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1. It gives me great pleasure to address this international group today. The topic is extremely pertinent for all of us, whether we come from Eastern Europe, Southern Europe, Western Europe or Central Europe. The most energising dimension is the fact that we as women have been motivated to research issues around Rural Women’s participation and action in each of our countries. Consequently, we start with many things in common, namely that we are committed, interested women, that we share a common topic and that we also are prepared to share our views in order to establish a vision of Rural Women into the millennium. We are empowered women who share a voice and hopefully have found the key to unlocking our potential and the potential of women all over the world.
2. I propose to deliver this case study under the following headings:
3. Our Ex-President, Mary Robinson, speaking at a United Nations Forum on Women’s Leadership in 1994 stated the following: "My office as President has afforded me an opportunity to stand back and reflect on some of the energies which I see around me, while at the same time, observing their force and excitement and their power to renew and challenge a society. I have been enabled to catch a glimpse of a changing and invigorating climate of the effective contribution by women. We need to make a link between exciting, powerful efforts of women on the ground responding to the reality of their situation by empowering themselves and the new concepts which we need to define, so that those efforts are made safe from the old interpretations which might hamper them."
4. Obviously, the challenge for all of us is to perceive the trends in our societies which can be harnessed to the benefit of women’s greater participation whilst not being characterised narrowly as "Women’s Issues". We have unique opportunities as women today to assess and change the climate of thought and perception in which we live and work. Attitudinal change will be vital and necessary if we are to enter the future as equal partners. We are aware that in all our countries, women are still under-represented in formal decision making. The fact that due recognition is not always given to women’s participation in public life results in a huge loss to the local community, to the state and to the international community. We must accept the further implications and further responsibilities of this fact.
5. As fully conscious, aware and informed women we have the ability to guide and shape the dialogue, which is evolving between women’s priorities and the decision making process. This will necessitate change which is often slow. However, instant change does not always bring about the most permanent results. So we must sensitively find ways through deep reflection that will eventually influence a more lasting type of attitudinal change which will recognise the value of women’s contribution at all levels.
6. On analysis of problems and problematic situations, one is always conscious of presenting problems and the underlying causes. I believe that this concept is very relevant when examining women’s position in Ireland in relation to decision-making and more importantly when evaluating the way of women’s exclusion from formal decision making both in the past and in the present. I believe there is merit in recognising the statement that behind every presenting problem there is an underlying problem. Before addressing the underlying problems, I would like to acknowledge the fact that some important advances have been made by women in a number of areas, in politics, in economics, in the environment, in new thinking on society, in establishing many dynamic women’s groups. Despite the named advances, it is my conviction that women will continue to be at risk and invisible if they do not get to the root causes and persuade our various societies that in essence what we as women achieve will not be a sectional benefit for women, but rather a gain for everyone. If we are to achieve that parity at every level which would so radically alter our societies, men too must be persuaded of the benefit. Consequently, there must be a comprehensive re-assessment of the place and contribution of a woman in her society.
7. Speaking on the topic of exclusion and unbalance, Mary Robinson confirmed this point when she stated the following: "If the imbalances of the past came, as I believe they did, not simply from legislative influences and economic inequality, but from resistance and failures of perception, then it follows that to right the balances, we must do more than review our legislation and re-state our economic structures. We must also re-appraise our view of whom and what is valuable in our society.
8. We must look with fresh and unprejudiced eyes at the work of women, their way of organising and their interpretations of social priorities. To achieve this, we must begin at the beginning and alter our way of thinking."
9. One may ask at this point why inequality between the sexes still exists? I believe that at the moment equality between the sexes is seen to be a woman’s issue. Of course this is not the case. It is said to be a marginal issue and this is not so. It is often perceived as a threat to the traditional structures of society. This is also incorrect. Because of these flawed interpretations the approach to achieving equality has been similarly flawed. It remains an ad hoc approach. We make legislative changes and appoint women in response to organised insistence and the pressure of public opinion. Therefore the accounting of progress is recorded less through deep and generous shifts in established thinking, and more by listing laws or doing a number count of the women in public positions. Consequently this ad hoc approach ensures that the issue of women’s equality is starved of reflective thinking and careful planning. It is, of course, important that women participate more in all sectors of modern societies but it is not sufficient. The elusive balance requires a more fundamental re-evaluation of the role, the worth and the contribution of all women to their society. The listed laws provide a valid support mechanism but are inadequate to effect change.
