WFP-Gender Rapid Assesment PDF

GENDER RAPID ASSESSMENT REPORT
GENDER ISSUES IN FOOD AND NUTRITION

SECURITY IN NTT PROVINCE
Gender Rapid Assessment Report
GENDER ISSUES IN FOOD AND NUTRITION SECURITY
IN NUSA TENGGARA TIMUR PROVINCE
By:
Alfiyah Ashmad
Severine Giroud
Blandina Bait
Hai Ragalawa
Edited By:
Rachel Riviera
Giulia Baldi
Elviyanti Martini
WORLD FOOD PROGRAMME

INDONESIA COUNTRY OFFICE
2012
GENDER ISSUES IN FOOD AND NUTRITION SECURITY IN NTT PROVINCE
Executive Summary
Despite Indonesia’s economic growth and democratic system, gender equality remains a
challenging issue. In many parts of the archipelago, women and children are marginalized
in their own households. Marginalization is especially detrimental when it comes to food
access and has a direct impact on undernutrition rates.
The eastern province of Nusa Tenggara Timur has among the highest rates of undernutrition
in Indonesia, with more than a third of children under five years old considered underweight.
In addition, up to 58.4 percent of children are stunted.1 Undernutrition and malnutrition
primarily affect children and women.
This Gender Rapid Assessment (GRA) aims to understand the underlying causes of gender
marginalization in NTT and how they can be addressed. It represents the first step in
developing WFP’s strategy on gender mainstreaming and provides valuable information for
the development of the NTT Province Food and Nutrition Action Plan (FNAP), also known
as RAD-PG (Rencana Aksi Daerah-Pangan dan Gizi). Improved gender awareness will
facilitate the improvement of food and overall nutrition security in NTT.
The report finds that gender inequalities are embedded in the social values and daily life
practices of the people of NTT. They mainly derive from misinterpretation of cultural traditions
related to dowry and clan inheritance that contribute to women’s subordination to men and
the resulting weak decision-making roles women have with regard to food and nutrition
issues. As a result, women are especially vulnerable to food insecurity and undernutrition.
Even though poverty stands as the major factor causing undernutrition, gender inequality
worsens the situation for children and women, especially pregnant and lactating mothers.
NTT women play a critical role in achieving food and nutrition security. Empowering women
to make free and informed choices for their family is critical in improving food and nutrition
security. By considering women as food holders, women empowerment programmes are
tailored to support women in decision- making processes that affect the nutritional well-
being of the family.
While the Government has initiated interventions addressing gender dimensions related to
food security and nutrition, these interventions mainly address the consequences of gender
inequality rather than its causes. The absence of gender analyses during programme
assessment has resulted in gender gaps and the lack of a comprehensive action plan to
adequately confront gender challenges.
WFP, in support of the NTT Government, has itself begun to institutionalize gender
mainstreaming within its organization and is working to improve its work team’s perspectives
on gender and translate them into action. Fostering gender mainstreaming within WFP and
in food and nutrition programmes requires time, energy, creativity and strong engagement
from WFP and other development partners. WFP team must, therefore, closely monitor
gender mainstreaming implementation both within the organization as well as in key partners
in order to ensure its success.
1
Riskesdas. 2010 3
TABLE OF CONTENTS
Executive Summary 3
Acronyms 6
1. Introduction 7
1.1. Problem 8
1.2. Methodology 9
1.3. Contextual Background 10
2. Gender Issues in NTT 13

2.1. Gender Issues Related to Food and Nutrition Security in NTT 14
2.2. Gender Issues Related to Food and Nutrition Security 16
3. Gender Mainstreaming In Related Government Offices 23

3.1. Gender Mainstreaming in Women Empowerment Bureau 24
3.2. Gender Mainstreaming in Food Security Office 26
3.3. Gender Mainstreaming in Health Office –Sub–unit of Community Nutrition
Improvement 28
4. WFP and Gender Mainstreaming 31

4.1. Gender Mainstreaming in WFP
4.2. Gender Mainstreaming in WFP Kupang Sub-Office 34
4.2.1. Maternal and Child Nutrition (MCN) 34
4.2.2. Food for Assets (FFA) 35
4.2.3. Local Food Based School Meal (LFBSM) 36
4.2.4. Vulnerability and Analysis Map (VAM) and Monitoring and Evaluation (M&E) 37
5. Conclusion and Recommendations 39
References 43
5
ACRONYMS
AIP-MNH : Australia Indonesia Partnership-Maternal and Neonatal Health

ASA : Association Social Advance
CNIU : Community Nutrition Improvement Unit
FFA : Food For Asset
FGD : Focus Group Discussions
FNAP : Food Nutrition Action Plan
FSG : Food Security Guidance
FSC : Food Security Council
FNSMS : Food and Nutrition Security Monitoring System
FNSS : Food and Nutrition Surveilence System
FSVA : Food Security and Vulnerability Atlas
GAD : Gender and Development
GFP : Gender Focal Point
GRA : Gender Rapid Assessment
HLSA : Household Livelihood Security Assessment
IEC : Information, Education and Communication
IFAD : International Fund for Agricultural Development
INGO : International Non Government Organization
INPRESS : Instruksi Presiden (President Instruction)
LFBSM : Local Food-Based School Meals
MCN : Maternal and Child Nutrition
MG : Matching Grant
NICE : Nutrition Community Empowerment
NGO : Non-Governmental Organization
NTT : Nusa Tenggara Timur (East Nusa Tenggara)
PERDA : Peraturan Daerah (Government Regulation)
PIDRA : Participatory Integrated Development
PPA : Participatory Poverty Assessment
PRRO : Protracted Relief and Recovery Operation
RAD-PG : Rencana Aksi Daerah Pangan dan Gizi (Provincial Food and Nutrition
Action Plan)
RENSTRA : Rencana Strategis (Strategic Plan)
Riskesdas : Riset Kesehatan Dasar (Basic Health Research)
RPJMD : Rencana Pembangunan Jangka Menengah Daerah (Provincial Medium
Term Development Planning)
SETDA : Sekretariat Daerah (Provincial Secretary)
SKPD : Satuan Kerja Perangkat Daerah (Technical Unit in Government Institution)
TTS : Timor Tengah Selatan
TTU : Timor Tengah Utara
UNDANA : University of Nusa Cendana
UNFPA : United Nations Population Fund
VAW : Violence Against Women
WEB : Women Empowerment Bureau
WFP : World Food Programme
WID : Women in Development
6
1. INTRODUCTION
1.1. Problem
1.2. Methodology
1.3. Contextual Background
Despite Indonesia’s economic growth and democratic system, gender equality remains a
challenging issue. In many parts of the archipelago, women and children are marginalized
in their own households. Marginalization is especially detrimental when it comes to food
access and has a direct impact on undernutrition rates.
The eastern province of Nusa Tenggara Timur has among the highest rates of undernutrition
in Indonesia, with more than a third of children under five years old considered underweight.
In addition, up to 58.4 percent of children are stunted.2 Undernutrition and malnutrition
primarily affect children and women. According to the Ministry of Health, 80 percent of
children aged 6–23 months and 36 percent of women of reproductive age (25–45 years)
in NTT suffer from anaemia, and 24.5 percent of women of reproductive age suffer from
chronic energy deficiency,3 the highest in Indonesia.
This Gender Rapid Assessment (GRA) report aims to understand the underlying causes of
gender marginalization in NTT and how they can be addressed. It represents the first step in
developing WFP’s strategy on gender mainstreaming and provides valuable information for
the development of the NTT Province Food and Nutrition Action Plan (FNAP), also known as
RAD-PG NTT. Improved gender awareness can do much to promote improved food security
systems and overall nutrition improvement in NTT.
The assessment covers three areas:

• Gender issues related to food security and nutrition in NTT.
• Government interventions on gender issues related to food security and nutrition.
• WFP’s strategy to promote gender mainstreaming.
By mapping out these three areas, the report will help WFP determine strategic approaches
to incorporate gender issues within RAD-PG.
1.1. Problem
Questions addressed during this GRA are as follows :

