RIGHTSIZING THE PURSE STRINGS: LESSONS IN GENDERRESPONSIVE DECENTRALIZED GOVERNANCE

The views expressed in this paper are the views of the authors and do not necessarily reflect the views or policies of the Asian Development Bank (ADB), or its Board of Governors, or the governments they represent. ADB does not guarantee the accuracy of the data included in this paper and accepts no responsibility for any consequence of their use. The countries listed in this paper do not imply any view on ADB's part as to sovereignty or independent status or necessarily conform to ADB's terminology.

Samantha Hung Senior Social Development Specialist Irish Aguilar Social Development Officer RSGS/RSDD

Outline of presentation
Overview of RETA GenderResponsive Decentralized Governance in Asia Key Activities, Findings & Results Lessons Learned across the board

RETA 6337/ 6493 GenderResponsive Decentralized Governance in Asia

Aim to enable more transparent, gender equitable and socially inclusive governance at decentralized governance level

3 countries: Cambodia, Indonesia & Nepal Implemented by: Australian National University Enterprise (ANUE) National Research Institutes (NRIs): Institute for Integrated Development Studies (IIDS), Economic Institute of Cambodia (EIC), Bandung Institute of Governance Studies (BIGS) National Womens Organizations (NWOs): Sahavagi, Women for Prosperity (WfP)

Implementation period: - mid 2009 - Feb 2012 (including extensions)

Total budget: 1 million (6493/6337 500,000 each)

4 RETA Outputs:
Output 1: Inconsistencies and gaps in policy, legal and intergovernmental frameworks identified, and recommendations made to relevant government authorities (CAM, NEP) Output 2: Gender responsive budgeting initiatives in decentralized governance piloted (CAM, INO, NEP) Output 3: Capacity of selected women representatives and groups to effectively participate in local government enhanced (CAM, NEP) Output 4: RETA products disseminated, lessons learned and recommendations identified

Output 1 analysis: country comparison

Cambodia
Policy frameworks for gender equality in decentralized governance Legal frameworks for gender equality in decentralized governance

Indonesia

Nepal

Inter-governmental Fiscal frameworks for gender equality in decentralized governance

= Strong = quite strong = Adequate = Commencing

GRB System: Nepal

GRB Scoring system
No. 1 2 3 4 5 Indicators Womens Capacity Development Womens participation in formulation and implementation of the program Womens share in the benefit Support in employment and income generation for women Quality reform in time use and minimization in work load of women Total Percent 20 20 20 20 20 100

GRB System: Nepal

If the total is >50% = Direct Gender Responsive If the total is >20%-<50% = Indirect Gender Responsive or Transformative If the total is <20% = Neutral Example of practical actions: MoLD provides a directive of 25% of allocation of Village Block Grants for women and children

Output 1 analysis: country comparison

Cambodia
International Commitments to Gender Equality National Commitments Constitution and policy frameworks Current national plans include gender equality

Indonesia

Nepal
Interim (2007)

National Womens Machinery

Gender responsiveness of decentralization policies Womens participation in decision making national and sub-national levels Gender responsiveness of sectoral policies and legal frameworks Gender responsiveness of intergovernmental fiscal frameworks Incentives, consequence monitoring and for policy compliance

22 out of 27 GMAPS

17 of 37 Ministries

6 of 26 Ministries

no

no

= Strong = quite strong

= Adequate

= Commencing

Output 1 analysis: country comparison

Cambodia
International Commitments to Gender Equality National Commitments Constitution and policy frameworks Current national plans include gender equality National Womens Machinery Gender responsiveness of decentralization policies Womens participation in decision making national and sub-national levels Gender responsiveness of sectoral policies and legal frameworks Gender responsiveness of intergovernmental fiscal frameworks Incentives, consequence monitoring and for policy compliance

Indonesia
Adequate Adequate

Nepal

Increase capacity and resources to ensure gender responsiveness of implementation of decentralization Resourcing and capacity needs to be addressed Monitoring of the implementation of the gender aspects of decentralization including capacity and resourcing Quotas for Womens participation at all levels of governance Quotas for All party Mechanism Monitoring of womens participation in decision making

All sectors to have appropriate gender equality mechanisms, plans and strategies in place Implement GRB trial in selected ministries Develop incentives, consequences and monitoring for policy compliance Integrate GRB across all sectors Monitoring and evaluation of compliance

