part i gender mainstreaming: 10 steps for integrating...

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PART I

GENDER MAINSTREAMING:10 STEPS FOR INTEGRATING GENDERINTO THE POLICY-MAKING PROCESS

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• supervisors of policy makers and project staff cangain a better understanding of the ways in whichgender mainstreaming will affect the workplans oftheir staff, and can subsequently incorporategender mainstreaming into their performanceappraisal systems, while also allocating adequatebudget resources;

• gender focal-points and gender experts may findthis handbook useful as a quick and succinctreference in their own work, or when trainingothers.

HOW DO I USE THIS HANDBOOK?

This handbook is divided into two parts:

Part I – Gender Mainstreaming: 10 Steps for IntegratingGender into the Policy-Making Process

Part I of this handbook provides practicalguidance for gender mainstreaming in any policyarea or sector. The gender mainstreaming process isdivided into 10 stages, and each stage is describedwith the help of various tools and checklists.

Although these 10 steps are presented as a cycle,you should begin with the Step that is the mostappropriate entry point for the task at hand.

Part II – Gender Briefs: A Sectoral Approach toMainstreaming

Part II is divided into a series of “Gender Briefs”,organized according to sector or policy area. TheseBriefs highlight the main “gender issues” in eacharea, the main arguments for gender mainstreamingin this area, as well as possible indicators of progressand entry points for action.

The step-by-step approach outlined in Part I ofthe handbook can thus be used as a framework forworking with the more substantive aspects outlined inPart II’s Gender Briefs.

The information contained in the Gender Briefscannot be exhaustive, as specific situations willundoubtedly vary according to country or region andover time. However, these Briefs should serve as auseful starting point.

Part II begins with a more detailed introduction tothe use of the Gender Briefs.

Introduction

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WHAT IS GENDER MAINSTREAMING?

As defined by the United Nations, gendermainstreaming is:

“… the process of assessing the implications for womenand men of any planned action, including legislation,policies or programmes, in all areas and at all levels. It is astrategy for making women’s as well as men’s concerns andexperiences an integral dimension of the design,implementation, monitoring and evaluation of policies andprogrammes in all political, economic and societal spheres sothat women and men benefit equally and inequality is notperpetuated.” 1

Gender mainstreaming is not only a question ofsocial justice, but is necessary for ensuring equitableand sustainable human development by the mosteffective and efficient means.

Why is “Gender Mainstreaming” new?

Gender mainstreaming makes a genderdimension explicit in all policy sectors. Genderequality is no longer viewed as a “separate question,”but becomes a concern for all policies andprogrammes. Furthermore, a gender mainstreamingapproach does not look at women in isolation, butlooks at women and men - both as actors in thedevelopment process, and as its beneficiaries.

Significantly, gender mainstreaming differs froma “women in development” (WID) approach in that ittakes as its starting point a thorough and rigorousanalysis of the development situation, rather than apriori assumptions about women’s roles andproblems. Experience has shown that gender issuesdiffer by country, region and concrete situation. Atthe same time, experience has also shown thatrigorous, gender-sensitive analysis invariably revealsgender-differentiated needs and priorities, as well asgender inequalities in terms of opportunities andoutcomes. Gender mainstreaming seeks to redressthese problems.

Given the above, it is clear that a “gendermainstreaming” approach does not necessarily makethe need for specific policies, programmes orprojects on gender equality obsolete. The level ofintervention (from basic “gender sensitivity” tocomprehensive, targeted gender programmes) willdepend on the specific needs and priorities revealedby a gender-sensitive situation assessment.

Finally, as a comprehensive strategy, gendermainstreaming should also address the environment(corporate, office) in which policies and programmesare developed and implemented. Thus a strategy tointegrate gender concerns into programming mustbe accompanied by a strategy to ensure that theworking environment is gender-sensitive,guaranteeing equal opportunities and treatment toboth men and women. Sufficient technical capacityand human resources to successfully implementgender main-streaming must also be ensured.

WHO IS THE HANDBOOK FOR?

This handbook is designed specifically forpolicy-makers who are not experts in gender issues,but who nonetheless are charged with the day-to-dayresponsibility of gender mainstreaming, according toorganizational mandates. This handbook is meant toguide these professionals in their work.

At the same time, this handbook will beinteresting and useful to other groups concernedwith mainstreaming:

• UNDP programme staff can use it as a guide forgender mainstreaming in project and prog-ramme management;

• non-governmental organizations and advocacygroups can use it to monitor and support theactions of government and internationalorganizations;

• students can gain an appreciation for how gendermainstreaming works in practice;

Introduction

1 The Report of the Economic and Social Council for 1997. United Nations, 1997.

Introduction

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Gender mainstreaming, by definition, involvesintegrating a gender perspective and gender analysisinto all stages of designing, implementing andevaluating projects, policies and programmes.

Part I of this handbook provides practicalguidelines and advice for translating this theory ofgender mainstreaming into practice. To do so, Part Iexamines 10 different but interdependent stages inthe project or policy process. Gender mainstreamingis not an isolated exercise, but an integral part of theproject or policy cycle.

Part I can in fact be approached as a checklist –this checklist will help you identify what activities youhave already implemented, while also providing youwith guidance for expanding your approach togender mainstreaming.

INTRODUCTION TO PART I

10 Steps for Integrating Genderinto the Policy-Making Process

IS GENDER MAINSTREAMING REALLY SO COMPLICATED?

You should not feel overwhelmed by the task of gender mainstreaming. While it is true that in-depthgender-based analysis requires a sophisticated level of expertise, this, when required, can be outsourced toexperts.

For the most part, practical gender mainstreaming is about running through a checklist of questions toensure you have not overlooked anything. It is about asking the right questions so that you can see wherelimited resources should best be diverted. Gender mainstreaming is a necessary process for achievinggender equality in the most effective and efficient manner.