• How are gender issues shaped in NTT?
• What are the factors that influence gender?
• How do gender issues affect stunting and malnutrition in the community, especially in
women and children?
• What are the Government’s interventions on gender mainstreaming in food security
and nutrition?
• What areas have been developed?
• How is gender mainstreming incorporated in WFP Kupang SO’s project cycles?
• What are the gender challenges? How these have been addressed?
• How does WFP Kupang SO address gender challenges?
• What areas could be improved?
2
Riskesdas 2010
3
Riskesdas 2007
8
1.2. Methodology
The methodology of this assessment includes relevant literature review on gender and food
and nutrition security in NTT, as well as in-depth interviews and discussions with various
stakeholders and focus group discussions (FGD). Key informants included representatives
of the Women Empowerment Bureau; Food Security Office; Health Department, especially
the Community Nutrition Improvement Unit; INGOs such as CARE International and Oxfam;
NGOs including Rumah Perempuan, PIKUL; UNFPA and FGD were conducted with Lapo
Belajar Gender, Gender Working Group in NTT and WFP- Kupang Sub-Office.
9
1.3. Contextual Background
NTT is home to a diversity of cultures and is rich in natural resources. The province comprises
a mosaic of islands — Flores, Sumba,Timor, Rote and Alor, also known as Flobamora —
each characterized by its own distinct language, cultural traditions and natural resources.
Up to 40 ethnic languages are spoken in NTT, according to a Kompas report on NTT
cultures. Traditional music, weaving, horseback riding and whale fishing are popular cultural
activities. Natural products include coffee, cocoa, clove, corn, nutmeg and sandalwood,
which is known throughout the world for its fragrance.4
However, NTT faces a host of development challenges. It is ranked the second lowest province
out of 33 in the country’s Human Development Index, and 23 percent of its population (4.6
million) is considered poor.5
Many factors influence NTT’s slow pace of development. Geographically, the province is
divided into several islands that lie between the Indian Ocean and Pacific Ocean. These
islands suffer from limited infrastructure: poor roads, limited availability of clean water,
inadequate electricity, limited sanitation and lack of health services. Limited infrastructure has
impeded improvements in health, nutrition, economy and education.6 Most NTT inhabitants
have to walk long distances to access clean water — 56 percent of households do not have
access to drinking water within one kilometer from their homes.7 Sanitation facilities are
largely unhygienic — only 25.35 percent households have fitted sanitation (private or public
sanitation with closet and septic tank), and the remaining 74.65 percent of households use
rudimentary means of sanitation.8 Furthermore, limited access to public health services
results in slow medical responses to illness.9 Health facilities are available only in central
villages or sub-district areas. Medical visits to remote areas that are difficult to access by
road occur once a month on average. These conditions directly and indirectly contribute to
an unhealthy quality of life.
NTT is also subject to extreme weather conditions. The rainy season lasts only three to four
months (November-March), while the dry season is typically about eight to nine months
(April-October). As a result of climate change, seasons are becoming increasingly difficult to
predict, and many farmers suffer from crop failures.10 Food availability has decreased and
farmers’ incomes have fallen, restricting many communities’ access to food.
Food insecurity and undernutrition are high, with 58 percent stunting prevalence and 13
percent wasting prevalence among children under five in NTT.11 Food availability is an issue
of concern only in some sub-districts in NTT (43 out of 280), while access and utilization
are the two most critical dimensions of food insecurity in the province.12 Limited access to
food for the poor, as a result of the combination of poverty, lack of stable employment, low
4
Koestanto, B.D. et all. 2011. Infrastruktur Minim, Kemiskinan tak Kunjung Terurai Ekspedisi Jejak Peradaban NTT, in the journalistic report
of Kompas. Kompas, Jakarta.
5
See Frans Sarong, Samuel Oktora, Sutta Dharmasaputra (2011) Ende ‘Rahim’ Pancasila, Ekspedisi Jejak Peradaban NTT in the journalistic
report of Kompas, Kompas, Jakarta, p. 96. Poor according to criteria of Bappenas.
6
Ibid
7
Riskesdas 2010. p. 101 - 102
8
Ibid. p. 103 - 104
9
Benny D Koestanto, Mawar Kusuma Wulan, Samuel Oktora, Kornelis Kewa & Atika Walujani Moedjiono. 2011. Infrastruktur Minim,
Kemiskinan tak Kunjung Terurai; Ekspedisi Jejak Peradaban NTT The journalistic report of Kompas, Kompas, Jakarta.
10
The strategic Plan of the Health Office of NTT Province for 2009 - 2013. 2009 p. 22-24
11
Riskesdas 2010
10 12
Food Security Agency & WFP. 2010. Food Security Vulnerability Provincial Atlas NTT.
and irregular cash income and limited purchasing power, is the greatest concern related to
food security. This is also linked to sub-optimal food utilization and the nutritional situation of
the population. A recent study conducted by WFP in TTS district showed that more than 80
percent of households in the district were not able to afford the minimum cost of a nutritious
diet.13
In 2009, more than 1 million people (23.31 percent) lived below the provincial poverty line.14
According to the Food Security and Vulnerability Atlas (FSVA) of NTT province 2010, the
average daily energy intake of people in NTT in 2009 was 1,972 kcal, lower than the national
Recommended Daily Allowance (RDA), and the protein intake was 54.13 grams, surpassing
the national RDA. The lowest three expenditure classes, however, consumed only 1,779
kcal/capital/day or less, and their diet remained quantitatively imbalanced.15
13
WFP. 2011. Cost of Diet Analysis,
14
Food Security Agency & WFP. 2010. Food Security Vulnerability Provincial Atlas NTT.
15
Ibid.
11
2. GENDER ISSUES IN NTT
2.1. Gender Issue in NTT
2.2. Gender Issue Related to Food and Nutrition
Security in NTT
2.1. Gender Issues in NTT
As reported by several sources including research by the Women Empowerment Bureau

(WEB) of NTT Government on mapping social culture related gender in NTT, gender issues
in NTT stem from the patriarchal culture of the region.16 Because NTT is a mosaic of different
cultures, gender practices vary across the province. In general, however, the position of
women is subordinate to men.
According to the WEB’s gender map, the roles and responsibilities of women in NTT society,
such as in rituals of birth and death, mostly depend on the status of their husbands. It was
noticed that some communities in Ngada district do not apply this gender role. An aristocratic
woman has a privilege to make decisions for some cultural rituals in the society. The role of
women, however, mostly is in the home. Women could take part in public areas only with
the husbands’ permission. The WEB’s report quotes Timo’s notes (2006) that there is social
value associating women as ume, which means closed, inside or quiet. Meanwhile men
are associated as lopo, which means open, outside or outspoken. In other words, women
are supposed to assume roles in the home, while men take on responsibilities in public
areas. Liliweri (1989) notes that women in Belu district are also responsible for husbands’
properties, including ancestral inheritances.17
Girls are expected to take care of household work and help in the care of younger siblings,
while their mothers are working in the fields. This responsibility does not fall on boys. Girls,
therefore, have less time for leisure and study. Female students tend to drop out of school
starting from junior high school. (Higher education: boys: 11.13 percent, girls: 9.42 percent,
University/Diploma IV: men: 2.56 percent, women; 1.48 percent). 18
In some households, parents sometimes practice a form of discipline called ‘Di ujung rotan
ada emas’ (literally meaning “There is gold at the peak of the cane”). Beating a person
is allowed for enforcing discipline. Men sometimes apply this practice on their wives and
children as a way to educate them.19
The subordinate status of women is especially evident in marriage arrangements and, in

particular, the dowry tradition. Dowry, called belis, was initially regarded as a mark of respect
toward a woman’s family who looked after and educated them. The form and amount of
belis depends on the status of a woman’s family. The higher status of the woman, the more
expensive the belis is. Belis come in various forms, with ivory common for tribes in East
Flores (Lamaholot Mainland, Adonara Island, Solor Island, Lembata) and Alor Island-coastal
areas. In other areas, belis mostly consist of livestock and converted money.20 Nowadays,
belis carries a negative connotation and can be interpreted as beli putus, which means a wife
is under her husband’s control. This negative perception results in the negative treatment of
women in the family.
In addition, a woman takes on her husband’s clan name once she is married. The children are
also named after the father’s clan. For example Maria’s clan is Seran; therefore, her name is
16
WEB Province NTT. 2011. Mapping Social Cultures related to Gender Issues in NTT; Strengthen Women’s Rights. Draft final report
unpublised
17
Ibid. p. 10 – 26.
18
NTT in Figures 2010, p. 102/Susenas 2009.
19
Discussion in HLSA (House Hold and Livelihood Assesment) workshop and discuss with Ani Himawati, CARE’s external consultant
working for HLSA project, August 2011.
20
Kewa, K. A. 2011. Gading Gajah, Mahar Kawin yang Membebani; Ekspedisi Jejak Peradaban NTT (Ivory, Cultural Heavy Dowry;
14 Cultural Expedition in NTT), Laporan Jurnalistik Kompas(Journalistic Report of Kompas,Kompas, Jakarta, p. 8-12
Maria Seran. When she marries Fransiskus Benu, she becomes Maria Benu Seran. And all
Maria’s children will use Benu as their family name, not Seran. This tradition promotes the
perception that the presence of boys in the family is necessary since only boys are able to
pass on the family name.21
The subordinate position of women can trigger the abuse of power by their husbands. Some
studies show that domestic violence in Indonesia is caused by an inbalance in the power
relationship between wives and husbands in the family, which is governed by the idea that
the husband has a superior position to the wife and is the head of family who must be
respected and obeyed. The wife should, therefore, be submissive and obey him (Munir 2002
& 2005, Ashmad 2004, Brenner 1998, Hilal 2006).22 In NTT, wives are expected to follow
their husband’s decisions and in some cases, to keep silent even though they are scolded or
hit by their husbands. Quarrels and domestic violence are commonplace and reflected in the
traditional Indonesian saying: ‘Piring sendok berbunyi itu biasa’ (or ‘the noise ring of crashed
plate and spoon is common’). Domestic violence cases are usually reported to authorities
only if the violence results in bleeding or bruises.23
There is very limited data available on violence against women (VAW), particularly domestic
violence. Rumah Perempuan, a local NGO working with women affected by gender-based
violence, has recorded 167 cases of domestic violence against women reported in Kupang
in 2010, among which 67 are cases of domestic violence in addition to cases of sexual
harassment, trafficking and other forms of violence, including verbal abuse.24
The subordinate position of women in the household is also reflected in a lack of women’s
access and control over household assets and decision-making in the family.25 (See the
findings of a study in Oetefu and West Rote in table 1)
Table 1. Result of Participatory Poverty Assessment (PPA) in Oeutufu village, Rote Barat Daya Sub-District
(Farm Group of dry land & fisheries).
Access (Right Control (Right Holder of Right to

