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November 2009
Table of Contents
FORWORDS
I.
II.
3.1. Introduction
III.
IV.
12
14
16
17
17
19
23
APPENDICES
Appendix 1
Appendix 2
Appendix 3
sensitive project management and our common goal of poverty alleviation and a harmonious
society for all.
Thomas Rath
Country Programme Manager for China
International Fund for Agricultural Development
ii
Although much progress has been made in promoting gender equality across the world,
inequality still remains a universal phenomenon and is growing in complexity as the world
continues to change. Deep-rooted gender inequalities and newly emerged gender issues
present obstacles and challenges to societys efforts to achieve poverty alleviation and
sustainable development. To remove the obstacles and meet the challenges, practical efforts
are needed to mainstream gender effectively. Gender mainstreaming is a way to assure that
men and women equally participate in, contribute to and benefit from progress in society and
realize a healthy, balanced and sustainable existence.
Since IFAD was established three decades ago, the importance of mainstreaming gender in
achieving gender equality and womens empowerment has grown steadily and increasingly
informs IFADs objectives and instruments. IFADs Gender Plan of Action 2003-2006
established a systematic gender mainstreaming plan for IFADs operations at various levels.
Focusing on the project cycle, the plan includes 25 actions and provides practical instructions
and checklists for gender mainstreaming.
In its analysis of opportunities and constraints, the IFAD country strategic opportunities
programme for China identified the growing feminization of agriculture and the severe poverty
experienced by women. Under the country programme, rural women are considered the chief
target group because they play a significant but often ignored role as the main source of
family agricultural labour in poor households, and also act as manager, housekeeper and
caregiver. They are key agricultural cultivators and play a crucial role in both household and
national food security. For this reason, IFADs China programme has defined the promotion of
gender equality through gender mainstreaming as one of its strategic objectives.
In 2003, a gender initiative financed by the Japanese Government was launched. First, a
gender assessment study was undertaken in 2003 and 2004 to provide a comprehensive and
systematic gender assessment of IFAD-supported projects. Based on the main findings of the
study, a gender awareness-building plan was developed for IFAD-supported projects in China
in 2005.
building and mainstreaming. The main activities were: (i) a gender mainstreaming and
targeting workshop for the key project management office directors and gender focal points
(GFPs) from IFAD-supported projects in September, 2006, in XiAn, China; (ii) three gender
mainstreaming training-of-trainers (TOT) workshops for project implementation staff, as
potential gender trainers and GFPs for ongoing and upcoming IFAD-supported projects;
(iii) development of a manual for gender mainstreaming in IFAD-supported projects in China
in both Chinese and English. Each activity entailed supporting such "sub-activities as the
development of the gender training and action plan and its implementation by each project
after the TOT workshops. The gender study and gender capacity-building activities have
formed a solid base for gender mainstreaming.
II.
Ibid.
Ibid.
4
Ibid.
3
Ibid.
This is a minimum
requirement. It means
HOW TO MAINSTREAM
GENDER?
analysis, implementation
and monitoring/evaluation of
all projects.
MAINSTREAMING
GENDER SPECIFIC
GENDER ISSUES
Project/component/activity
programmes/projects/components/activities are
Are both women and men (target groups, staff, partners) involved in the initial situation
analysis at all levels (e.g. policy dialogue, community consultation)?
Are womens and mens constraints, needs and views reflected in the objectives, risk
analysis and impact hypothesis of the intervention?
Is the allocation of financial and human resources appropriate to address equality issues?
Are
key
processes
(e.g.
dialogue
among
key
stakeholders),
procedures
(e.g. memorandums of understanding, terms of reference for PMO and GFP) and
planning tools (e.g. logical framework) explicit on the issue of gender?
In implementation
Does the project have strategies to involve both women and men?
Do women and men have equitable access and control over project resources e.g. are
there criteria that discriminate against women or men?
Is the project steered with a view to equalizing womens and mens benefits?
In monitoring
Do both women and men (target groups, IFAD staff, partners) take part in monitoring?
Are collected data on the immediate and /or longer-term effects of the project and
Are best and worst practices documented during the gender mainstreaming analysis and
disseminated?
2. 2. 2. Gender-specific project/component/activity
2.2.2.1. Objective and approach
Sometimes, integrating gender as a cross-cutting theme in general projects is not sufficient to
address disparities. Here, specific projects/components/activities are needed to promote
equality between women and men.
