Transcript DEVELOPMENT EFFECTIVENESS: THE – CHALLENGE FOR GENDER EQUALITY PROJECT DESIGN ISSUES

DEVELOPMENT EFFECTIVENESS: THE
CHALLENGE FOR GENDER EQUALITY–
PROJECT DESIGN ISSUES
July 7th, 2006
Laeticia Mukurasi
Chief Gender Specialist, ORPC. 3
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Presentation Plan
Part A: Introduction : Definition and Key
Considerations
Part B: Framework For Assessing Gender Equality
Results
Part C: Designing Projects for Results
Part D: The Way Forward
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Part A. The Paris Declaration, Development
Effectiveness and Gender Equality
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Development Effectiveness defined as ‘’enhancement of the development impact
and the achievement and demonstration of measurable results on the ground’’.
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Operationally, it requires moving from activity and disbursement oriented
project/portfolio management to development results management.
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Gender Equality (GE) central to development effectiveness and a major
development goal in CEDAW, MDGs and the Paris Declaration. RMCs have
acceded to it.
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Two of the principles of Paris Declaration have special implications for gender:
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Ownership: men’s, women’s concerns central; and
Managing for Results: gender equality results captured in design of
interventions.
Key Consideration In Gender Equality Results
1) What Have We Achieved So Far?
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Have both genders benefited from economic and human
development and poverty reduction?
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Gender Inequalities continue to exist in every development sector for which data is available
 70% of the poor;
 66% of the illiterate;
 Maternal mortality rates remain very high at 1100 per 100,000. (more than twice as
high in South Asia at 430 per 100 000)
 58% of adults who are sero-positive
 Teenage girls are infected with HIV at a rate of 5 to 6 times greater than their male
counterparts
 Africa is the only region in danger of not achieving most of the MDGs
 14% of the managerial jobs;
 12% of the parliamentary seats;
 10% of the cabinet positions.
Source: Beijing +10 Reports
MDG reports
Some development interventions have formalized and reinforced gender bias in
ways that are detrimental to development.
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Key Consideration In Gender Equality Results:
2) Is there Adequate Appreciation that Gender Equality Is a
Development Issue
Women in Africa are more active in the economic arena than on any other
continent. In SSA, women:
 comprise 60% of informal sector operators
 contribute about 70% of total agricultural labour
 produce 90% of the continent’s food
but under what economic conditions:
 receive less than 10 per cent of the credit to small farmers and
 1% of the total credit to agriculture
(2003) (www.mdgender.net)
Gender inequalities constitute a cost that can hinder economic
growth.
How can women’s contributions be strengthened in order to reduce
poverty and promote economic growth?
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Key Consideration In Gender Equality Results 3)
Women For Development Or Development For Women
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Efficiency:
Focuses more on the development
process and less on women
Purpose is to ensure development is
more efficient and effective through
women’s economic contribution.
Takes women’s time and labour as a
given - without compensation
Does not question costs in terms of
womens’ triple role
Participation should not be equated
with equity for women
Development can only be achieved at
the cost of longer and harder
working days for women
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Empowerment:
Focuses on increasing womens’
capacities and control over the
choices in their lives
Purpose is to increase their self
reliance and self confidence so that
they can become more active players
in society.
Recognizes women’s triple roles and
integrates mitigation measures.
Promotes activities geared to
promote women's collective
mobilization
Promotes activities designed to
overcome institutionalized gender
discrimination.
Enlists the support of men
Key Consideration In Gender Equality Result
4) Project Planning
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Does the Bank have a planning culture that
encompasses a comprehensive and coherent
strategy to achieve gender equality results?