Resources to posses) to sell) Income Determine use of
Yields
♂ ♀ ♂ ♀ ♂ ♀ ♂ ♀
Land √ X √ X √ √ √ √
House √ √ √ X √ √ √ X
Chicken √ X √ X √ √ √ X
Dog √ X √ X √ √ √ X
Pig √ X √ X √ √ √ X
Goat √ X √ X √ √ √ X
Palmyra √ X √ X √ √ √ X
Coconut √ X √ X √ √ √ X
Onion √ X √ X √ √ √ X
Palm sugar √ X √ X √ √ √ X
Salt √ √ √ X √ √ √ X
Jewelleries √ X √ X √ √ √ X
Marine product √ X √ X √ √ √ X
Source: PIAR PPA Report – unedited translation26
21
The name is only example.
22
Ashmad, A .2007. The Structure of Domestic Violence in East Java Indonesia; Cultural and religious Perspectives, MA. thesis,
unpublished.
23
In depth interview with Siti Thressia, Rumah Perempuan, Kupang, NTT, August 2011
24
Annual report of Rumah Perempuan, Kupang, NTT 2011.
25
PT. PPA Consultant Indonesia. 2011. AIPMNH (Australia – Indonesia Partnership for External and Neonatal Health) Gender Strategy
Phase 2, Bapeda Propinsi NTT
26
Fangidae, S. & Muslimatun. 2009. A Brief Review on The Persistent of Food Insecurity and malnutrition Problems in East Nusa
Tenggara Province, Working Paper 12, Oxfam GB 15
Indonesia
Yet another example of gender inequality within the family can be seen from the use of
contraception. It was reported that only 3.4 percent of men use contraception for family
planning, against 96.6 percent of women.27 In addition, the percentage of married women
who never use contraception in NTT is 37.6 percent, the sixth highest of all provinces in
Indonesia. Many reasons, in addition to ‘forbidden by spouse,’ can explain this low rate of
contraception use, including ‘forbidden by religion,’ ‘expensive,’ ‘difficult to find contraception,’
‘worried about the effect of contraception’ and ‘do not want to use contraception.28
Women’s lack of control over contraception and their reproductive health indirectly affects
the high number of maternal mortality in NTT29 (250/92.585).30 UN Millennium Development
Goal (MDG) targets aim to decrease maternal mortality to 102/100.000 by 2015. In order to
meet this goal, NTT must decrease its maternal mortality cases by 62 percent.
2.2. Gender Issues Related to Food Security and Nutrition
According to Indonesia Food Law No. 6, 1996, food security is defined as “a condition when
all people in the household have sufficient food at all times, represented as sufficient quantity
and quality of food in safe and achievable conditions.” To sketch out food security and
vulnerability in Indonesia, FSVA classifies food security and vulnerability into three pillars:
food availability, food access and food utilization. This report will briefly explore gender roles
in NTT within these three pillars.
FSVA defines food availability as “the physical presence of food in the area of concern
through all forms of domestic production, commertial imports and food aid. Food availability
is determined by food production in the area, traded food brought into the area through
market mechanism, stock held by traders and in government reserves, transfers by the
Government and/or food aid agencies.” Meanwhile food access is “a household’s ability to
acquire adequate amounts of food, through one or a combination of own home production
and stocks, purchases, barter, gifs, borrowing and food aid. Food may be available in the
area but not accessible to certain households if they cannot acquire a sufficient quantity or
diversity of food through these mechanism.”
Food utilization refers to a “household’s use of the food to which they have access, and
individuals’ abilities to absorb and metabolize the nutrients – the conversion efficiency of the
body. Utilization includes the way in which food is stored, processed and prepared including
water and cooking fuel used.31
Although cultural tradition calls for women to be in the home, in fact, women play important
roles in supporting food security in NTT. The situation report of WEB NTT province on
gender issues in NTT reports that women and men work together and complement each
other in agriculture activities. NTT in figures 2010 records 9,428 women and 13,129 men
working in the agriculture sector.32 In Belu and Ngada districts for example, men’s roles
27
The Health profile of NTT Province. 2010. table 20
28
Riskesdas. 2010. table 5.11, p. 56 & the Health Profile of NTT Province, 2010, table 20.
29
According to Riskesdas 2010 (40 – 65), there are 2 main indicators and 4 sub-indicators monitoring mortality. The main indicators
include the precentage of delivering babies in the health services and the number of women, ages 15 – 49, using contraception. While
four sub-indicators include the ages of women having the first marriage, regular check up for women reproductive health, imunization TT
for women and the nutrion status of women.
30
The Health Profile of NTT Province. 2010. table 7.
31
Food Security Agency & WFP. FSVA. 2010
16 32
NTT in Figures 2010, p. 60
are to make new land available by cutting trees and burning plants. Meanwhile women are
responsible for selecting and planting seeds, harvesting, storaging harvest and utilizing food
to be served for household members. Both men and women work together for selling crops
from the harvest.33
To support household income, which affects household accessibility to food, some women
also work as independent business owners, freelance workers and employees. See figures
below:
Table 2. Population of 15 years Old and Over who Worked

During the Previous Week by Main Employment Status, 2009
No Main Employment Status Male Female Total

1 Self Employment 169,111 121,285 290,396
2 Self Employed Assisted by 556,533 174,994 731,527
Member/Temporary/Unpaid Worker
3 Self Employed Assisted by Paid Worker 26,427 4,192 30,619
4 Employee 205,938 92,093 298,031
5 Freelance worker in Agriculture 13,129 9,428 22,557
6 Freelance Worker in Non Agriculture 32,114 3,493 35,607
7 Unpaid Worker 248,626 503,370 751,996

Source, NTT in Figures 2010.34
33
WEB. 2011. Mapping on Social Culture Related to Gender Issues in NTT; Strenghten Women’s Rights. Internal report, unpublished.
p. 23 - 26
34
NTT in Figure 2010.
17
The figures above show that the number of female employees is lower than male, except for
unpaid workers. The number of female unpaid workers is 503,370 while the number of male
unpaid workers is 50 percent less, i.e. 248,626.35 In addition, the number of professional
female workers such as NTT Government officials is much lower than the number of men in
the highest level in echelon II Females, 6 against 43.36
Women also play an important role in food utilization, by storing food, cooking and providing
food for the whole family including babies.37
Based on a brief exploration above, women in NTT clearly take an active role in supporting
food availability, accessibility and utilization, especially within their households.
On the other hand, the subordinate status of women in the household as mentioned above
contributes to women’s tendency to prioritize their husband and children in the allocation of
food in the family. Unfortunately, there is no precise data on intra-household food allocation.
WFP is in the process of conducting a behavioural analysis study in TTS that will analyse
these patterns and link them to a comprehensive behaviour change strategy on nutrition-
related practices, but results are not yet available. Most studies, including those carried
out by WFP and SEAMEO (2010), have limited data on nutritional intake of pregnant and
lactating women, schoolchildren and children under two years old.38 These studies do not
show the direct effect of gender practices on the nutrition intake of each member of the
household.
However, available evidence on women’s nutritional status in NTT is alarming; 24.5 percent
of women in their reproductive age (15–45 years), suffer from chronic energy deficiency, the
highest rate among all provinces in Indonesia.39 In 2009, the proportion of pregnant women
suffering from chronic energy deficiency in NTT reached 21.6 percent40 and in 2007, 13.7
percent suffering from anemia.41
It is important to highlight the lack of attention to women’s nutrition within NTT context
particularly when they are pregnant, giving birth and breastfeeding. Although pregnant and
lactating women require additional food intake and more time to relax, it is common practice
that household members are not attentive to these needs. Those women still work hard
and struggle to have time to relax and to obtain the extra nutrients required for a healthy
pregnancy and breastfeeding.
Women in poor families living with limited sanitation facilities and access to clean water
have to work harder than those living in homes with fitted sanitation facilities. These women
must spend more time and energy getting water from the community well to take care of
housekeeping and childcare tasks.
35
Ibid
36
Ibid
37
Ibid. p. 23 – 26;
38
Ibid. and WFP & SEAMEO TROPMED. 2010. Nutrition Security and Food Security in Seven Districts in NTT Province, Indonesia:
Status, Causes and Recommendations for Response. The Report of Joint Assesment SEAMEO TROPMED (Southeast Asian Ministers
of Education Organization - Tropical Medicine and Public Health) Regional Centre for Community Nutrition at the University of
Indonesia, Jakarta, Indonesia
39
Riskesdas. 2007. p. 55
40
FNAP of, NTT province 2012 - 2015
41
Riskedas. 2007
18
In some places, pregnant and lactating women are forbidden to eat certain nutritious foods
that are considered taboo42 such as fish to avoid baby’s bad smell, chilli to avoid baby’s
conjunctivitis and pineapple to prevent miscarriage.43 The nutrition status of lactating women
has not become a strategic issue as it has not been adequately addressed yet by the NTT
Health Office.
Women are considered domestic workers by nature. If a woman earns money or takes part
in social activities, she doesn’t only suffer from the double burden of working at home and
outside the home, her income is likely to be considered supplementary income, even though
her earnings may be larger than the husband’s.44 This double burden stands as one of the
causes contributing to undernutrition among children, as a result of women lacking sufficient
time to prepare food and feed their kids.45
The situation described above has a profound impact on a woman’s children. A mother’s
poor nutrition leads directly or indirectly to underweight babies. For example, research in
seven NTT districts shows that prevalence of wasting in children grew up by women with low
vs normal BMI is 24.4 vs 13.5 percent (See figures below.)
42
Satifan, N. & Safitri, D. 2011. Gender Equality as A Key Dimension for Improved Maternal and Child Nutrition to Reduce Stunting in
TTU, Belu districs and Sumedang districts; the Assesment conducted by PNPM. Report of MCC Gender Assesssement. Internal report,
unpublished.
43
Depth interview with Siti Tressia, a senior staff of Rumah Perempuan, Kupang NTT, Augustus 2011.
44
This gender inequality happens in all of Indonesia. Therefore, one strategic Women Comission issue is advocacy for women as head
of household.
45
WFP & SEAMEO TROPMED. 2010. Nutrition Security and Food Security in Seven Districts in NTT Province, Indonesia: Status,
Causes and Recommendations for Response. The Report of Joint Assesment SEAMEO TROPMED (Southeast Asian Ministers of
Education Organization - Tropical Medicine and Public Health) Regional Centre for Community Nutrition at the University of Indonesia.
Jakarta, Indonesia, p. 23
19
Proportion (%) of Malnutrition among Children 0-59 MO

