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| GLOBAL GENDER PROGRAMME |
| TITLE: | Global Umbrella Programme for Gender Equality and the Advancement of Women |
| STARTING DATE: | 15 October 1997 |
| DURATION: | 39 months |
| UNDP CLASSIFICATION: | Gender Mainstreaming and the Advancement of Women |
| EXECUTING AGENCY: | United Nations Office for Project Services UNOPS |
| COOPERATING AGENCIES AND PARTNERS: | DAW, UNIFEM, JCGP, donors, IDRC, NGO's |
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[IF YOU WOULD LIKE A FULL PRINT COPY OF THE GLOBAL GENDER PROGRAMME DOCUMENT (APPENDICES ARE NOT INCLUDED HERE), PLEASE CONTACT gidp@undp.org ] IMMEDIATE OBJECTIVES, OUTPUTS AND ACTIVITIES OF THE SUB-PROGRAMMES PROGRAMME IMPLEMENTATION STRATEGIES Policy and Analytic Frameworks for Gender
Equality. Research initiatives to develop conceptual and analytical
frameworks for gender equality, focusing particularly on poverty eradication. The goal of this Global Gender Programme (GGP) is to promote and facilitate enhanced Sustainable Human Development (SHD) outcomes with development partners through the application of gender equality concepts, policy frameworks and empowerment measures and methodologies. The GGP will advance the understanding and practical applications of gender mainstreaming methodologies, tools and practices. It links the issues of equality of capabilities with equality of opportunities. It promotes multidisciplinary linkages within the SHD framework. It places emphasis on learning, the sharing of experiences and best practices, and efforts to build competencies. It will foster the identification of expertise on state-of-the art knowledge and practices that are relevant to the respective SHD areas of focus. The GGP will support the gender stakeholder constituency through collaboration at the global, regional and national levels. It will encourage collaboration with development cooperation agencies (within the UN system and with bilaterals) as well as NGOs and inter-governmental institutions. It will mobilise extra-budgetary resources from development partners. The vital modus operandi of this programme include partnership building, inter-agency collaboration and cooperation, coupled with a concerted effort to pool resources and expertise. The expected outcomes include: enhanced institutional capacities (at all levels) for gender-responsive policy formulation, policy analysis, programme design, implementation and monitoring; heightened awareness and understanding of the conceptual linkages between gender and SHD-specific themes (in particular poverty and sustainable livelihoods, environment and governance); the establishment of a broader-based gender analytical constituency within UNDP, its UN system partners, and its partners in both the public and private sectors; formation of a global network of gender experts to assist with gender policy, advocacy and advice in the context of SHD themes; improved capacities for gender analyses; and clearly defined programmatic methodologies for gender mainstreaming. This programme is developed from the perspective of the strategic interweaving of four distinct, but related, contexts: 1. Global conferences: A series of global conferences in the 1990's confirmed the primary responsibilities of governments to place priority on people-centred development. Both the World Summit on Social Development (WSSD) and the Fourth World Conference on Women (FWCW) stressed the need for empowerment of people, particularly to redress the disadvantaged positions of women in all societies. An increasing understanding of the economic, political, social, cultural and legal forces behind gender inequality have mobilised thinking about, and action on, the (often alternative) structures and processes which can create an enabling environment for the advancement of women. These forces constitute the critical areas of concern identified in the FWCW's Platform for Action (PFA). A critical outcome of both the Social Summit and the FWCW is the global commitment to gender equity and equality as an essential basis for sustainable development. The Beijing Declaration of the PFA states that "the eradication of poverty based on sustainable economic growth, social development, environment protection and social justice requires the involvement of women in economic and social development, equal opportunities and the full and equal participation of women and men as agents and beneficiaries of people-centred sustainable development." To reach this objective, the Declaration states," it is essential to design, implement and monitor, with the full participation of women, effective, efficient and mutually reinforcing gender-sensitive development policies and programmes at all levels that will foster the empowerment and advancement of women." 2. UNDP-sponsored Human Development Reports: Over the past seven years, but particularly in the 1995 report, the Human Development Reports (HDRs) have highlighted gender disparities - documenting that in no country are women offered the same opportunities as men. The HDRs have shown that despite considerable progress over the past several decades in narrowing gender gaps in sectors such as education and health, the position of women relative to men is characterised by sharp inequalities and disparities in access, to and control over, resources and in the ability to exercise choices in all aspects of life. 3. UNDP's SHD mandate: The UNDP mandate, as determined by its Executive Board, is to promote SHD, focusing on the priority areas of poverty eradication, employment creation, environmental protection and regeneration, governance and the advancement of women. Gender is recognised as a crosscutting concern, and therefore of significant relevance to each of these thematic areas of concentration. With its multidisciplinary development focus, UNDP is favourably situated to tackle the gender equality issue from two vantage points: specifying the twin goals of gender equality and the advancement of women as a priority SHD focus area, with its own separate programmes and budgets; and using these goals as an integrating entry point in other SHD priority areas. The two-pronged approach is considered to be the best strategy for pursuing the broad equity and equality outcomes. 