"minimum gender criteria" checklists, issue summaries, sectoral guidelines or sample terms of reference have been created to help organizations design and plan gender-sensitive projects. In addition, there are comprehensive, stand-alone "toolkits" such as the GENESYS (1994) Gender
Analysis Toolkit that address all project phases. Typically, such tools help an organization:• Collect gender disaggregated primary and secondary data about time allocation, labor, access to and control over resources Local level data is typically compared with regional
and national level data.
• Identify women's and men's gender based needs and interests and determine how these will be affected by the project.
• Involve potential partners, including local women's NGOs and decide what role they will play in the project. Consultation with gender-aware shareholders promotes inclusion of a
gender perspective and optimizes efficient use of resources (Hamerschlag and Reerink,
1996).
Tools may be integrated into the organization's gender policy or into other
project/program/sector strategies and guidelines. The most effective design and planning tools are usually: tailor-made or adapted to fit local needs, easily accessible, simple to use, and
appropriate for the national/regional/local context. A communication strategy may be needed o popularize each tool and staff should be properly trained to use the tool as intended.Although design and planning tools are useful, by the themselves they are not enough. Staff
must also have a positive attitude towards gender integration. Repeated staff requests for more and different tools may be a sign of resistance. In such cases, revising documents/tools staff are using now can be more effective then designing new ones (Woroniuk et al, 1996).An internal committee that includes gender-responsible staff and specialists during the design phase or immediately prior to approval may screen projects. A rating system can be used as a basis for reviewing project documents, discussing design aspects and making recommendations for change. Projects are rarely vetoed on the grounds of gender equity, but a rating system
creates an opportunity for assessing gender integration early in the process. In order to review all projects in a consistent manner, adequate technical expertise and resources are required (Woroniuketal, 1996).
7.1.1 Assessing project design and planning
• What kinds of gender-disaggregated data are collected from the target group? How does the organization find out about women's and men's roles, time allocation, access to and control over family and community resources, mobility and patterns of participation? Is the data primary/secondary; quantitative/qualitative; collected in a participatory manner?
• Is an assessment of women's and men's needs and interests (including a cost-benefit analysis of the value of women's reproductive work) carried out? By whom? What methodologies are used? Which groups are not consulted?
• How does the organization identify women's and men's interest in project activities, services and outputs? How do you know if women and men have the same priorities? Who prioritizes needs and activities?
• Do programmes/projects have clearly defined GAD goals, including long and short-term objectives and a plan of activities? How is gender mainstreaming integrated into the Results Based Management plan and the Logical Framework?
• What kind(s) of gender inequality do programme/project activities, services and outputs address: welfare (material well -being, workload, division of labor); access (to resources, information, education or training; participation in decision making regarding productive reproduction community or political roles); control (over resources, information and benefits)?
• Do programme/project activities; services and outputs contribute towards broader change in macro-policies or legislation?
• Are there adequate personnel to carry out he gender components and provide gender-sensitive activities, services and outputs? Is staff gender-aware?
• How does the project/programme operationalize GAD policy, goals, objectives ad objectives: Contractual agreements, targets, performance indicators, time paths, reviews, terms of reference, gender training, guidelines, budget line items for gender initiatives, job descriptions, etc.?
• Are programmes/projects screened or reviewed by staff consultants with gender expertise?
What are the criteria for assessment?
7.2 Implementation
The implementation phase is most likely to be gender-sensitive when there has been adequate gender planning, when staff incorporate a gender perspective into their everyday working style and formal work plans, and when staff discuss gender issues with project beneficiaries on an ongoing basis.
Modeling is a powerful tool for learning about gender-sensitive behavior. If staff routinely make efforts to include women in implementation activities, solicit women's views, and demonstrate equal respect for women participants, there is more likely to be a transfer of gender-sensitive behavior. For example, maximizing participation of staff in meetings, encouraging dialogue and
minimizing power differences by asking - not telling, encouraging staff input to process and strategy development.
