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Gender Analysis of Gender Analysis of Public ExpenditurePublic Expenditure

M. Elena Ruiz Abril M. Elena Ruiz Abril

Cairo, 4Cairo, 4--5 December 20055 December 2005Rabat, 8Rabat, 8--9 December 20059 December 2005

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Objectives Objectives

To show how gender analysis of public To show how gender analysis of public expenditure can be used as a tool for expenditure can be used as a tool for engenderingengenderingpolicy formulationpolicy formulation

To present several methods to carry out gender To present several methods to carry out gender analysis of public expenditureanalysis of public expenditure

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Gender Analysis of Public Gender Analysis of Public ExpenditureExpenditure

WHAT is it? WHAT is it? Gender Budgeting initiativesGender Budgeting initiativesWorld Bank experience engendering PERsWorld Bank experience engendering PERs

HOW can you do it? HOW can you do it? Gender disaggregated BIA, program evaluations, Gender disaggregated BIA, program evaluations, gender institutional assessmentsgender institutional assessments

WHY is it important? WHY is it important? Tool to influence policies and make them gender Tool to influence policies and make them gender sensitivesensitive

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Gender Analysis of PEGender Analysis of PE

What is it?What is it?

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Gender Budgeting & Gender Gender Budgeting & Gender Analysis of Public Expenditure Analysis of Public Expenditure

Gender budgeting initiatives Gender budgeting initiatives support civil support civil society and governments in:society and governments in:

Analyzing budgets from a gender perspective Analyzing budgets from a gender perspective Gender analysis of public expenditureGender analysis of public expenditureGender analysis of revenueGender analysis of revenue

Formulating gender responsive budgetsFormulating gender responsive budgetsCapacity building of national stakeholders Capacity building of national stakeholders Advocacy Advocacy

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Gender analysis of Public Gender analysis of Public Expenditure Expenditure

Gender analysis of public expenditure refers to Gender analysis of public expenditure refers to the analysis of the impact of actual government the analysis of the impact of actual government expenditure and revenue on women and girls as expenditure and revenue on women and girls as compared to men and boys.compared to men and boys.Its final goal is informing policy by helping Its final goal is informing policy by helping governments decide how policies need to be governments decide how policies need to be adjusted, and where resources need to be adjusted, and where resources need to be reallocated, to address poverty and gender reallocated, to address poverty and gender inequalities.inequalities.

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Why is gender an issue in the Why is gender an issue in the analysis of Public Expenditure analysis of Public Expenditure

The The budget is a policy statementbudget is a policy statement, reflecting a , reflecting a governmentgovernment’’s social and economic priorities, and the s social and economic priorities, and the fulfillment of its political commitment, in monetary fulfillment of its political commitment, in monetary terms, to specific programs and policies. terms, to specific programs and policies.

Policy instruments, government expenditures, and revenue Policy instruments, government expenditures, and revenue collection have different impacts on women and men. collection have different impacts on women and men.

Gender analysis of budgets is therefore a way of carrying out Gender analysis of budgets is therefore a way of carrying out gender analysis of policy, and engendering budgets is an gender analysis of policy, and engendering budgets is an avenue to engender policy. avenue to engender policy.

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The World Bank (short) experience The World Bank (short) experience

Public Expenditure Reviews Public Expenditure Reviews First wave: First wave:

Gender as another angle on which to disaggregate traditional Gender as another angle on which to disaggregate traditional variables variables Gender disaggregated BIA Gender disaggregated BIA

Second wave: Second wave: To examine the allocation, effectiveness, and efficiency of To examine the allocation, effectiveness, and efficiency of public resources to achieve gender equity and reduce povertypublic resources to achieve gender equity and reduce povertyGender disaggregated BIA; program evaluation; gender Gender disaggregated BIA; program evaluation; gender institutional assessmentsinstitutional assessments

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Gender Analysis of PEGender Analysis of PE

How can you do it?How can you do it?