4. UNDP's institutional context: UNDP is challenged to build upon the strong global mandates, and to incorporate gender-responsive policy analyses, programme design, formulation and implementation, and monitoring and evaluation processes systematically into its development cooperation. A complementary challenge is the need for UNDP to establish and implement appropriate policies, accountability and reward systems that place requisite emphasis on gender mainstreaming and increased gender equality for its staff. This challenge creates a need for policies and strategies with transformative potential. The ongoing Change Management process in UNDP (UNDP 2001) presents a unique opportunity for such organisational change to occur. It offers the potential for UNDP to institute and consolidate such change. An important prerequisite is that the gender equality goal should be seen as an integral part of this change process, and should not be limited only to the programmatic spheres of UNDP's work. As noted in a recent report on gender in the Change Management process, "existing experience, guidelines and commitments regarding gender equality and gender mainstreaming are directly relevant to UNDP 2001, and should be among the principles explicitly informing its implementation." Each of these four contexts is compelling on its own. Each of them may suffer from some limitations. For example, the global conferences may not capture every single regional emphasis on specific issues, primarily because they are consensus agreements. However, the goals and strategies set at the global conferences were developed with unprecedented NGO participation. More important, they reflect what governments have committed themselves to undertake (with the support and partnership of NGOs and UN institutions) to promote gender equality. Therefore, in order for UNDP to ensure that relevant issues requiring attention are highlighted and addressed at the appropriate levels, it is incumbent on it to discharge its responsibilities in ways that will: support its partners; work on these gender issues at all levels within its institutional frameworks of global, regional and country programmes; and build on work in which it has invested considerable resources in the past to promote the policy agenda on gender equality. The overall framework for this GGP is to promote the purposeful interlinking of these four contexts. Placing the GGP squarely within these contexts will ensure that UNDP's gender equality policies are implemented in a manner that will contribute to transforming both UNDP and its partners into more gender-responsive institutions and societies. Prior and Ongoing Assistance An analysis of the results and impact of the WID/SPR allocation (1992-96) highlights many significant findings: while many projects met the capacity building criteria for women-in-development programming, there were few programmes that focused on mainstreaming gender into all UNDP programmes; most projects adopted a WID approach, rather than a gender and development (GAD) approach; there was limited guidance on gender mainstreaming tools and methodologies; benchmarks for success were often vague; and information flows were inadequate. Moreover, there were many small projects with inadequately defined outputs, vague reporting and monitoring procedures. With regard to UNDP core resources, a recent assessment of a sample of over 400 projects approved in 1994 and 1995 found that "By and large in the cases under review, 'gender' was superficially added to the project background to pass the screening process, but rarely integrated into the operational assumptions of the respective development sectors, and attempting a gender-focused SHD... There is a wide gap between goals and objectives set and the spelling out of strategies for implementation, staffing, budgeting of output activities, anticipating impacts at the household, community regional or national levels." Over the last two years, UNDP has initiated efforts to address these concerns. One example is the UNDP Administrator's recent Direct Line 11 on Gender Equality and the Advancement of Women. This documented some of the steps that are being taken at UNDP HQ and presented a five-point challenge to Country Offices to strengthen and enforce UNDP commitment to the advancement of women. A GIDP analysis of the fifty-five Country Office responses to this Direct Line indicates that it has had a catalytic effect on encouraging assessments of gender issues in programmes, and in encouraging greater dialogue with government on gender issues in the macro policy framework. The Direct Line has also yielded significant information on gender mainstreaming challenges and issues. According to the analysis, UNDP programmes at the country level face two main challenges: The need for methodologies for quantifying and monitoring the impact of resource allocations to gender issues in programmes; and The need to identify appropriate entry points for gender policy and analyses within the country's macro policy and socio-political frameworks. A second example is the work of Gender-in-Development Programme (GIDP). In its efforts to address gender concerns and to foster a deeper understanding of County Offices' needs and opportunities, GIDP has actively promoted a gender mainstreaming strategy within UNDP. This approach recognises that all development initiatives are gendered and that they impact men and women differently. It is therefore the responsibility of UNDP to understand the gender characteristics of development work; to elaborate on its implications for policy and programming; to demonstrate through the programmes and policies it supports, alternative and innovative measures for mainstreaming gender; and to strive toward gender balance in both programming and institutional change processes. This focus does not imply that women-specific projects will be "mainstreamed out of existence." Rather, they will be designed and implemented with a full understanding of the desired gender equality outcomes. In this context, GIDP (working in close consultation with Regional Bureaux and Country Offices), has undertaken baseline analyses in about 20 "Countries of Experimentation" (COEs). Initiated in 1996, the specific objectives of these situation analyses were to: Critically assess efforts at mainstreaming gender issues in the selected programme countries; Document gender mainstreaming policies and experiences at the country level; Understand the methodological frameworks for gender mainstreaming; Examine the rationale, as understood by senior management and other officers in the Country Office; Identify and fill gaps; Assess strengths and weaknesses; and Identify ways to build