Legislative and policy framework

Article 4 of the Greek Constitution ensures gender equality, stating that women and men have equal rights and obligations, while Article 116[1] requires the state to remove existing inequalities, particularly those affecting women.

The first efforts to implement gender mainstreaming in Greece were made in the 2000s, when the General Secretariat for Gender Equality actively participated in the planning process of the 2000–2006 third Community Support Framework, which is Greece’s development programme and is financed by the EU’s Cohesion Fund. This was followed by the national strategic reference framework and the national programme for substantive gender equality, with a national action plan for gender equality introduced in 2017.

Law No 4604/2019 on promoting substantive gender equality and preventing and combating gender-based violence constitutes a legal obligation to promote gender mainstreaming, although it does not contain provisions for enforcement or sanctions. The law stipulates legislative measures to strengthen the national gender machinery (Articles 10–20, Chapter B), as well as diverse government actions directed towards gender mainstreaming.

To ensure the integration of a gender equality perspective into public policies, each ministry must:

  • develop quantitative and qualitative indicators on gender issues for the assessment of gender mainstreaming in all relevant measures and policies;
  • analyse the consequences of draft laws through mandatory gender impact assessments;
  • publish an online progress report on gender-based discrimination.

The law sets out a comprehensive set of measures, including the use of gender-neutral language in official documents of the public administration, provisions against gender stereotypes and discrimination in mass media and advertisements, a quota system (minimum of 40 % women candidates) for each electoral district in parliamentary and European elections (the same regulation already exists for municipal and regional elections, Law No 4555/2018) and the establishment of an autonomous equality office in each of the 13 regions of the country (Law No 4604/2019, Articles 7–8).

In addition, under the provisions of Law No 4837/2021 (Article 47), a ‘diversity label’ has been introduced to reward businesses that stand out in their promotion of equal treatment and their combating of discrimination on the grounds of gender, race, colour, nationality, religion, disability, age, beliefs and sexual orientation. Two sectoral laws, namely Law No 4808/2021 on the ratification of International Labour Organization Convention 190/2019, and Law No 4531/2018 on the ratification of the Istanbul Convention, promote specific aspects of gender equality.

Law No 4957/2022 established gender equality and anti-discrimination committees in universities, and Law No 5089/2024 legalised same-sex marriage and expanded anti-discrimination protections.[2]

The 2021–2025 national action plan for gender equality (NAPGE) forms the core framework for Greece in the area of gender equality policy. Acting as both a nationwide strategy and an action plan, it covers all regions and is budgeted at EUR 100 million for the period covered. NAPGE is built around four priority axes (and sub-priorities), each of which focuses on a specific thematic dimension of gender equality policies, although there are no quantifiable targets to facilitate monitoring.

Priority axes of the 2021–2025 national action plan for gender equality

  1. Prevention and fight against gender-based and domestic violence.
  2. Equal participation of women in the labour market.
  3. Equal participation of women in decision-making positions and leadership roles.
  4. Gender mainstreaming in sectoral policies.

 

The 2021–2025 NAPGE has set out 28 indicators monitored annually by the Observatory on Gender Equality. NAPGE is a dynamic plan that can be reviewed annually, and is funded by both European and national sources.

Priority axis 4 focuses on gender mainstreaming, incorporating actions relevant to various ministries, such as gender impact assessments; a digital equality map; gender budgeting; gender mainstreaming training; the promotion of gender-sensitive and inclusive language; drafting a national action plan for women, peace and security; and participation in national action plans drafted by other governmental entities.[3]

Preparations for the NAPGE for the next programme period (2025–2029) are currently taking place through consultation with the public administration and relevant stakeholders.

Structures

Governmental gender equality bodies

Greece is one of the few EU Member States that benefit from two governmental equality bodies that have a remit that includes gender equality.

The first governmental equality body is the General Secretariat for Equality and Human Rights (GSEHR) (Γενική Γραμματεία Ισότητας και Ανθρωπίνων Δικαιωμάτων) within the Ministry of Social Cohesion and Family (Υπουργείο Κοινωνικής Συνοχής και Οικογένειας).

During the last five years, this governmental body has been renamed several times and has moved between different ministries. Following the elections in June 2023, the GSEHR was renamed from the ‘General Secretariat for Demographics, Family Policy and Gender Equality’ to the ‘General Secretariat for Equality and Human Rights’ and moved into the newly established Ministry of Social Cohesion and Family.[4]

The GSEHR has expanded its portfolio to include human rights, though its specific responsibilities have not yet been fully defined. Despite this broader scope, the GSEHR continues to focus exclusively on gender equality at the national, regional and international levels. Its main functions remain the planning, implementation and monitoring of gender equality policies across all sectors.[5]

The total annual expenditure of the GSEHR is EUR 2 723 000, with approximately 70 % allocated to administrative costs. Currently, there are 57 officials employed to carry out the functions of the GSEHR.