The 10 Steps for Gender Mainstreaminginclude:

1. A Mainstreaming Approach to Stakeholders:Who are the Decision-Makers?

2. Mainstreaming a Gender Agenda:What is the Issue?

3. Moving Towards Gender Equality:What is the Goal?

4. Mapping the Situation:What Information do we Have?

5. Refining the Issue: Research and Analysis6. Formulating Policy or Project Interventions

from a Gender Perspective7. Arguing Your Case: Gender Matters!8. Monitoring: Keeping a (Gender-Sensitive) Eye

on Things9. Evaluation: How Did We Do?

10. En-gendering Communication

INTRODUCTION TO PART I: 10 Steps for Integrating Gender into the Policy-Making Process

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Step 1 concerns the project and policy makingcontext. The actors involved in the process, alongwith their values and understanding of gender issues,will significantly determine the outcome of yourpolicy or project.

During Step 1 you should seek answers to thefollowing three key questions:

• Who are the stakeholders? Do they includeindividuals or groups with a “genderperspective”?

Gender mainstreaming means that “gender”stakeholders need to be identified and includedthroughout the policy or project cycle. Multiplestakeholders bring greater accountability and a widervariety of options to the policy-making process. It alsointroduces a series of “checks and balances” againstcompeting viewpoints. Negotiating these multipleviewpoints will result in better policy-making.

STEP 1

A Mainstreaming Approach to Stakeholders:Who Are the Decision Makers?

• Is there gender balance in all institutions andbodies involved?

If strong gender imbalance exists amongstakeholders or the core policy making group, takemeasures to involve more of the underrepresentedgender – be it men or women. This is a question ofaccountability and credibility.

• Where is gender expertise available?

Stakeholders with gender expertise will helpyou identify entry points for gendermainstreaming and implement a mainstreamingapproach throughout the entire project or policy-making cycle. These experts are important allies.Such expertise might be found with policy-makingcolleagues, academics, consultants, NGOs orcommunity groups, or development partners.Bringing this expertise aboard is mainstreaming atits most basic level.

GENDER-SENSITIVE STAKEHOLDER CHECKLISTHave the following individuals and groups been brought into the policy or project cycle?

� Gender focal points in other ministries or departments?

� Development partners with a gender equality mandate?

� A governmental or independent economist with gender expertise?

� Male and female representatives of private sector interests?

� An umbrella organization of women’s or gender NGOs?

� Any NGOs or community groups that represent men’s gender interests?

� Relevant sectoral or “special interest” NGOs that have an interest or experience in gender issues?

� Human rights groups or advocates?

� NGOs or lobby groups for European Union integration?

� Think tanks or policy analysts with experience and expertise in gender issues?

� Academics or researchers from university Gender Studies departments?

STEP 1: A Mainstreaming Approach to Stakeholders: Who Are the Decision Makers?

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During Step 2, you should first identify the maindevelopment problem or issue at hand. This can beaccomplished by answering a basic question:

• What is the subject of your project or policy-makinginitiative?

This subject then needs to be examined from agender perspective, in order to discern where, whyand how specific gender mainstreaming initiativesmay need to be applied. The following question willhelp you decide what the “gender issue” is:

• Does this issue affect men and women in differentways?

STEP 2

Mainstreaming a Gender Agenda:What Is the Issue?

The answer is likely to be “yes”. This means that thespecific ways in which men and women are differentlyaffected need to be refined (see GenderMainstreaming Steps 4 and 5). Gender analysis is a vitalpart of clarifying the precise gender dimension of theissue (see Annex: Gender Analysis – A Brief Guide).The Gender Briefs in Part II can help you identify the“gender issues” of various development problems.

Step 2 is thus your first look through the “genderlens.” While at this stage you will not yet beidentifying specific gender problems that requirepolicy solutions, Step 2 should introduce anappreciation of gender-related aspects of seemingly“gender-neutral” issues.

STEP 2: Mainstreaming a Gender Agenda: What Is the Issue?

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Once you have identified the “subject” of yourproject or policy-making initiative, you shoulddiscern what your goal is. You can do this by asking:

• What do we want to achieve?

In Step 2, you will have identified any genderdimensions inherent in the policy issue. It is alsoequally important to make this gender dimensionexplicit in your policy goal. This can happen in twodifferent ways, and can be identified by asking twodifferent questions:

• Is the goal disaggregated by gender?

The policy or project goal should address anydifferences between men and women and seek toredress them. If men and women have differentneeds, then the goal should be to meet both theneeds of women and the needs of men. If men orwomen are disadvantaged in the given situation, thenthe policy goal should seek to redress this imbalance.These goals are thus “corrective”; they are about

STEP 3

Moving Towards Gender Equality:What Is the Goal?

meeting the practical needs of both men andwomen.

• Does the goal include a broader commitment toimproving gender equality?

The policy or project goal should also beexamined in the light of gender equality morebroadly. Perhaps elements of the institutions,structures or underlying principles that contextualizethe issue fundamentally hinder de facto equalitybetween men and women. If so, the goal should bebroadened to address these elements as well. Thesegoals are thus “transformative”; they are abouttransforming institutions and structures (social,political, economic, cultural, etc.) so that full genderequality can be more readily achieved.

These broad goals will be translated into specifictargets and objectives (see Step 6), once you haverefined the question (see Step 5 and Annex: GenderAnalysis – A Brief Guide) and are ready to developconcrete policy interventions.

STEP 3: Moving Towards Gender Equality: What Is the Goal?

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In Step 2 you have discerned what your policyissue is and identified potential gender dimensions ofthis issue. In Step 3 you have identified the overallintended goals your policy or project interventions,and ensured these are gender-sensitive.