on the strengths of existing mainstreaming efforts. The findings and lessons from these COE situation analyses were discussed at a Consultation held at UNDP headquarters in March 1997. It was attended by senior management, a group of Resident Coordinators, UNDP Gender Focal Points (GFPs), UN system agencies and several donor agencies. The discussions at this Consultation contributed to the development and adoption by UNDP senior management of a Guidance Note on Gender Mainstreaming. This Guidance Note forms the basis for leadership and responsibilities on gender equality and the advancement of women throughout the organisation. It highlights responsibilities on gender mainstreaming, beginning with the responsibilities of senior management. It also provides guidance on the programming and management dimensions of gender mainstreaming. The Guidance Note reinforces the consensus between senior management and UNDP staff that the mainstreaming of gender equality goals: is part of the reorientation of methods to ensure holistic approaches to the empowerment and well-being of people; is part of the process of change in UNDP; is not an end in itself but a strategy for bringing about gender equality and change in countries as well as within UNDP; has policy, programme, human resource management, financial and administrative dimensions; and is mandated by the Platform for Action. The Guidance Note goes on to state that UNDP must work with governments in order to take these commitments forward into policy and implementation. It lists the following mix of skills and competencies that are necessary for effective mainstreaming of gender equality considerations: Analytic capacity; Baseline understanding of socio-economic issues; Networking ability; negotiation skills; Management of change skills; Special thematic gender expertise; and Knowledge of sources of gender expertise at the global, regional and country levels. PROGRAMME JUSTIFICATION Problem to be addressed: The Present Situation UNDP's SHD policy embodies the essential components of equity, empowerment and sustainability. It represents a substantial paradigm shift from the traditional development approaches. This shift recognises gender equality, equity of outcomes and opportunities for all people. Inequality between women and men intersects other forms of discrimination, such as those based on class, race, caste and ethnicity. The pursuit of gender equality is therefore a powerful catalyst to transform relations of inequality and power in all aspects of life. The policy transition from WID to GAD is an attempt to refocus the discussion on gender relations and equity in these relations. Nevertheless, programming responses, for the most part, continue to be specially-tailored projects targeted at women. A focus on women and men alone, can in some circumstances be effective, especially to redress existing imbalances. However, such women-focused approaches may be piecemeal responses to deeply rooted structural problems. They may not tackle the socio-economic and political foundations and structures of society that lead to often different and unequal outcomes based on sex. Therefore, any assistance that targets only one sex group must be based upon gender analysis that supports and documents the necessity for such a focus. For development to be effective, it must understand and respond to gender-based differences and power relations. It must develop and apply policies and tools to integrate gender into all mainstream programmes. This reorientation in the conceptual approach and the targeted focus on gender have brought "gender mainstreaming" to the fore. This approach, with its strong emphasis on gender analysis, presents opportunities to deepen the understanding of the structural origins of gender inequalities. Through such understanding, programmes can be effectively anchored on these structural origins of power relations in ways that eliminate their negative effects. It also presents opportunities for the strategic integration of social analyses into policy formulation and implementation so that effective corrective actions can be adopted. This new approach poses a number of challenges. For the purpose of this GGP, the following five challenges are highlighted: 1. Gender in the macro policy framework - conceptual issues and applied research: There now exists a body of gender analytic research that can be applied to assist in integrating gender analyses into sector-specific programmes and projects. These analyses have shaped the recommendations of the global UN conferences with regard to the SHD goals of equity and equality. However, there remain many important analytical and methodological gaps. These gaps include details on how to apply these concepts in the macro policy framework, and policy guidance for the allocation of public resources (as well as the tracking of resource use) to support gender equality goals. A few examples of questions that need to be answered include:
The policy analyses and dialogues on these questions are taking place in various fora and institutions and at different levels of sophistication. Additional efforts to conduct state-of-the-art reviews and to draw on these to inform policy elaboration need to be supported. Through its programming interventions, UNDP can assist in pooling together the substantive and technical expertise that exists on a global basis for the benefit of its development partners. In particular, with an appropriate focus on documenting developments in this field, and promoting the systematic application of emerging theories and concepts, UNDP's support can help to generate a body of knowledge to fill these gaps. 2. The meaning of gender mainstreaming in the programming context: To many development practitioners (including within UNDP) gender mainstreaming remains a rather vague concept. It is accepted in principle and acknowledged in policy statements. However, this acknowledgement presupposes an understanding of its links to emerging paradigms and gender concepts, its institutional scope and its practical applications. It also presupposes the existence of technical skills among UNDP staff and the staff of its partners necessary for its implementation. Neither of these conditions exists on any satisfactory level. There are many uncertainties and confusion regarding the contributions and impacts of gender mainstreaming, either at the macro level at which policies and programmes are developed, or at the micro levels at which they are implemented. While the explanations of how gender mainstreaming relates to overcoming gender bias within development institutions (especially within UNDP) have been regularly articulated, the conceptual links to all programming areas are not so clear. As noted in a recent review of the UNDP gender mainstreaming approach "......the approach nonetheless leaves underdeveloped, the conceptual and practical tools needed to foster change in other institutional contexts (households, markets, states and community). As Country Offices begin to prioritise their gender mainstreaming goals, this realisation is manifesting itself, particularly in the increasing numbers of requests for operational guidance on gender mainstreaming. It is incumbent on GIDP, through this GGP, to support interventions that will respond to this important challenge. 