Gender Mainstreaming the Rural Development Programme: Updating a case study of Northern Ireland
Lead Research Organisation:
Queen's University Belfast
Department Name: Sociology Social Policy and Social Work
Abstract
This research will update former research on how to more effectively engage women in the Rural Development Programme (RDP) for Northern Ireland.
The EU is committed to gender equality through gender mainstreaming. RDPs delivered across Member States incorporate a commitment to gender mainstreaming. This is enshrined in Article 8 of the Rural Development Regulation 2007-2013.
Our project will update research on how to increase the impact of the RDP on rural women. We will update desk research, qualitative interviews, and focus groups. There is concern at a regional and EU level that the RDP is not having a sufficient impact on women. While we will specifically focus on Northern Ireland, lessons will be relevant to other regions in the EU. This research will also contribute to the theoretical literature on gender mainstreaming, specifically by critically reflecting on the notion of gender mainstreaming the RDP, seen as one of the most male policies in the EU.
This research will consider how the RDP might be mainstreamed, and whether there are tensions between the EU's commitments to gender mainstreaming and a viable agricultural industry. There are inherent difficulties in trying to gender mainstream RDPs. In general across Europe, men inherit land. While women are rarely the holder, they are key contributors to the farm family labour force, and frequently their off-farm labour is essential to the viability of the family farm. It is unclear how gender mainstreaming can apply to an industry that is intrinsically premised on the exploitation of family labour.
We will also examine if the RDP is adopted in ways that reflect existing gender imbalances. It may be the case that gender mainstreaming is circumvented by cultural norms and established patterns of practice, and this normative knowledge shapes how the programme is implemented. This is particularly relevant for those elements of the RDP aimed at women in rural areas not on farms. These women are not bound by the same cultural and historical constraints as those involved in agriculture, yet women continue to be under-represented in monitoring boards and implementing bodies.
The European Commission and Parliament have expressed concern about the differential gender impact of the RDP across Europe. In the NI context, a policy report was commissioned in 2000 to make recommendations on how to increase the impact of the RDP on women (Shortall and Kelly, 2001). While there is awareness of the need for gender equality, the Mid-Term Evaluation Report of the current programme specifically notes that there is little evidence to date of active targeting of women in the current programme, and recommends that DARD actively engages with relevant organisations to use their expertise to reach this target group to promote the programme. It states the need to do this many times but it does not suggest how this might be achieved.
The research process will actively engage with policy makers, civil society sectors, and the political sphere. It will be designed in close consultation with DARD, the Local Action Groups who deliver the programme, women's networks, key rural development and agricultural organisations, and political actors.
The research will produce a final report and briefing notes for the relevant sectors engaged with the project. It will produce academic journal articles and conference presentations for academic audiences. There will be collaboration throughout the project, bringing together a university, a government department, civil society groups and the Northern Ireland Assembly, in an innovative four way transfer of knowledge. There will be a final project launch, media interviews will be given and it will be publicised on Queen's University's website.
The EU is committed to gender equality through gender mainstreaming. RDPs delivered across Member States incorporate a commitment to gender mainstreaming. This is enshrined in Article 8 of the Rural Development Regulation 2007-2013.
Our project will update research on how to increase the impact of the RDP on rural women. We will update desk research, qualitative interviews, and focus groups. There is concern at a regional and EU level that the RDP is not having a sufficient impact on women. While we will specifically focus on Northern Ireland, lessons will be relevant to other regions in the EU. This research will also contribute to the theoretical literature on gender mainstreaming, specifically by critically reflecting on the notion of gender mainstreaming the RDP, seen as one of the most male policies in the EU.
This research will consider how the RDP might be mainstreamed, and whether there are tensions between the EU's commitments to gender mainstreaming and a viable agricultural industry. There are inherent difficulties in trying to gender mainstream RDPs. In general across Europe, men inherit land. While women are rarely the holder, they are key contributors to the farm family labour force, and frequently their off-farm labour is essential to the viability of the family farm. It is unclear how gender mainstreaming can apply to an industry that is intrinsically premised on the exploitation of family labour.
We will also examine if the RDP is adopted in ways that reflect existing gender imbalances. It may be the case that gender mainstreaming is circumvented by cultural norms and established patterns of practice, and this normative knowledge shapes how the programme is implemented. This is particularly relevant for those elements of the RDP aimed at women in rural areas not on farms. These women are not bound by the same cultural and historical constraints as those involved in agriculture, yet women continue to be under-represented in monitoring boards and implementing bodies.