A key factor in achieving gender equality is womens empowerment, in particular womens
participation in decision-making in both formal and informal political structures. Genderspecific projects/components/activities strategically address inequality factors and create the
conditions for women to become the agents of their own development. Such initiatives can,
for instance:
III.
3.1. Introduction
Given this manuals practical aim and implementation focus, gender mainstreaming will not be
referred to as a theoretical ideal or dealt with in general terms. Gender mainstreaming is a
fundamental principle that guides IFADs work and an important criterion used in its
evaluation. It should be reflected in all project-related practices (e.g. decision-making,
planning and resource allocation), and promoted throughout the project cycle as a crosscutting theme.
The IFAD Gender Action Plan 2003-2006 provides a clear and systematic gender checklist of
the main questions and indicators for the four phases of the project cycle, i.e. needs
assessment, planning/formulation, implementation and monitoring and evaluation (M&E).
(See appendices for details.)
3.2. Gender in Project Planning and Formulation
3.2.1. Taking gender differences into account in project planning
To ensure gender-sensitive design and planning, IFAD includes the following key gender
concerns in the design and formulation of its projects:
Contextspecific gender issues and the related gender strategy to pursue gender equality
and womens empowerment.
Gender analysis of the project area to identify context-specific key gender issues and an
appropriate gender strategy.
Awareness-raising for partners, Management and field teams on gender and the need for
greater gender sensitivity.
Project management teams and partners will need training before and during the design and
formulation process to ensure that this support is provided.
3.2.2. Dialogue with women and men in target groups
Dialogue is needed to allow women and men to express their respective priorities for change
and plan how to address them. The wishes of women and men with regard to project design
and implementation, and their expectations vis--vis what the project will achieve and improve
for them must be identified.
This process should be transparent and inclusive of different groups of women and men to
ensure that they are committed to the intervention and gain a sense of ownership over it. It
should be a participatory process, using participatory rural appraisal tools such as public
meetings, focus group discussions and interviews. The expression of womens and mens
needs must be facilitated (e.g. by organizing separate focus group discussions) and the data
collected should be disaggregated by sex to gauge womens and mens different reactions,
wishes, future contributions, expectations etc. The following table 1 is a summary of such
target group discussions, held during formulation of the South Gansu Poverty Reduction
Programme.
Table 1: Ranking of preference by different groups of farmers
Very
poor
Evaluators
Mens
Womens Poor
Activity
Group
Group
household
household
(C category)
(B category)
Drinking water
4
1
1
2
Electricity
1
4
3
3
Road
2
6
6
5
Irrigation
3
5
5
4
Clinic
6
3
2
1
Biogas
5
2
4
6
Skills training
3
4
3
4
Womens credit
2
1
1
3
Data source: South Gansu Poverty Reduction Programme formulation mission (2003) in
China.
population, labourers
remittances
land tenure
maternal mortality
gynaecological diseases
access to support services (training, extension services, market information) (gender ratio)
associations and other collective action headed by women and men (gender ratio)
How do women and men participate in community activities and what roles do they
perform?
What factors (culture/traditions, laws) influence womens and mens participation and
gender relations at the household and community levels?
Obligatory
Gender information at the household level:
What reproductive tasks do women and men have in different household structures
(e.g. woman-headed, nuclear, polygamous, extended)?
What productive roles do women and men have? What benefits do they obtain?
How do women and men use their time and resources (in different roles/ tasks)?
What factors (culture/traditions, laws) influence gender relations at the household level?
What would women/men like to change in gender relations at the household level?
Obligatory
Gender information at the community level
What initiatives address gender needs (which needs? practical and/or strategic initiative)?
What factors (culture/traditions, laws) influence womens and mens participation and
gender relations at the community level?
What would women/men like to change in gender relations at the community level?
External: what opportunities and problems could affect womens and mens equitable
participation, access to decision-making and benefit from the project?
Internal: a dialogue within and between different institutional stakeholders must assess to
what extent IFAD's project implementation institution and its key partners are willing, able
and equipped to work with gender.
Intervention: what are the appropriate project components and activities to address the
constraints and opportunities for gender equality?
For example, using the livelihood framework approach, the PMOs of the Environmental and
Poverty Reduction Programme in Ningxia and Shanxi drew a diagram to indicate gender
disaggregated resources (the pentagon in red represents women) and the project
interventions entry point and focus should be on social and human aspects
10
Could partners express their vision concerning gender and development, and equality
between men and women?
Did women and men contribute equally to designing the programme/project goals and
objectives?
