Legislative and policy framework

The Finnish Constitution states that no one shall be treated differently to others on the grounds of sex or any other personal attributes. Gender equality is to be promoted in societal activity, working life, pay and employment (Constitution 731/1999). This forms the background to Finland’s mainstreaming gender equality policy.

The principle of gender equality in Finland is enshrined in legislation through the 1995 act (206/1995) to amend the Equality between Women and Men Act (609/1986).[1] The 1995 act includes a legal obligation regarding the implementation of gender mainstreaming, as it stipulates that it is the duty of authorities to promote gender equality. The scope of the act was extended in 2015 and obliges authorities, education providers and employers to promote gender equality in all relevant activities, including gender equality plans, assessments and quotas. In all their activities, authorities must promote equality between women and men purposefully and systematically, and they must create and consolidate administrative and operating practices that ensure the advancement of equality between women and men in decision-making and preparatory work. The act also defines gender-based discrimination in working life, educational institutes, non-governmental organisations and the provision of goods and services.

Finland has a long history of endorsing and mainstreaming gender equality, starting with the government’s first 1980–1985 gender equality action plan, which made gender mainstreaming a responsibility of all administrative units. Significant progress followed with the 2012–2015 gender equality programme [2] and then the 2020–2023 government action plan for gender equality,[3] which included 50 targets in areas like work, family, education and combating violence. This plan was monitored annually by groups led by the Minister for Nordic Cooperation and Equality.

The 2022 Government Report on Gender Equality Policy sets Finland’s long-term goals, focusing on themes like equality, non-discrimination, economic equality and equal labour market participation. It also highlights Finland’s international role in advancing gender equality and the need for legal and administrative reforms.[4]

Goals of the 2022 Government Report on Gender Equality Policy

  • Finland is an equal society free from gender discrimination in all its activities.
  • In Finland, everyone can live without fear of gender-based violence or the threat of violence, and no one’s right to freedom and integrity is violated.
  • In Finland, everyone, regardless of gender, has equal opportunities to participate and the power to influence their own lives and society.
  • Economic equality is realised in Finland, and equal pay is paid for work of equal value in a non-discriminatory labour market.
  • In Finland, everyone has opportunity to access to well-being, health and safety, regardless of gender.
  • Care responsibilities, education and the labour market are equally divided between genders in Finland.
  • Finland is a systematic promoter of gender equality and human rights internationally.

Finland adopted an intersectional approach to gender equality under Sanna Marin’s 2020–2023 government,[5] and, in 2024, the government approved an action plan with 62 measures to combat racism and promote equality, particularly in education and working life.[6]

Structures

Governmental gender equality bodies

Finland’s gender equality efforts are spearheaded by the Gender Equality Unit (Tasa-arvoyksikkö) and, until its closure in 2024, the Centre for Gender Equality Information (Tasa-arvotiedon keskus). Together, these bodies have been central to promoting, coordinating and implementing gender equality policies and mainstreaming processes across government functions.

The Gender Equality Unit,[7] situated within the Ministry of Social Affairs and Health, plays a critical role in shaping evidence-based policies from a gender perspective. It is responsible for coordinating government activities on gender equality, advising ministries on policy and legislation and promoting gender mainstreaming within state administration. The unit is involved in preparing and developing gender equality legislation, coordinating gender budgeting and integrating gender equality into EU and international policies.

The Gender Equality Unit is consulted by departments or ministries on 25–50 % of new or existing policies, laws or programmes (in policy fields other than gender equality). The unit is sometimes included as a partner in the process of drafting policy/laws, and there is an internal consultation process whereby each of the ministries draws up a gender mainstreaming action plan that describes the gender-related issues in the policy area and sets out gender equality targets. In addition to its advisory role, the Gender Equality Unit drafts government action plans on gender equality and monitors their implementation, publishing comprehensive progress reports, the most recent of which was in 2023.[8] Its coordination extends to interministerial working groups, which develop gender mainstreaming strategies for individual policy sectors, meeting bimonthly under the unit’s guidance. However, the goal is that the ministries themselves evaluate the relevance of gender to their work, reducing dependence on the Gender Equality Unit over time.

Functions of the Gender Equality Unit

  • Preparing and developing the government’s gender equality policy and legislation.
  • Promoting the mainstreaming of gender equality in state administration.
  • Handling tasks related to the EU’s gender equality legislation, policy and international affairs.