3. Disaggregated statistical data and indicators: There is a need for disaggregated statistical data on human development and socio-economic indicators. Particularly for the purpose of policy setting, more data and different sets of indicators of well-being and positive development outcomes are required. Information about emerging methodologies for generating or interpreting data is often not available. A good example is the state of knowledge regarding the proper measurement and evaluation of women's non-waged work, and how these can be incorporated into the reformulation and rethinking of macroeconomic policies. A few examples of questions that should be explored include: What are the social forces that lead to poverty and how are they related to, or different from, those that lead to gender inequalities? What are the indicators for women's empowerment? What methodologies exist, or can be designed, to facilitate the development and measurement of additional indicators? 4. Institutional and analytical competencies: Over the last few years, in particular following the global conferences, an increasing number of national and international organisations have acknowledged the pivotal role of women in their development policies. Over a longer period governments have attempted to create and harmonise institutional mechanisms for improved management and implementation of gender-based activities within the overall government administrative framework. In acknowledging this significance of gender and gender differentials governments and development institutions are increasingly stressing social and gender analyses. However, there are very few institutions globally (including UNDP) which have the requisite mix of capacities and competencies to enable them to respond adequately to the magnitude of the task. As noted in the Beijing Platform for Action, these capacity gaps emanate from a combination of factors, most notable of which are "unclear mandates, lack of adequate staff, training, data and sufficient resources, and insufficient support from national political leadership." Even where institutions have clear mandates (as in the case of UNDP) significant institutional and human competency gaps exist. For example, capacities are required to, collect and aggregate data on the basis of sex, analyse such data, design and implement research methodologies, and enunciate the issues in such a way as to guide both the formulation of policies and strategies. Such skills are particularly relevant in many areas of UNDP's work at the national level, e.g., the development of National Human Development Reports, the preparation of poverty assessments and the formulation of poverty elimination strategies with strong gender components. 5. Methodologies and approaches: After decades of analyses and review, a considerable body of conceptual work on WID/GAD issues has evolved. Broad perspectives on gender in the SHD paradigm have been acknowledged as paramount goals of development. However, conventional development models and approaches still suffer from gender insensitivity or gender bias. Attempts that have been made so far to infuse development practice with gender analyses and planning are not comprehensive. Neither have they been effective in building the gender dimension effectively into specific SHD themes, e.g., environment, governance. One reason is the lack of readily available methodologies, checklists and guidelines. Most of what currently exists is still WID based. The five constraints listed above highlight the need for increased capacity on gender mainstreaming at all levels. An examination of the partial experiences and lessons from GIDP's prior and ongoing assistance through the COE situation analyses indicate that a commitment to gender equality within the SHD framework requires distinct strategies for gender-specific human development analyses. These analyses must be consistent with the Beijing Conference PFA and the regional and national priorities established for its implementation. This GGP spells out a strategy to begin to respond to these challenges. It emphasises specifically, efforts to build competencies( particularly in the programme countries) for, and commitments to, filling gaps at all levels. These efforts would require programming interventions that highlight the following approaches: Greater understanding of what constitutes an enabling environment for gender equality both at the macro policy level as well as within specific programming interventions; Application of gender equality concepts, methodologies, tools; More effective policy and programming linkages to macro-economic analyses, poverty eradication and sustainable livelihoods, environment management and governance; Decisions that are based on, and derived from, thorough gender analyses; More effective policy and programming linkages between the national, regional and global programmes, the various BPPS units and the Regional Bureaux; and Increased emphasis on inter-agency cooperation, collaboration and partnerships as the process and the preferred way of work on all of these issues. Each of these approaches represents an issue of broader global significance in the potential impact that it is likely to have on overall development policy and its outcomes. Each is also an issue of immediate concern to UNDP's efficiency as an institution whose goal is to assist programme countries in pursuing their sustainable human development goals. Further, the process by which this programme is implemented is as critical as its outcome. Therefore, a definitive link needs to be made between institutional issues within UNDP and the programmatic aspects. It