In Step 4 “Mapping the Situation,” you must startthinking about refining both your question and yourpotential policy interventions. In order to do this, it isimportant to have an inventory of:

• what you know

• what you don’t know

• what projects or policy interventions have alreadyhappened

• what is currently happening

• what other related interventions are planned

Answering the above questions will help you focuson “filling in the gaps”, commissioning orundertaking necessary research and planningcomplementary initiatives rather than “reinventingthe wheel”. Mapping the Situation is also a criticalstage for introducing efficiency into themainstreaming process.

Three tools and exercises are suggested that willhelp you answer the above questions:

� Mapping Exercise

� Policy Review from a Gender Perspective

� Legislative Review from a Gender Perspective

GENDER MAINSTREAMING TOOL #1

A Mapping Exercise

One useful tool involves undertaking a “mappingexercise” in relation to the sector or policy issue youare addressing, in order to systematically inventorizewhat you know and what you do not know, as well asprior, on-going and planned interventions. You do

STEP 4

Mapping the Situation:What Information Do We Have?

not require any additional financial resources toperform this exercise.

Time required: The actual time required to fill inthe chart (below) is minimal. However, because youmay have to wait for inputs from counterparts andcolleagues, you can expect the exercise to requireone-two weeks.

Helpful Sources of Information:

• Database of government legislation

• Database of government documents

• Database of government-commissioned research

• Database of donor-funded technical assistance

• Database of NGO activities

Methodology: Based on information you haveand are able to access from colleagues and otherstakeholders, fill in the table below, row by row:

1. First row (Sectoral or Policy Issues): Identify themain policy issues of concern (i.e. these may besub-sectors or sub-issues). Use as many columns asyou need.

2. Second row (Gender Questions): Ask questionsabout potential gender dimensions of the sub-issues (these questions can be identified duringGender Mainstreaming - Step 2 in answer to thequestion: Does this issue affect men and women in thesame way?)

3. Additional rows: From there, simply fill in what youknow about this issue according to the categories inthe left-hand column (the information in italics ismeant to guide you in filling in the table). Make noteof any questions where information is missing.

Using Your Results: Once you have filled in thetable as far as possible, the gaps should highlightwhere additional research, policies, etc. might benecessary. Updating your table can serve as amonitoring tool for your progress in gendermainstreaming.

STEP 4: Mapping the Situation: What Information Do We Have?

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GENDER MAPPING EXERCISE2

1. Sectoral or PolicyIssues ⇒⇒⇒⇒⇒ Issue 1 Issue 2 Issue 3 , etc.

2. Gender Questions ⇒⇒⇒⇒⇒ What are the questions you should ask to What are the What are thehelp you identify any “gender dimensions” “gender “genderof the issue? What do you want to find out, questions” of questions” ofin terms of gender equality? Issue 2? etc. Issue 3? etc.

What Do You Know? ⇓⇓⇓⇓⇓

3. Indicators Are there any indicators that are regularly(quantitative monitored which answer the genderand qualitative) question? What are they? Who keeps track

of them?

4. Research Reports Do you have any research reports thatavailable answer the gender question? Do any of

your colleagues?

5. Govt. Programme Are there any government programmes thataddress Issue 1? Is the gender dimensionexplicitly addressed here?

6. Govt. Policy/ What policies and legislation address/Legislation issue 1? Do they also take the gender

dimension into account?

7. NGO Projects Do you know of any NGO projects that dealwith issue 1? Do they include the genderdimension?

8. Donors’ activities What donor activities address issue 1?Are the gender issues addressed?

NOTE: This Mapping Exercise is not an ANALYTICAL framework. It will not suggest potential policy solutions orinterventions. Rather, it will help you understand what “tools”, in the way of existing policies, programmes or data,you have to work with in order to ensure gender mainstreaming.

2 Adapted from S. Tadjbakhsh, Presentation to UNDP Latvia, April 2000.

SAMPLE MAPPING EXERCISE:

The following page shows a brief example of howyou might use this tool to map the situation in theinformation and communication technologies (ICT)sector in “Country X”.

Once completed, the “map” should indicatewhich areas require further gender analysis andinvestigation.


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Policy Review from a Gender Perspective

Once the situation has been “mapped”, a more in-depth policy review from a gender perspective willassist you in evaluating the extent to which genderconcerns are currently reflected in public policy andprogrammes (you may wish to engage a genderexpert to assist you in this task).

This process consists of examining the followingelements of policy:

(a) Gender Equality as a Policy Priority:

Is there a mandate and statement of political will forenhancing gender equality at the national (regional or local)level?

A policy document (e.g. a National, Regional orLocal Plan for Gender Equality) that expressly statesthe government’s commitment to gender equality asan issue is significant, as it provides a mandate for thedevelopment of sectoral policies from a genderperspective (i.e. mainstreaming).

Your policy audit should thus begin by reviewingthe existence of gender equality concerns in anymajor policy commitments or pledges. Secondly, youshould review whether this mandate expresslyoutlines how and by whom gender mainstreaming is tobe undertaken, as this should delineate lines ofaccountability and responsibility. Any credible policyshould also outline concrete goals, objectives andindicators of success.

(b) Sectoral Policies on Gender Mainstreaming:

Do ministries or departments have specific policies forgender mainstreaming?

Again, a mandate for gender mainstreaming shouldbe contained in a policy document (a Ministerial orSectoral Plan for Gender Equality). Again, such policiesshould explicitly outline how and by whom gendermainstreaming is to be undertaken, as well as concretegoals, objectives and indicators of success.

(c) A Gender-Sensitive Approach to Sectoral Policyand Programmes:

Do policies in each sector or policy area reflect a genderperspective?

A review of all policies and programmes in a specificsector or policy area should be conducted to more

thoroughly examine the extent to which a genderperspective has been taken into consideration. Thisreview should ask and seek answers to the followingquestions:

�Was gender expertise part of the informationand consultation inputs into programmes andpolicy formulation?

�Does the policy explicitly address gender issuesin defining the problem?