According to the Nutritional Status of Caregivers.
BMI Mother Underweight Wasting Stunting Overweight

% N % N % N % N
Underweight 49.5 507 24.4 492 51 504 3 492

Normal 37.1 1571 13.5 1519 51.7 1557 3.4 1506
Overweight 31.2 311 9.7 299 52.3 304 3.7 297
Total 39.7 2389 15.3 2310 51.6 2365 3.3 2295

Source: Joint Assessment SEAMEO TROPMED (2010)
Based on the above findings, it can be concluded that:
1. NTT province faces various development challenges, including limited infrastructure and
low economic growth, which contribute to insufficient and/or inadequate food access
and food intake. Meanwhile lack of clean water, poor sanitation, poverty and low human
resource development result in inefficient prevention and management of infectious
diseases. Food intake and management of infectious diseases are two direct causes of
child undernutrition.
2. Although women play important roles for supporting food security, women and children
in NTT are considered vulnerable groups, particularly in the context of food and nutrition,
as a result of gender inequalities that are embedded in the social values and daily life
practices of the household and community.
3. Three main forms of gender inequality practices can be identified in the food security
context. It is common practice for men to be prioritized when it comes to food access and
distribution within the household. This results in high rates of chronic energy deficiency
for women, including pregnant women, and children. Secondly, because of the perception
that the main responsibility of women is to take care of household work, including caring
for and feeding the children, working mothers have the double burden of earning money
and doing all the housework. Girls, too, end up with less leisure and study time than
boys. Thirdly, the nutrition of pregnant and lactating women is not prioritized, and many
work hard to earn money, while still doing all household tasks.
20
4. Taboo foods for pregnant and lactating woman are still practiced. It limits pregnant and
lactating women to have varieties of food and nutrition.
5. Limited food accessibility of women has an impact on the health of their children.
Underweight pregnant women are likely to give birth to underweight babies and to raise
wasted children.
6. Men’s role as head of the household, is a critical factor when addressing food and
nutrition security and health reproductive issues. Culturally, men are empowered to
make decisions for the family, but their authority is not always used in the best interest
of the family. Their privileged position often weakens women’s access to adequate food
and nutrition.
21
3. GENDER ISSUES IN NTT IN
GOVERNMENT OFFICES,
RELATED TO FOOD AND
NUTRITION SECURITY IN NTT
3.1. Gender Mainstreaming in WEB
3.2. Gender Mainstreaming in FSO
3.3. Gender Main streaming in NTT Health Office
This part of the report provides a brief overview on government interventions related to
gender issues within food security and nutrition in order to identify the progress and the
gender gaps that need to be filled. Both policy and interventions of the Women Empowerment
Bureau (WEB), Food Security Office (FSO) and Health Department -specifically Community
Nutrition Improvement Unit (CNIU) - will be addressed.
Some policies are already in place to address gender mainstreaming in Indonesia. A

Presidential Instruction (INPRES) on gender mainstreaming was launched in 2000. This
decree requires all Government institutions and agencies — including ministers, the
commander of the Indonesian national army, the head of the Indonesian Police, the attorney
general, governors, regents and mayors — to incorporate gender mainstreaming in their
policies and programmes to promote gender equality in Indonesian society.47 In 2008, the
Ministry of Home Affairs launched regulation No. 15 to guide the implementation of gender
mainstreaming at the provincial level.48
Gender mainstreaming in NTT is supported by Provincial Government Regulation (PERDA)

Number 7, 2008. This district regulation states that the Government is responsible for
ensuring women’s empowerment and child protection.49 Strategic guidelines for 2009-2013
have been issued on the basis of this regulation for capacity building, coordination across
stakeholders for improvement of gender mainstreaming, and improvement of quality services
to improve women’s and children’s lives in the areas of education and health.50
3.1. Gender Mainstreaming in Women Empowerment Bureau (WEB)
The implementation of gender mainstreaming in NTT has been driven by the WEB. The role
of WEB is to facilitate and coordinate various stakeholders especially SKPD (Satuan Kerja
Perangkat Daerah/technical offices). Currently, the WEB manages four sub-units, including
gender equality, child mainstreaming, quality of life improvement for women and children
and empowering community institutions to protect women and children from physical,
psychological and sexual abuse.51
With regard to gender mainstreaming, the main tasks of the WEB are to promote gender
equality, provide administrative equipment and develop a network for gender mainstreaming
in the region. In addition, WEB is also responsible for advocating technical offices to recruit
a balanced number of male and female workers and supporting each of them to set gender
focal points (GFP).
The principal goals of WEB include:
1. Strengthening institutions working for gender mainstreaming in the region, increasing

coordination between Governments, UN agencies and NGOs working for women and
child protection.
47
Instruksi Presiden Republik Indonesia no 9 tahun 2000
48
Peraturan Menteri Dalam Negeri Nomor 15 Tahun 2008 Tentang Pedoman Umum Pelaksanaan Pengarusutamaan Gender di Daerah
(Regulation of the Minister of in Country of Indonesia, Number 15, 2008. It is about General Guidelines for Implementation of Gender
Mainstreaming in the Region)
49
The Strategic Plan of WEB NTT Province for 2009 - 2013
50
Ibid. Chapter VI, p. 1 - 5
51
See the structure of WEB NTT Province in the Strategic Plan of WEB NTT Province for 2009 – 2013, Chapter VI, p. 1 - 5
24
2. Advocating to improve the welfare of children, especially those suffering from poor
nutrition and violence.
3. Empowering women by encouraging them to engage in public activities, such as working
to earn money, and protecting women and children from violence.52
WEB is also responsible for encouraging women’s organizations, religious organizations