is for this purpose that this programme highlights capacity development, both for the training of counterpart staff of its development partners, as well as for UNDP staff. Implementing each of these approaches will require the corporate-wide articulation of the commitment to gender equality (as has been done). It will also require articulation and active implementation of this commitment in the ongoing Change Management Process, particularly in the three defining characteristics of the new UNDP (Country Focus, Effectiveness and Impact, and Efficiency, Accountability and Good Management). Finally, it will require concerted effort on the part of GIDP (working in partnership with all UNDP offices and Regional Bureaux) to: Identify and broker external expertise; Facilitate an interactive research and learning network that will identify, disseminate and exchange information on experiences and best practices; and Access knowledge and expertise for their practical integration into UNDP's gender mainstreaming efforts. Expected End of Programme Situation This global programme will be catalytic, using the allocated resources to leverage financial and technical resources to assist the RBx and Country Offices in strengthening their programmes. This will be done through efforts to demonstrate measurable gender-sensitive outcomes and development impact. At the end of the programme, UNDP will have identified from existing sources, a set of products and services and methodologies. The GGP's flagship products and services include: identifying (through development or facilitating wider access by policy makers, civil society and researchers to existing sources) the necessary tools, guidelines and operational strategies for gender mainstreaming; and programmes for the effective integration of gender into sustainable development policy. The following specific outcomes are anticipated: 1. Improved and expanded indicators to establish and measure gender equality goals. 2. Enhanced institutional capacities within UNDP and with its partners for gender-responsive and gender-sensitive policy formulation, policy analyses, programme design, and their implementation and monitoring. 3. More sharply defined conceptual bases for gender mainstreaming in all aspects of UNDP's work at all levels. 4. Heightened awareness, improved understanding and the practical application of the conceptual linkages between gender and SHD-specific themes (e.g., poverty and sustainable livelihoods, environment, governance). 5. Demonstration projects which advance the practical application of gender mainstreaming concepts, methodologies and budgetary commitments, and promote SHD links. 6. Wider documentation and dissemination of existing advances in gender analysis and programming tools, best practices and lessons in gender mainstreaming through various media, publications, guidelines and electronic networking. 7. Documenting existing gender information resources, gender web sites and communication and distribution systems 8. Stronger, broader based global and regional networks of gender experts to assist with gender policy advocacy and advice, especially in the context of SHD themes. 9. Increased support to Resident Coordinators and UN system coordination for country level follow-up actions to the global conferences, particularly those that support the empowerment of women.
Stakeholders and Beneficiaries This Global Programme will reach out to a large number of partners and stakeholders, including: Policy makers and development practitioners; Regional Programme partners (including the soon-to-be established Sub-Regional Resource Facilities - for complementarity and thematic links to the respective regional priorities for gender mainstreaming and the advancement of women; Gender Focal Points, Regional Gender Advisors, and UNV gender specialists - for capacity building and the practical application of gender mainstreaming; Partnerships for intra global programme SHD links (e.g., with SEPED, SEED, MDGD, PSDP, etc.) and the Human Development Report Office; UNIFEM - for joint initiatives to support the economic and political empowerment of women, to strengthen the Resident Coordinator system for FWCW follow-up, and to take advantage of the Regional Gender Expertise provided through UNIFEM's Regional Programme Advisors; Regional and subregional inter-governmental organisations - for capacity identification and utilisation of relevant experience; NGOs and civil society organisations - for improved advocacy, civil society mobilisation and improved dialogue with governmental partners; JCGP - for ongoing work on common country assessments and gender analysis; collaboration on training modules and guidelines DAW - for collaboration and support relating to networking on national level follow-up to the FWCW; Development cooperation agencies, multilateral and bilateral partners - for collaborative capacity building initiatives and joint programming support relating for regional initiatives; OECD/DAC/WID - for policy and advocacy on gender mainstreaming; and Research institutions and centres of excellence - for the practical applications of research findings, learning, information sharing. Each group of stakeholder/beneficiary is an effective conduit for the replication of best practices and lessons and for sharing information. Furthermore, each is an important partner because of the mutually reinforcing impact of their interventions on achieving the overall development objective of this programme. DEVELOPMENT OBJECTIVE The overall aim of this GGP is to expand and strengthen a global development constituency to promote, demonstrate, and share knowledge on gender equality goals and outcomes. Its vision is to contribute to informing and guiding the global debate on human-centred development so that the goals of gender equality and the empowerment of individuals and societies are at the centre of all policies and interventions. The specific objectives are: 1. To build competencies on the conceptual underpinnings and operational implications of gender policy within the macro policy framework, and to strengthen national capacities for gender policy and gender analyses across SHD themes. 2. To document and disseminate best practices on gender mainstreaming, access knowledge and promote communication and information sharing on these issues. 3. To promote follow-up and implementation of the PFA through the strengthening of global partnerships for the political and economic empowerment of women.