Output 2: Gender responsive budgeting initiatives in decentralized governance piloted

Capacity built at local level to use GRB as a tool for identifying key sector gender issues and analyzing budget allocation and expenditure on these issues Action research approach Partnership with local government

Indonesia Housing West Bandung District Cambodia Basic education Moung Russei District, Battambang Province Nepal Local development Chitwan District

Sector Budget Allocations

Sector Budget Expenditure

Core Gender Issues

Geographical areas & sectors targeted

CAMBODIA MOUNG RUSSEI DISTRICT 9 communes: Kar Koh, Chrey, Russei Krang, Prey Svay, Kea, Robus Mong Koul, Maung, Prey Touch,Talah NEPAL CHITWAN DISTRICT 6 VDCs: - Hills: Dahakhani, Chandibhanjyang, Kaule, Shaktikhor - Plains: Meghauli & Jagatpur Municipality: Ratnagar Sector: Local development INDONESIA West Bandung District 3 villages: Cipangeran and Selacau villages, Batujajar. Cihanjuang Village, Parongpong.

Sector: Basic Education

Sector: Housing Renovation

Output 2 Coverage INO & CAM

Country Cambodia Education Participants 95 persons, 69% female, from 11 different groups in 9 communes Individual interviews conducted with different target group members (elected leaders, commune councilors, government officials, womens self help groups, parent school committee, CBOs) Example core gender issues identified by community Good female participation in CIP/CDP Gender issues may be in CIP/CDP but little or no budget allocated Community unaware of free education & equality policies Teachers offer private classes and extra materials that require payment Drop-out of due to poverty & distance; girls for marriage, home chores and lack of latrines Different needs of family members in a house due to roles/privacy Standards for housing pay little attention to different male/female spatial needs Insufficient consultation with end users on design

Indonesia Housing

Interviews with 12 beneficiaries (7 women, 5 men); 11 officials (4 women, 7 men); 2 journalists, (1 woman, 1 man; 5 local leaders (2 women, 3 men). 20 participants from several SKPD, 5 women and 15 men trained

Output 2: Coverage & Issues Identified NEPAL

Chitwan District , 6 VDCs: Hills: Dahakhani, Chandibhanjyang, Kaule, Shaktikhor Plains: Meghauli & Jagatpur 1 Municipality: Ratnagar 432 households in 6 VDCs & 120 in the municipality consulted to identify issues (50% women)
Example core gender issues identified by community 93% women and 87% men not aware of VDC planning process Womens needs and access to services undermined by lack of information, low bargaining power, attitudes of service providers Lack of awareness of special policy/budget allocation for women WCF/VCF are not fully rolled out, so women lack space for voice Resistance of APM & government officials to implement GESI guidelines; not effectively diffused to village (ward) levels

Common themes

Community members, particularly women have little knowledge about rights, government policies & access to services due to lack of information on equality and public policies Women/girls needs & concerns not well considered in planning/budgeting processes due to their limited participation in and/or lack of ability (or will) of local officials to incorporate them Government quotas (30% CAM & 33% NEP) for womens representation not implemented across the board Quality of participation varies

Issues and gaps guided strategy for Output 3

Output 3: Capacity of women & groups to effectively participate in local government - NEPAL
Chitwan District , 6 VDCs: Hills: Dahakhani, Chandibhanjyang, Kaule, Shaktikhor Plains: Meghauli & Jagatpur 1 Municipality: Ratnagar
Type of participants GOV NGO Total persons trained 613 117 Number of men trained 413 40 Number of women trained 200 77 Women trained % 33 66

Training of WCF members

Total

2292
3022

1117
1570

1175
1452

51
48

Nepal advocacy-based approach

Output 2 Output 3 Introducing the program to the decision makers at the district and VDC level (DDC, APM, VDC)

Gender analysis of VDC budget

Strengthening Local Organisations (Training to community based organizations on advocacy and GRB) Training to project staff on social accountability tools* Orientation to the VDC secretaries and municipal officials Support on reformulation and strengthening of IPC Study of the services and funds flow of selected sectors Ward citizen forum formation and strengthening Institutional mapping/ and baseline survey Facilitate a public audit