The second governmental body responsible for the promotion of gender equality in Greece is the Research Centre for Gender Equality (Κέντρο Ερευνών για Θέματα Ισότητας) (KETHI).[6] Established in 1994, this is a legal entity under private law with its role and responsibilities outlined in Law No 4443/2016.[7] KETHI is supervised by the Ministry of Social Cohesion and Family. It aims to eliminate gender-based discrimination and inequality, and to promote and conduct research on gender equality topics defined by the GSEHR.

Functions of the Research Centre for Gender Equality

  • Conducting scientific studies and research on gender equality issues.
  • Promoting equal opportunities in employment and economic development by designing, implementing, monitoring and generally evaluating professional training programmes, especially for women.
  • Coordinating and/or implementing government decisions on gender equality.
  • Cooperating with national, foreign and international organisations; educational, scientific and research institutions; employers’ organisations; and any institutional body for matters related to gender equality.
  • Publishing and disseminating gender-equality-related information and training materials.
  • Providing legal support for victims of discrimination on the grounds of sex or gender.

KETHI has a total annual expenditure of EUR 2 400 387, with approximately 43 % allocated to non-administrative costs related to gender equality. Currently, there are 104 officials employed at KETHI.

Both governmental equality bodies, GSEHR and KETHI, are occasionally consulted by other government departments on policies, laws or programmes on topics outside the scope of gender equality. However, these consultations, particularly in the past three years, seldom lead to relevant adjustments in the respective policies, laws or programmes.

Coordination of gender mainstreaming takes place through the National Council for Gender Equality (Εθνικό Συμβούλιο Ισότητας των Φύλων), which was established in 2019 under Law No 4604 (Article 9) as an advisory body, and which includes representatives from various ministries, academia and non-governmental organisations (NGOs). The council discusses and evaluates existing gender equality policies and proposes new actions to the GSEHR. Additionally, the 2021 law introduced the creation of autonomous gender equality offices in each ministry.

Functions of the autonomous gender equality offices at the ministerial level

  • Collecting and processing data on the incorporation of gender equality into ministry policies and formulating gender indicators.
  • Drawing up a gender impact assessment report for each bill.
  • Providing an overview of activities for the annual report of the government to parliament.

In addition, all 21 ministries have contact persons charged with assisting with the implementation of the 2021–2025 NAPGE.[8] Ad hoc working groups on specific topics are also formed.

Independent gender equality body

The Greek Ombudsperson (Συνήγορος του Πολίτη) is the independent body responsible for equal treatment of women and men on issues such as working conditions, access to employment, and access to and provision of services by public institutions.

Its mandate is to combat discrimination and promote the principle of equal treatment irrespective of gender, racial or ethnic origin, family or social status, religion or belief, disability or chronic illness, age, sexual orientation and gender identity.

Functions of the Greek Ombudsperson

  • Researching gender equality issues.
  • Publishing and disseminating gender-equality-related information and training materials.
  • Deciding on complaints of discrimination on the grounds of sex.
  • Monitoring progress in achieving gender equality.

The Office of the Greek Ombudsperson employs a staff of 205 working on equality issues, who spend up to 25 % of their time dedicated towards gender equality-related work. The ombudsperson is occasionally consulted on policies, laws or programmes outside the scope of gender equality, leading to adjustments in some cases. The annual budget for the Office of the Greek Ombudsperson is not available.

Each year, the ombudsperson publishes an annual report detailing major cases handled and proposing improvements for public services and legislation.[9] This report is submitted to the President of the Hellenic Parliament, discussed according to parliamentary procedures and published by the National Printing House.

Parliamentary body

There is a separate parliamentary committee, the Special Permanent Committee on Equality, Youth and Human Rights,[10] for the promotion of gender equality. In particular, the committee is responsible for research and the drafting of proposals regarding the promotion (in family, education and other social structures) of the principle of gender equality. Furthermore, the committee monitors the safeguarding and implementation of this principle by the administration. The committee is also concerned with matters regarding respect for and the protection of human rights.

Regional structures

In accordance with Law No 4604/2019, there is now an Autonomous Equality Office for the Association of Greek Regions. In addition, all 13 regions will have a Regional Committee for Gender Equality. However, as of 2021, only eight of these offices were in place.[11] All the committees have similar mandates and competencies.