10. A number of barriers exist to women’s participating equally with men. They can be described as the 4 Cs and are as follows:
11. Further barriers to women’s participation have been identified by our key note speaker - Dr. Pat O’Hara. In a paper presented to the ALFA transnational seminar in Longford, Ireland in July 1997, she presented a clear analysis of barriers which block women in rural Ireland from equal participation in cultural, economic and political power in their local area. She identified the following socio cultural obstacles:
12. The challenge and burden of going against the grain of well-established gender roles in rural society is quite considerable and requires much self-confidence, self-belief and support. It is hardest for those who wish to move back into the paid workforce, or to become involved in local development activities after working for some years in the farm home.
13. The structural barriers identified by Dr. Pat O’Hara include:
14. In relation to this last point Dr. O’Hara points to the following stark statistics:
15. She also comments on the very considerable obstacles facing those women who are involved in such structures. "If women are invited on to boards because of their gender or are very much in the minority, they can experience the tyranny of tokenism where they are expected to feel grateful for being asked to participate and ‘keep quiet’. In these circumstances, and in situations where women have little experience of the formal procedures and structures of organisations, compared to men who come up through the ranks of sporting organisations or trade unions they may feel inhibited and have difficulty in participating effectively."
16. The socio cultural obstacles and the structural barriers that have been identified and named provide us with some insight into the position of Irish Women with regard to equality. The key question is - are these barriers, exclusions, attitudes and omissions still in existence? I propose to examine one of the oldest structures, i.e. family farm and a number of new structures/boards which have been established within the last six years.
17. Ireland follows the patrilineal system of land transfer, ensuring that in practice, women hardly ever inherit farms. Authority and social status accompanies father/farmer in rural Ireland, thereby excluding most women from some of the main rural infrastructures. Agricultural services follow a policy of notifying husbands/fathers of current issues, increasing the perception of "farming as a male industry". There is a non recognition of the present contribution that rural women make to the economic life of their areas. Their labour is underestimated or completely overlooked (e.g. under-recording by official statistics of the input of rural women into farming enterprises, inadequate recording of part-time and/or unpaid work by women on farms). The very mention of women is limited or missing in the standard literature available on rural development. It is important to note the following:
18. Rural farm women often find their domestic world quite fragmented because of the demand placed on them to perform additional work which backs up or, compliments their husbands’/fathers’ labour. In fact, a wife’s contribution to production via her husband’s work is extremely valid and of utmost importance to their economic well-being. Despite this rural women’s overall position is one of subsidiary status.
19. "Getting the Balance Right" is the title of a report that was researched and published in 1997. It is part of a transnational project led by the National Women’s Council of Ireland under the European Union 4th Action Programme on equal opportunities. The report reviews progress against Irish Government policy of a 40% gender balance in appointments of Government nominees to State Boards. The policy has been in effect since 1991.
20. The policy emerged after decades of exceedingly slow progress and despite repeated political commitments to appointing more women. In 1972, the first commission on the status of women had pointed out the extremely low proportion of women appointed to boards and concluded that a substantial amount of prejudice and discrimination, either deliberate or otherwise, exists".
21. When the NWCI first published "Who Makes the Decision" it covered 75 boards surveyed in 1979. Women accounted for 9.6% of all board members. 43 boards had no women members and a further 14 had just one woman member. Two further editions of "Who Makes the Decision", in 1981 and 1985, showed the overall proportion falling slightly before rising again to 10.45%. During the period direct appointments by Government Ministers, as opposed to other nominating bodies rose from 9.9% to 11.9%. Progress at this rate, i.e. 2% points every 4 years - would take 80 years to achieve balanced participation!!
22. The NWCI put forward the idea of a 40% gender balance policy to the 2nd Commission on the Status of Women in 1990. It’s important to note that the 1st Commission (1972) had not favoured a quota, confusing this strategy with one of women being appointed solely because they were women, rather than because of ability. The gender balance policy proposal focused on the fact that there are women with the necessary skills and abilities who are simply not appointed.
23. Thankfully, on the recommendation of the Second Commission the Policy was adopted in 1991 for Government appointments to State Boards. This review of progress indicates the importance of explicit policy and targets and offers an effective strategy to promote women’s participation in decision making.