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Option 1: Gender disaggregated Option 1: Gender disaggregated Benefit Incidence Analysis Benefit Incidence Analysis

ObjectiveObjectiveMeasure the distribution of a sector expenditure Measure the distribution of a sector expenditure between men/boys and women/girls between men/boys and women/girls

RationaleRationaleIs public expenditure equally distributed between Is public expenditure equally distributed between men and women?men and women?

VariablesVariables used in the Analysisused in the AnalysisUse of public services by men and women (e.g. Use of public services by men and women (e.g. school attendance by boys and girls) school attendance by boys and girls)

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Gender disaggregated Benefit Gender disaggregated Benefit Incidence Analysis (cont.) Incidence Analysis (cont.)

WhatWhat you needyou need……Data on sector expenditure (e.g. expenditure on Data on sector expenditure (e.g. expenditure on primary education; expenditure on health centers, primary education; expenditure on health centers, etc.) etc.) Data on use of services disaggregated by sex (e.g. use Data on use of services disaggregated by sex (e.g. use of health centers by men and women; enrolment by of health centers by men and women; enrolment by sex, etc.)sex, etc.)

WhereWhere to get the datato get the data……From household surveys, census, etc. From household surveys, census, etc.

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Gender disaggregated BIA Gender disaggregated BIA ––Education Education

SVGSVG-- 2002, Education expenditure by gender 2002, Education expenditure by gender

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Gender disaggregated BIA Gender disaggregated BIA -- Health Health

SVG 2002SVG 2002-- Expenditure on hospitals, health centers, and community health Expenditure on hospitals, health centers, and community health services by genderservices by gender

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Gender disaggregated BIAGender disaggregated BIA-- Social Social Security Security

SVGSVG--19961996--2002 Social Security Benefits by gender2002 Social Security Benefits by gender

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Gender disaggregated BIA: pros and Gender disaggregated BIA: pros and cons cons

StrengthsStrengths

Good for advocacy Good for advocacy →→ concise way of expressing gender concise way of expressing gender inequalities in a sector inequalities in a sector

WeaknessesWeaknessesLow potential to offer concrete policy recommendations on Low potential to offer concrete policy recommendations on which to act which to act Policy dilemmas: What if PE is not equally distributed Policy dilemmas: What if PE is not equally distributed between men and women? is that always wrong? between men and women? is that always wrong? It only looks at quantitative aspects, it does not deal with theIt only looks at quantitative aspects, it does not deal with thequality of services quality of services

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Option 2: Program Evaluation Option 2: Program Evaluation

ObjectiveObjectiveAnalyze the efficiency of programs which are important to Analyze the efficiency of programs which are important to achieve specific gender goals achieve specific gender goals

RationaleRationaleImpact of a policy action/program may be different for men Impact of a policy action/program may be different for men and women and women Different patterns of access to services of men and women Different patterns of access to services of men and women

Variables used in the AnalysisVariables used in the AnalysisSupply Supply →→ program design and implementation featuresprogram design and implementation featuresDemand Demand →→ access/use of services by men and womenaccess/use of services by men and women

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Program Evaluation (cont.)Program Evaluation (cont.)

What you needWhat you need……Data on users of the programs by sex Data on users of the programs by sex Data on program design and implementationData on program design and implementation

Where to get the dataWhere to get the data……Supply aspects Supply aspects →→ interviews with program officials, interviews with program officials, secondary sources (e.g. existing impact evaluations) secondary sources (e.g. existing impact evaluations) Demand aspects Demand aspects →→ ad hocad hoc surveys/ focus groups surveys/ focus groups with beneficiaries, etc. with beneficiaries, etc.

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Program evaluation examples: FHHs Program evaluation examples: FHHs in Saint Vincent in Saint Vincent

Female Headed Households were one of the poorest Female Headed Households were one of the poorest demographic groups in SVGdemographic groups in SVG

Public expenditure for Public expenditure for FHHsFHHs Income Support Programs Income Support Programs --direct transfers; Employment Support Programs direct transfers; Employment Support Programs –– vocational vocational training; and subsidies to day care centers operated privately. training; and subsidies to day care centers operated privately.