The European Commission and Parliament have expressed concern about the differential gender impact of the RDP across Europe. In the NI context, a policy report was commissioned in 2000 to make recommendations on how to increase the impact of the RDP on women (Shortall and Kelly, 2001). While there is awareness of the need for gender equality, the Mid-Term Evaluation Report of the current programme specifically notes that there is little evidence to date of active targeting of women in the current programme, and recommends that DARD actively engages with relevant organisations to use their expertise to reach this target group to promote the programme. It states the need to do this many times but it does not suggest how this might be achieved.
The research process will actively engage with policy makers, civil society sectors, and the political sphere. It will be designed in close consultation with DARD, the Local Action Groups who deliver the programme, women's networks, key rural development and agricultural organisations, and political actors.
The research will produce a final report and briefing notes for the relevant sectors engaged with the project. It will produce academic journal articles and conference presentations for academic audiences. There will be collaboration throughout the project, bringing together a university, a government department, civil society groups and the Northern Ireland Assembly, in an innovative four way transfer of knowledge. There will be a final project launch, media interviews will be given and it will be publicised on Queen's University's website.
Planned Impact
The research will impact on governmental policy makers and non-governmental practitioners and delivery organisations, in the area of agriculture and rural development policy and practice, at a Northern Ireland (NI), United Kingdom (UK) and (EU) level. The timing of this project is particularly important as it will conclude at a time which coincides with preparations by DARD and the rural development sector in NI for the next round of the RDP, thus assisting in addressing the frequently cited problem of a mismatch between the policy cycle and the availability of a current and robust evidence base.
In the short to medium term, at a NI level, it will provide a robust evidence base on how to engage women more effectively in the Northern Ireland Rural Development Programme (NIRDP), a key recommendation from the Mid-Term Review of the NIRDP.
It will be of specific interest to the NI Department of Agriculture and Rural Development (DARD), in particular policy makers and civil servants with responsibility for Rural Policy, the RDP, equality, as well as those developing statistical and other types of evidence within DARD. It will also be of interest to Northern Ireland's MEPs, Minister for Agriculture and Rural Development and the NI Assembly committee with scrutiny and oversight responsibility for that ministerial portfolio; the Assembly Committee for Agriculture and Rural Development. It may also be of interest to the Assembly Committee with scrutiny and oversight of equality issues; the Committee for the Office of the First Minister and Deputy First Minister. The research will be of use to this wide range of actors in the policy making process advising on more effective targeting of the current NIRDP (2007-13) and informing the development of the future NIRDP post 2013.
Non-governmental rural development organisations, and more specifically the Rural Development Council, the Rural Community Network, the Women's Resource and Development Agency, Northern Ireland Rural Women's Networks (NIRWIN), the Rural Network NI (RNNI), the Local Area Groups (LAGs) and the Ulster Farmers' Union, will have a robust and updated evidence base to engage with policy makers in the policy making and consultation processes for the better targeting and implementation of the current, and the development of the new, NIRDP; activities which can shape and enhance the effectiveness of the NIRDP.
Within the UK, the research will be of interest to rural development policy and practitioner communities seeking to inform the targeting of current and future rural development programmes across Scotland, England and Wales to enhance the effectiveness of these programmes. The European Commission, and policy and practitioner communities in the new Member States and accession countries will also have an interest in the lessons from the NI experience of engaging women in the RDP and how the effectiveness of women's engagement can be enhanced.
In the medium to long term, the research has the potential to change organisational and cultural practices within Northern Ireland's rural development policy and practitioner communities by contributing to the evidence base on the ways cultural and contextual factors influence the development of normative knowledge about women and rural development and its influence on the implementation of rural development initiatives at the level of the member state. In the future, this evidence could also feed-into the design and delivery of more effective rural development programmes and policies targeting women more broadly, at a regional, national and EU level.
Our engagement, involvement and communication plans throughout the project are a key element of our research proposal and are targeted to a range of academics, policy makers and politicians, non-governmental organisations and practitioners at a regional, national and EU level.
In the short to medium term, at a NI level, it will provide a robust evidence base on how to engage women more effectively in the Northern Ireland Rural Development Programme (NIRDP), a key recommendation from the Mid-Term Review of the NIRDP.
It will be of specific interest to the NI Department of Agriculture and Rural Development (DARD), in particular policy makers and civil servants with responsibility for Rural Policy, the RDP, equality, as well as those developing statistical and other types of evidence within DARD. It will also be of interest to Northern Ireland's MEPs, Minister for Agriculture and Rural Development and the NI Assembly committee with scrutiny and oversight responsibility for that ministerial portfolio; the Assembly Committee for Agriculture and Rural Development. It may also be of interest to the Assembly Committee with scrutiny and oversight of equality issues; the Committee for the Office of the First Minister and Deputy First Minister. The research will be of use to this wide range of actors in the policy making process advising on more effective targeting of the current NIRDP (2007-13) and informing the development of the future NIRDP post 2013.