�Do policy actions and solutions consider thepotentially differential impact on men andwomen? Are target groups identifiedaccordingly?

A gender audit of policy should also point to anygaps where new policies on specific gender issues mightbe necessary (e.g. policy on gender-based violence, oranti-discrimination in the work-force).


Legislative Review from a Gender Perspective

Similarly, a review of existing legislation can beundertaken to analyze the extent to which a genderperspective has been mainstreamed into currentlegislation. This should be undertaken by someonewith both legal and gender expertise.

A legislative review from a gender perspectiveshould ask and seek answers to the followingquestions:

� Is there adequate basic legislation that prohibitsdiscrimination on the basis of sex(Constitutional law, Anti-discrimination Act)?

� Is there any evidence of explicit discriminationagainst men or women in any legislation?

� Is there evidence that implementation oflegislation may result in indirect discriminationagainst men or women?

�Was gender expertise part of the informationand consultation inputs into the drafting oflegislation?

� See also Gender Brief on JUSTICE ANDHUMAN RIGHTS: Legislation


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“Mapping the Situation” (Step 4) will haveunderlined where specifically a gender-mainstreaming perspective is required: existingpolicies may need to be amended in order to includea gender perspective, or new policies may need to bedeveloped. Step 4 should have also made clear wheregaps in your current information base exist.

During Step 5, you will need to conduct orcommission research that will fill in these gaps. Thisis absolutely crucial in order to guarantee thecredibility, efficiency and effectiveness of anyprojects or policies you develop.

This phase involves:

� Specifying the research question

� Determining necessary inputs

� Designing and/or Commissioning the research

1) SPECIFYING THE RESEARCHQUESTION:

The research question needs to be concrete andspecific in order to be useful for policy making orproject development. The most crucial factor will beunderstanding what output is required from theresearch. This is necessary in order to provide preciseterms of reference for the researchers.

WHAT IS THE DESIRED OUTPUTOF THE RESEARCH?

Situational Analysis: If you have absolutely nodata on a given subject, a situational analysis maybe required. However, bear in mind thatsituational analyses do not provide you withconcrete policy options or recommendations.

Policy Options/Recommendations: If your goal isthe development of concrete policies, policyresearchers and analysts should provide you with a“policy brief” that contains several options andhighlights the advantages and disadvantages ofeach. These considerations should examine:

STEP 5

Refining the Issue: Research and Analysis

• efficiency (cost-benefit analysis),

• effectiveness (coverage, scope, sustainability),and

• extent to which gender issues are addressed:are needs of both men and women met? Areframeworks of gender roles and relationstransformed?

2) DETERMINING NECESSARY INPUTS:

Research can be conducted in one of two ways:

• in-house; or

• outsourced (to individual experts, civil societygroups, think tanks or commercial research firms)

Your budget, technical capacity and expertise,alongside the scope of the research, are the factorswhich will determine which route you choose. Ineither case, those conducting the research must meetthe following criteria:

• substantive expertise concerning the sectoral orpolicy issue;

• gender expertise (i.e. professional and/oracademic training in gender theory as pertains topublic policy);

• specific technical expertise as demanded by theresearch question (i.e. economic modelling,population-based survey design, etc.).

The appropriate balance of these three elementsis crucial for producing viable policy options. Youmay need to engage a team of researchers to ensureall three capacities.

3) COMMISSIONING THE RESEARCH:

Regardless of whether the research is conductedin-house or outsourced, you should refer to thefollowing questions when evaluating any researchproposals:

STEP 5: Refining the Issue: Research and Analysis

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CHECKLIST FOR EVALUATING RESEARCH PROPOSALS:

� Actors: Who will be involved in the gathering and analysis of data? Is gender balance and a genderperspective (expertise) ensured?

� Subjects: Will the situation of both genders be researched? Will data be disaggregated by gender?

� Methodology: What methodology will be used? Is it sensitive to both men’s and women’s particularneeds? (e.g. confidentiality, sensitivity to some issues)

� Analytical Axes: Does the research include gender as a important variable in determining socialprocesses? Are other important axes for analysis considered (ethnicity, socio-economic status,geographical location, etc.)?

� Theoretical Framework: Is knowledge of gender analysis frameworks demonstrated? Will theseframeworks be used in the analysis of data?*

� Credibility: Have steps been taken to ensure that results will be credible in the eyes of all stakeholders?Will both men and women have the chance to provide inputs and comments?

� See also ANNEX I: GENDER ANALYSIS: A BRIEF GUIDE� See also Part II – Science, Research and Information Technologies

STEP 5: Refining the Issue: Research and Analysis

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Once you have collected and analyzed thenecessary data and information, you will have todecide on the appropriate course of action to movetowards the goal articulated in Step 3.

Choosing the “correct” course for a policy orproject intervention is rarely straightforward. Itinvolves balancing a number of crucialconsiderations, including:

CRUCIAL CONSIDERATIONS FORPOLICY OPTIONS:

• efficiency – cost-benefit analysis;

• effectiveness – the degree to which your goalwill be met; and

• social justice, including gender equality – theextent to which social and historicaldisadvantages between different groups insociety are addressed and compensated.

The economic, social, equity, community,environmental and other types of impact of eachoption need to be assessed. To ensure a genderperspective, a “gender impact assessment” should

STEP 6

Formulating Policy or Project InterventionsFrom a Gender Perspective

also be conducted for each option. This shouldconsider the following key questions3:

GENDER IMPACT ASSESSMENTCHECKLIST:

�What benefit (financial, human) will the optionbring to both men and women ?

�What cost (financial, human) will the optioninflict on both men and women?

�How do both female and male stakeholdersperceive the option in terms of its costs,benefits, acceptability and practicality?

The results of this assessment should beconsidered when weighing policy options.Additionally, you should consider:

�What might the wider consequences be offailing to adopt a gender-sensitive option?