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“Bank projects have benefited women directly as well as
indirectly though in many cases such benefits are incidental
and not explicitly part of the project design” Gender
Mainstreaming In Bank Projects - Evidence from
Reviews of Evaluation Results
Attention to gender issues rated at 59% - gender not
explicitly treated as a design issue during preparation- QEA
REPORT - 2005
Promotion Of Gender Equality At Bank Level
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Gender mainstreaming enshrined in all framework policy
documents; Vision Statement, Strategic Plan and Bank Plan
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Gender Policy - Goal Is to Promote Gender Equality
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Tools for Promoting Gender Equality Results
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GPOA - operationalising Gender Policy
ESAP- assessment of potential negative environmental and social impacts
Gender Profiles – pinpoints areas for follow up
Gender guidelines and tools – participatory process
Training and Capacity Building (needs to be intensified)
The Gender Budget Initiative (quantification of financial contributions to
gender equality)
Operations Manual- not gender sensitive (in existence since 1999)
Part B. Framework for Assessing
Gender Equality Results 1
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Economic power
or opportunities
– Reduced
inequalities
between women
and men in
access to and
control over the
benefits of
development.
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Increased incomes of women,
Increased access to credit and business support services;
More equitable access by women to productivityenhancing inputs and services and Support to female
entrepreneurship;
Changes at programme/sector level.
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Examples of the way in which a project could
contribute to gender equality results:
– Livelihoods and productive assets.
Health: e.g. reduced mortality rates.
Education: increased proportion of girls/women at all
educational levels.
Infrastructure: reduction in drudgery; increase in incomes.
Economic policies: gender-equitable macro-economic policies
(e.g. fiscal policies, trade, budgets).
Poverty reduction strategies: measures directing resources
to women or measures to address the gender-specific
constraints faced by women.
Framework for Assessing Gender
Equality Results 2
Social power or
capabilities –
More equal
participation of
women with men
as decision
makers in
shaping the
sustainable
development of
their societies.
Legal system.
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Public awareness
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Awareness among men and women of laws and
mechanisms protecting women’s rights
Increased participation by men in advocacy and
debate on gender equality
Response to gender-specific rights
violations
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Removal of legal barriers to equality: e.g. land rights,
violence, discrimination in employment
Actors in the legal system more knowledgeable of laws
and able to treat women equitably
Improved provision or functioning of social services
(e.g. shelters) responding to rights violations
Strengthened policy commitments and programs to
respond to gender-specific violations
Framework for Assessing Gender
Equality Results 3
Social power or
capabilities – cont
More equal
participation of
women with men as
decision makers.
Institutional capacity
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Strengthened capacity to do gender analysis in a particular
sector or public organization, knowledge of gender equality
issues.
Strengthened capacity and systems to collect and analyze
data required for gender policies, planning, and programs.
Capacity for public participation
Political power or
agency : Women
and girls more able
to realize their full
human rights.
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Strengthened knowledge or skills (in e.g. advocacy).
Strengthened women’s organizations or networks.
More supportive environment for women’s participation in
public life and decision making in communities .
Household and individual decision-making
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Increase in shared decision making at the household level
on matters such as expenditure, activities, etc.
