version 2 march 2012 - department of foreign affairs and trade · version 2 march 2012 ... bappenas...

Gender Strategy and Action Plan

Version 2

March 2012

Poverty Reduction Support Facility is managed by GRM International on behalf of AusAID

Poverty Reduction Support Facility

Page ii

Anne Lockley

Gender Adviser, PRSF

[email protected]

Page iii

Conten ts Con ten ts Con ten ts Con ten ts

Part 1. Introduction and overview....................................................................................................... 1 Development of this gender strategy ................................................................................................................... 1 Gender and poverty reduction ............................................................................................................................... 1 Strategic Focus......................................................................................................................................................... 2

Part 2. Analysis, actions, and indicators relevant to PRSF/TNP2K priorities ....................................... 5 Data and targeting................................................................................................................................................... 5 Individual transfers and subsidies (cluster 1) ..................................................................................................... 8 Community driven empowerment (cluster 2) ...................................................................................................11 Micro-finance and SMEs (cluster 3) ....................................................................................................................13 Employment, including migrant labour..............................................................................................................17 Advocacy .................................................................................................................................................................19 Internal issues (human resources, systems, operating procedures).............................................................21 Monitoring and evaluation ...................................................................................................................................23 Internal capacity development ............................................................................................................................25 Risk identification..................................................................................................................................................25

Part 3. Supplementary information and resources ........................................................................... 26 Key gender and poverty issues ............................................................................................................................26 Overview of policy context ....................................................................................................................................29 Glossary of terms and concepts ..........................................................................................................................31 Checklist of questions against which to assess gender sensitivity of activity proposals ...........................32 Key questions for monitoring policy ...................................................................................................................33 Gender and poverty vulnerability analysis .........................................................................................................34 Useful documents, tools, and guidelines ...........................................................................................................35

Attachments ................................................................................................................................ 36 Attachment 1. Bibliography..............................................................................................................................36

Page iv

Abbrev ia t ions and Ac ronymsAbbrev ia t ions and Ac ronymsAbbrev ia t ions and Ac ronymsAbbrev ia t ions and Ac ronyms

AusAID Australian Agency for International Development

BLT Bantuan Langsung Tunai, Direct Cash Transfers

Bappenas Badan Perencanaan Pembangunan Nasional, the Indonesian National

Development Planning Board

BPS Badan Pusat Statistik, Central Statistics Bureau

CEDAW Convention on the Elimination of all Forms of Discrimination Against Women

GoA Government of Australia

GoI Government of Indonesia

Inpres Presidential Instruction

Jamkesmas Jaminan kesehatan untuk orang miskin, health insurance for the poor

PRSF Poverty Reduction Support Facility

FSC Facility Steering Committee

M and E Monitoring and Evaluation

PNPM Program Nasional Pemberdayaan Masyarakat, the National Program for

Community Empowerment

PNPM Generasi Program Nasional Pemberdayaan Masyarakat—Generasi Sehat dan Cerdas,

National Community Empowerment Program—Healthy and Smart

Generation

PPLS Pendataan Program Perlindungan Sosial - Social Protection Data Program

PEKKA Pemberdayaan Perempuan Kepala Keluarga, Empowerment of Female Heads

of Households

Perpres Presidential Instruction No. 15/2010 on Accelerating Poverty Reduction

PKH Program Keluarga Harapan (Hopeful Families Program) –conditional cash

transfers for the poorest families.

PSF PNPM Support Facility

Raskin Beras untuk orang miskin (rice for the poor) subsidised rive program

TKPK Tim Koordinasi Penanggulangan Kemiskinan, the Coordination Team for

Poverty Reduction

TNP2K Tim Nasional Percepatan Penanggulangan Kemiskinan, the National Team for

Accelerating Poverty Reduction (the “National Team”).

P a r t 1 .P a r t 1 .P a r t 1 .P a r t 1 . I n t r o d u c t i o n a n d o v e r v i e wI n t r o d u c t i o n a n d o v e r v i e wI n t r o d u c t i o n a n d o v e r v i e wI n t r o d u c t i o n a n d o v e r v i e w

1.1.1.1. Development of this gender strategyDevelopment of this gender strategyDevelopment of this gender strategyDevelopment of this gender strategy

This gender strategy is based on:

� a literature review which focused on issues and lessons associated with gender and poverty

reduction in Indonesia and globally, experience of relevant programs, and of the policy environment;

� consultations with available members of PRSF and TNP2K;

� Interviews with selected external stakeholders, including with gender, women’s rights, and poverty

focused programs.