IMMEDIATE OBJECTIVES, OUTPUTS AND ACTIVITIES
Objectives and Summary of the Sub-Programmes The immediate objectives of the GGP are to build on ongoing work in this area, synthesise lessons and experiences for incorporation into UNDP programming and share these lessons with its development partners. The GGP is divided into three main sub-programmes:
In large part, the selection of these three sub-programmes has been guided by the following main findings of the COE situation analyses and the analyses of the responses to the Administrator's Direct Line 11 on Gender Equality and the Advancement of Women: A high level commitment by senior management to gender issues is essential to effective gender mainstreaming in Programme Countries. Where this exists, there are mechanisms in place to incorporate gender into programming and decision making processes. Most UNDP staff lack understanding of gender mainstreaming concepts and approaches; There is a critical need to provide training on gender in different sectoral settings at all levels of UNDP, including at senior management levels; More critical data are required to provide the empirical basis for integrating macroeconomic issues and there are inadequate linkages between micro-meso-macro economic frameworks on gender issues. Existing databases and information sets are uneven in scope, coverage and quality; where data are produced, they are underutilised, insufficiently analysed, and not widely disseminated; The main gender policy and planning themes in the programmes of UNDP Country Offices include: policy frameworks and institutional capacity for gender equality; economic empowerment of women; supporting the creation of an enabling environment for gender equality; and promoting women's social and political empowerment. Country Offices have four major gender mainstreaming concerns:
Table 1 below provides an overview description of the substantive areas of focus, the distribution of programme resources among the three sub-programmes, the principal partners and the financial links to other regional and global programmes. It also shows the main areas of concentration for each sub-programme.
Table 1
IMMEDIATE OBJECTIVES, AND DESCRIPTIONS OF THE THREE SUB-PROGRAMMES Sub-Programme One: Policy And Analytic Frameworks For Gender Equality Objectives: Build competencies on the conceptual underpinnings and operational implications of gender policy in the context of SHD; and strengthen capacities for gender policy and gender analyses. Context: UNDP's SHD approach recognises gender equality as a fundamental goal. Since men and women are inescapably linked to each other and their societies through relationships, attitudes, roles and responsibilities that are based on gender, these interrelationships must be analysed in order to come up with development interventions that address the roots of gender-based inequality in all societies. It is through such understanding that the concerns of men and women can be effectively included in policy formulation and analysis, and in programme design, implementation and monitoring. Entry points: Three main entry points will be targeted for the delineation and integration of gender analytic issues: National Human Development Reports; national poverty elimination plans and strategies; and macro-economic policy frameworks. In pursuing these entry points, efforts will made to provide incentives (such as guidelines and tools) which the country office Gender Focal Points can use as a member of the national team engaging in dialogue with counterpart staff in preparing NHDRs. This sub programme will support efforts for the disaggregation of economic and social data for use in macro planning processes. It will include work on the identification and application of gender equality concepts, statistical analyses, indicators, methodologies and tools to inform socio-economic policy formulation and analyses. It will emphasise applied research on macro policy issues, for example methodologies for valuing women's non-waged work and their policy implications. Programme Areas of Concentration: #1. Policy and analytic frameworks for gender equality. #2. Capacity development for gender analysis. #3. Gender and thematic SHD links: Programme development by BDP units, poverty and sustainable livelihoods, Civil Society, Environment and Governance, in consultation with GIDP.