24. So how significant is this equality policy? Over the six year period since it was adopted the change has been significant, but with some limits. In some areas it is clear that the policy was fully implemented, in others getting to grips with this new approach has been somewhat more challenging. It would appear that it is applied very often as a ceiling rather than a minimum standard. It is still the case that men predominate as members of state boards, e.g. of the membership of 211 nationally appointed boards there are 2,002 men and 812 women. There are 172 chairmen and 39 chairwomen. This point is further confirmed when we look at a number of new regional and local bodies - the boards of Area Partnerships, County Enterprise Boards and LEADER Boards.
25. The following points emerge when one analyses the aforementioned boards:
| Male Membership | 60% - 87% |
| Female Membership | 11% - 43% |
| Chairmen | 31 |
| Chairwomen | 4 |
35 County Enterprise Boards were established
between 1991 - 1997. The boards ranged in size from 14 - 15 members.
| Male Membership | 70% - 89% |
| Female Membership | 11% - 30% |
Ten such boards were established between 1991 - 1997. Membership of boards
averaged between 18 - 27. Of the 10 joint Partnership Boards
only one had a female chairperson.
| Male Members | 55% - 85% |
| Femal Members | 12% - 44% |
There are 27 Area Partnership Boards in Ireland.Five of the 27 Boards
have a female chairperson.
| Male Membership | 64% - 100% |
| Female Membership | 4% - 36% |
There are 25 independent LEADER Boards in Ireland. Membership averaged
between 10 - 26. Of the 25 Boards one has a female chairperson.
26. One would have to observe that the above named boards which are newer and first appointed in recent years are disappointing in their failure to achieve gender balance at board level. To my mind absence of women from these boards not only contributes to a male/female imbalance but also brings an imbalance in the decision making process. The intuitiveness and perceptiveness of the female is missing.
27. A further examination of some of our long established boards, i.e. Health Boards and Tourism Boards, also reflects an imbalance.
| Male Membership | 74% - 90% |
| Female Membership | 10% - 26% |
There are 8 Health Boards in Ireland.
| Male Membership | 75% |
| Female Membership | 25 % |
| Chairperson | Male |
28. While many of our Irish Boards (new and longer established ones) leave a lot to be desired - I take some hope from the most recently appointed board in the West of Ireland (where I live). This Board is known as the "Western Development Commission". It has a 57% male membership and a 43% female membership.
29. One can conclude that rural women continue to be largely excluded from representations on boards. However, we are hopeful that the NWCI will continue to monitor progress and encourage the integration of the 40% gender balance policy as a minimum level for the over-all structure of boards.
30. An overview of regional boards in Ireland gives us a true picture of the gender balance situation.
| Women | Men | |
| 1) Area Partnership | 32% | 68% |
| 2) C.E.B. | 25% | 75% |
| 3) LEADER | 20% | 80% |
| 4) Joint Boards | 20% | 80% |
The challenge of getting "The Balance Right" is the responsibility of the women of Ireland. What strategies have they in place to address their situation?
31. Over the past 10 years there has been significant change in Irish society. It is true to say that despite occasional resistances, there is now a greater awareness of the importance of equality and its benefits to society as a whole. Women have now a greater sense of self and belief in their own self worth. This of course is key to women’s development.
32. I believe that the development of women must take place at two levels - at a deep personal level and at group level, where each woman recognises the contribution she is capable of making for the betterment of self and the betterment of community/society. When self belief is strong - energies are high. Today women play a dominant role in a whole range of voluntary bodies especially those operating at local and community level. Many of the community development projects which I am involved in as a development worker are nurtured, developed and sustained by women both at the individual level and at group level. It is encouraging to witness the harnessing of energies, the sense of enterprise, and the sustaining/enduring commitment of women in community development. Women are empowering themselves at the grassroots level.
33. Throughout Ireland, North and South, much effort and skill has been put into establishing women’s partnerships and networks. Many Irish women have recognised the value of a collective network approach and have devised structures which are open, enabling, consultative and flexible. The outcome has been greater confidence and aspiration to become activists and catalysts for change. It is my conviction that women working together through skilled processes are modelling styles of decision making and leadership which could well be utilised in the political, business, trade unions, public service or whatever. Women through training have found an invaluable key - a key that has enabled them to acquire skills in communication, decision making, group dynamics and conflict resolution. In the not too distant future I believe that women will come into their own - they will be recognised for their worth and their unequalled contributions. The questions will be - "What is society losing by not having a proper balance of males/females around decision making tables?", or "What difference would it make to have a balance between women and men at every level? I am confident that the views of women, their way of organising and their interpretation of social priorities would make a significant impact on the structures of modern society. This, needless to say, would involve adjustments for men both in their involvement within the home and in the structures of society as a whole.