and other professional organizations to develop gender mainstreaming strategies, increase
knowledge and skills of women on harvest technology suitable for women, increase the
number of women entrepreneurs, develop a database of female-headed households and
women entrepreneurs and encourage women to actively participate in programme planning,
implementation and monitoring at the village and district level.53
WEB works to improve civil rights protections for women, including registering marriage
certificates, birth certificates and family cards. These three strategic activities are a way to
foster livelihood sustainability, protect women and children from violence and improve the
quality of women’s and children’s lives. Meanwhile, gender mainstreaming work has focused
on capacity development efforts targeted at institutions working on gender mainstreaming,
as well as the Gender Focal Point (GFP) within technical offices. It has also focused on
improving coordination between government and external agencies supporting gender
mainstreaming work, including in the education system.54
52
The strategic Plan of WEB NTT Province for 2009 – 2013.
53
Ibid.
54
Ibid. , chapter VII, p. 30 – 31.
25
According to the head of WEB, Dr. Yovita Anike Mitak, MPH, supporting civil rights is the
most urgent action needed. Women without marriage certificates and children without
birth certificates have faced difficulties in accessing government services, development
programmes, health insurance, scholarships and other programmes.
To support the programme, WEB has been working to map out NTT cultures related to
gender roles and responsibilities in everyday practices. It has covered ten districts including
Kupang, Timor Tengah Selatan, Sabu Raijua, Sumba Tengah, Manggarai, Flores Timur,
Belu, Alor, Ende and Sumba Barat.55 The rest of the districts will be mapped in the next
years. This research aims to be a valuable reference for addressing gender issues in NTT
society.
On the other hand, gender mainstreaming has not worked as it should due to various
challenges, including WEB’s limited budget and human resources and its limited capacities
given its position under SETDA (District Secretary), which hinder its efforts to implement
the gender mainstreaming programme. The limited capacities of GFP in understanding
gender mainstreaming severely limits effective implementation of gender mainstreaming
strategies.56 However, despite all the challenges mentioned above, WEB has begun working
to implement gender mainstreaming in food security and nutrition through its involvement in
Food and Nutrition Action Plan (FNAP) activities.
Based on the exploration of policy, strategic action plan and implementation of the WEB
programme, it can be concluded that WEB focuses on addressing practical needs of women
in the society such as the cases of violence against women and empowering women to
have more access and control over economic and social development. Interventions on
strategic needs, such as institutionalizing gender mainstreaming withi technical offices have
not been prioritized. Therefore, GFP have not maximized their potential for enforcing gender
mainstreaming within technical offices. This is reflected in the gender mainstreaming work in
the FSO and Health Office (CNIU), as explored in the following sections in this report.
3.2. Gender Mainstreaming in Food Security Office (FSO)
To support gender mainstreaming in food security, WEB has appointed the head of
Consumption and Food Safety Unit as the Gender Focal Point (GFP) in the FSO NTT
province. Ir. Yudith Palentek’s appointment as GFP was based on the consideration that
the programme of Consumption and Food Security Unit is closely related to the activities
of women’s groups.57 The programme includes home gardening, handling and processing
agricultural harvests, promoting local foods and developing crop diversification.58
The programme targets of this unit include: establishing policies that accelerate food
diversification, improvement of food security information systems, development of women
farmers’ groups, community development for food processing, conducting food processing
and training communities in 21 districts/cities to produce local food products.59 Gender
55
See the report of research carried by WEB on Mapping Potencies and Problem of Social Culture related to Relationship between
Women and Men in NTT. 2010. And the Final Report on Mapping Social Culture related to Gender Issues in NTT; Strengthen Women’s
rights. 2011. Unpublished.
56
Depth interview with the head of WEB of NTT Province, Dr. Yovita Anike Mitak, M.PH on October, 2011.
57
Depth Interview with Ir. Yudith Palentek, GFP of FSO on August 2011
58
The Strategic Action Plan of FSO NTT Province for 2009 – 2013
26 59
Ibid.
mainstreaming work includes coordination with WEB for disaggregating data of women and
men staff of FSO, delivering representations of FSO for gender training and workshops
conducted by WEB and involving WEB in FSO activities related to promotion of gender equality
among FSO staff. These gender-related projects, however, have not been incorporated into
the main programme of FSO.60
FSO has gained experience working on gender mainstreaming in food security through the
Participatory Integrated Development in Rainfed Areas (PIDRA) programme.This programme
is a replication of the Dry land Development Project conducted in East Java with the support
of the International Fund for Agricultural Development (IFAD).
PIDRA was implemented from 2001 to 2008 in five NTT districts: TTU, TTS, West Sumba, East
Sumba and Alor. The objectives of PIDRA are to increase household income, food production
and food security through community empowerment including women’s empowerment,
development of agriculture and livestock, land development and rural infrastructure, as well
as improving programme management and increasing institutional support.
PIDRA has benefited 16,975 households. It established 897 groups (399 men’s groups, 348
women’s groups and 150 mixed male-female groups. In addition, PIDRA also established
94 federation units.61
PIDRA has successfully developed four basic pillars of community development related
to food security: human resources capacities; institutional strengthening; introduction of
appropriate technology; and appropriated funds to stimulate community work. These four
pillars aim to support communities’ efforts to overcome all problems related to food security.62
In terms of gender mainstreaming, the PIDRA programme has encouraged women’s active
involvement in the group. In addition, according to Ir. Edgar Tibuludji, the senior FSO
staff responsible for managing PIDRA, some groups had made regulations that prohibit
perpetrators of domestic violence from being granted access to loans.63 The savings and
credit programs for women’s groups run more smoothly than men’s groups. This experience
is similar to the experience of Grameen Bank and Association for Social Advance (ASA)
which has a re-payment rate from women of up to 98 percent even up to 99 percent.64
Currently, PIDRA has closed down. Despite the successful gender mainstreaming within
PIDRA, a systematic approach to gender mainstreaming has not been applied to all FSO
programmes yet.65
Based on the above findings, it is clear that gender mainstreaming has not been institutionalized
yet within FSO. Gender analyses have not been part of programme planning. Therefore,
the gender mainstreaming approach in FSO is about addressing practical needs including
involving women in FSO programme and protection of women from violence. The approach
does not deal with the strategic areas such as incorporating gender mainstreaming into FSO
strategic plan.
60
Ibid and indicator of programme achievement of FSO 2010
61
The Report of PIDRA NTT Province 2010, page 7
62
Iqbal, M. 2008 Konstelasi Institusi Pemerintah dan Lembaga Swadaya Masyarakat dalm Program PIDRA, Jurnal Ekonomi
Pembangunan.Volume 9, No 1, Juni, hal. 28 – 45 & Rahayu, MG. Ana Budi. 2008. Pembangunan Perekonomian Nasional Melalui
Pemberdayaan Masyarakat Desa, Bina Swadaya, Jakarta.
63
Compilation between depth interview with Ir. Edgar Tibuludji, project manager of PIDRA NTT and working paper written by Rahayu,
MG. Ana Budi. 2008. Developing National Economic through community empowerment. Bina Swadaya. Jakarta.
64
Rahayu, MG. A.B. 2008. Developing National Economic through Community Empowerment. Bina Swadaya, Jakarta.
27
65
See the programme achievement of FSO of NTT Province 2010. There is no program on gender mainstreaming
3.3. Gender Mainstreaming in NTT Health Office (Community Nutrition Improvement Unit)
The strategic plan of the Health Office of NTT province for 2009-2013 states that interventions
on nutrition focus on improving the nutritional well-being of children66 and public awareness
about the importance of hygiene in the household, especially among coastal communities.67
Meanwhile, the main goal of CNIU is to improve nutritional status of community especially
nutrition of pregnant and lactating women, children under five and women of reproductive
age (15-45).68
To achieve the goal, CNIU has been implementing six main programmes: 1) community
awareness on nutrition; 2) community nutrition services; 3) nutrition rehabilitation, such as
rehabilitating nutritional cases (acute malnourished children and serious anaemia), providing
and distributing additional foods for children under five and pregnant mother suffering from
chronic energy deficiencies and dietetic services; 4) community empowerment; 5) nutrition
surveillance and; 6) management support.
One of CNIU’s strategies for improving community nutrition is through the community
empowerment programme NICE (Nutrition Program Improvement through Community
Empowerment).69 The centerpiece of the NICE project is to strengthen community-based
services for children and women, and social mobilization for improved nutrition and hygiene.70
The NICE programme aims “to reduce the prevalence of underweight children under five
years, and pregnant and lactating women through strengthening the capacity of central and
local governments in improving the management of nutrition services.”71
The expected output of the NICE programme include: 1) strengthened capacity for
development of nutrition policies, programmes and surveillance; 2) improved quality of
integrated nutrition services for women and children in project areas; 3) enhanced community
capability for, and implementation of, improved nutrition and hygiene interventions; 4)
expanded food fortification programmes and nutrition communication and; 5) enhanced
capacity for nutrition policy and programmes institutionalized and monitoring and evaluation
established in project areas.72
It is clear that the CNIU has largely focused on fostering better nutrition for women and
children and has worked for establishing fundamental foundation for enforcing better nutrition
services in the community. In terms of gender mainstreaming issues, however, the CNIU
has received limited information. During the gender workshop conducted by collaboration
between Bappeda province NTT and WFP Kupang SO on October 14, 2011, Ir. Isbandrio,
MM., the head of CNIU mentioned that CNIU had not been involved in gender mainstreaming
activities before.73 Therefore, there are visible strategic gaps addressing gender inequality.
For example, to date there has not been any emphasis on encouraging male participation to
support the nutrition of women and children in the home. Men are an essential link to ensure
66
The Strategic Planning of Health Office NTT Province for 2009 – 2013
67
Ibid. p. 31-42
68
See the presentation of Ir. Isbandrio, the head of CNIU in the gender workshop conducted by collaboration of Bappeda province NTT
and WFP Kupang SO on October 14, 2012.
69
Ibid
70
See NICE document which could be accessed on http://pid.adb.org/pid/LoanView.htm?projNo=38117&seqNo=01&typeCd=3
71
NICE document which could be accessed on http://pid.adb.org/pid/LoanView.htm?projNo=38117&seqNo=01&typeCd=3
72
Ibid
73
He is one of source person of gender mainstreaming for food and security workshop conducted by collaboration of Bappeda province
of NTT and WFP on October 14, 2011.
28
adequate nutrition for whole member of household but the decisions they take are not always
in the interest of the women and children in the family. However, if sensitized, men can act
to provide healthier conditions for their family - e.g. prioritizing the nutrition of women and
children (choosing healthy foods and beverages above sirih pinang or sopi (local alcohol),74
as well as sharing household and childcare duties. In addition, gender issues have not been
incorporated during programme planning.
Based on a brief examination of government interventions on gender mainstreaming through