Sub-Programme Two: Gender Mainstreaming Demonstration, Communications And Learning
Objectives: To facilitate gender mainstreaming know-how (on pilot and demonstration bases); to document the practical application of gender mainstreaming concepts, methodologies, tools and institutional practices; to demonstrate the enhanced sustainable human development outcomes of their systematic application; to improve the flow of gender information throughout the UN system; and to establish communications and learning networks of UNDP gender focal points and partners working on gender issues, especially those in developing countries. Context:Gender mainstreaming is a process that is designed to institutionalise a gender perspective in all aspects of UNDP's work, from the conceptualization phase of programmes through the design, implementation and monitoring phases. For each stage, there is a need for guidelines to assist with the assessment of the effectiveness with which gender issues have been considered, evaluated and incorporated. Equally important is the need to evaluate the likely impact and success of such integration. Entry points: Two main entry points are envisaged: overall programming and operational settings; and training and learning situations. Communications, networking and information sharing are vital to each of these entry points. In selecting activities, preference will be given to projects that focus on innovative multi-disciplinary approaches in their design, implementation and monitoring. Learning, Consultation and Briefings (LCB's) will take place in each region to focus on the sharing of knowledge, experiences and best practices. The needs of Gender Focal Points for technical, analytical and process skills will be specifically targeted. Lessons learned and experiences gained will be shared through the communications and learning networks to be established in each region. Broad conceptual issues, such as the definition of gender mainstreaming, will be addressed. Learning through implementation of guidelines and methodologies will be stressed. Institutions from the South will be tapped for their region- or country-specific experience and knowledge. Particular emphasis will be placed on sharing this expertise among themselves in a TCDC approach. Programme Areas of Concentration: #1. Capacity building for gender mainstreaming. #2. Information products/services for gender mainstreaming. #3. Communications, networking, outreach and learning systems. Sub-Programme Three: Global Partnerships For The Empowerment Of Women In Decision Making
Objectives: Build constituencies to facilitate women's access to decision making and leadership positions in the political and economic spheres. Context: All major UN Conferences have stressed the empowerment of women in decision-making arenas as necessary for sustainable development. The Human Development Reports of 1995 and 1996 emphasised that while gender gaps in basic human capabilities have been halved over the last two decades women still lack access to economic and political decision making power. The empowerment of women is a major concern in all spheres, ranging from participation in grassroots community settings to participation in the macroeconomic policy arena (including important areas such as budget priority setting). The conditions that will facilitate a shift in women's access to these positions and roles need to be delineated and enforced. Not enough is known about the components of the enabling environment that will facilitate this shift. Not enough analyses have been conducted on the impact and/or role of affirmative action policies on this shift. The differences in strategies to meet the goals of economic and political empowerment have not been adequately tested. Although the preparations for the FWCW provided the basis for wider policy dialogues on these issues, more work is required to define policy interventions that will result in elevating a critical mass of women to these leadership roles. Another important strategy involves supporting efforts to encourage regular dialogues and interactions with NGOs, particularly women's groups. Entry points: This Sub-Programme will target two key entry points; support to UN Resident Coordinator system for a strengthened UN system-wide coordinated response to the implementation of the PFA; and promoting a greater understanding of the enabling policy environment that is conducive to women's political and economic empowerment. Programme Areas of Concentration: #1. Coordinated follow-up of the FWCW outcomes through support to the Resident Coordinator System. #2. Advancement of women in governance and leadership positions. #3. Women's entrepreneurship promotion. #4. Violence against women.
Sub-Programme Four: Promoting Global/Regional Synergies For Gender Equality And The Advancement Of Women
UNDP has made a commitment to allocate at least 20% of Regional Programme resources to gender equality and the advancement of women. Each Regional Bureau, in consultation with its development partners, and with GIDP and the substantive units of the BDP, has established priorities for the allocation of these resources. The substantive areas of focus are reflected in Table 2. While the primary responsibility for regional initiatives rests with the respective Regional bureau, regional initiatives inform global policy for the advance of women, in particular with regard to advocacy, experiences and lessons learned. The GIDP will contribute to the support, substantively and financially, of selected priority regional gender programme initiatives. The selected priority areas for this support will be determined in consultation between the Regional Bureaux Directors, the Gender Focal Points and GIDP. The global funding contribution for this sub-programme will be managed and monitored by the Regional Bureau Gender Focal points for their respective allocations.
Guiding Principles for the Selection of Sub-Programme Objectives, Outputs and Activities The outputs and activities have been targeted on the basis of their potential catalytic or definitive effect on the Country Office conditions, challenges and needs. Their ability to further strengthen UNDP's capacity to assist countries in mainstreaming gender has also been an important consideration. In addition to meeting the global programme criteria (see section F below), other important guiding principles behind each output and activity include:
HUMAN AND FINANCIAL RESOURCE LINKAGES Thematic and Funding Linkages The activities in this GGP cut across many thematic issues. As such, they entail significant human and financial resource links with other UNDP units and external sources of funding. For example, many SHD themes are the primary responsibility of other BPPS units (SEED, SEPED, MDGD, etc.). However, each of these themes has gender components whose elaboration is of significant relevance to this GGP. In recognition of the fact that regional and other thematic global programmes are required to integrate gender issues and to allocate specific resources for mainstreaming gender in their respective programme documents. More specifically, in order to encourage gender as a cross-cutting theme, each unit responsible for the thematic areas for which global resources are allocated (i.e. poverty, environment, governance) is committed to allocate at least 20 percent of their global resources to gender issues. GIDP will work closely with each of the responsible units to promote synergies between programmes.
Executing and Implementing Arrangements UNOPS has agreed to be the executing agency. UNOPS will be responsible for the recruitment of for the recruitment of project personnel and the sub-contractual arrangements. (In some cases of demonstration projects, national executing modalities may be considered for the implementation of pilot activities. UNOPS will facilitate the organisation arrangements for seminars, workshops and expert group meetings. UNOPS will also participate in the monitoring and evaluation of the Global Programme. Some sub-programme components (i.e. labour market statistics, gender equality indicators etc. will require supplementary TOR's and work plans. The UN Statistical Office will be the implementing entity for the labour market statistics programme component. UNIFEM will have the responsibility for implementing the component for strengthening system coordination for FWCW follow-up. The UN Division for the Advancement of Women (DAW) is the entity coordinating the Women's Watch network which will receive a contribution form GGP.