34. I would like to refer to five significant women’s groups, who have taken initiatives and model for me dynamic, innovative females who have become pro-active and are actively involved in a process of self-actualisation. The women’s groups that I refer to have much in common, particularly their commitment, vision and desire to provide strength, recognition and support for women’s groups throughout Ireland. The five groups are:
35. The profile of each group reveals their own uniqueness and what it is they hold in common. Each of the five groups/networks are made up of women between 25 - 50 years of age. They represent different parishes, different counties and different women’s groups. They all share many things in common but the most important feature is the fact that they share a common interest, i.e. to play a more active role in the economic, cultural and political life of their communities. They also share a deep consciousness of the need to improve the lives of rural women living in disadvantaged areas by equipping them with personal and professional skills to actively participate in community and commercial ventures. They share a set of common objectives that bond the groups more closely. The objectives are as follows:
36. What actions have these women taken to achieve their objectives?
a) All five have engaged in intensive training over the last few years - at a personal level and group level.
b) They have set up projects, i.e. from Women’s Centres, to Parish Councils to small businesses which are up and running.
c) They have acquired sufficient skills through training to take on management roles and co-ordination roles of their projects.
d) They have been successful in making application for funding - both from the Irish Government and the E.U.
e) Four of the five groups have been involved in a N.O.W. Programme (E.U. funded programme - New Opportunities for Women in Development).
37. To my mind, the European funded programme (NOW), has made a significant impact on our five Irish women’s development programmes. Their projects are among the leaders in innovation in developing truly new approaches to the training needs of women. The projects under "NOW" have covered a wide range of contexts and involved local and national women’s groups and organisations, public bodies, social partners and the knowledge sector. They demonstrated that flexibility and responsiveness to needs can go hand in hand with the highest quality and standards. NOW along with other E.U. initiatives has the broader brief of challenging many of the traditional barriers to women’s participation in training. To quote from an evaluation document of one of the groups confirms this: "NOW Programmes provide training where and when women can access it, use methodologies and systems of accreditation which are relevant and effective and offer the essential childcare support".
38. A critical analysis of the five women’s groups in question suggests the following key points:
39. The five women’s groups that I have described to you have identified key strategies which will lead to empowerment through confidence building, skills training and greater communication techniques. No doubt, Ireland’s success is in the hands of all Irish women but particularly in the hands of the 2,000+ women (five groups) who are now visible and share a common voice about their future.
40. Since rural women continue to make a major contribution to rural areas, it is vital that this fact is recognised and that their skills and abilities are utilised. Many rural women are highly active and committed to the sustainable development of their local areas. They bring a broader perspective to rural issues, hence the importance of inclusion at every level. In addition they are acutely aware of the need to broaden the agenda to cover social, community as well as economic issues. The success of women’s groups deserves to be more widely appreciated and disseminated by the media in order to portray a more accurate image and to encourage other rural women to follow in the footsteps of the successful groups.
41. I would like to make the following suggestions and recommendations for greater participation of women at every level.
1. Given that there is rapid growth in the number of women’s groups in rural Ireland, it appears that now is the appropriate time for the state to offer rural women support in their move towards better representation, recognition and job opportunities.
2. Training agencies need to re-examine the particular training needs of rural women and to evaluate and monitor the level of services which rural women are currently receiving.
3. Appropriate training, child care support, better transport systems and flexible working conditions are all necessary if women are to become more economically active and play a full role in the revitalisation of rural economies.
4. A pro-active approach to female involvement is required if women are to achieve a fair level of influence over issues that fundamentally affect their lives.
5. All women should have the opportunity and be encouraged to engage in training that focuses on interpersonal skills and communication techniques. Women need empowerment more than the simple ability to communicate effectively.
6. Programmes like NOW, while providing much needed seed funding for women’s groups, should become pathways into the mainline funding streams.
42. In conclusion I would like to reiterate that education and training are keys to greater choices for rural women. Because women are not adequately represented on key decision - making and funding allocation bodies at national or local level it is vital that special action is taken to ensure that women play a full role in the decisions that affect their lives. The establishment of a Rural Development Council with representatives from main rural groups, relevant departments and state agencies may provide the necessary mechanism through which policies and measures would operate to facilitate the full participation of women in rural, economic and social life. If women are to achieve equality there must be power sharing and partnership at the domestic as well as the macro level.