Could women and men, in both the target group and the implementation team, express
their points of view on existing problems and ways to address them?
Did the project contribute to improving living standards for women and men?
11
12
Partnerships cannot be altered overnight (for contractual and other reasons), but new
alliances and synergies can be created to enhance work on gender. Gender-competent
staff can also be hired to train and support existing staff.
Internally, gender activities can be planned to build the capacity of project management
office staff and the staff of partner agencies on gender issues (e.g. gender training and
exchange workshops, and training on use of gender analysis, gender tools, gender
indicators) and to promote equal opportunities for women and men in implementation.
13
The first level focuses on project outputs and allows for measurement of project
efficiency (sphere of direct responsibility, what a project has to guarantee).
The second level measures the results obtained against project objectives. The
outcomes provide information about the effectiveness, relevance and sustainability of
a project (its domain of influence, partnerships, and expectations).
The four key factors efficiency, effectiveness, relevance and sustainability measured
by the two main RIMS levels should take full account of gender issues during the M&E
process to ensure a balanced and successful project.
Efficiency
Efficiency is a measure of how economically resources/inputs (financial, human, time,
material resources required for project implementation, etc.) are converted into outputs. At
this RIMS level, the focus is on the projects deliverables, i.e. goods or services, in numbers
and other quantitative measurements, generated by the activities. To integrate gender
concerns at this level, check if:
The selection criteria for project partners include gender criteria, and if project partners
are gender-sensitive and gender-competent or are willing to learn.
Womens organizations, such as WFs, are well represented among IFAD partners.
Gender training and specific action to mainstream gender (e.g. in institutions, procedures)
have been planned where necessary.
The gender approach has been integrated into all activities and all tools used.
Operational objectives address womens and mens practical and strategic needs.
Activities are planned and resources are used to respond equally to womens and mens
expressed needs.
14
Expected results focus on the roles, resources and needs prioritized by beneficiary
women and men.
Women and men have equal access to project resources and benefit equally from the
project.
The workload related to the project activities is shared equally by women and men. At
this level, the project should support women not only in reaching the expected results in
terms of practical needs (as it is often the case), but also in benefiting from it to meet
their strategic needs.
Effectiveness
Effectiveness is defined as the extent to which the projects objectives were achieved. At this
level, how successful the outputs have been in producing the desired outcome is assessed by
reviewing immediate or mid-term observable effects and results. Generally, several outputs
are necessary to attain an outcome. The quality of partnerships, and the contribution and
commitment of the main stakeholders are crucial, in particular, to promoting gender in
projects. Key points to be checked are if:
All partners agree with the set objectives and participate in their formulation.
Project objectives address/reflect the needs of both men and women; specific objectives
that address womens and mens needs separately may be required.
Relevance
This is the extent to which the goal or development objective(s) of a project is consistent with
womens and mens practical/strategic needs, country needs and global priorities. At this level,
comprehensive information about project impact is necessary. This should cover the positive
and negative, intended and unintended, long-term changes/effects for women and men. To
integrate gender at this level of analysis, check if:
The results are relevant to the beneficiaries and readily comprehensible to them.
All identified womens and mens needs/problems are reflected in the development
objective, together with their strengths and potential.
The project is coherent with the countrys and IFADs gender policies and priorities.
The project promotes greater equality between women and men, and girls and boys, and
does not reinforce or reproduce inequalities. Opportunities and life chances
become/remain equal.
The project has identified and reinforced local positive gender dynamics.
15
Whenever possible, the project is involved in policy dialogue concerning gender issues
or supports local organizations working in this field, in order to create favourable
conditions and change towards gender equality.
Sustainability
The effectiveness, relevance and sustainability of a project are strongly linked. Experience
has shown that integrating gender and reducing inequality between women and men
contribute to sustainable development. It is important to raise awareness of this link among
the relevant project focal points. Here too, project partners should be familiar with basic
approaches to sustainability and how to integrate gender into this area. The discussion is
especially important concerning the effectiveness of a programme/project, within the sphere
of influence of the programme/project and the partner institutions on a mediumterm time
horizon. Project results and benefits should guarantee sustainable gender impact, i.e. that
impact continues to be felt after the conclusion of the programme/project. Check if:
Womens and mens differing circumstances have been taken into account.
The project focuses on the main interests of women and men (ownership).
Members of the target group both women and men benefit equally from the project
and have greater access to resources (income, education, health services).
The project considers equitable benefits for women and men as a key criterion.