Gender-sensitive implementation methods can be used to increase gender equity. The techniques, however, need to be conducted in a sensitive manner. For example, gender-sensitive implementation method:
• Is carried out by facilitators who have a sound understanding of the importance of gender analysis. Female and male teams are recommended.
• Is conducted at times and in settings that promote the maximum participation of women.
Small, same sex groups may be needed if women are to say what they really think or feel.
• Uses activities that both women and men feel comfortable with. For instance, women do not always easily understand commercial maps. A guided discussion may be better.
• Allows women and men to analyze problems and data for themselves, rather than imposing the interpretation of the facilitator; highlights gender based differences.
• Ensures that both women and men feel respected and valued by dealing constructively with conflict and enabling non-dominant group members be heard.
These (or similar guidelines) could be used to assess whether or not meetings, planning events or training workshops are equally appropriate for women and men.
7.2.1 Assessing implementation
• Are gender focused activities or initiatives integrated into individual and project work plans? How are individual staff and project teams held accountable for the outcome of gender mainstreaming initiatives?
• How are gender issues addressed in programme/project implementation activities that do not have a specific gender focus (including the design of technical packages, manuals, reports, and training)? Does gender-responsible staff provide input?
• In what ways do planning and implementation activities promote the active participation of women and men beneficiaries: location and timing of activities; flexible organizational and project management structures; sympathetic project personnel;
participatory women-friendly methodologies?
• Do women's or men's project roles challenge traditional power relations? How does the project deal with resistance to women and men in non-traditional roles? For example, has gender training been provided to beneficiaries? Have there been discussions with beneficiaries about women's roles in participatory projects?
• Does staff discuss gender issues with partners? Do they have the knowledge, communication skills, contacts to carry out discussions effectively?
• Does the organization support and encourage staff experimentation and risk taking around GAD activity implementation?
• In what ways do staff model and provide an example of the kind of behaviors they wish to promote at the beneficiary level?
• Is finding for gender equity initiatives sufficient and are mechanisms for fund dispersal appropriate to beneficiary needs?
7.3 Monitoring and Evaluation
Gender-sensitive monitoring and evaluation provides a base for organizational learning about what actually works in practice. Regardless of a project's stated objectives, monitoring and evaluation Terms of Reference should state that the programme/project/task will routinely examine gender outputs or specific gender issues that the organization, its project partners or beneficiaries want to learn more about.
A monitoring and evaluation system is a way of collecting, organizing, and retrieving information about the performance, progress and impact of a project or program. When the system is gender-sensitive, it identifies the extent to which gender goals, objectives and indictors are being met and highlights needed inputs or changes. Unless a deliberate attempt is made to integrate a gender perspective into monitoring and evaluation systems, however, gender issues may remain hidden.
Gender-sensitive monitoring and evaluation systems:
• Are based on gender-sensitive indicators frameworks integrated throughout the Results Based Management System and the Logical Framework.
• Explain how monitoring data for each indicator will be generated; the format data will be presented in; frequency of reporting, destination and use of data.
• Use different venues and for a to discuss and review data for the purposes of
policymaking, programming or management.
• Take place on a regular basis using informal, flexible, adaptable monitoring and evaluation activities.
• Document the full range of experiences of local people including outcomes resulting from unforeseen circumstances (UNDP 2000).
When gender-sensitive indicators are carefully integrated into the Results Based Management System, project gender outputs may be apparent. In many cases, however, organizations incorporate other reporting formats to monitor progress towards gender equity. Some common examples include rating system, questionnaires and narrative reporting frameworks.
Leaving data unprocessed in reports, however, means that the monitoring and evaluation process is little more than an expensive exercise. Monitoring data must be analyzed for their implications for implementation, use in problem solving and adaptation of project activities.
Data needs to be analyzed and reviewed by beneficiaries, by project staff, by management, policy makers and donors. Ideally, this will take place in a forum that provides opportunity for discussion and feedback, questions and clarification. The involvement of women staff and local women beneficiaries in the collection, processing and analysis of monitoring data for gender indicators increases accuracy (Woroniuk et al 1997).