Findings of the evaluationFindings of the evaluation: : Employment support services did not match labor market Employment support services did not match labor market needs (skills training and business development)needs (skills training and business development)The design of the subsidy to day care centers discriminated The design of the subsidy to day care centers discriminated against against FHHsFHHsLack of overall strategy for Lack of overall strategy for FHHsFHHs led to gaps and overlaps led to gaps and overlaps between programs in different government agenciesbetween programs in different government agencies

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Program evaluation examples: Boys Program evaluation examples: Boys at risk in Saint Vincent at risk in Saint Vincent

Boys in primary education continue to secondary Boys in primary education continue to secondary education at a much lower rate than girls (40 percent) in education at a much lower rate than girls (40 percent) in Saint Vincent Saint Vincent Public expenditure for boys:Public expenditure for boys: eemployment support mployment support programs for the unemployed youthprograms for the unemployed youthFindings of the evaluationFindings of the evaluation

Program objectives do not match labor market needsProgram objectives do not match labor market needsDeficient targeting strategyDeficient targeting strategySocial and family issues that can prevent the problems that Social and family issues that can prevent the problems that boys at risk faced were not addressed by the programs boys at risk faced were not addressed by the programs

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Program evaluation examples: Program evaluation examples: ParaguayParaguay’’s Family Plannings Family Planning

Serious problems of expenditure execution in Paraguay Family Serious problems of expenditure execution in Paraguay Family Planning program Planning program →→ program resources systematically program resources systematically reallocated to other programs reallocated to other programs

Family Planning Expenditure

0

200000000

400000000

600000000

800000000

1000000000

2002 2003 2004 2005

Budgeted Actual

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Program evaluation examples: Paraguay Program evaluation examples: Paraguay Public Employment ReformPublic Employment Reform

Cuts in public employment might be less of a problem Cuts in public employment might be less of a problem in Paraguay as women are concentrated in middle in Paraguay as women are concentrated in middle rather than low scale positions in the public sector rather than low scale positions in the public sector Women might however have a difficult transition into Women might however have a difficult transition into

the private labor market the private labor market The reform presented an opportunity to increase The reform presented an opportunity to increase gender equality in the public labor force: gender equality in the public labor force:

Moving up women from middle to top positions Moving up women from middle to top positions Increasing the gender balance across key sectors Increasing the gender balance across key sectors

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Program evaluation examples: Paraguay Program evaluation examples: Paraguay Public Employment ReformPublic Employment Reform

35.08

55.43

9.48

27.55

68.04

3.61

0%

50%

100%

men women

Public Employment by gender and type of job

Low positions Medium positions High positions

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Program evaluation examples: Cambodia Program evaluation examples: Cambodia agricultural extensionagricultural extension

While women comprised the majority of farmers, they While women comprised the majority of farmers, they received just 10 percent of extension services.received just 10 percent of extension services.

Proposals to change the delivery of extension services: Proposals to change the delivery of extension services: To change the times of extension courses; To change the times of extension courses; To employ techniques adapted to potentially illiterate To employ techniques adapted to potentially illiterate beneficiaries; beneficiaries; To increase the proportion of female extension agents; andTo increase the proportion of female extension agents; andTo provide technical assistance in women specific agricultural To provide technical assistance in women specific agricultural tasks. tasks.

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Program evaluation examples: Ethiopia Program evaluation examples: Ethiopia rural programs rural programs (preliminary findings)(preliminary findings)

Females heads of household are targeted by extension Females heads of household are targeted by extension agents but wives of farmers, the majority of which work agents but wives of farmers, the majority of which work in agriculture, receive home economics training in agriculture, receive home economics training Women comprise just over 10 percent of the Women comprise just over 10 percent of the

enrollment in agricultural colleges (the extension agents enrollment in agricultural colleges (the extension agents academic program) academic program) Low capacity of the Ministry of Agriculture to address Low capacity of the Ministry of Agriculture to address gender issues: gender issues:

WomenWomen’’s Affairs Offices Affairs OfficeInformation systems unable to collect/analyze gender Information systems unable to collect/analyze gender disaggregated data disaggregated data

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Program evaluation: pros and cons Program evaluation: pros and cons

StrengthsStrengthsHigh potential to offer concrete, workable policy High potential to offer concrete, workable policy recommendations recommendations It analyzes the causes of gender inequalities in the use of It analyzes the causes of gender inequalities in the use of services (e.g. gendered patterns of access to public services) services (e.g. gendered patterns of access to public services) Political power of the findings largely depends on the choice Political power of the findings largely depends on the choice of the program of the program –– e.g. strong in the case of family planning in e.g. strong in the case of family planning in Paraguay Paraguay

WeaknessesWeaknessesMicroMicro--data on projects are difficult to obtain data on projects are difficult to obtain →→ costlycostly

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Option 3: Analysis of Gender Specific Option 3: Analysis of Gender Specific Public Expenditure & Gender Public Expenditure & Gender

Institutional Assessments Institutional Assessments ObjectivesObjectives

To assess the adequacy, vulnerability over time, and suitabilityTo assess the adequacy, vulnerability over time, and suitability of public of public expenditure allocated to address gender issues expenditure allocated to address gender issues To rationalize public expenditure of National Gender MachineriesTo rationalize public expenditure of National Gender Machineries

RationaleRationaleOptimizing resources already allocated to genderOptimizing resources already allocated to gender

VariablesVariables used in the analysis used in the analysis Adequacy of the GSPE level to meet gender problemsAdequacy of the GSPE level to meet gender problemsExtent to which GSPE is well targeted to address national genderExtent to which GSPE is well targeted to address national genderprioritiesprioritiesExtent to which GSPE relies on external funds Extent to which GSPE relies on external funds Extent to which GSPE is vulnerable to budget cuts, etc. Extent to which GSPE is vulnerable to budget cuts, etc.

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Analysis of GSPE & Gender Analysis of GSPE & Gender Institutional Assessments (cont.)Institutional Assessments (cont.)

What you needWhat you need……Expenditure on gender specific programs Expenditure on gender specific programs /institutions (e.g. budget of the National Council for /institutions (e.g. budget of the National Council for Women; budget of the maternal mortality program Women; budget of the maternal mortality program at the Ministry of Health, etc.) at the Ministry of Health, etc.)

Quantitative and Qualitative analysis of how those Quantitative and Qualitative analysis of how those resources are spent resources are spent

Program Evaluation (previous slides)Program Evaluation (previous slides)Institutional Assessments Institutional Assessments

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Gender Institutional Assessments Gender Institutional Assessments

ObjectiveObjective of the analysis of the analysis Is the Gender National Machinery using efficiently its Is the Gender National Machinery using efficiently its resources to achieve national gender goals? resources to achieve national gender goals?

Variables Variables Mandate & Role Mandate & Role

implementing/ policy advisor/ lobbying implementing/ policy advisor/ lobbying Resources Resources

Human Human –– staff right skills mixture staff right skills mixture Financial (level; use; sustainability) Financial (level; use; sustainability)

Organizational structure Organizational structure Internal Internal –– alignment to national priorities alignment to national priorities External External –– role of the institution in government decision makingrole of the institution in government decision making

OthersOthers

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Gender Institutional Assessments Gender Institutional Assessments (cont.) (cont.)

WhereWhere to get the datato get the data……Interviews with program officials using protocols Interviews with program officials using protocols specially designed to assess institutional issues specially designed to assess institutional issues (variables in previous slide)(variables in previous slide)

Expenditure data: Expenditure data: Total budget of the institution Total budget of the institution Expenditure by departments Expenditure by departments Sources of funding by program (donor/regular) Sources of funding by program (donor/regular) Expenditure by categories (recurrent against capital) Expenditure by categories (recurrent against capital)

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Gender Institutional Assessments: Gender Institutional Assessments: Examples Examples

Saint Vincent's Gender Affairs Department and Paraguay's National Women's Secretariat Budgets