The effects of the project are relevant and easily comprehensible to women and men.
The ecological effects on women and men have been considered, as well as the
ecological context (e.g. desertification context).
Partner organizations are learning-oriented and are willing to bring gender issues into the
mainstream (gender institutionalization). Organizations follow gender-balanced practices.
The integration of the gender perspective and the disaggregation of information along gender
lines is a pre-requisite for all projects. Gender-aware analysis at the household, community
and country levels makes a key contribution to the relevance, efficiency, effectiveness and
sustainability of development interventions.
IV.
Livelihood analysis
Gender analysis
Policy dialogue
It is worth noting that these gender-mainstreaming measures may be used in various ways
(individually or in combination). Gender training, for example, may be combined with gender
16
measures in a flexible and effective way, and in line with their particular conditions.
4.1. Institutional Support and Commitment
Institutional support and commitment are prerequisites for gender mainstreaming. The
following efforts are called for:
(1) Increase awareness of gender equality
Without a full understanding of the significance of gender equality and its realization, there will
be no meaningful institutional support, commitment or efforts. Without a strong sense of
mission and true commitment, action taken to realize gender equality will be merely symbolic;
similarly, the institutions set up to promote gender equality and the policies formulated will
have little meaning.
(2) Sufficient resources guarantee
Without material commitment to gender equality in terms of budget and resource allocation,
there is no guaranteed implementation of gender plans or measures. Resource guarantee
covers both sufficiency of funds, and availability of pertinent organizational set-ups and
human resources.
4.2. Gender Training and Capacity-Building
Gender training is an immediate and effective way to promote gender knowledge and skills.
Specialized gender training should be organized for all PMOs and staff from partner
institutions, especially their leaders and the key project implementer. In addition, inclusion of
gender-related content in general training activities is useful for gender mainstreaming and
institutionalization. Gender training can be conducted in two ways: provision of specialized
gender training or inclusion of gender-related content in general training activities, as
described below.
1. Specialized gender training
The provision of specialized gender training to decision-makers and staff members at various
levels became international practice in the 1990s. In specialized gender training, participatory
and field-based approaches are followed in designing course content and modes of delivery.
Training needs are assessed and then coupled with practices. Projects are used for case
studies, and course content is oriented to suit local conditions, to ensure that such training is
well received and useful. Specialized participatory gender training could start with general
gender-mainstreaming training for PMO leaders, main project managers and implementers,
and be followed by training for trainers in gender issues. IFAD followed this process when
holding the Gender Mainstreaming Workshop in XiAn in 2006 and the TOT workshops in
2007.
17
obtained about the course participants, for instance their background, their attitudes to gender
equality, and their expectations, demands and concerns with regard to the training.
b) Determination of objectives and content. Objectives and training content should be
determined by the different backgrounds and needs of the participants. For those with little
previous exposure to gender issues, training should be designed to sharpen their awareness
of gender; for those already sensitized, training should focus on gender analysis
methodologies; and for those with insight into the concept and with a command of some
analysis methods but without knowledge of how to apply them, training should be focused on
gender programming.
c) Formulation of training programmes. When formulating training programmes, the
following factors should be taken into consideration: training objectives, content, outcomes,
main activities, agenda, and training resources. Ideally, such training should be conducted in
a systematic and progressive way. If conditions do not allow for this, a stage-by-stage
approach can also be productive.
d) Follow-up action. Gender training is sustainable only when accompanied by follow-up
action. Such follow-up could take the form of specialized forums on the issues raised during
the training course (e.g. the increasing phenomenon of feminization and ageing in agriculture,
which was raised and discussed in the XiAn workshop), development of a project Gender
Action Plan, which could cover such activities as gender assessment, training, exchange
networks, etc. (as was the case during and after the XiAn Gender Mainstreaming Workshop).
18
Many projects aim to reduce the workload of women (e.g. water collection by building
some water tanks) and enhance womens productive role (by increasing availability of
microfinance) to empower women. But women do not always control their income, and
may have limited access to skills-building and technical training, etc. In such cases, a
gender analysis is needed to assess whether the reduction in womens workload and
their enhanced productive roles are sufficient to empower them, or if any supporting
activities are needed, e.g. skills training and market access.
19
womens and mens access to and control over resources in various aspects and at
different levels
Source: Formulation of the South Gansu Poverty Reduction Programme in Gansu (2003)
20
21
When women and/or men want to challenge the customary gender division of labour and
power relations and when they wish to fight factors that create gender inequalities, they
express a strategic gender need.