7.3.1 Assessing monitoring and evaluation
• How is gender-based analysis incorporated in the annual and semi-annual planning process?
• Do monitoring and evaluation teams include members who are gender-sensitive and include at least one person with expertise and skill in the area of GAD?
• Do the terms of reference for monitoring and evaluation include an assessment of project impact on individual women and men as well as at the organization level? Does the Management Information System include data about gender issues and concerns?
• What kind of outputs is assessed: participation in decision making; awareness;
leadership; control of assets?
• At what level do women and men participate: beneficiary/management? In what ways does the participation of women and men beneficiaries in project implementation differ?
Which groups of women or men are not involved? Why?
• What kind of indicators are used - qualitative/quantitative;
input/process/output/outcome? Do they measure changes related to gender issues and concerns?
• How and when is gender-disaggregated data collected? Do monitoring and evaluation methodologies accommodate listening to and learning from women and men beneficiaries?
• Are data analyzed? By whom? Does the project give feedback to staff and beneficiaries about the data in an appropriate way?
• How are monitoring and evaluation data used to adapt ongoing or new project initiatives?
7.4 Gender Awareness and Implementation Capacity
In order to "mainstream gender", staff and beneficiaries need to be aware of gender-based differences, able to analyze gender issues and devise appropriate gender-sensitive strategies.
Unless individuals recognize the ways in which personal and professional power relationships perpetuate inequality, however, attitudinal and behavioral change is unlikely to take place.
Murthy (1998) says that gender training can be used to bring about 3 different results:
• Gender-aware institutional change: More gender-sensitive development organizations capable of reflecting upon their objectives, programs and internal practices;
• Empowerment of women staff in the context of their personal lives or in their interactions with community and development organizations;
• Re-definition of the role of men in development organizations, their communities or families.
Training is usually the first activity organizations interested in mainstreaming carry out. Many agencies, however, have invested considerable sources in training with relatively little demonstrable effect. As this manual suggests, other components need to be considered in staff are to put their new knowledge and skills into practice. Before launching ambitious "cure-all"
gender training programmes, organizations should ask;
• Is training the best strategy? Will participants be apply to apply training or are there other organizational roadblocks that need to be tackled first?
• Who should initiate training?
• Who should receive training? What do they need/want to learn?
• What philosophical or educational principles will training be based on?
• How can training maximize participation and promote dialogue?
• What strategies can be used to deliver the training?
• What content should be included? Why?
• How should facilitators deal with resistance? (Murthy, 1993).
As well thought out gender training plan promotes more effective, appropriate use of human and financial resources. Careful consideration needs to be given to the level of knowledge and skill required by different categories of agency staff. Managers, for instance, are more often concerned with internal operational issues and policy-making than programme officers who concentrate on partner/beneficiary concerns and day-to-day project implementation. Project officers may be too busy to write policy document or revise gender analysis tools. Their jobs require quick responses to existing conditions rather than long-term strategic planning.
Beneficiaries also need training. In particular, training that draws out personal experiences and helps them address real life issues. Fearful of a hostile response or reluctant to disturb local culture, gender training for beneficiaries is frequently overlooked. Frischmuth (1998) says that
experience proves that:
• Gender is not a foreign theoretical concept. Every country has an indigenous "women's movement" and even grassroots women and men are becoming aware of gender issues.
• Gender is not the sensitive topic some claim it to be. With the right methods, attitudes and approaches, local people and staff have welcomed discussions about gender issues.
• Gender is not automatically addressed without specific efforts.
Organizations should not underestimate the need for outside, professional gender knowledge and expertise. Specific information, skills and experience are needed to produce high-quality programs. Many organizations provide general introductory training for all staff and call on consultants when additional skills are needed. Some organizations have found that partnership arrangements can have a multiplier effect.
On a long-term basis, however, dependence upon external professionals raises two concerns.
First, staff may be aware, but lack the overall capacity to use frameworks and tools independently. Second, continued reliance upon consultants means that knowledge and experience is developed outside rather than inside the organization where it is most needed.
