Italy

Since 2014, the mandate of several committees and commissions working on gender equality and the advancement of women has expired and been replaced by some new institutional bodies with special gender equality tasks. Generally, however, Italy still lacks the proper infrastructure to enhance gender equality [10]. Gender equality mechanisms are particularly vulnerable to government changes, affecting the continuity and consistency of equality policy. Insufficient human, technical and financial resources are allocated to national mechanisms to effectively coordinate and implement gender equality plans, policies and programmes in all areas and at all levels of government. The accountability of such mechanisms and their interaction with civil society is dependent on government change, given the lack of institutionalised channels for consultation [11].

Government responsibilities

The Italian prime minister is the political authority officially responsible for gender equality and equal opportunity policies. The Ministry for Rights and Equal Opportunities was created in 1996, in line with the UN’s Beijing Platform for Action (BPfA) and EU guidelines on gender mainstreaming. Its functions were established in 1997 (Decree of the Presidency of the Council of Ministers  No. 405 of 28 October 1997 [12]) and modified through subsequent ministerial decrees. Its broad mandate is to represent the Italian position on gender issues at EU level, prepare government gender equality policy and implement the EU Equality Directives, as well as gender mainstreaming. Unfortunately, the Ministry lacks financial autonomy and resources, limiting the implementation of its mandate. Since 2014, the position of Minister for Equal Opportunities in the Cabinet has been held by a state secretary, with simultaneous responsibility for the Presidency of the Council of Ministry, Equal Opportunities and Youth [13].

Italy’s main government gender equality body is the Department for Equal Opportunities (DEO) of the Italian Presidency of the Council of Ministers (since 1996), which has supported the Office of the Minister for Equal Opportunities since 1997. The DEO has a broad mandate to promote and coordinate government actions to support women’s human rights, with a focus on combating violence against women, exploitation and trafficking in human beings since 2015. It also coordinates the adoption of the necessary initiatives for the programming, guidance, coordination and monitoring of the ESI Funds for gender equality policies, and all relations with state, regional and local authorities, as well as with bodies operating in the field of equality and equal opportunities, both in Italy and abroad. The DEO retains the responsibility for topics other than gender equality but does not receive adequate funding [14].

The Equal Opportunities National Committee (EONC) was set up in 1991 and played a central role in respect of the functions required by EU law. This Committee is in charge of formulating a yearly programme to set targets for positive action, monitor their implementation and enforce equality principles. Law No. 125 of 10 April 1991 [15] provides the tasks and functions to eliminate sexually discriminatory behaviours and any barriers that may hinder the equality of women in the workplace, as well as their professional advancement and careers. However, the EONC’s consultative powers on labour policies and the struggle against discrimination were substantially reduced under the reform enacted by Legislative Decree No. 151 of  14 September 2015 [16]. The last Committee’s term ended in 2017 and was renewed only at the end of July 2019.

Independent gender equality body

Law No. 125 defines the profile and competences of the National Equality Counsellor (also referred to as Advisor) at national, regional and provincial level, with a mandate to preside over the conditions under which women are employed in the labour market and to foster and monitor the implementation of principles that support equal treatment of women and men in the workplace. The National Equality Counsellor (previously a member of the EONC) coordinates the Conference of Equality Advisors, which gathers all local Equality Advisors to sustain their actions, disseminate information and facilitate good practice. Equality Advisors also provide assistance to victims of discrimination. Depending on the national or local significance of a discrimination case, the National Counsellor and the Regional Advisors can act directly in the case of collective discrimination. Regional and Provincial Advisors can also represent the individual employee or intervene in an employee-led process, depending on their respective territorial mandate. Unfortunately, the reform of the labour market and associated budget cuts has had a negative impact on the efficacy of the territorial Equality Advisors, who previously safeguarded anti-discriminatory access to rights in the labour market. Government Decree No. 151/2015 refined the mandate of the Equality Advisors and modified the functions and regulations of the National Committee for the Implementation of the Principles of Equality of Treatment and Equality of Opportunity for Male and Female Workers, set up in 1991 in the Ministry of Employment. No further financing is foreseen.