Part C. Designing Projects for Results
Sample project (2004)
2004 – 36 Appraisal reports (out of 111)
Criteria used:
Loan size
 Sector/activity focus
 Regional representation
 Funding source
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FINDINGS – Encouraging Trends but
Mixed Results
Great variation in quality of integration of gender
issue between:
B ADB and ADF projects (more attention to gender issues in ADF)
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Social Sector Projects (illustrate best gender analysis and design)
 Projects
Agriculture, Infrastructure (more use of generic categories: farmers,
households, incomes, the poor, etc)
 Poverty Reduction Projects (limited gendered analysis of targeted
populations, little focus on gender dimensions of poverty)
 Lines of Credit, Governance and Structural Adjustment Loans (little
gender analysis)
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in the same sectors:
Emerging Best Practice
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Willingness to innovate :
OM not a hindrance: flexibility in
its its use
Holding separate consultations
with women
Sensitization of men to support
women’s empowerment
Inclusion
of
women
in
governance structures
The use of conditionality
Women’s ministries as part of
institutional arrangements
Donor activities on gender
Specification of costs for high
impact gender activities
Training of women in nontraditional skills
Some Best Practice Projects
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Benin: Rural Drinking Water Supply
and Sanitation Programme
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Tanzania: District Agriculture Sector
Investment Project:
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Namibia: Kamanjab-Omakange
Road Project
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Burkina Faso – Feeder Road
Project
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Uganda Farm Income
Enhancement Project
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DRC Education Sector Support
Project
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Mali HIV/AIDS Control project
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Multinational: The African Virtual
University
GENDER PLAN OF ACTION
GENDER SENSITIVE DESIGN CRITERIA
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Log-frame : Gender equality in the statement of
sector goal and objectives including the monitoring
indicators
Application of gender analysis
Gender disaggregated data
Participation
Gender actions/strategy
Costing
Gender expertise
Loan conditions
THE CHALLENGE TO GENDER EQUALITY RESULT-PROJECT
DESIGN
Project Goal, Objectives and Indicators (the Log frame)
Project Goal, Objectives :Explicit
reference to gender equality result in the
goal increases the likelihood that the
project will target both women and men
by using gender sensitive community
mobilization strategies
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60% of Bank projects do not mention
gender equality as a goal or as an
objective;
Log frames carry very limited
verifiable gender indicators
Some indicators are not well
substantiated e.g. 33,000 beneficiaries
or 30 % of beneficiaries;
Solution. The requirement for an
Environmental and Social Impact
Assessment (ESIA) MUST be
mandatory for Social issues including
Gender.
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Important for verification of results
relative to what was planned.
Indicators: This area is weak but
evolving Verifiable indicators in most
health and education projects.
 Increasingly
in
some
agriculture and infrastructure
projects
 Most projects (60%) manage
to capture inputs and activities
but fail to capture benefits and
impacts/results.
Solution: the Bank’s result based
framework needs to be made
more comprehensive
All gender guidelines will contain
sector result indicators
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Application Of Gender Analysis (GA)
GA
is
the
systematic
assessment of the project impact
on women and men respectively.
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GA is increasingly undertaken
in Bank Appraisal reports
but:
 40%
contain adequate
gender analysis
 Impact
reduced
to
generalized
statements
about improved conditions
without a nuanced analysis
of how lives or whose lives
will be improved.
 In some gender analysis is
enclaved in one token
(identical) paragraph
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Normally
descriptive
of
the
conditions of women but do not
analyze gender relations
Projects contain very limited
baseline information; and
Emphasis on FHH, neglect of
women in marital relationships
(hazard).
Solution. The ESIA could greatly
enhance gender analysis.
Gender Disaggregated Data (GDD)
Required in order to provide the situation prior to a development intervention, against which
progress can be assessed or comparisons made – THE RESULT
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This is one of the weakest area in project design across all projects.
Only limited GDD is provided in 40% of Appraisal reports
In many cases, data given in gender neutral terms
Reflects a larger problem at country level (household surveys, census
data)
Solution:
 The use of ESAP has to be strengthened.
 Longer Bank missions with a more robust team to collect data or
 Use of country institutions such as NGOs and research institutes to prepare
background research document on gender issues.
 Sector experts should tap the assistance of the Bank’s statistical department
 Use national statistical yearbooks
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Participatory Approach
Consultation with women: Important for ownership and crucial
to the monitoring and sustainability of projects
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A standard reference (in 90% of projects) mainly mention
consultations with “stakeholders” but their genders remains
unknown.
Evidence of the issues raised by women and women’s
perspective of the project is generally not visible.
In several cases, it is mainly the issues raised by governments or
urban-based NGOs and CSOs concerning gender issues that are
integrated into the document.
Remedial measure would include longer missions that provide sufficient
time in the field to conduct gendered consultations.
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Gender Strategy
Gender strategy: GPOA requires projects to identify actions to
enable women to benefit from development interventions.
Increasingly, some projects are integrating gender related actions, however
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In some cases analysis does not lead to stipulating action
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40% of documents contain gender related actions
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Is more visible in Human Development projects - education and health
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Although improvements are seen is less visible in some Agriculture,
Infrastructure and Structural Adjustment Loans.