After weighing these factors carefully, you will beready to formulate your intervention. This will entailpreparing the actual policy or project document.

3 Questions adapted from “Gender-Based Analysis: A Guide for Policy-Making” prepared by Status of Women Canada(1998).

STEP 6: Formulating Policy or Project Interventions From a Gender Perspective

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� Background and Justification: Is the genderdimension highlighted in backgroundinformation to the intervention? Does thejustification include convincing arguments forgender mainstreaming and gender equality?(See Step 7)

� Goals: Does the goal of the proposedintervention reflect the needs of both menand women? Does the goal seek to correctgender imbalances through addressingpractical needs of men and women? Does thegoal seek to transform the institutions (socialand other) that perpetuate gender inequality?(See Step 2)

� Target Beneficiaries: Except whereinterventions specifically target men or womenas a corrective measure to enhance genderequality, is there gender balance within thetarget beneficiary group?

� Objectives: Do the intervention objectivesaddress needs of both women and men?

� Activities: Do planned activities involve bothand women? Are any additional activitiesneeded to ensure that a gender perspective ismade explicit (e.g. training in gender issues,additional research, etc.)?

� Indicators: Have indicators been developed tomeasure progress towards the fulfilment of eachobjective? Do these indicators measure thegender aspects of each objective? Are indicatorsgender disaggregated? Are targets set toguarantee a sufficient level of gender balance inactivities (e.g. quotas for male and femaleparticipation)? (See Step 8)

GENDER MAINSTREAMING CHECKLIST FOR PROJECTOR POLICY DOCUMENTS:

� Implementation: Who will implement theplanned intervention? Have these partnersreceived gender mainstreaming training, so thata gender perspective can be sustainedthroughout implementation? Will both womenand men participate in implementation?

� Monitoring and Evaluation: Does themonitoring and evaluation strategy include agender perspective? Will it examine bothsubstantive (content) and administrative (process)aspects of the intervention? (see Steps 8 and 9)

� Risks: Has the greater context of gender rolesand relations within society been considered as apotential risk (i.e. stereotypes or structuralbarriers that may prevent full participation ofone or the other gender)? Has the potentialnegative impact of the intervention beenconsidered (e.g. potential increased burden onwomen or social isolation of men)?

� Budget: Have financial inputs been “gender-proofed” to ensure that both men and womenwill benefit from the planned intervention? Hasthe need to provide gender sensitivity trainingor to engage short-term gender experts beenfactored into the budget?

� Annexes: Are any relevant research papers (orexcerpts) included as annexes (particularlythose that provide sound justification for yourattention to gender)?

� Communication Strategy: Has acommunication strategy been developed forinforming various publics about the existence,progress and results of the project from agender perspective? (See Step 10)

STEP 6: Formulating Policy or Project Interventions From a Gender Perspective

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One crucial aspect of gender mainstreaminginvolves developing arguments for gender equality.Because experience has shown that decision makersare sometimes reluctant to devote scarce resources togender equality activities, decision-makers (especiallythose who control budgets) need to be convinced thattheir investment in gender equality will pay off.

Decision-makers need to be presented witharguments that highlight, concretely and precisely,why gender matters. In other words, you mustillustrate what development problems genderequality contributes to solving, and what specificbenefits a gender-aware perspective will bring to thegovernment, individuals – both men and women –and the nation as whole. Well-defined arguments willincrease your chances of receiving financial andmoral support for any planned interventions.

THE “ADDED VALUE” OF GENDERMAINSTREAMING:

Arguments for adopting a gendered approachand for promoting gender equality in all projects andpolicies generally fall into one of the following 6categories:

� Justice and Equality

�Credibility and Accountability

�Efficiency and Sustainability (the “macro”dimension)

�Quality of Life (the “micro” dimension)

�Alliances

�Chain Reaction.

Justice and Equality Arguments: These stress thevalue of democratic principles and basic humanrights, which demand gender equality. Justicearguments can be used to argue for equalrepresentation and participation of both genders invarious contexts, premised on the basic notion oftheir shared human rights.

Most states are party to a variety of normativedocuments (for example, The Convention on the

STEP 7

Arguing Your Case: Gender Matters!

Elimination of All Forms of Discrimination AgainstWomen and global conference documents fromBeijing, Copenhagen and Cairo), all of whichestablish gender equality as a fundamental principle.States are obliged to fulfil these commitments,especially as many basic democratic principlesarticulated here reflect most states’ own constitutions.

While experience has unfortunately shown thatthe justice argument alone is often insufficient toconvince governments to mobilize adequateresources, these arguments are nonetheless usefulfor providing reference to specific mandates forgender equality and international commitments.They remind governments that they are part of aninternational (or regional) community that espousesshared values.

Credibility and Accountability Arguments:Credibility arguments ask decision makers to “do themath”: because women and men each make up halfof the population, any data, policy orrecommendation that does not recognize andaddress both genders equally will be ultimatelyflawed, and will thus have no credibility. Thesearguments are useful for justifying gender impactassessments (studies that examine how men andwomen are, will be or have been differently affectedby actions or situational factors), or calling for moregender balance in decision-making processes.

Accountability arguments in particular are usefulfor reminding governments of their responsibility toensure social justice and sustainable humandevelopment. In democratic states, governmentsmust be accountable to the population and mustfurther the interests of all its members – both menand women. A failure to address social justice orgender equality issues is also a failure of governmentsto be accountable to all citizens. Furthermore, manygender-sensitive interventions are not just genderexercises for their own sake – they are about holdinggovernments accountable for their use of publicfunds and for the fulfilment of their politicalpromises. Gender mainstreaming can offer concretemechanisms for introducing a greater degree ofaccountability into governance.

STEP 7: Arguing Your Case: Gender Matters!

