro-active uptake of the guidance and support available, and the Unit expressed concern about the low attendance at some of its training courses. At the end of 1997, the work undertaken by the NDP Gender Equality Unit was integrated within the Gender Equality Division of the Department for Justice, Equality and Law Reform to support the implementation of the National Women’s Strategy and mainstreaming across other Government departments.


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On this basis, it possible to identify the following policy implications:

1. The 2000-2006 period marked an ambitious attempt to integrate gender equality issues widely across the NDP, into areas where gender based analysis had not previously taken place, particularly for ERDF infrastructure-type measures. A few of the ERDF measures were exempted from the gender impact analyses, but many were not.

2. The collection of gender disaggregated indicators was done relatively well, in particular under the micro-enterprise measure. However, the data collected had little impact on policy, and the validity of gender equality in policy was not accepted on a wide scale. The collection of data did, however, make future impact analysis more feasible.

3. Significant gaps remain in some areas of employment, decision-making structures and resource allocation, the cost and availability of childcare remains a barrier to labour market participants, particularly for low income households. Evaluations (the mid-term and mid-term update) pointed out that there was a need for wider mainstreaming of learning emerging under the Equality for Women measure and the EQUAL initiative.


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ANNEX – SOURCES OF INFORMATION FOR SOUTHERN AND EASTERN IRELAND

List of interviews/visits

• David Kelly, Assistant Director, Southern and Eastern Regional Assembly (telephone interview 12 December 2008).

• Derville Brennan, Programme Executive, Southern and Eastern Regional Assembly (telephone interview 11 December 2008).

• Dr Anne Marie McGauran, formerly head of the NDP Gender Equality Unit, now Policy Analyst with the National Economic and Social Forum, Ireland, 13 January 2009).

• Following a telephone discussion with Pauline Moreau, Principal of the Gender Equality Division, Department of Justice, Equality and Law Reform, the Gender Equality Division submitted a written response to a questionnaire (December 2008).

• Rona Fitzgerald, Fitzgerald Associates, Visiting Professor at the Division of Public Policy, Caledonian Business School, Glasgow Caledonian University (face-to-face interview, 4 November 2008).

References

Programme documentation

• Annual Implementation Report 2006 for the Southern and Eastern Regional Operational Programme 2000-2006, Southern and Eastern Regional Assembly

• Annual Implementation Report 2007 for the Southern and Eastern Regional Operational Programme, Southern and Eastern Regional Assembly

• FGS Consulting in Association with NIRSA and Curtin Dorgan Associates (2003) Mid term Evaluation Report, Southern and Eastern Regional Operational Programme, August 2003

• Fitzpatrick Associates (2005) Update (Final) Evaluation of the Southern and Eastern Regional Operational Programme, September 2005

• National Development Plan 2000-2006

• National Development Plan 2007-2013, Transforming Ireland - A Better Quality of Life for All

• National Spatial Strategy for Ireland 2002-2020 (2002)

• Operational Programme for the Southern and Eastern Region 2000-2006

• Operational Programme for the Southern and Eastern Region 2007-2013

• Programme Complement for the Southern and Eastern Regional Operational Programme 2000-2006


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Reports and papers

• Department of Justice, Equality and Law Reform - NDP Gender Equality Unit (2008) Effective Social Policy: Promoting Gender Equality in the Irish National Development Plan 2000-2006

• Department of Justice, Equality and Law Reform - NDP Gender Equality Unit (2004) Women and Men in Ireland: Facts and Figures

• Department of Justice, Equality and Law Reform - NDP Gender Equality Unit (2004) Geographic Gender Equality - Women and Men across the Regions of Ireland

• NDP/CSF Evaluation Unit (2003) Evaluation of the Equal Opportunities Childcare Programme 2000-2006

• NDP/CSF Evaluation Unit (2004) Review of relevance of NDP/CSF Horizontal Principles to OP measures.

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