Although intersectionality is included in the Italian legislation (albeit in the extremely simplified form of multiple (double) discrimination), Italy lacks an independent body to protect human rights and combat discrimination, including multiple incidents of discrimination.  Intersection of race with gender, religion and culture is explicitly mentioned in Article 1 of Decree No. 215/2003, which aims to achieve equal treatment by taking into account ‘both the differential impact that similar forms of discrimination can have on women and men and the existence of forms of racism with a cultural and religious character’. The Italian National Office against Racial Discrimination (UNAR) was established in 2003 within the Department for Equal Opportunities (Legislative Decree No. 215 of 9 July 2003) to transpose the Race Equality Directive (2000/43/EC). UNAR’s activities and report do not mention specific gender equality legislation or mechanisms, implying a division of competence with the DEO and a lack of explicit procedures of institutional coordination.

Parliamentary bodies

In 2015, the Parliamentary Intergroup for Women’s Rights was created, chaired by the President of the Chamber and comprising 96 Members of Parliament from every parliamentary group sitting in the Chamber. It disbanded in 2018, following the election and subsequent government change.

Regional structures

Italy is characterised by significant heterogeneity in its regional territories. On the main economic and social indicators, Italy is divided, with the south and the islands on one side and the north and centre on the other [17]. The gender gap indicators (as a gauge of progress towards gender equality [18]) show that a limited number of regions (led by Piedmont and Emilia Romagna) are approximately halfway towards the goal, while a larger group is positioned around the Italian average, at one-third of the way towards the goal. All of the southern regions (except Sardinia) lag considerably behind.

Article 117 of the Italian Constitution states: ‘(…) regional laws shall remove all obstacles which prevent the full equality of men and women in social, cultural and economic life, and shall promote equal access of men and women to elective office.’ The regions can thus legislate on substantive equality and gender equality.

According to Law No. 53/2000, Italian local authorities are responsible for quality of life and have a specific mandate to design positive action plans to reduce gender inequality [19]. Unfortunately, no comparative results are available on methodologies, timing and responsibilities established by local administrations in respect of gender policy initiatives, with the exception of gender budgeting. Based on sex-disaggregated statistics, several Italian municipalities and provinces have developed ‘gender audits’ (gender budget documents) to support the implementation of local and regional gender equality policies. Although Act DL No. 150/2009 requires all public administrations to carry out gender budgets, it has been ignored by most administrations, chiefly because it provided no guidance on methodologies, timing, responsibilities or sanctions [20].

Most regional, provincial and municipal gender equality institutions are similar to those at national level. Many local authorities have appointed a specific political mandate (assessorato) on equal opportunities, while a smaller number have a diversity manager. Most local authorities appointed equality boards or commissions (with primarily consultative powers) to encourage the implementation of gender strategies.

At local level, Equal Opportunities Commissions (CPOs) have been active in each institution of the public sector since 1988 (regional, provincial, municipal administrations, universities, local units of the national health system, etc.). Their performance, however, is extremely uneven. Under Law No. 183/2010, the CPOs were transformed into unified Committees for the Rights of Employees (CUGs), which combine the former Commissions for Gender Equality with the Committees for Protection against ‘Work Bullying’. The CUGs’ areas of concern were extended to discrimination based on gender, age, sexual orientation, race, ethnic origin, disability, religion and language. They provide an effective and comprehensive tool against discrimination in the workplace, covering the areas of economic treatment, career advancement, security and access to work. No notable changes are evident since 2014.

Usually, the territorial network systems include various groups, such as: women’s associations, women’s crisis centres, social and healthcare entities, as well as courthouses, police forces, lawyers, career guidance officers, regional school offices and judicial women’s forums. However, the financial resources available at national level to distribute to the regions and municipalities are generally considered inadequate [21]. In addition to their national allocations, regions, metropolitan cities and municipalities can integrate their budget reports with other financial resources, for example private and European funds [22].

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