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Efficiency and Sustainability Arguments4:These arguments make clear an irrefutable fact:equal inclusion of men and women in all aspects ofdevelopment and society pays off for the country as awhole. Nations cannot afford to ignore thecontributions and economic and social capacities ofboth men and women in all spheres. Thedevelopment of any country that does will ultimatelysuffer in the medium and long term. This is anargument that addresses “macro” aspects ofdevelopment – i.e. the welfare and prosperity of anation as a whole.

These arguments are particularly effectivebecause they address the bottom line: money. Theyprove that investment in gender equality will pay offfor the country as a whole in the future. Globalstudies have been done that prove the overallefficiency arguments5 – these can assist you to makeyour argument, as will any national research you haveto substantiate your case.

Closely linked to efficiency arguments aresustainability arguments. Because gender main-streaming adopts a “human development”perspective, which has the long-term objective ofcreating a socially just and sustainable society, gendermainstreaming is inextricably about ensuringsustainability as well. Furthermore, because gendermainstreaming demands a holistic approach topolicy making where coordination and cooperation(both vertical and horizontal) are key, interventionsare more likely to be sustainable.

Quality of Life Arguments: Increased attentionto gender equality issues will improve the lives ofindividual men and women. In a democratic societybased on principles of social justice, each individualmember has the right to the best quality of lifepossible. Gender mainstreaming initiatives seek tofurther this objective.

Moreover, while it is commonly recognized thatwomen stand to benefit from increased attention togender equality, quality of life arguments also pointout the benefits to be gained by men and families aswell. They stress the importance of socialrelationships and interdependence of social actors,claiming, for example, that if women areempowered, those closest to them stand to gain aswell. On the flip-side, inequality or hardship for one

gender will negatively affect other social actors aswell. For example, the negative effects of depressionin men or poor employment opportunities forwomen affect families, children and spouses as well.

Moreover, quality of life arguments are useful forpromoting a gender dimension in programmesaimed at curbing social “pathologies”. For example,issues such as suicide, alcoholism, addictions andchronic stress are strongly linked to changing genderroles and relations in society and the inability ofindividuals to cope and adapt. The argument heretherefore underlines how a gender perspective canlimit these pathologies and improve the quality of lifeof members of society.

These arguments address “micro” aspects ofdevelopment and gender, i.e. the ways in whichindividuals within a development context areaffected. However, this argument has a natural linkto efficiency arguments: if individuals are happierand healthier, they will also be more productive, thuscontributing to a more efficient and prosperoussociety.

Alliance Arguments: Alliance argumentshighlight gender equality as a prerequisite forforging formal alliances or partnerships with othernations. In the context of Eastern and CentralEurope, the most salient example is EuropeanUnion integration: candidate countries for EUaccession are mandated to implement variousinstruments for the promotion of gender equality asa prerequisite for EU membership.

However, while this argument is currently veryeffective for calling governments to task, it isultimately unsustainable unless coupled withconcrete substantive reasons (such as efficiency andquality of life) as to why issues of gender equalityneed to be addressed. Without these solid substantivearguments, alliance arguments can backfire.

Chain Reaction Arguments: Lastly, all of theabove arguments are strengthened when the linksbetween them are highlighted. Gender equality canin fact produce a “chain reaction” of benefits, just asthe effects of gender inequality can be passed onfrom individuals to families and communities. The“chain reaction” argument highlights how sound the

4 Care should be taken, however, when using efficiency arguments to avoid stressing that women are an “underutilizedresource.” As Diane Elson has noted, the problem for many women is that they are in fact “overutilized” (quoted inOECD:1998). The focus should be placed on recognizing and appropriately valuing the contributions of both genders.The goal is not burden women further, but to strive for a renegotiation of women’s and men’s roles in society, that willultimately result in increased levels of development and prosperity.

5 see specifically the World Bank Policy Research Report Working Paper Series on Gender and Development.


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investment in gender equality actually is: it will bringnot only short-term, localized benefits, but mediumand long-term benefits that will ripple throughsociety, strengthening the nation as a whole.

At the same time, mainstreaming should alsoremain aware of “chain reactions” that might producenegative gender equality effects if not anticipated anddealt with in an integrated manner. For example, a“top down” mandate for family-friendly workplacesmight bring backlash and even greater exposure toharassment against women in their place of work.Similarly, advancement of women may lead to greaterdepression and pathological behaviour among men.These risks highlight the crucial need to createcomplex strategies for gender mainstreaming,whereby a number of initiatives are mutuallyreinforcing. Thus a negative chain reaction argumentcan be used to convince decision-makers thatmainstreaming must proceed in a strategic and holisticmanner.

“SELLING” GENDER MAINSTREAMING!

Finally, you should be aware that you mayencounter resistance to your gender mainstreamingactivities. Reasons for resistance vary, frommisinformation or lack of information about genderissues, to restricted resources, to cultural ortraditional perceptions about gender roles.

Therefore, it is useful to be equipped withpotential strategies for combatting this resistance.Tips for dealing with resistance include6:

• When seeking programme or policy approval,approach decision-makers with concreteproposals, preferably in writing. In cases where youhave a programme and budget proposal, it may beuseful to present the programme first, and oncegeneral approval is attained, a budget can bepresented. Use concrete data and research(preferably from your country or region) to back upyour arguments.

• Responding to questions such as “Why shouldgender equality be a priority in a time ofeconomic hardship?” is particularly difficult. Thefocus of argumentation here should reminddecision-makers that gender mainstreaming andgender equality enhance efficiency (see above).

• Stress that gender mainstreaming is not onlyabout women; it is about men and society ingeneral. This is also a way of allowing men to feelmore comfortable as part of the gendermainstreaming process, and reminds them thatthey too have a responsibility and a role to play inensuring gender equality.

• When presenting your case, you should tap intopolitical momentum. Timing is key andopportunities should be sought where publicopinion has already been built up as a“springboard” for your request or proposal.