WEB, FSO and the CNIU, it is clear that the Government places more emphasis on a “Women
in Development (WID)” approach, rather than a “Gender and Development (GAD)” approach.
The WID approach focuses on addressing women’s practical needs or the impact of gender
inequality such as violence against women, heavy burden of household responsibilities and
encouragement of women’s participation in social and economic activities. As suggested at
the 1995 World Conference on Women in Beijing, GAD strategic approaches must promote
full equality between women and men in all spheres of life, addressing the causes as well as
the consequences of inequality and aiming to bring about fundamental changes in gender
relations.75
To address this challenge, WEB as a leading sector in gender mainstreaming should shift to
GAD approach to better address gender equality issues related to food security and nutrition.
WEB should provide technical guidance or promote gender analyses during programme
design and planning. WEB has mapped out gender issues within society in 10 districts
of NTT. It could be a valuable tool in contextualizing gender issues within government
programmes including programmes related to food security and nutrition.
The guideline and the analyses could be used as tools for technical offices to improve gender
perspective and to develop gender mainstreaming action plans that would be incorporated
into the programmes of FSO and Health Office (CNIU). This would allow incorporating
gender mainstreaming within these three departments in a more systematic and strategic
way. WEB and GFP should coordinate to follow up the progress made in addressing gender
equality, including men’s advocacy role. With its limited number of human resources and
budget, WEB could strengthen its collaboration with external agencies working on gender
mainstreaming in food and nutrition security including NGOs, UN Agencies and the donor
community.
Within government bodies in NTT, gender mainstreaming should be institutionalized into

project management within WEB and technical offices including FSO and Health Offices
(CNIU), as required according to Presidential Instruction (INPRES 2000).
74
Satifan, N. & Safitri, D. 2011. Gender Equality as A Key Dimension for Improved Maternal and Child Nutrition to Reduce Stunting;
Gender assessment conducted by PNPM in TTU, Belu districs and Sumedang districts. Internal report, unpublished.
75
The report DFID. (Department for International Development). 2002. Breaking the barrier; Women and the Elimination of World
Poverty. page 3.
29
4. WFP AND GENDER
MAINSTREAMING
4.1. Gender Mainstreaming in WFP
4.2. Gender Mainstreaming in WFP Kupang SO
4.1 Gender Mainstreaming in WFP
The World Food Programme (WFP) is a United Nations organization that works to fight
hunger and improve food and nutrition security around the world.76 When the United Nations
World Food Programme (WFP) was created, Indonesia was one of the first countries to
receive WFP assistance. In 1964, WFP provided food valued at US $1 million for victims
of the Mount Agung eruption in Bali. This food assistance was followed by support for the
restoration of roads and land lots, reconstruction of houses, rehabilitation of irrigation canals
and growing of food crops. WFP continued its operation in Indonesia until 1996, focusing
on the empowerment of women through training, income-generating activities and food
assistance for victims of conflict.77
In 1998, WFP returned to respond to the drought caused by El Niño and to the impact of the
Asian financial crisis. WFP operations shifted towards providing subsidized rice for the poor
and targeted nutrition interventions. WFP support has moved from predominantly food-for-
work projects to a subsidized programme focused on urban areas, and from income support
to a greater emphasis on targeted nutritional interventions (with a focus on micronutrients)
among vulnerable populations.
Currently WFP has been implementing new Country Programme 2012-2015 with three main
pillars: 1) Food Security, Monitoring and Mapping; 2) Disaster Risk Management; and 3)
Social Safety Net and Nutrition. Within this new CP, WFP plays a catalytic role to achieve
food security for all in which it has marked a change of WFP approach from food aid to food
assistance where WFP will be more focus in providing technical assistance, prototyping p,
M& E, policy and advocacy
In line with the transition to food assistance, WFP will pursue an integrated approach
built in VAM and the emerging capacity of the Government. The four activities include: 1)
monitoring, analyzing, mapping and addressing food insecurity; 2) prototyping high-impact,
replicable interventions; 3) enhancement of monitoring and evaluation (M&E) to improve
knowledge management; and 4) advocacy to develop and support sustainable food and
nutrition security policies and interventions.
WFP’s operation focuses on rural and suburban areas of Nusa Tenggara Timur, Nusa
Tenggara Barat, East Java Provinces and Greater Jakarta. Capacity development and
logistic support (for the upgrade of poor infrastructure in Aceh) are also an integral part of
the Indonesia operation. This GRA, however, focuses on WFP Kupang SO.
Related to gender, WFP has been engaging in gender mainstreaming for a long time, based
on the premise that gender equality represents a key pre-requisite to achieve food and
nutrition security.
In 1987, WFP established “Gender Policy Principles” which emphasized consideration for
the different roles of women and men in the division of labour and the differences between
76
WFP website
77
WFP. 2010. Working Together to Solve Hunger.
32
the two in their access to and control over resources. An effective involvement of women in
food assisted interventions was proposed.
At the Fourth World Conference on Women held in Beijing in September 1995, WFP launched
five Commitments to Women to be met by the year 2001. The aim of the commitments was to
reduce gender-related inequalities. The commitments highlighted WFP’s strategic choice to
address equal access to food, income-earning, employment and educational opportunities.
The 2003-2007 Gender Policy builds on previous commitments and focus on strengthening
and fine-tuning the implementation approach. The commitments consider women’s special
nutritional needs at critical times of life, promote women’s and girls’ participating in and
benefiting from food-assisted activities that create human and physical assets, and support
women’s and girls’ effective participation in decision-making. As the name implies, the
Enhanced Commitments to Women (ECWs) were built upon the original Commitments.
An evaluation of the Enhanced Commitments to Women was conducted in 2008 and was
key in the development of the new gender policy. The objective of the evaluation was to
verify corporate follow-through, seeking lessons learned from implementing the positive
measures, and understanding gaps between policy and responses in the field.
Based on these recommendations and a consultation process with the field, “WFP Gender
Policy: Promoting Gender Equality and the Empowerment of Women in Addressing Food
and Nutrition Challenges” was approved by the Executive Board in February 2009.
The overall goals of WFP gender policy are:

• To strengthen and maintain an institutional environment that supports and encourages
gender mainstreaming;
• To improve the effectiveness and sustainability of WFP programmes addressing hunger
in partner countries;
• To promote the integration of a gender perspective into the food and nutrition policies,
programmes and projects of partners, countries and cooperating partners.
In order to ensure the implementation of the gender policy within programmes, a Gender
Corporate Action Plan (2010-2013) has been developed.
The main priorities are the following:
1. Increasing knowledge and capacity among staff to carry out gender analysis and
incorporate a gender perspective into policies, programmes and projects;
2. Establishing an accountability framework to ensure adequate gender mainstreaming,
supported by adequate corporate tracking and reporting mechanisms;
3. Promoting and strengthening partnerships at all levels for implementation of the policy;
4. Advocating for gender equality and the empowerment of women in the context of food
and nutrition security, including the engagement of men and boys;
5. Continuing the implementation of targeted actions for women and girls, with country offices
establishing targets based on gender analysis, and aiming for equitable participation,
taking the local context into account; and
6. Piloting the new programming priorities in WFP partner countries, in collaboration with
partners, and measuring results, outcomes and impacts.
33
4.2 Gender Mainstreaming in WFP Kupang SO
WFP Kupang SO has been implementing a number of programmes that reflect the shifting
from food aid to assistance through prototyping of LFBSM programme, MCN and FFA. In
addition, in terms of policy and advocacy, WFP Kupang SO also has initiated support of the
Government in developing of NTT Province FNAP.
Related to gender mainstreaming, in 2011, WFP Kupang SO has enforced its work on gender
mainstreaming, mapping out the gender issues related to food and nutrition security in NTT
and providing technical expertise to the NTT Government to foster gender mainstreaming
in the development of the FNAP.
In addition, WFP Kupang SO has improved gender awareness among WFP staff, assessed
gender gaps and developed gender mainstreaming action plans within PRRO programme
and VAM unit. The gender mainstreaming within MCN, LFBSM, FFA and VAM is as follows:
4.2.1. Mother and Child Nutrition (MCN)
The mother and child nutrition (MCN) programme addresses undernutrition and
micronutrient deficiencies in children under five and pregnant and lactating women
through the provision of fortified foodand nutrition education at the local integrated
health post (posyandu).78
78
WFP Factsheet. 2010
34
The goals of MCN intervention programmes are to: a) to improve micro-nutrient status
and health status of pregnant lactating mother and 12-59 months through distribution
of fortified blended food; b) to improve knowledge and understanding of pregnant and
lactating mother as well as mother of children under five about food consumption,
breast feeding, supplementary feeding, child care and health and hygiene practices;
c) to encourage women’s attendance at Posyandu (Community Health Care); d) and to
strengthen Posyandu through Kader (volunteer) capacity building.79
MCN has faced five major gender challenges in NTT: 1) The high number of pregnant
mothers suffering from chronic energy deficiency, 21.6 percent80, makes it critical for
pregnant women living in TTS and Kupang to be monitored; 2) WFP needs to advocate
for the nutritional status of lactating women, which has not been addressed as a strategic
issue by the Health Department; 3) WFP needs to advocate preventive approaches
rather than treatment of existing women affected by chronic energy deficiency (which
is the current strategy adopted by the Health Office); 3) Limited information is available
to household about the importance of proper nutrition for young childrens, pregnant
and lactating women; 4) Low involvement of men in taking care of the nutrition needs
of babies and pregnant and lactating women; and 5) Low decision-making power of
women in the family to access food and exercise the option of exclusive breastfeeding
for their babies.81
To deal with the gender challenges, gender action