Principles underpinning the strategy are that:

� it should fit within the existing government policy framework for gender equality and women’s

empowerment (see Part 3 for summary);

� it will be flexible and will adapt and change over time; and

� senior management oversight and commitment is required to ensure that: strategies and actions are

resourced, and performance indicators are carried through into PRSF and TPN2K processes and

procedures, which are regularly monitored, with action taken to improve compliance if necessary.

This gender strategy will be reviewed by the in-country team as part of the overall activity review and

planning process (by June 15 and December 15). A more comprehensive annual review and updating of

the strategy will be led by the Gender Adviser prior to the December update.

2.2.2.2. Gender and poverty reductionGender and poverty reductionGender and poverty reductionGender and poverty reduction

Income and consumption based definitions of poverty, such as those based on purchasing power parity

of US$2/day, and those which focus on households, do not always immediately surface issues of gender

inequality. Such definitions don’t acknowledge possible unequal distributions of income or consumption

within households, nor unequal decision-making power. The consumption/income approach can lead to

an overly narrow conceptualisation of poverty, and subsequently also to the strategies which are used

to overcome it. Broader analysis which also explores non-income poverty, including men’s and women’s

differentiated access to and control over resources, access to services, and human dignity and

autonomy, make the link between poverty reduction and human development, for all, more explicit.

There are a number of demonstrated links between gender inequality and poor performance on a range

of development indicators, and between improved equality and development gains. Female education is

demonstrated to be correlated with maternal health and improved outcomes for children, as well as

with woman’s income earning potential. Abu-Ghaida and Klasen (2002) have analysed a range of

empirical studies to demonstrate links between increased equality in education and economic growth.

Persistent inequalities in the labour market have been estimated to cost Indonesia US$2.4 billion each

year (UNESCAP, 2007). Also in Indonesia, an increase in women’s income is positively correlated with an

increase in household expenditure on food, but women are also more vulnerable to shocks. For

example, during the Asian Crisis years of 1996-1998 an Indonesia study found the prevalence of

maternal malnutrition to have increased from 15% to 18% (Arif, Syukri, Holmes, and Febriany, 2010).

Some of those consulted during development of this strategy stated that there are no gender

differences experienced in the implementation of poverty reduction strategies in Indonesia. This is

based on an analysis that: there is reasonable parity in boys and girls education; the key unit of poverty

analysis, the household, has no gender; there is no apparent disproportionate poverty experienced by

male and female headed households identified in the national data; male and female headed

households are relatively evenly likely to be both included in and excluded from poverty data - if

anything, female headed households where the woman is a widow are likely to experience some

positive discrimination when it comes to being included in poverty lists. It is also often assumed that

simply by targeting women, social protection programs such as cash transfers are automatically

addressing gender inequality.

This strategy does not seek to invent gender inequalities where they are not experienced or supported

by evidence. However, a wealth of international experience demonstrates that it is important to identify

and address less evident forms of inequality. It is also recognised that where indicators for both men

and women are low, different strategies may be needed to ensure both men and women have the

opportunities to improve. Programs must monitor their impact on gender roles and relationships on an

ongoing basis, to ensure they are building on, rather than undoing, previous gains made. Indonesia is

also a country of significant diversity. Analysis will need to be brought down to the district, sub-district,

village, and household level to ensure macro-level aggregations are not masking quite different pictures

at meso- and micro-levels.

A failure to consider gender risks slowing the pace of development and perpetuating certain

characteristics that are at the heart of what such programs seek to overcome. Conversely, incorporating

gender analysis in the design, execution, and monitoring of poverty reduction programs strengthens the

likelihood that such efforts can have sustainable, trans-generational impacts. It also signifies an intent to

work towards a just society where women and men have choice and opportunity to enable them to live

equally fulfilling lives, where their human rights are protected and upheld. This aim is reflected in the

Indonesian Constitution, Indonesia’s international commitments under the Convention on the

Elimination of Discrimination Against Women (CEDAW), and the Presidential Instructions 3/2919

(concerning programs for just development) and 9/2000 (concerning gender mainstreaming in national

development) (see Part 3 for details).

Part 2 following provides more detailed discussion of key issues and analysis that should be considered

by each working group, and actions that can be integrated into policies and activity designs. These are

structured according to the priorities of TNP2K. Part 3 provides a number of supplementary resources,

for additional background and to support gender analysis for activity proposal development. This

includes a more detailed analysis of gender and poverty in Indonesia, and gender and poverty reduction

more generally, a glossary of key gender concepts, a summary of the current policy environment

relevant to gender mainstreaming in Indonesia, a list of useful resources, and a checklist for assessing

the gender sensitivity of activity proposals.