DCC review meeting

Training to network organizations at the district level

Output 3: Capacity of women & groups to effectively participate in local government - CAM
Beneficiaries: 50 participants, 70% female, 3 workshops - 2 days each Selected Content: Advocacy approach Gender concepts and gender analysis tools Gender Responsive Budgeting and the Budget Cycle Decentralized governance & NCDD policy related to gender Social Accountability (planning & decision making ) Women in decision-making at local level Steps for advocacy strategy Forming networks/coalitions Preparing & implementing an action plan Practical assignment

17

Key summary achievements

Strengthened conceptual understanding of subnational government technical staff about gender and fiscal frameworks; gender analysis in sectors; policy and planning; Conceptual understanding led to common understanding and coalition building among local government and communities, including women and the marginalized

Applying concepts: Sub-national governments can better monitor and measure results in terms of the social and economic dividends of the GRB
Catalyzed positive change in sector implementation

Example results community level- CAM

Previously only 34% participants attended commune meetings: after the training, 86% attended.

After training, 80% participants said awareness of gender & education issues has increased.
18% participants prepared a family budget before the workshop; now 86% participants do so.

An increase from 32% to 100% training participants said GRB served men and women
Concerted effort to counter drop-outs

Example results community level- NEP

48 Ward Citizen Forums (WCFs) & 6 Village Citizen Forums (VCFs) formed in 6 VDCs Capacity development training provided to 429 (m=219, f=210) WCF executive members and to 1134 (m=540, f=594) WCF general members Orientation provided to 2224 (m=1080, f=1144) WCF members and other citizens

Four advocacy training sessions provided to 113 participants (m=23, f =90) from 46 CBOs/NGOs
Publishing citizens charter of VDC

Snapshots from the field: Chitwan District, Nepal

We know that 10% is allocated for women, 10% for children and 15% for ethnic minoritiesWe have the right to know we should monitor what has been done with this money. We learned this from this project. [Senior woman, FGD VDC Chepang Village]

This program helped us to come out of our households. We learned to speak, to hear our voices, and to share them with the ward citizen forum.. (Woman, FGD Jagtapur Village)

Example key achievements GRB pilots

Countries/ Sector Cambodia / Education Achievement Plan with budget to improve access & quality of education developed and approved by the district for implementation in 2012 Primary school drop out rate decreased in 2010-2011: 8.75% (8.2% female) Previous year: 11.12%, (11.07% female) Secondary school drop out rate decreased in 2010-2011: 10.73%( 10.02% female) Previous year 15.37% (14.77% female) Teachers are held more accountable to educational laws, ethics, and school regulations by District Educational Officials and community. Piloting of Girl Council at schools Follow-up plans by DEO with budget allocation

Nepal / Local Government

Increase in VDC allocations for targeted groups (women, children, etc) from 8% in 09-10 to 48% in 10-11
Initiation of special programs for women with budget allocations (e.g. NR 1 million for womens development under management of All Party Womens Committee; rewards to women with 2 daughters). Amendment to include gender aspect in technical and operational guidelines of RTLH - Family with Livable House housing renovation program (Rumah Tidak Layak Huni)

Indonesia/ Housing

Output 4: RETA products disseminated, lessons learned and recommendations identified

Workshops Inception, Mid-term, Final National dissemination RETA blog Final knowledge product (to come) Technical Advisory Groups (TAGs): One TAG per country Membership was expanded in Indonesia & Nepal to include local government 4 meetings per country over the life of RETA Role to approve reports & provide implementation advice

Key lessons learned

National GRB systems are not yet enabling for decentralized levels; need to focus on demand (advocacy) and supply side
Grassroots information is a must for gender responsive decentralized governance, and to build capacity of women to participate effectively Genuine community participation is worthwhile investment Capacity development & advocacy training is a successful approach to empower grassroots women/communities to demand rights & services through influencing decision-making. Combining target groups increases synergies, communication and collaboration to improve good governance and service delivery

Key lessons learned on reflection

RETA design too ambitious

Success reliant on working relationships with RM GS & consultants ADB procedure challenging grassroots organizations

Capacity of line agencies for GRB also need to be enhanced

TAGs as an effective mechanism for country ownership, but synergies not maximized with national government processes or ADB portfolio Cross-regional learning challenging with many variables Application of learning dependent on compatibility with ADB pipeline

Thank you for listening