The Gender Equality Unit had a total annual expenditure of EUR 1 772 000, with approximately 30 % allocated to non-administrative costs related to gender equality. The Gender Equality Unit has 16 employees with an exclusive mandate for gender equality.

The Centre for Gender Equality Information (operational until August 2024) complemented the Gender Equality Unit’s work by focusing on training, research and capacity building. It supported gender mainstreaming in government bodies, developed methodologies and provided resources such as training modules. Despite its closure due to budget cuts, some of its responsibilities were transferred to the Gender Equality Unit, ensuring continuity in promoting gender equality.

Functions of the Centre for Gender Equality Information

  • Acting as an information service collecting and disseminating up-to-date and research-based information on gender equality.
  • Acting as an expert in gender equality information.
  • Responding to requests for information related to equality and gender.
  • Cooperating with both domestic and international gender equality actors.

Both bodies have made significant contributions to integrating gender-sensitive analysis into policy and legislation, implementing government gender equality decisions and monitoring progress. Their efforts have included disseminating information, conducting research and advancing gender equality through EU and international cooperation. While the Gender Equality Unit remains operational, the long-term aim is to embed gender mainstreaming practices directly within ministries, fostering a more decentralised and sustainable approach to promoting gender equality.

Independent gender equality bodies

Finland has two independent gender equality bodies.

The Ombudsperson for Gender Equality (Tasa-arvovaltuutettu)[9] is an independent authority with its own separate budget, role and mandate, which focuses exclusively on gender equality. The tasks of the ombudsperson are listed under Section 2 of Act No 1328/2014[10] and include monitoring the prohibition of discrimination, issuing advice and guidelines on promoting equality, providing information on the Equality between Women and Men Act (609/1986) and its implementation, monitoring equality issues in society and starting conciliation efforts in cases of discrimination.

Under Section 3 of Act No1328/2014, the ombudsperson may assist a victim in cases that are of considerable importance for the implementation of the act. Under the Equality between Women and Men Act (609/1986), Section 20, the ombudsperson or a social partner may take a case of gender discrimination to the National Non-Discrimination and Equality Tribunal. The ombudsperson has no mandate to decide the outcome of complaints; this mandate lies with the tribunal.

The ombudsperson has 11 employees and a budget of EUR 1 095 000. The ombudsperson contributes to policy development by issuing statements on initiatives, participating in committees and working groups and making recommendations for government reforms. Its input is most impactful when it is involved early in legislative processes. The Ombudsperson for Equality reports to parliament every four years on its activities and provides an overall evaluation of the gender equality situation in society, in addition to making recommendations for action. Furthermore, the ombudsman publishes a yearly report that includes details of its own activities. However, its statistics are not disaggregated by sex.

The Council for Gender Equality (Tasa-arvoasiain neuvottelukunta (Tane))[11] is another independent body for the promotion of gender equality, although it operates within the Ministry of Social Affairs and Health. Tane is an advisory board that advises on the drafting of proposals and provides statements or opinions for developing legislation and other measures that have an impact on gender equality. Tane is often consulted by the government and heard by the parliamentary standing committees. Tane promotes cooperation among authorities, organisations and researchers. This body has remained virtually unchanged since it was established in 1972.

Tane can also set up subcommittees; it currently has two active subcommittees, one of them being the Statistics Finland expert group on gender equality statistics. Tane has three employees and a budget of EUR 125 000.

Functions of the Ombudsperson for Equality and the Council for Gender Equality

  • Conducting research on gender equality issues.
  • Integrating gender equality considerations in EU and international affairs.
  • Publishing and disseminating gender-equality-related information and training modules.
  • Conducting gender-sensitive analysis of policies and legislation.
  • Monitoring progress towards achieving gender equality.
  • Providing legal support for victims of discrimination on the ground of sex or gender (ombudsperson only).

Parliamentary body

The Employment and Equality Committee (Työelämä- ja tasa-arvovaliokunta) of the Parliament of Finland is the relevant parliamentary body. This committee calls experts from the Gender Equality Unit to hearings in connection with the process of drafting laws and the budget process at least once a year, but this is not, strictly speaking, a regular reporting mechanism. The government submits a report on gender equality to the parliament through this committee every five years in connection with the Government Report on Gender Equality Policy.

Consultation with civil society

Civil society actively contributes to gender equality efforts through participation in committees, working groups and policy development. This includes proposing reforms, monitoring progress and engaging in consultations on legal amendments, action plans and government policies.