3.3.3.3. Strategic FocusStrategic FocusStrategic FocusStrategic Focus

This Gender Strategy and Action Plan aims to:

� Provide an analysis of key gender issues relevant to the goals and focus of the Indonesia Poverty

Reduction Support Facility (PRSF) and the priorities of the National Team for Accelerating Poverty

Reduction (TNP2K), being to:

a. design and oversee a large-scale program of social assistance and poverty reduction;

b. consolidate, simplify, and improve the efficiency of existing programs; and

c. identify important but troubled social assistance programs and resolve their implementation

problems.

� Provide guidance on specific actions that will be undertaken by PRSF, and in time TNP2K, which may

contribute to the achievement of gender equality and sustainable poverty reduction in Indonesia;

� Contribute to the interim (i.e. within the life of PRSF) expected outcomes of the support to the

National Team Secretariat,1 particularly:

1 As defined in AusAID (2011) Schedule 1 - Scope of Services, Poverty Reduction Support Facility (PRSF).

− Policy working groups produce policy advice that directly influences program decisions;

− Policy advice is realistic and implementable;

− Evaluations and pilot programs provide an evidence base for policy formulation; and

− Gaps in social assistance coverage are identified and actioned.

In the absence of an explicit gender objective in the PRSF design, this gender strategy has been

developed with an over-arching principle that quality policy advice by definition should include

attention to gender issues,2 commencing with collection and use of gender disaggregated data and

gender analysis.

The literature review and interviews have identified three strategic objectives (Figure 1). In the earlier

stages, most actions relate to objective 1, and this will be the entry point of the strategy. Increasing

access to information and gender analysis will in itself be an important contributor to the capacity of

PRSF and TNP2K (objective 2) and will also be the foundation for developing targeted program activities

(objective 3). Objective 3 should also include piloting sub-national initiatives which can test the

appropriateness of policies that are developed, make specific links between policy and practice, and also

respond directly to key gender dimensions of poverty. The PRSF design document provides scope for

new partners, including non-governmental organisations that focus on issues of women and poverty, in

advisory and operational roles. These partnerships will be explored particularly at the sub-national level.

4.4.4.4. Responsibilities for implementing and monitoring this gender strategyResponsibilities for implementing and monitoring this gender strategyResponsibilities for implementing and monitoring this gender strategyResponsibilities for implementing and monitoring this gender strategy

The Gender Adviser will be responsible for developing, reviewing, and updating the gender strategy,

and provide technical support to PRSF and working groups to facilitate gender sensitive policy analysis.

Other responsibilities include:

� Desk based review of activity design proposals and surveys or questionnaires;

� Quality assurance and oversight of gender capacity building;

2 This is in accordance with the Paris Declaration on Aid Effectiveness (2005) and the Accra Agenda for Action (2006) along with all major donor (including AusAID) policies, and the policies of the Indonesian government.

Figure 1 Objectives of this gender strategy and contribution to PRSF goals

PRSF Long term goal:

To increase the rate of

poverty reduction in

Indonesia and reduce the

impact of shocks and

stresses on the poor and

vulnerable.

PRSF medium-term goal:

To improve the quality of

policy advice for poverty

programs.

Objective 3: PRSF is supporting activities in selected

provinces which are promoting gender equality in

end user’s access to and decision making about a

range of poverty reduction tools available to them.

Objective 2: PRSF and TPN2K have increased

understanding of gender issues and increased

capacity and commitment to incorporating gender

strategies in policies and projects.

Objective 1: PRSF and TNP2K have increased access

to information regarding the gender dimensions of

poverty and gendered constraints to poverty

reduction in Indonesia.

Quality policy advice by definition

must include attention to gender and

the promotion of gender equality.

Both men and women must benefit

from poverty reduction programs

and enjoy reduced vulnerability to

shocks and stresses. To achieve

this, activities must be based on a

sound gender analysis and

implemented with attention to

gender issues.

� Providing technical supervision and advice to grantees and research organisations;

� Identifying areas for specific further research, analysis and case studies, and where appropriate

conducting and/or overseeing the implementation of the research;

� With the Monitoring and Evaluation (M and E) Adviser, ensuring the M and E framework and

processes are gender sensitive; and

� Reviewing operational guidelines to ensure adequate consideration of gender in standard operating

procedures, program design templates and strategic plans.