• Remind decision-makers of how your request/proposal will benefit them directly, in terms ofimproving their image and credibility (i.e.enhancing their political capital). Similarly, it isimportant to be positive rather than confrontational,understanding and taking into account restrictionsand obstacles that decision-makers face. You shouldtry always to offer “win-win” situations.

• Try to offer a number of options, allowingdecision-makers to choose for themselves themost appropriate one. Being flexible and open tocompromise will work in your favour. “Pilotprogrammes” are good, cost-effective ways ofdemonstrating added value which can bereplicated in the future.

• Unfortunately, sexual harassment andunprofessional attitudes towards people involvedin gender work are serious barriers that may notbe easily surmountable through goodargumentation strategies. This is one reason whygender sensitivity and efforts to change attitudeswithin organizational structures are vital elementsin the gender mainstreaming process.

6 These tips have been developed according to experienced shared by participants in three sub-regional seminars onGender Mainstreaming organized by UNDP RBEC in June-August 2001. Thanks to all for their ideas and suggestions!


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Monitoring is an indivisible aspect of gendermainstreaming. Three aspects of monitoringinclude:

I. LEVELS OF MONITORING

II. GENDER-SENSITIVE MONITORING PLANS

III. GENDER-SENSITIVE TARGETS ANDINDICATORS

I. LEVELS OF MONITORING

Monitoring should take place at two different levels:

� Monitoring progress towards fulfillingsubstantive goals and objectives

� Monitoring the implementation process

Both require setting targets (goals) anddeveloping indicators to measure progress towardsmeeting those targets.

When monitoring progress towards substantivegoals and objectives, indicators must be developedthat track the delivery of specified outputs (activities)and outcomes (impact).

When monitoring the implementation process,targets and indicators must be developed that trackthe extent to which the process itself is gender-sensitive. Monitoring the process will:

• allow you to identify hindrances and gaps in theprocess that can be immediately redressed

• allow you to improve the design of futureinitiatives

• document obstacles to mainstreaming that can belater addressed in a wider institutional context

Questions to consider in monitoring the processmight include:

� Are men and women equally participating inproject decision-making?

� Are men and women treated with equal respect, asdecision-makers, implementers and participants?

STEP 8

Monitoring: Keeping a (Gender-Sensitive)Eye on Things

� Are those involved in project implementationcontinually motivated to maintain a genderperspective (opportunities to update their genderknowledge and skills, and discuss gender issues ina non-judgemental environment)?

II. GENDER-SENSITIVE MONITORINGPLANS

Plans for monitoring both substantive progressand the implementation process should be developedand included in the official document outlining yourintervention. These plans should specify:

• who is responsible for monitoring tasks

• how other stakeholders will participate in themonitoring process

• when monitoring will take place

• what tools will be used to record observations

• what mechanisms exist to review progress(periodic appraisal or review sessions)

III. GENDER-SENSITIVE TARGETS ANDINDICATORS

Targets

We set targets so that we can “keep our eye on theprize” – targets make our goals concrete, andtherefore increase the possibility that they will beattained. Concrete targets also increase thepossibility that concrete resources (human, financial)will be diverted in order to achieve those targets.

Effective targets are:

• progressive but realistic

• time-bound

• measurable

Integrating a gender perspective means thateffective targets are also gender sensitive: they considerthe situation and needs of both women and men.

STEP 8: Monitoring: Keeping a (Gender-Sensitive) Eye on Things

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Indicators

Progress towards achieving targets should bemapped with the help of specific indicators.

Effective indicators are:

• comparable longitudinally (over time) – indicatorsthat are measured only once cannot show signs ofprogress or decline

• comparable with other countries, regions ortarget audiences

• measurable – you need to be able to quantify orcategorize your results

• precise – choose indicators whereby effects of externaland environmental factors, other than those you hope tomeasure, are minimized

• selective and representative – too many indicatorsare difficult to track

In programmes and policies that have been“gender mainstreamed,” all indicators should bedisaggregated by sex wherever possible. This helpsidentify the gender differentiated impact of ourinterventions.

HOW DO I DEVELOP INDICATORS?

The indicators we choose should provide answersto questions we have about substantive progress orthe implementation process. Choosingappropriate indicators therefore means:

�Asking the right question – What do you wantthe indicator to tell you?

E.g. Are both men and women equally able toaccess social services?

�Determining the information needed toanswer the question– What do I need tomeasure or compare?

E.g. Extent to which female needs for existing socialservices are met as compared to extent to whichmale needs for existing social services are met.

�Identifying the source of such information

E.g. Population based surveys on use of socialservices, which disaggregates and comparesresponses of men and women.

Quantitative vs Qualitative Indicators andSources of Data

Quantitative indicators can be defined asmeasures of quantity (total numbers, percentages,etc). They are useful for showing what the averageoutcome is, or the degree to which a goal or objectivehas been attained.

Common sources:

• censuses

• labour-force surveys

• administrative records

• target population-based sociological surveys

Qualitative indicators can be defined as people’sjudgements and perceptions about a subject. Theyare useful for understanding processes, butfrequently do not show how typical or widespread arethe views expressed.

Common sources:

• public hearings

• focus groups

• attitude surveys and interviews

• participatory appraisals

• participant observation

• sociological and anthropological fieldwork

Adapted from: Progress of the World’s Women, Unifem2000, which adapted it from the Canadian InternationalDevelopment Agency, 1996.


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SOME TYPES OF INDICATORS – There are many different ways to classify indicators. The followingtable can help you choose which indicators will be most useful in providing an answer to the “monitoringquestions” you have formulated.

Checklistindicators

Ask whethersomething is or is notin place. Themeasure is a questionof “yes” or “no.”

Good for monitoringprocesses, statements ofpolitical will,commitments. Simpleand cheap datacollection.

Lack qualitativeaspect. Sometimes aquestion ofinterpretation.

• Is a gendermainstreamingpolicy in place?

• Was a genderexpert consultedin production ofthe report?