Training delivery strategies include specific gender training programmes, incorporating a gender perspective in all staff training programmes regardless of subjects as well as conducting seminars and producing publications about gender issues. These three approaches are not mutually exclusive and can be used together. Each strategy has different strengths and weakness depending upon the organizational context (Woroniuk et al, 1996). Effective gender training is tailored to fit participants' personal and professional concerns. Commitment from top management can create openings for new learning to be applied.
7.4.1 Assessing gender awareness and implementation capacity
• What is staff understanding of gender equity and GAD principles? What is staff understanding of participation, cooperation, consultation, and collaboration?
Can staff communicate the GAD policy and the reasons for that policy to wide range of people; beneficiaries, partners, government officials, outside consultants?
To what extent does staff feel their work is gender-sensitive?
To what extent does staff model gender-sensitive, particularly behavior in day-to-day working relationships with other staff and community beneficiaries?
Which staff receives training on gender issues? When? From whom?
What kind of GAD training have been provided in the past; needs based; tailor-made;
attitudinal, skills-focused?
To what extent do staff feel previous GAD training has been appropriate to and sufficient for their needs? What else does staff need to know or to do in order to be more effective in mainstreaming gender concerns?
Is GAD training perceived as part of an ongoing learning process leading to organizational change?
In performance reviews or project planning, what mechanism is used to address identified gaps in staff GAD knowledge, skill or attitude? How are these needs recorded and followed up?
What role does outside gender consultants and trainers play? Who defines their role?
What are the benefits and drawbacks of using outside consultants and trainers in this way?
What opportunities exist to help beneficiaries, partners and outside gender equity organizations to develop positions around specific gender issues and their capacity for action?
8. CONCLUSION
Gender mainstreaming appears quite straightforward in its broadest and most general form.
However, experience has shown that gender mainstreaming is often difficult to implement in specific situations and circumstances. This guideline attempts to provide assistance to ECA staff at most levels and areas of work in creating greater understanding and application of the gender mainstreaming approach; its practical implications; in identifying entry points; and major issues of gender concerns in each of those areas of work.
Experience has shown that in ECA, as elsewhere gender mainstreaming cannot be achieved without explicit institutional commitment to the strategy and systematic effort to implement it.
This requires integration of gender perspectives in all sectors and issues covered by the work programme of the UN as well identification of entry points in the many variety of activities taken within ECA.
The Beijing Platform for Action made it clear that the critical starting point for gender analysis is gender mainstreaming. Analysis of gender perspectives should be an integral part of all analyses undertaken, and should also be undertaken as a separate analysis, if necessary. Such analysis is not something that should be done by gender experts or specialists but should be an essential element of the professional of the United Nations staff. Strategies to develop adequate institutional capacity for gender analysis and gender mainstreaming should include competence development programmes as well as the development of guidelines and good practice examples.
However, gender analysis alone will not achieve gender mainstreaming within the Commission.
The commitment of senior management and the establishment of effective accountability mechanisms is a critical element in successful gender mainstreaming. Development of training programmes, guidelines and other materials may be of little use if there is no explicit policy commitment to gender equality and to the gender mainstreaming strategy. Thus, the commitment of senior staff at the Commission, especially the programme managers, who are also the gender focal points - is crucial. Also, lessons need to be shared more broadly and utilized to make the required changes, particularly at policy and institutional levels, and the remaining challenges to gender mainstreaming need to be identified and addressed.
In summary, the gender mainstreaming practice has the following true characteristics:
mainstreaming is a process, rather than a goal. It is a process undertaken to achieve gender equality. It is not an end in itself; mainstreaming is not concerned with simply increasing women's participation, rather it is concerned with the terms of their participation; a commitment to mainstreaming does not preclude a focus on women - rather continuing to support women's
mainstreaming is a process, rather than a goal. It is a process undertaken to achieve gender equality. It is not an end in itself; mainstreaming is not concerned with simply increasing women's participation, rather it is concerned with the terms of their participation; a commitment to mainstreaming does not preclude a focus on women - rather continuing to support women's