The Team Leader and Deputy Team Leader will ensure forwarding of activity proposals and so on to the

gender adviser, encourage and promote TNP2K’s high-level commitment to gender mainstreaming in

poverty reduction activities and policies, and ensure adequate resourcing of gender activities.

Gender focal points will be established within TNP2K and PRSF. These will act as an initial contact point

for gender capacity building and information exchange, and over time play an increasingly stronger role

in promoting and monitoring gender sensitive policy development. It is aimed that there will be one

focal point in each working group.

P a r t 2 .P a r t 2 .P a r t 2 .P a r t 2 . A n a l y s i s , a c t i o n s , a n d i n d i c a t o r sA n a l y s i s , a c t i o n s , a n d i n d i c a t o r sA n a l y s i s , a c t i o n s , a n d i n d i c a t o r sA n a l y s i s , a c t i o n s , a n d i n d i c a t o r s r e l e v a n t t o P R S F / T N P 2 K p r i o r i t i e sr e l e v a n t t o P R S F / T N P 2 K p r i o r i t i e sr e l e v a n t t o P R S F / T N P 2 K p r i o r i t i e sr e l e v a n t t o P R S F / T N P 2 K p r i o r i t i e s

1.1.1.1. Data and targetingData and targetingData and targetingData and targeting

Establishing a national targeting system including a unified database of the poorest 40% of households

in Indonesia is a key priority for TNP2K. The database will be used to generate lists of beneficiaries

eligible to receive various social protection benefits. The primary data source for the unified database

will be the Pendataan Program Perlindungan Sosial (PPLS, Social Protection Data Program), a survey of

25-30 million households (roughly 45-50% of the population) that will be conducted by the Indonesian

Central Bureau of Statistics starting July 2011.

K e y i s s u e s a n d o p p o r t u n i t i e s

i. Availability of gender-disaggregated data

A considerable amount of poverty related data is collected in Indonesia, but historically this data has not

been sufficiently gender sensitive to provide a basis for gender aware poverty reduction policy and

gender responsive action (Schech S and Mustafa M, 2010). Biological sex has typically only been

systematically recorded for the nominated head of the household. Further, a narrow definition of

poverty has meant that men’s and women’s decision-making, rights and legal status, access to and use

of services, and ownership of resources have not been included in data collection. Little is known about

gender dimensions of the characteristics of poor households, or about any differences in how men and

women use transfers and other social protection measures, and thee implications of these factors for

moving households out of poverty.

ii. Household heads and households vs. families

While an important indicator to collect data on, the concept of head of the household lacks formal

definition and can be misleading. It does not necessarily reflect status as the primary income earner or

decision-making power (see ADB, 2006, Sumner, 2010). Further, the Indonesia Marriage Law Number 1

(1974) states the head of a household is the husband or man. This increases the potential for bias in

data collection, if by convention a male continues to be recorded as the household head, even when

absent or incapacitated. Using the concept of female or male ‘maintained’, rather than ‘headed’

households may overcome this bias. A further issue may arise when there are a number of families living

in the same household, if they are not adequately included in lists of eligible recipients of assistance. It is

conceivable that families, who because of poverty are living with others, are not included in social

assistance targeting, or do not receive a portion of funds which are allocated to that household. The

characteristics of such multiple family households, including gendered responsibilities and relationships

within them, are not known. BPS has formal definitions of the household head and household, which

underpin these units of collection. However, some comparative analysis of data using the formal

definitions, and those using more nuanced definition of the household head and household may identify

particular gender issues relevant to targeting.

iii. Equitable access to, and use of, complaints mechanisms

There is value in exploring the different perceptions and experiences of men and women firstly in terms

of being excluded or wrongly included in the target group, and secondly any differences in men’s and

women’s knowledge of, access to, and use of available support services, and of grievance mechanisms.

This study could also explore the implications of female/male maintained vs. headed households, and

the implications of multiple families in one household. This information can then be use to modify

mechanisms and future data collection processes as required to ensure equitable access. The

association of Permberdayaan Perempuan Kepala Keluarga, (Empowerment of Female Heads of

Households, PEKKA) has submitted a proposal for community monitoring of poverty alleviation

programs which may be able to include this issue.

E x i s t i n g g o o d p r a c t i c e

The PPLS 2011 survey tool calls for detailed data on household members. Data fields for each household

member include relationship to the household head, date of birth, sex, disability, chronic illness,

possession of an identity card, educational attainment, and field and status of occupation (including

paid and unpaid work). This provides significant opportunity for more detailed gender analysis of poor

households, and identification of intra-household factors more likely to be associated with poverty.