plans must include: 1) involving men or religious
leaders in behaviour change communication
strategies around food and nutrition security;
2) Involving girls (especially adolescent girls)
as targeted beneficiaries; 3) Ensuring that
fortified food and adequate nutrient dense
food is consumed by pregnant and lactating
women and children under five, with special
emphasis on children under two; 4) Including
gender mainstreaming in the behaviour Change
Communication (BCC) strategy and intervention
for 2012-2015 Country Programme..
4.2.2. Food for Assets (FFA)
This project aims to build community resilience

to withstand economic shocks, climate change
and food shortages to help the community to
sustain their livelihood and food security.82 The
goals of FFA include: 1) providing households
facing food shortages with opportunities for paid
work; 2) to produce community assets that are of
benefit to themselves and the community.83
79
WFP. 2005. Maternal and Child Nutrition (MCN) Programme Operational Guideline PRRO 10069.2
80
FNAP NTT Province for 2012 – 2015. Fourthcoming.
81
See WFP Gender Policy. 2009. p. 11
82
WFP factsheet, 2010
83
WFP. 2011. General Understanding of Food for Asset and Food for Training Slide Presentation. 35
The main gender challenges include:

1) assessing the needs of women and
men for social services and/or communal
livelihood assets; 2) designing FFA
activities suitable for women who are
culturally responsible for taking care of
household work and rearing kids.
To deal with the gender challenges, gender

action plans should include: 1) Providing
separated rice packages suitable for
women heads of household such as 15–
20 kg/package instead of 50 kg/package
2) Promoting gender equality through
providing success stories related to
gender issues within FFA and 3) Reviewing
proposals to ensure incorporated gender
analyses.84
4.2.3. School Feeding / Local Food Based School Meals (LFBSM)
WFP’s Local Food-Based School Meals (LFBSM) programme aims to support national
programmes that provide local food products to schoolchildren. The goals of the LFBSM
programme are: 1) to increase students’ ability to concentrate, thereby increasing their
learning abilities; 2) to improve student’s attendance; 3) to improve students’ awareness
of healthy nutrition choices and lifestyles; and 4) to reduce micro-nutrient deficiency
among schoolchildren.85
The gender challenges associated

with the LFBSM programme should
include: 1) promoting equal rights
for girls and boys to participate in
education activities; 2) disseminating
information to students, teachers and
parents on basic nutrition and healthy
eating habits.
Gender action plans include 1)

Improving advocacy on encouraging
girls to go to school; 2) Improving
monitoring tools by incorporating
food sharing within household levels;
and 3) Considering women’s double
burden during programme planning.86
84
WFP. 2011. The report for gender workshop for internal staff of WFP Kupang SO.
85
WFP. 2008. School Feeding (SF) Programme Operational Guide Line PRRO .100692
86
The report for gender workshop for internal staff of WFP Kupang SO.
87
WFP. 2012. Vulnerability Analyses and Mapping (VAM) Facsheet.
36
4.2.4. Vulnerability Analysis and Mapping (VAM) and Monitoring and Evaluation (M&E)
VAM programme play a critical role in food security analysis and mapping to identify
the food insecure areas and target food and nutrition assistance. The VAM unit is
strengthening the capacity of the WFP team and Government counterparts on food
security analysis, mapping and monitoring. VAM has been working with the Government
on mapping food and nutrition security at the household level (Food Nutrition Security
Monitoring System - FNSMS), village level (Food and Nutrition Surveillance System -
FNSS), sub-district level (Food Security and Vulnerability Assessment - FSVA province)
and district level (FSVA National).
Since 2006, WFP has been working with the national remote sensing Agency (LAPAN)
to produce a monthly “Indonesia Early Warning Bulletin for Natural Disasters,” which
provides information on the latest weather patterns and forecasts on possible droughts
and floods. In addition, since mid 2009, VAM has taken the lead in Emergency Food
Security Assessment (EFSA). VAM contributed to the development of a joint UN rapid
emergency assessment tool that has been launched and used by all agencies within 72
hours of emergencies.87
M&E plays an important role in enhancing knowledge management through data
collection and analysis, programming and advocacy tools, as well as aligning government
and stakeholder programmes to enhance partnership among the Government, research
institutes and the private sector.88
Regarding gender mainstreaming, VAM’s attention to gender issues is reflected in its

use of female illiteracy as one of the nine indicators of FSVA. Female illiteracy causes
undernutrition especially among children, as the nutritional status of children is closely
related to the education status of mother or caregiver.89 Using female illiteracy as an
indicator of FSVA is critical. It could lead to embedded gender inequality or to promoting
gender equality in society. Literate women have better opportunities to earn money, to
gain access to food and to provide nutritious food to their families. In NTT, the rate of
female illiteracy, 12.25 percent is higher than male illiteracy, 8.34 percent.90
In addition, gender is incorporated in food security and nutrition conceptual framework.

However, when it defines about chronic food insecurity, it has not explicitly states that
gender inequality is one of the factors causing chronic food insecurity, see the definition,
“Chronic food insecurity is a long term or persistent inability to meet minimum food
requirements and is usually associated with structural, underlying contextual factors
that do not change quickly, such as local climate, soil type, local governance system,
public infrastructure, land tenure, inter-ethnic relations, education level, etc.”.91
Meanwhile, M&E programmes will collect sex-disaggregated data and gender analyses,
which could serve as tools to better advocate for gender equality in food and nutrition
security.
88
WFP. 2011. Country Programme 200245 (2012 – 2015)
89
Food Security Agency NTT Province & WFP. 2010. FSVA.
90
NTT in Figures. 2010.
91
Food Security Agency & NTT Government & WFP.2010. FSVA. P. 3
37
5. CONCLUSIONS AND
RECOMMENDATIONS
5.1. Conclusion
5.2. Recommendation
5.1. Conclusions
Based on an overview of gender issues related to food and nutrition security in NTT society,
government interventions, and WFP Sub-Office Kupang’s stand on gender mainstreaming,
the report’s findings can be summarized as follows:
1. Gender inequalities are embedded in the social values and daily life practices of the people
of NTT. They mainly derive from misinterpretation of cultural traditions related to dowry
and clan inheritance that contribute to women’s subordination to men and the resulting
weak decision-making roles women have with regard to food and nutrition issues. As a
result, women are especially vulnerable to food insecurity and undernutrition. Currently,
the rates of undernourished women in NTT are alarming and reflect the highest numbers
of all provinces in Indonesia: 24.5 percent of women in their reproductive age (15–45
years) suffer from chronic energy deficiency. Moreover, 21.6 percent of pregnant women
in NTT suffer from chronic energy deficiency, and 35.8 percent suffer micronutrient
deficiencies . Since the nutritional status of mothers directly and indirectly affects the
nutrition of their children, the nutritional status of children is also low: 20.3 percent of
babies are born underweight and 58.4 percent of children in NTT suffer from stunting
(measured as low height for age).
2. Since men are the decision-makers and considered the heads of the household, they
play a critical role in shaping everyday practices of the family. Men must, therefore,
be educated about nutrition and must be encouraged to ensure improved diets for the
family and food security for women and children. Women bear the double burden of
domestic work and working outside the home to bring in additional income to feed the
children. Efforts need to be made to meet the nutrition requirements of each member
of the household, with special attention to pregnant and lactating women and children
under two (period of the first 1000 days of child life). Therefore, it is crucial to disseminate
information and educational materials about nutrition to both women and men in the
community.
3. NTT women play a critical role in achieving food and nutrition security. Empowering
women to make free and informed choices for their family is critical in improving food
security and nutrition. By considering women as food holders, women empowerment
programmes are tailored to support women in decision- making processes that affect the
nutritional well-being of the family.
4. The Government’s intervention on gender-related issues can be vastly improved. The