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Greater focus on practical needs than strategic interests of women
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Many projects adopt a gender blind approach
Solution: specific reference to the gender identities of who will have
access, ownership and control of development benefits must be made.
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Cost tables.
Paris Declaration expects donor contributions to be measured in terms of activities
and resources
Report on the Gender Budget Initiative: how to quantify contributions to gender
equality
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20% of appraisal documents mention costs related to gender equality
Bank has no system to capture the costs related to gender equality
Generally difficult to quantify the amount of Bank’s resources that are
going to support increased gender equality.
This issue is quite complex and requires further interdepartmental consultation
within the Bank.
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Gender Expertise and Loan Conditions
Having Gender Specialists on missions increases the
potential for addressing gender issues
systematically in the design
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Gender Specialists (GS) have to
struggle to get their inputs integrated
in the documents
Gender equality actions proposed by
GS evaporate in the course of
preparing the project or fail to be
resourced and with serious potential
for implementation.
GS position need to be upgraded
Solution: Task Managers must respect the
input of GS.
requires the existence of a sufficient number
of Gender Specialists in the Bank.
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GPOA: Ensure, where appropriate, that all
actions that are binding describe actions
for gender mainstreaming.
Some (30%) projects demand that certain
conditions be met before the
disbursement of loans e. g. requiring
evidence from the borrower that
women’s ministry of associations are
part of steering and monitoring
committees.
Solution: Use of loan condition must be used
when appropriate
Underlying Reasons: Ambiguity About Gender
Equality
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Resistance to change and fear of change
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Reluctance to tamper with social norms,
religion or cultural traditions
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Denial: gender is not a concern
Generalising on the basis of one or two
experiences
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Tokenism: putting in a small add-on
project or project component with
negligible funding
Lip service: acknowledgement at the
level of rhetoric but failing to take
meaningful action
Commissioning a study: the need to
address the issue will disappear
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Development is about change and
transformation – result means change
RMCs are signatory to the Declarations
and Conventions on Gender including
CEDAW and MDGs
There is empirical evidence on gender
disparities and discriminatory practices
Gender is contextual. Promote the use of
gender sensitive participatory methods
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Shift attention to the results on women
and men
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Build the need for result in the monitoring
framework
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Propose some action on the basis of
what is already known
Part D: Way forward:
Two critical steps
Environmental and Social Assessment
Procedure - ESAP
A tool for
 Examining the projects for potential
beneficial and adverse impacts;
 Assessing the whole range of steps and
procedures that would be required to
prevent, minimize, mitigate and
compensate potential adverse social
impacts
 Recommending measures to improve
environmental and social performance
Social including Gender categorisation will
be MANDATORY similar to
Environment (ESAP Procedures – annex
7)
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Project planning has to contain a coherent
strategy on GER
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Infrastructure - undertake a network
approach to service the economy -who has
access?
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Livestock – use gender analysis to promote
the kinds of livestock over which women
have control- who owns what?
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Education – beyond enrolment to the
impact of gender based violence (GBV) on
education of girls - constraining factors
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Health: Mortality rates ok, but facilities for
gender based violence and pyschological
and mental rehabilitation are also important –
beyond biology
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Irrigation: provide technologies that reduce
women’s work for weeding, harvesting and
food conservation-time poverty
Way forward: Bank Level
Strengthen Accountability For Results
 Insist On High Quality Gender Analysis
 Provide Incentive To Staff: Awards
Enhance Capacities Through Training
 For Bank Staff including Senior Management – must
be mandatory
 For RMC Officials
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Way forward: RMC Level
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Build capacity to conceive gender sensitive policies
and programs at country level
Emphasize gender in country dialogue -RMCs look
at the Bank to provide the lead
Strengthen RMC statistical capability (what gets
measured gets done) and
Support countries efforts to establish gender
sensitive monitoring and evaluation systems
Thank You for Listening
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