A c t i o n s a n d o u t p u t s

Actions Outputs Timing/responsibility

PRSF to support additional analysis of the Social

Protection Survey data, in order to gain a better picture

of the gender dimensions of poverty in Indonesia.

Additional questions3 for data analysis might include:

− % of female headed households living in poverty

− % of male headed households living in poverty

− Income source of head of household and of members

of household, disaggregated by sex

− % of households with a member with a disability

living in poverty

− Employment fields and levels more associated with

poverty, disaggregated by sex.

− Availability of new

analysis on gender

disaggregated

characteristics of poor

households.

− Availability of baseline

from which trends in

the gendered

dimensions of poverty

may be tracked.

2012 (after PPLS data

is collected)

To be completed

June 2012.

Conduct gendered assessment of grievance processes,

focusing on if men and women (male headed HH/female

headed HH) are able to be included in targeting lists,

where they are wrongly excluded. [Part of proposed

PEKKA project].

− Understanding of

gender differences in

knowledge of, access

to, and use of

grievance mechanisms.

To be confirmed with

PEKKA

P o s s i b l e i n d i c a t o r s f o r i n c l u s i o n i n M a n d E f r a m e w o r k

Related to the intention of this gender strategy and PRSF

The key indicator to measure will be the availability and use data on the gender dimensions of poverty

in Indonesia. Within TNP2K and PRSF this will be best measured through an annual collation of

documents, studies, reports and so on which provide such information, and then by using various tools

that can track its use. Depending on the nature of this information this can be through interviews,

citation analysis, media monitoring, and policy audits.

Related to the broader intention of TNP2K

Based on the existing data collection formats used in the PPLS, the following indicators could be tracked

over time. Initial analysis of these indicators could identify if there are in fact particular gender

inequalities in these areas (baseline).

− % of households identified as eligible for social assistance which are female headed

− % of households identified as eligible for social assistance which are male headed

3 These questions are an indication only. The exact focus of additional analysis should be agreed with TNP2K, perhaps informed by

trends observed in the aggregate data.

− % of households identified as eligible for social assistance with a member with a disability

(disaggregated also by sex of household head)

− % of total grievances lodged by women and % of these which are successful

− % of total grievances lodged by men and % of these which are successful

− % of women holding a legal identity document (disaggregated by age)

− % of men holding a legal identity document (disaggregated by age)

2.2.2.2. Individual transfers and subsidies (cluster 1)Individual transfers and subsidies (cluster 1)Individual transfers and subsidies (cluster 1)Individual transfers and subsidies (cluster 1)

Cluster 1 programs include household rice subsidies (Raskin), household conditional cash transfers

(Program Keluarga Harapan, Hopeful Families Program (PKH)), direct cash transfers (Bantuan Langsung

Tunai, (BLT)), education scholarships for the poor, and the various types of health cards that provided

free access to clinics (including Jamkesmas). A fuel subsidy was announced in March 2012.


i. Distribution of social protection benefits

PKH specifically targets women, on behalf of the household, as recipients. This could be the mother or

one of the adult women in the household (grandmother, aunt, or elder sister), who takes care of the

children in the family and whose name is written on the PKH member card. If a woman cannot be the

recipient of the funds, the household has to complete a special form (Hutagalung, Arif. and Isdijoso,

2009). Jamkesmas provides health insurance to the poor and very poor, on a household basis.

Scholarships are also provided to children from poor families, but these are managed by the schools,

and disaggregated data is currently not available.

As a continuation of the data and targeting issue (see previous item), is the question of whether

households or families actually receive the assistance for which they are eligible. PEKKA conducted

research of its members in 2008 and found an average of 33% of eligible members surveyed could not

access cash transfers (in this case BLT), while most were able to access the rice subsidy (Table 1).

Table 1 Access to social protection programs by eligible PEKKA members

% of PEKKA members living

below the Indonesian poverty

line who:

Aceh

(n=79)

W. Java

(n=55)

W. Kalimantan

(n=99)

NTT

(n=99)

Total

(n=332)

i. Received the rice subsidy 100% 96% 83% 98% 94%

ii. Are unable to access free

health treatment

9% 35% 48% 40% 34%

2005 2008 2005 2008 2005 2008 2005 2008 (n=664) iii. Did not receive the cash

transfer 4% 8% 45% 44% 38% 38% 44% 38% 33%

(Source: Sumner, 2010)

PEKKA identified one constraint as the large numbers of women without legal identification, or the only

identity for the household being in the name of the (often absent) male nominated head. An identity

card is required to access Jamkesmas and to receive cash transfers. Legal identity and registration of

children is also required for them to enrol in school. In some areas local regulations stipulate that an

unmarried woman cannot have a family card in her own name. If she is not listed on another family’s

card, then she is unable to obtain other forms of identification, and therefore potentially unable to

access assistance.