Statistics-basedindicators

“Traditional”indicators, thatmeasure changesusing availablestatistical data.

Information is readilyavailable.

Rarely provide aqualitativeperspective. Oftenneed to becomplemented withthe other two types.

• Male:Femaleratio of incidenceof HIV

• Male:Femaleunemploymentlevels

Indicatorsrequiring specificforms of datacollection

Require specificforms of datacollection (sociolog-ical surveys, focusgroups, interviews,etc). Requiresspecific, replicablemethodology so thatdata can becompared over time.

Data is oftenextremely useful andspecific. Good meansof collectingqualitative data.

Often resource-intensive (time,money, humanresources).

• % of populationthat feels womenshould be primar-ily responsiblefor childcare

• % of job advert-isements in news-papers that showgender bias

TYPE DESCRIPTION BENEFITS DRAWBACKS EXAMPLES


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The culmination of the monitoring process occursduring Step 9: Evaluation. This stage is vital forestablishing good practices and lessons learned fromyour initiative, for the ultimate purpose of improvinginitiatives in the future. Evaluation is also a questionof accountability for resources used.

STEP 9

Evaluation: How Did We Do?

Three levels of evaluation include:

1. Evaluation of outputs (Have objectives been met?)

2. Evaluation of outcomes (To what extent has thedevelopment goal been achieved?)

3. Evaluation of process (How were outputs andoutcomes delivered?)

In order to mainstream a gender perspective, key questions to consider at all levels of evaluation include:

Evaluation criteria

� Who determines the evaluation criteria?

� What level of importance or priority is afforded to gender equality considerations?

Evaluation Actors

� Do evaluators’ Terms of Reference specify the need for gender expertise?

� Are all stakeholders involved in the evaluation process?

� Who will provide inputs for evaluation data?

� Will the opinions of both men and women be considered?

� Who will be responsible for consolidating inputs and determining the validity and priority of differingopinions or observations?

Evaluation Process

� Will participatory methods be used?

� How and to whom will results of the evaluation be disseminated?

� Will both men and women stakeholders be given the opportunity to formally comment on or state theirreservations about the evaluation results?

STEP 9: Evaluation: How Did We Do?

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FEEDING BACK INTO A “GENDEREDAGENDA”!

Too often, once important gender-sensitiveinitiatives are completed, the gender issuesdisappear from the policy agenda. As long as theseconsiderations remain marginalized frommainstream policy agenda-setting, a transformationof gender roles and relations – leading to greatergender equality and positive outcomes for the nationas a whole – will always remain beyond our grasp.

To ensure the sustainability of mainstreamingefforts, consider the following:

� How does your initiative fit into the “big picture”,i.e. more comprehensive government prog-rammes and policy frameworks? What entry

points for follow-up and complementary activitiesdoes this framework offer?

� Does your evaluation include concreterecommendations for follow-up initiatives? Whatother entry points can be accessed to ensure thisfollow-up?

� Does your evaluation point to implications forother ministries or stakeholders more broadly?How will you communicate these implications?Can you propose any concrete entry points?

� Are you documenting the process and results ofyour initiatives in a way that will guaranteeinstitutional memory?

� In general, how and to whom are youcommunicating the results of your initiatives?(see Step 10)

STEP 9: Evaluation: How Did We Do?

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While “communication” figures as the last step inthis gender mainstreaming guide, communicationconsiderations themselves need to “mainstreamed”or integrated at all phases of the project or policycycle. Communication with other stakeholders - fromcivil society to your superiors – is necessary at allstages and all levels. In every case, the way in whichyou communicate (both pro-actively and reactively)will influence the success of your project or policy.

� See PART II, Gender Brief on MASS MEDIAfor more detailed analysis of working with massmedia to promote gender equality

One of the barriers to effective gendermainstreaming is a lack of information on variouslevels, including:

• about the situation, from a gender perspective

• about government or organizational mandates forgender equality

• about policies and programmes targeting genderequality

• about stakeholders and efforts of other actors inpromoting gender equality

Part of your role must be to design and implementeffective communication strategies to help bridgethis information gap for a diverse set of publics.These publics include:

• Top-level policy makers and decision-makers

• Other policy-makers

• Different groups within civil society (men, women,activists, academics, etc)

• Donors and development partners

CONSIDERING A “GENDERED PUBLIC”

Using a gender perspective when designingcommunication strategies should highlight thedifferent ways in which men and women respond todifferent messages. Key questions you might askduring a gender analysis of communication strategiesinclude7:

� Do men and women read different publications?

� Do men and women watch or listen to differentelectronic media?

� Are media consumption patterns (frequency,time) different for men and women?

� Do men and women have different credibilitycriteria (regarding “authorities”, arguments used,etc)?

� Do men and women have different values thatcause them to respond to certain messages indifferent ways?

STEP 10

En-Gendering Communication

7 Questions adapted from “Gender-Based Analysis: A Guide for Policy-Making” prepared by Status of Women Canada(1998).

POSSIBLE INTERVENTIONS FOR COMMUNICATING PROGRESS IN GENDERMAINSTREAMING:

� Preparation of an Annual Report on Gender: The preparation of such a report by the government canbe an important source of statistical information and a tool for tracking progress and disseminatinginformation to a wide audience. Such a report can either be prepared “in-house” by the national gendermachinery, or can be sub-contracted to a research organization or NGO.

� Use of Electronic Media: The use of internet and e-mail (e-mail discussion networks, web page resourcesand “virtual discussions”) can be an efficient and effective way of bridging the communication gap.

� Establishment of a Gender Policy Resource Centre: Creating a central “clearing house” for reports,bulletins, books and other information on gender policy can make gender mainstreaming more efficientand can contribute to strengthening the profile of gender issues within governance at the national level.

STEP 10: En-Gendering Communication

part i gender mainstreaming: 10 steps for integrating...

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