Regular involvement in meetings, hearings, conferences and seminars ensures that civil-society actors’ perspectives shape gender equality initiatives. Social partners also play a key role in drafting legislation affecting working life and thus promoting equitable workplace practices.

The gender equality bodies have not distributed funds to civil-society organisations in the last five years.

Methods and tools

Note: the methods and tools listed in this section were the focus of EIGE’s 2024 assessment. If certain methods and tools are not mentioned in this section, this does not necessarily mean that they are not used by Finland.

Gender impact assessment

In Finland, there is no legal obligation to undertake an ex ante gender impact assessment when drafting laws and/or policies, plans and programmes. However, the governmental gender equality action plans and the general guidelines for the ex ante evaluation of government proposals and budget rules both demonstrate a commitment to conducting assessments.

The commitment to conducting gender impact assessments for all legislative reforms and new policies has been seen in government programmes since 1999.[12],[13] A gender impact assessment is carried out for 15–20 % of government bills each year.

Gender budgeting

There is no legal obligation to undertake gender budgeting for a ministerial budget or the budget of other governmental institutions. However, there are binding instructions (issued by the Ministry of Finance) on how to include gender perspectives in budget drafts and how to report on the expected impact on gender equality in the budget drafts.[14],[15] As such, gender budgeting is widely used in most ministries. There is a summary of the expected impacts on gender equality in all the ministries’ budget proposals. These summaries are monitored annually and the results are reported to the Minister for Gender Equality and to the parliament as part of the budget process.

Training and awareness raising

Over the past few years, several key initiatives have been implemented with a view to raising awareness of gender equalities among government staff.

Examples of training and awareness-raising initiatives

  • In some ministries, there is a section on gender equality policy in the introductory training for employees who are commencing work at the ministry.
  • There is a special training module on gender impact assessments for the main programmes and projects during the government’s term in office.
  • There is a gender mainstreaming briefing for ministers at the beginning of the government period, which is given by the gender mainstreaming specialists in the Gender Equality Unit.
  • Printed material is distributed (e.g. leaflets, brochures, books and audiovisual resources).
  • There is an e-learning tool, published in March 2020, available to all civil servants.[16]
  • There are opportunities for participation in organised training and workshops on an ad hoc basis.

Employees of the Gender Equality Unit and some of the employees of other ministries and departments are involved in gender equality training on a regular basis (at least once a year).

Gender statistics

In Finland, there is no legal obligation for the national statistics office (Statistics Finland)or other public institutions to collect data disaggregated by sex. However, such data is essential for assessing ministries’ progress on gender equality targets. Ad hoc agreements and established practices ensure the regular collection and analysis of gender-related statistics, which have been published since 1980 alongside the first governmental gender equality programme.

The 2020–2023 government action plan for gender equality required ministries to improve sex-disaggregated data collection and analysis. Gender mainstreaming activities, coordinated by an interministerial structure, further promote the production of gender statistics. Statistics Finland and the former Centre for Gender Equality Information provided accessible gender statistics and publications online, with thematic breakdowns and downloadable datasets.

Sex-disaggregated data in Finland is primarily produced by Statistics Finland,[17] which regularly publishes comprehensive reports on gender equality. Key publications include Gender Equality in Finland (published in 2018 and 2021), with earlier editions titled Women and Men in Finland. The Gender Equality Unit at the Ministry of Social Affairs and Health also commissions the Gender Equality Barometer (Tasa-arvobarometri), a survey on attitudes and experiences related to gender equality; it has been conducted periodically since 1998, with the next edition planned for 2025.

Various websites provide extensive information on gender-related topics, including population, education, working life, economy, health, safety and decision-making. The Finnish Institute for Health and Welfare and the former Centre for Gender Equality Information contribute to sex-disaggregated data collection and dissemination. The Finnish Institute for Health and Welfare publishes sex-disaggregated statistics several times a year on topics like employment and maintains a publication calendar for related updates.[18] Ministries also undertake ad hoc studies aligned with their agendas, ensuring targeted and relevant data collection.

Monitoring progress

Finland’s institutional mechanisms for gender equality and gender mainstreaming stand above the EU average but show a decline compared with 2021.

Explore Finland’s scores on the four key indicators on institutional mechanisms for the promotion of gender equality and gender mainstreaming developed to monitor progress on Area H of the Beijing Platform for Action.

Finland: Institutional mechanisms for gender equality and gender mainstreaming

References