Functions of the regional committees for gender equality

  • Ensuring and supporting the integration of gender equality in the development of regional policies and supporting the policies of the GSEHR.
  • Making proposals and suggestions to the relevant bodies of the region regarding necessary measures to promote gender equality in all areas of economic, political and social life.
  • Suggesting the inclusion of relevant projects to the regional council.
  • Cooperating with the Counselling Centre of the GSEHR in the region, and with civil society actors.

At the local level, a Committee for the Promotion and Monitoring of Gender Equality Policies in Local Government was established in March 2017 to formulate proposals and legislative interventions for gender equality in local government, and to monitor local action plans. Like the regional committees for gender equality, the committees for the promotion and monitoring of gender equality policies in local government are not administrative bodies are not administrative bodies.

According to Article 8 of Law No 4604/2019 on promoting substantive gender equality and preventing and combating gender-based violence, autonomous gender equality offices are to be established in the Central Union of Municipalities of Greece (Κεντρική Ένωση Δήμων Ελλάδας) and the Association of Greek Regions (Ένωση Περιφερειών Ελλάδας).

Functions of the autonomous gender equality offices at the local level

  • Informing the municipal and regional councils on the establishment of the regional and municipal committees for gender equality.
  • Cooperating with municipalities and regions to formulate and implement local and regional projects and activities on gender equality.
  • Cooperating with elected and candidate women in local authorities to develop networks of partnerships with local bodies and to increase the active participation of women in decision-making in local government.
  • Informing women about the activities of the autonomous equality office, the GSEHR and other bodies active in the field of gender equality. 

Consultation with civil society

The National Council for Gender Equality, established by Law No 4604/2019 (amended by Law No 4808/2021), consists of 15 members with a consultative role, from various backgrounds, including the Ministry of the Interior, the Ministry of Justice, academia and NGOs. Two of the NGOs must focus on women’s rights.

The council consults with various organisations, including women’s groups, gender equality advocates and workers’ representatives, to propose policies promoting gender equality.[12] Civil society consultation is facilitated through the National Council of Greek Women, which works on women’s rights and gender equality.

In the past five years, neither governmental equality body (GSEHR nor KETHI) has distributed funds to NGOs.

Methods and tools

Note: the methods and tools listed under this 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 at all by Greece.

Gender impact assessment

There is no legal obligation to undertake ex ante gender impact assessments when drafting laws, policies, plans and/or programmes. Given this, gender impact assessments have not yet been conducted.

Gender budgeting

In 2021, under Law No 4604/2019, the former General Secretariat for Demographics, Family Policy and Gender Equality requested EU support to develop gender impact assessments and budgeting methodologies, alongside training for staff and pilot programmes in ministries, such as the Ministry of Labour and Social Security, the Ministry of Social Cohesion and Family, the Ministry of the Interior and the Ministry of National Economy and Finance. A memorandum of cooperation was signed with the National Centre for Public Administration and Local Government to integrate gender budgeting training. While gender budgeting is mandated by Article 11 of Law No 4604/2019,[13] its implementation is still in the early stages.

Training and awareness raising

Over the past three years, various public events and workshops have been organised to raise awareness of gender equality among ministries and government bodies. These included events on women in law[14] and violence against women,[15] and four open book presentations on gender equality at the General Secretariat’s library.[16],[17],[18],[19]

The General Secretariat also publishes an annual report on gender equality actions by the municipalities[20] and regularly issues e-bulletins on topics such as migrant women, the gender pay gap and women with disabilities.[21]

Gender-sensitive language has been promoted through guides published in 2018 and 2020, although no recent initiatives have been introduced. Additionally, the National Centre for Public Administration and Local Government provides annual gender equality training for civil servants, though participation is not mandatory.

Gender statistics

There is an ongoing collaboration, formalised through a memorandum, between the Observatory on Gender Equality of the GSEHR and the Hellenic Statistical Authority (Elstat) to collect data disaggregated by sex. There is a legal obligation to collect sex-disaggregated data under Law No 4604/2019 (Article 13), which stipulates that public services and legal entities should collect gender-based statistics on areas falling within their responsibility.[22]

The GSEHR has a specific web page where gender statistics are available and broken down by thematic areas. This is a core hub for the dissemination of publications, including regular newsletters and e-bulletins issued by the GSEHR. However, dissemination may be hindered overall, as there is no section dedicated to gender statistics on Elstat’s website. Nonetheless, most datasets provided by Elstat include a breakdown by sex, and those that do not are available to be sex-disaggregated upon request.

Analyses of gender statistics are regularly published. The Observatory on Gender Equality also conducts the annual survey on gender equality actions taken by the municipalities in Greece.

Monitoring progress

Greece's institutional mechanisms for gender equality and gender mainstreaming stand above the EU average but show a decline compared to 2021.

Explore Greece'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.

Greece: Institutional mechanisms for gender equality and gender mainstreaming

References