0

0.00005

0.0001

0.00015

0.0002

0.00025

0.0003

0.00035

0.0004

2000 2001 2002 200300.00010.00020.00030.00040.00050.00060.00070.00080.00090.001

SVG GenderExpenditure/GDP

SVG GenderExpenditure/TotalExpenditure PY GenderExpenditure/GDP

PY GenderExpenditure/TotalExpenditure

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Gender Institutional Assessment Gender Institutional Assessment Example: Saint Vincent Example: Saint Vincent

SVG Gender Affairs Department resources have SVG Gender Affairs Department resources have increased steadily over timeincreased steadily over time but are:but are:

Insufficient (two times lower than those of the Botanic Insufficient (two times lower than those of the Botanic Gardens Dept.) Gardens Dept.) Inefficiently allocated between project management and Inefficiently allocated between project management and policy advice; and policy advice; and Unsustainable as they rely mainly on donor contributionsUnsustainable as they rely mainly on donor contributions

GAD needs to reGAD needs to re--define its role and position in the define its role and position in the Government in order to influence policy Government in order to influence policy formulationformulation

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Gender Institutional Assessment Gender Institutional Assessment Example: Paraguay Example: Paraguay

National WomenNational Women’’s Secretariat resources:s Secretariat resources:have decreased significantly in the last five years have decreased significantly in the last five years both as a proportion of GDP and of total both as a proportion of GDP and of total expenditure expenditure are inefficiently allocated: low allocation to health are inefficiently allocated: low allocation to health programs to address national needs (specifically high programs to address national needs (specifically high fertility and maternal mortality)fertility and maternal mortality)

InterInter--institutional position of the Secretariat institutional position of the Secretariat within government structure recently within government structure recently downgradeddowngraded

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Gender Institutional Assessments: Gender Institutional Assessments: pros and cons pros and cons

StrengthsStrengthsOpportunity to improve the use of already existing gender Opportunity to improve the use of already existing gender resourcesresourcesAllows to underscore problems of low capacity of National Allows to underscore problems of low capacity of National Gender Machineries (in relation to other government areas) Gender Machineries (in relation to other government areas) using international comparisons of quantitative indicators using international comparisons of quantitative indicators (slide 27)(slide 27)

WeaknessesWeaknessesIt can become a It can become a ““double edge sworddouble edge sword”” →→ trade offs regarding trade offs regarding efficiency of expenditureefficiency of expenditureLack of international benchmarks Lack of international benchmarks

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Gender Analysis of PEGender Analysis of PE

Why is it important?Why is it important?

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ConclusionConclusionAnother tool to look at gender issues in policy analysis Another tool to look at gender issues in policy analysis Strong evidence on gender inequalities (BIA + gender Strong evidence on gender inequalities (BIA + gender specific expenditure) that can be used for advocating specific expenditure) that can be used for advocating changes in policies changes in policies Offers insights on how to spend better (not necessarily Offers insights on how to spend better (not necessarily more) to achieve gender equality (Program Evaluation more) to achieve gender equality (Program Evaluation + Institutional Assessments) + Institutional Assessments) Link to subsequent higher budget allocations for gender Link to subsequent higher budget allocations for gender is yet to be seen is yet to be seen

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Next Steps: The Challenges of Next Steps: The Challenges of Implementation Implementation

Formulation of gender sensitive budgets Formulation of gender sensitive budgets against gender analysis of public against gender analysis of public expenditureexpenditure

EgyptEgypt’’s experience mainstreaming gender in s experience mainstreaming gender in the National Plan the National Plan

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Questions for the audience Questions for the audience

Do you see yourself using any of these Do you see yourself using any of these techniques in the future in your organization? techniques in the future in your organization? Which one and for which purpose? Which one and for which purpose? What would your organization need to be able What would your organization need to be able to carry out the analysis successfully? to carry out the analysis successfully?

Further training in Further training in ……Hiring external experts forHiring external experts for……Financial resources for Financial resources for Other Other ……