current approach places emphasis on addressing the practical needs of women and
children, instead of focusing on the strategic needs for addressing the underlying causes
of gender inequality. Therefore, in order to support gender mainstreaming within food
security and nutrition, the Government should institutionalise gender within the Food
Security Office and Health Office (CNIU). The main challenge of gender mainstreaming
in the Government is to improve gender awareness among senior officials working for
gender mainstreaming in food security and nutrition so that they can support the change.
Furthermore, gender needs to be incorporated into all phases of project management —
from programme planning to implementation, monitoring, evaluation and reporting.
40
5. WFP Kupang SO’s focus on gender-related work is two tiered, both in mainstreaming
gender in project management and in supporting the Government to build gender
awareness and promoting gender mainstreaming. Through its Gender Rapid Assessment
and other activities that promote gender awareness, WFP SO Kupang is supporting
the Government in mainstreaming gender in the Provincial Food and Nutrition Action
Plan (FNAP) and assessing gender gaps within project management. Additional gender
mainstreaming activities are to continuously improve gender awareness among staff and
to take action to better address gender challenges within various programme components
(MCN, LFBSM, FFA, VAM and M&E).
5.2. Recommendations
A set of recommendations can be issued for both gender mainstreaming within WFP Kupang
project cycle and for supporting gender mainstreaming in the local government policies of NTT:
1. WFP SO Kupang needs to strengthen and continuously foster gender mainstreaming in

its project management. Recommendations include:
a. Keep raising awareness and understanding on gender issues related to food and
nutrition security among WFP Kupang SO staff. Every staff is a gender advocate for
WFP. Therefore, it is important for them to be knowlegable on gender issues in order
to be able to promote equality while working with stakeholders.
b. Address the gender challenges highlighted in each programme by:
• Translating gender action plans developed by WFP Kupang SO into actual
implementation throughout the project cycle in MCN, LFBSM and FFA.
• Developing and disseminating Information Education and Communication (IEC)
materials with gender perspective for MCN, LFBSM and FFA.
• Ensure the regular collection and use of sex dissagregated data for each
programme component and advocate to other stakeholders to follow the same
recommendation.
• Ensure the regular collection of data on maternal nutritional status especially
chronic energy deficiency and micronutrient deficiencies in pregnant and lactating
women.
• During the dissemination of FSVA results, emphasize the impact of female
illiteracy on fueling gender inequality related to food security and nutrition among
NTT communities. For the future, consider incorporating this issue as well as
other relevant ones in the FSVA report.
2. WFP can support the NTT Government’s gender mainstreaming efforts by following up
on FNAP activities, including:
a. Maintaining networks that have been developed during FNAP activities specifically
with key stakeholders in Bappeda, WEB, FSO and Health Office –CNIU.
b. Supporting WEB as the leading stakeholder on gender mainstreaming in the
Government to institutionalize gender into programmes carried out by FSO and HO
(CNIU) and other technical offices. This can be done by involving these two institutions
to map out gender issues related to food security and nutrition in NTT district and
to develop gender action plans within their project cycles. These interventions can
address gender issues systematically through policy, implementation and monitoring
and evaluation.
41
Fostering gender mainstreaming within WFP and in food and nutrition programmes requires
time, energy, creativity and strong engagement from WFP and other development partners.
WFP team must, therefore, closely monitor gender mainstreaming implementation both
within the organization as well as in key partners in order to ensure its success.
42
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ACF International Network. 2010. Nutritional Causal Analyses NTT provinces, Belu, Rote, Ndao and TTS,
May – June 2010. ACF International Network annex to NCA report
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INPRES Instruksi Presiden Nomor 9 Tahun 2000 Tentang Pengarusutamaan Gender / President Instruction,
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go.id/archives/529 News Letter edisi No.41 October 2010
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May – June 2010. Report of ACF International Network annex to NCA
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Pengarusutamaan gender di Daerah / Regulation of the Minister of in Country of Indonesia, Number 15,
2008. It is about General Guidelines for Implementation of Gender Mainstreaming in the Region
Pemerintah Provinsi NTT. 2010. Profil Kesehatan Provinsi NTT / Government of NTT Province. 2010. The
Health Profile of NTT Province.
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PT. PPA Consultant Indonesia. 2011. AIPMNH (Australia – Indonesia Partnership for Eksternal and Neonatal
Health) Gender Strategy Phase 2, Bapeda Provinsi NTT.
Rencana Pembangunan Jangka Panjang (RPJMD) Provinsi NTT 2009 – 2013 / Long Term Program
Planning of NTT Province for 2009 – 2013
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Perempuan / Women Empowerment Bureau NTT Province. 2009. The Strategic Planning Of Women
Empowerment Bureau Province NTT, 2009 - 2013
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Health Office NTT Province. 2009. The Strategic Plan of Health Department) Province NTT 2009 – 2013.

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WFP & SEAMEO TROPMED. 2010. Nutrition Security and Food Security in Seven Districts in NTT Province,
Indonesia: Status, Causes and Recommendations for Response. The Report of Joint Assessment SEAMEO
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Workshop on Gender Mainstreaming within Food Security and Nutrition for WFP internal staff, December 8 –
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NTT, August 2011
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, September, 2011
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45
Country Office
Wisma Keiai Indonesia, 9th Floor
Jl. Jend. Sudirman Kav. 3, Jakarta 10220 Indonesia Pemerintah Provinsi NTT
Tel. +62 21 5709004 JL. Raya El Tari no 52
Fax. +62 21 5709001 Kupang, NTT
Kupang Sub Office Telp. 0380 - 831234
Jalan S.K. Lerik Nomor 15 A, Kelurahan Kelapa Lima website: www.nttprov.go.id
Walikota, Kupang 85228 – Indonesia
Telephone : + 62 380 833469, 833467, 825770
Fax : + 62 380 820707
Website : www.wfp.org

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GENDER RAPID ASSESSMENT REPORT

GENDER ISSUES IN FOOD AND NUTRITION

WORLD FOOD PROGRAMME

GENDER ISSUES IN FOOD AND NUTRITION SECURITY IN NTT PROVINCE

2. Gender Issues in NTT 13

3. Gender Mainstreaming In Related Government Offices 23

4. WFP and Gender Mainstreaming 31

5. Conclusion and Recommendations 39

AIP-MNH : Australia Indonesia Partnership-Maternal and Neonatal Health

The assessment covers three areas:

Questions addressed during this GRA are as follows :

1.3. Contextual Background

2.1. Gender Issues in NTT

As reported by several sources including research by the Women Empowerment Bureau

The subordinate status of women is especially evident in marriage arrangements and, in

Access (Right Control (Right Holder of Right to

Source: PIAR PPA Report – unedited translation26

2.2. Gender Issues Related to Food Security and Nutrition

Table 2. Population of 15 years Old and Over who Worked

No Main Employment Status Male Female Total

Proportion (%) of Malnutrition among Children 0-59 MO

BMI Mother Underweight Wasting Stunting Overweight

Underweight 49.5 507 24.4 492 51 504 3 492

Based on the above findings, it can be concluded that:

Some policies are already in place to address gender mainstreaming in Indonesia. A

Gender mainstreaming in NTT is supported by Provincial Government Regulation (PERDA)

3.1. Gender Mainstreaming in Women Empowerment Bureau (WEB)

The principal goals of WEB include:

1. Strengthening institutions working for gender mainstreaming in the region, increasing

WEB is also responsible for encouraging women’s organizations, religious organizations

3.2. Gender Mainstreaming in Food Security Office (FSO)

Based on a brief examination of government interventions on gender mainstreaming through

Within government bodies in NTT, gender mainstreaming should be institutionalized into

4.1 Gender Mainstreaming in WFP

The overall goals of WFP gender policy are:

The main priorities are the following:

4.2 Gender Mainstreaming in WFP Kupang SO

4.2.1. Mother and Child Nutrition (MCN)

To deal with the gender challenges, gender action

4.2.2. Food for Assets (FFA)

This project aims to build community resilience

The main gender challenges include:

To deal with the gender challenges, gender

4.2.3. School Feeding / Local Food Based School Meals (LFBSM)

The gender challenges associated

Gender action plans include 1)

Regarding gender mainstreaming, VAM’s attention to gender issues is reflected in its

In addition, gender is incorporated in food security and nutrition conceptual framework.

4. The Government’s intervention on gender-related issues can be vastly improved. The

1. WFP SO Kupang needs to strengthen and continuously foster gender mainstreaming in

Books and Journals:

Documents and Reports:

WFP. 2010. Factsheets

WFP. 2010. Nutrition Mapping and Gap Analysis

WFP. 2011. Talking points: Food Security and Vulnerability in Indonesia.

WFP. 2009. WFP Gender Policy, unpublished.

Workshop and Focus Group Discussions (FGD):

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