Non-governmental rural development organisations, and more specifically the Rural Development Council, the Rural Community Network, the Women's Resource and Development Agency, Northern Ireland Rural Women's Networks (NIRWIN), the Rural Network NI (RNNI), the Local Area Groups (LAGs) and the Ulster Farmers' Union, will have a robust and updated evidence base to engage with policy makers in the policy making and consultation processes for the better targeting and implementation of the current, and the development of the new, NIRDP; activities which can shape and enhance the effectiveness of the NIRDP.
Within the UK, the research will be of interest to rural development policy and practitioner communities seeking to inform the targeting of current and future rural development programmes across Scotland, England and Wales to enhance the effectiveness of these programmes. The European Commission, and policy and practitioner communities in the new Member States and accession countries will also have an interest in the lessons from the NI experience of engaging women in the RDP and how the effectiveness of women's engagement can be enhanced.
In the medium to long term, the research has the potential to change organisational and cultural practices within Northern Ireland's rural development policy and practitioner communities by contributing to the evidence base on the ways cultural and contextual factors influence the development of normative knowledge about women and rural development and its influence on the implementation of rural development initiatives at the level of the member state. In the future, this evidence could also feed-into the design and delivery of more effective rural development programmes and policies targeting women more broadly, at a regional, national and EU level.
Our engagement, involvement and communication plans throughout the project are a key element of our research proposal and are targeted to a range of academics, policy makers and politicians, non-governmental organisations and practitioners at a regional, national and EU level.
Organisations
- Queen's University Belfast (Lead Research Organisation)
- National Farmers Union (Collaboration)
- Scotland's Rural College (Collaboration)
- Government of Scotland (Collaboration)
- Penn State University (Collaboration)
- Rural Community Network (Project Partner)
- Northern Ireland Rural Women's Network (Project Partner)
- Dept of Ag and Rural Development NI (Project Partner)
People |
ORCID iD |
Sally Shortall (Principal Investigator) | |
Roisin Kelly (Researcher) |
Publications
Shortall, S.
(2015)
Are EU attempts to gender mainstream realistic? The Common Agricultural Policy (CAP) as an example.
in CritCom: A Forum for Research and Commentary on Europe. Columbia University, New York.
Shortall S
(2014)
Gender mainstreaming and the Common Agricultural Policy
in Gender, Place & Culture
Shortall S
(2014)
Introduction: rural women in Europe: the impact of place and culture on gender mainstreaming the European Rural Development Programme
in Gender, Place & Culture
Doebler S
(2017)
Informal care-giving and mental ill-health - differential relationships by workload, gender, age and area-remoteness in a UK region.
in Health & social care in the community
Shortall S
(2017)
Gender, Migration and Development: Can Advocacy Groups Be More of a Hindrance than a Help?
in Social Sciences
Shortall, S.
(2014)
Feminisms and Ruralities
Description | The importance of farming for the male identity was clarified. 'Farmer' defines men's sense of personal identity, their masculinity, and their occupational identity. This informs the debate on why there is poor succession planning in agriculture, and why there is a reluctance for farmers to retire. |
Exploitation Route | * Farming identity * Retirement policies for agriculture * Issues of ageing farming The Scottish Government commissioned research on women in agriculture in Scotland on which I was PI in 2016. Following publication of the findings a Task Force was established to look at implementing the recommendations. There is now an annual £350K commitment to implement the recommendations in the Scottish Programme for Government 2020-2024 |
Sectors | Agriculture, Food and Drink,Government, Democracy and Justice |
Description | This research informed the tender the Scottish Government wrote for research on women in agriculture in Scotland. I led that research, and a Task Force has now been set up to implement the recommendations. The Scottish Government commissioned research on women in agriculture in Scotland on which I was PI in 2016. Following publication of the findings a Task Force was established to look at implementing the recommendations. There is now an annual £350K commitment to implement the recommendations in the Scottish Programme for Government 2020-2024. Training programmes have been established, Leadership programmes, and an agricultural equality charter for the industry. |
First Year Of Impact | 2019 |
Sector | Agriculture, Food and Drink,Education,Government, Democracy and Justice |