The GGP will be implemented so as to respond to regional priorities and at the same time promote inter-regional linkages. This will facilitate cross-regional learning, the cross fertilisation of ideas, and the global sharing of workable approaches and experiences. As such, the programme will liaise closely with the Regional Bureaux, the soon-to-be established Sub-Regional Resource Facilities, SURF's. and the substantive units within BDP and with HDRO and the UN Secretariat on engendering labour market statistics etc.) As a priority, the GGP will place emphasis on the dissemination of findings and tools. This approach will be complemented by commissioning new work (as and when necessary) in order to fill important gaps. For the identification, documentation and sharing of best practices, participatory approaches would be used. Quality control will be ensured by measures such as working with expert groups at the regional levels to facilitate the integration of their country experiences into the learning process.
Meeting Global Programme Criteria While the present framework for this programme is the result of consultations with the Regional Bureaux, other BPPS units and the Gender Advisory Committee, there is a need for ongoing and regular consultations with these groups to formulate the individual components and activities of the programme. There will also be a need to establish modalities of cooperation with programme partners and put in place a mechanism for the management, review and modification of these modalities on a regular basis. There will be full and regular consultations between GIDP and the Regional Bureaux Gender Focal Points individually and collectively, with the Gender Advisory Group and with the respective BPPS units in order to:
Programme Monitoring, Oversight and Reporting Responsibilities Overall programme management is assigned to GIDP within BPD/SEPED. This responsibility includes:
The GAC will serve as the Programme Oversight Committee for this programme. The Terms of Reference for the GAC will be revised to reflect this oversight role. GIDP will provide quarterly progress reports on the implementation of the GGP to the Gender Advisory Committee. Conceptual and Technical Review and Support The External Consultative Group on Gender (to be established as one of the outputs in Sub-Programme), will provide the opportunity for interaction with leading experts on new and emerging developments in the field. It will also serve as a forum on UNDP's vision for gender-sensitive and development. This Group may consist of sub-regional groupings. This mechanism will present the opportunity for interaction with external expertise on new developments in the field. This mechanism would also serve as a source of, and a conduit for, expertise on gender topics to assist UNDP staff and the staff of their counterparts at the country level.
Mechanisms for the Sharing of Experiences The programme has incorporated a strong communications and learning component, particularly in Sub-programme 2. The focus on COEs is another mechanism for the sharing of experiences, as the findings from the COEs will be widely disseminated.
Substantive Areas of Focus In making the final selection of activities under this GGP, preference will be given to those interventions that strengthen the strategic links between the priority PFA themes and the substantive areas of focus identified in other regional and global programmes. These strategic links and substantive areas of focus are summarised in Table 2 below.
Table 2 Strategic Links Between PFA, Global Gender Programme and Other UNDP Global and Regional Programmes: Substantive Areas of Focus
* Critical Areas of Concern identified in the Platform for Action
RISKS Four sets of factors pose potential risks for the success of the programme: 1. The first set relates to the institutional policy and planning framework - particularly, the short and inadequate time frame within which to institutionalise and measure the transformative processes that are required for effective gender mainstreaming. 2. The second relates to the programming framework - the difficulty with identifying the appropriate indicators of effective linkages between regional, global and national programmes. Without this, gender programming will remain an add-on to programmes. 3. The third set relates to human resource issues, especially staff skills and management commitment to this programme. For example, the need for total management commitment has potentially significant impacts on the overall sustainability of programmes. Similarly, the competency of UNDP staff in all aspects of gender mainstreaming (or lack thereof) can help or hinder the effectiveness with which gender concerns are mainstreamed into all programmes. 4. The fourth sets relates to information. Both the accessibility of information and effective information flow are essential prerequisites for gender mainstreaming. The Guidance Note on Gender Mainstreaming discussed these factors. It proposed actions, guidelines and commitments relevant to each potential risk. For example, it defined the responsibilities of all staff (including especially those of senior management) to the overall goals of gender mainstreaming, both in the programming aspects as well as in the human resources management aspects of UNDP's work. Similarly, the Change Management Process at UNDP - UNDP 2001, identifies commitments and guidelines on some of the qualitative aspects of a more human-centred approach and the structural changes required to meet overall SHD goals. While these two important documents and their contents are not guaranteed solutions to these risks, they represent a crucial point of departure for ensuring that these risks do not materialise (or for avoiding their potentially adverse effects, should they do so). As noted in a recent report on gender and the Change Management process, "if skills development and capacity building do not occur in tandem and concurrently with structural and functional changes, the risk that familiar ways of doing things will subvert the deep change process is assessed as being too high."
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