22
Reproductive
Productive
Community
managing
women men
Political
Aspects
women
Men
women men
women men
1. Roles:
what are the
tasks and
contributions of
women and men
in each role
2. Resources:
what resources
do women and
men have access
to/control over;
what benefits and
status accrue to
women and men
in each role
3. Gender inequalities and gender needs:
What gender inequalities/needs are expressed in each role by women/men?
What gender inequalities/needs are not so easily expressed by women/men?
What gender inequalities/needs are directly linked to the project (e.g. accessibility criteria)?
What gender inequalities/needs are context-specific (e.g. cultural values, traditions, etc.)?
23
While for the purpose of poverty targeting, the focus is on the analysis and
So
..
So..
Women farmers
farmers
capital situation is a much
smaller pentagon
Natural Capital
limited access to land
Financial Capital
lower income
Human
capital
Material Capital
Natural water supply
Capital living conditions
Social
Capital
poor communication
Material
Fiancial
Social Capital
social and household status
Access
M
note
Control (decisionmaking)
M
F
Note
Financi
al
Natural
income
credit
gift
land
forest
river
mine
..
24
Benefit
M
Note
Access
M
note
Control (decisionmaking)
M
F
Note
Benefit
M
Note
Material
Human
Social
road
water
electricity
irrigation
hospital
school
labour
education
skills
experience
.
customer
laws
association
religion
tradition
norm
institutional
services
laws and
regulation
s
..
2 Planned interventions of project. The analysis focuses on the project setting. It examines
womens and mens participation in projects and assesses:
25
To what extent, how and why projects respond to womens and mens respective
gender needs
Reciprocal impact?
Planned interventions
Household level
Community level
CONTEXT
26
27
Issues and
Recommendations
28
No
Partial
Adapted from: Mainstreaming a gender perspective in IFADs operations Plan of Action, 2003-2006
29
Appendix 3: Terms of Reference for Gender Focal Point in IFAD Projects in China
The Gender Focal Point (GFP) will assist the Project Director in ensuring gender equity and
equality in project implementation and management, through the development and
implementation of a gender strategy and action plan for the project and by cooperating with
Women Federation and RCC, other line agencies, VIG and beneficiaries.
The overall objective is to facilitate equitable participation of both rural men and women in
project activities and provide benefits on an equitable basis. This would be done by creating
necessary enabling environment, using appropriate tools/procedures to address gender
differences and by collaborating with all project stakeholders. Womens empowerment is
facilitated through the delivery of good quality project activities designed specifically for them.
The role of the project GFP is crucial in initiating necessary actions and coordinating with
stakeholders to achieve the gender objectives. In particular, the GFP will:
Develop project gender strategy encompassing all its institutions and components.
Develop, implement and monitor gender action plan for the project by cooperating
with M&E officers, recommending related gender indicators to make sure project
activities are monitored and evaluated by using these indicators, and ensuring that
gender action plan is supported and included in the M&E system for documentation
and experience-sharing.
Coordinate with relevant project institutions to ensure equitable participation of rural
men and women in all project activities. In activities focused specifically on women,
attention will be paid to enhance the quality of such activities for their benefits.
Plan and organize gender training for project managers and implementers from the
PMO and related implementation institutions involved in project actions.
Coordinate with relevant project institutions to create an enabling climate for women
to play an effective and broad role in all project-generated actions.
Coordinate with RCC and other related financial institutions to ensure equitable
access to credit for men and women and suggest specific activities for women to
address gender imbalances in this respect.
Promote and disseminate the projects gender approach and achievements at all
levels.
Monitor the allocation of resources and other important implementation aspects for
supporting gender-related activities and report to PMO directors any problems
occurred and results achieved.
A realistic gender strategy guiding the project implementation has been prepared.
An action plan outlining the major activities and tools to be adopted for implementing
the gender strategy has been prepared.
Process and quality indicators of gender sensitivity in project have been incorporated
in the M&E system.
The understanding of and staff capacity in gender mainstreaming improved.
Training on gender has been delivered to stakeholders.
A coordination mechanism on gender focus has been established with stakeholders.
Specific actions and activities have been conducted to benefit women.
Womens participation in project activities increased.
Women leaders have increased at all levels.
Womens organizations have been strengthened and increased.
Good practices/cases have been identified, documented and shared.
Drafted by Yinhong SUN and revised by Yiching Song with feedbacks from the Gender TOT
workshops in 3 provinces in China 2007