Impact Types | Cultural,Societal,Economic,Policy & public services |
Description | Establishment of task force to improve the position of women in agriculture in Scotland |
Geographic Reach | Europe |
Policy Influence Type | Membership of a guideline committee |
Impact | Focused awareness on discrimination against women in agricultural structures |
Description | Changing the ground rules? Inclusive debates about women in Scottish agriculture |
Amount | £9,035 (GBP) |
Organisation | Economic and Social Research Council |
Sector | Public |
Country | United Kingdom |
Start | 03/2018 |
End | 12/2018 |
Description | Drafting the Scottish Government Women in Agriculture Task Force report |
Amount | £20,000 (GBP) |
Organisation | Government of Scotland |
Sector | Public |
Country | United Kingdom |
Start | 06/2019 |
End | 11/2019 |
Description | Gender mainstreaming the European Agriculture Guarantee Fund |
Amount | € 15,000 (EUR) |
Organisation | European Commission |
Sector | Public |
Country | European Union (EU) |
Start | 03/2020 |
End | 10/2020 |
Description | Women in agriculture in Scotland |
Amount | £40,000 (GBP) |
Organisation | Government of Scotland |
Sector | Public |
Country | United Kingdom |
Start | 04/2016 |
End | 05/2017 |
Description | Women in Agriculture Task Force |
Organisation | Government of Scotland |
Department | Scottish Government Rural and Environment Science and Analytical Services Division (RESAS) |
Country | United Kingdom |
Sector | Public |
PI Contribution | The report for the Scottish Government on women in agriculture drew on the Northern Ireland Research |
Collaborator Contribution | Considering ways of implementing recommendations to improve the position of women in agriculture |
Impact | Regular task force meetings, working groups, interim report due in June 2018 |
Start Year | 2017 |
Description | Women in Agriculture Task Force |
Organisation | National Farmers Union |
Department | Scottish National Farmers Union |
Country | United Kingdom |
Sector | Charity/Non Profit |
PI Contribution | The report for the Scottish Government on women in agriculture drew on the Northern Ireland Research |
Collaborator Contribution | Considering ways of implementing recommendations to improve the position of women in agriculture |
Impact | Regular task force meetings, working groups, interim report due in June 2018 |
Start Year | 2017 |
Description | Women in Agriculture Task Force |
Organisation | Scotland's Rural College |
Country | United Kingdom |
Sector | Academic/University |
PI Contribution | The report for the Scottish Government on women in agriculture drew on the Northern Ireland Research |
Collaborator Contribution | Considering ways of implementing recommendations to improve the position of women in agriculture |
Impact | Regular task force meetings, working groups, interim report due in June 2018 |
Start Year | 2017 |
Description | • Lead author on 'Empowering or Marginalising farm women - the role of gender specific farming organisations' shortlisted for the UNU-WIDER project:'Gender and Development'. |
Organisation | Penn State University |
Country | United States |
Sector | Academic/University |
PI Contribution | Expertise, intellectual input, drafting application for funding |
Collaborator Contribution | As above |
Impact | 1. Made an application. Drafted by Shortall. 2. Shortlisted. Shortall invited to present the application in Namur, Belgium. |
Start Year | 2015 |
Description | Conference paper : Putting 'women' into the urban-rural continuum debate |
Form Of Engagement Activity | A talk or presentation |
Part Of Official Scheme? | No |
Geographic Reach | International |
Primary Audience | Other academic audiences (collaborators, peers etc.) |
Results and Impact | Conference paper at the European Rural Sociology Conference, Florence July 2013 Stimulated discussion, and led to a further co-authored article |
Year(s) Of Engagement Activity | 2013 |
Description | Engaging women in the RDP : critical reflections on employment programmes for rural women in the EU |
Form Of Engagement Activity | Participation in an activity, workshop or similar |
Part Of Official Scheme? | No |
Geographic Reach | Regional |
Primary Audience | Public/other audiences |
Results and Impact | Presentation to the RNNI Working Group on Women in Rural Development, "Yes We're Worth It!" Seminar, followed by a workshop session on 3 aspects of our research question. Request to prepare a briefing paper. |
Year(s) Of Engagement Activity | 2013 |
Description | Presentation to the European Court of Auditors on Gender Mainstreaming the EAGF |
Form Of Engagement Activity | A formal working group, expert panel or dialogue |
Part Of Official Scheme? | No |
Geographic Reach | International |
Primary Audience | Policymakers/politicians |
Results and Impact | Presentation of EU research findings on how effectively Member States gender mainstream the European Agriculture Guarantee Fund. |
Year(s) Of Engagement Activity | 2020 |