Understanding the numbers of poor households that cannot access the various services, and then

understanding why not (including gendered differences in this) is a priority area for further analysis. This

information can be used to shape complementary measures that may need to be in place to enable full

access to and usage of social protection services. A study of RASKIN, which will include attention to

gender and disability influences on access has already been commissioned by the cluster 1 working

group.

ii. The relationship between access to cash and women’s empowerment

It is often suggested that giving funds to women will increase women’s access to resources, which will

result in increasing their status and allow them greater decision making in the household (Arif, Syukri,

Holmes, and Febriany, 2010). Others suggest that the compliance conditions of conditional cash

transfers (see box following) add to women’s burdens, and further confines their role to servicing the

needs of others, therefore being disempowering (for example Molyneux, 2007, Hutagalung, Arif, and

Isdijoso, 2009).

A small qualitative study conducted by SMERU found that PKH does not impact on intra-household

gender relations or improve the position of women in

the household, and has not altered the traditional

division of labour within households (Social

Protection in Asia, 2011). It is suggested that this is in

part due to a lack of attention to enforcing the

conditional aspect of the program. Perhaps a more

likely explanation is that the model is limited to

targeting women as passive beneficiaries, and does

not include other strategies that specifically aim to

bring about changes in intra-household roles and

relationships. Certainly understanding of these

considerations could be improved by more detailed

study of gendered vulnerability (see Part 3) and of

intra-household priorities and decision-making about

those priorities.

Cluster 1 includes individual, family, and household

based support. Integrating questions which explore

women and men’s decision-making and subsequent

progress out of poverty over the longer term will help

to understand whether any of these strategies have

particular implications for gender equality and social inclusion.


Funds are transferred directly with women in accordance with international practice. The rationale for

this comes from a body of experience and research, including from Indonesia, which suggests that

women are more likely to use funds for improving the situation of the household. It is unclear whether

the conditionality influences households to send children to school and access maternal health services,

or these are just a product of having extra cash.


Actions Outputs Timing/

responsibility

Commission analysis of PPLS data according to following

questions:

− % of females with an identity card, disaggregated by

age group

− % of males with an identity card, disaggregated by age

group

− % of female household heads without an identity card

who are eligible for, but not accessing social security

− % of male household heads without an identity card

who are eligible for, but not accessing social security

− New analysis on households

unable to access social

protection measures.

− Policy brief based on

analysis

2012 and

annually

Working group

with support

from Gender

Adviser

Box 1: Social protection conditionality (PKH)

Conditionality for health:

1.Four prenatal care visits for pregnant women

2.Taking iron tablets during pregnancy

3.Delivery assisted by a trained professional

4.Two postnatal care visits

5.Complete childhood immunizations

6.Ensuring monthly weight increases for infants

7.Monthly weighing for children under three and biannually

for under-fives

8.Vitamin A twice a year for under-fives

Conditionality for education:

9.Primary school enrolment of all children 6 to 12 years old

10.Minimum attendance rate of 85% for all primary school-

aged children

11.Junior secondary school enrolment of all 13 to 15 years

old, and

12.Minimum attendance rate of 85% for all junior secondary

school-aged children

Commission studies to develop understanding of why

eligible poor households are unable to access transfers

and Jamkesmas, disaggregated by sex of the household

head (possibly implemented by PEKKA for female headed

households).

− Documentation of gendered

barriers to accessing

transfers and Jamkesmas

− Policy brief based on studies

2012

Working group

with support

from Gender

Adviser

Commission studies to develop understanding of what

poor families spend the transfers on, and how this

decision is made. This can be used to assess the

importance of conditionalities, but also be linked to

analysis of the underlying causes of poverty (i.e. do poor

families use transfer for actions which may reduce their

longer term poverty vulnerability).

− Documentation of spending

decision making and

improved understanding of

relevance of conditionalities

− Policy brief based on studies

TBA – will

depend on

focus of PNPM

studies.



As per Part 3, items 4 and 5, PRSF will monitor the performance of activity proposals and policy events

or advice against very simple checklists. The indicators that will be focused on are:

− # of activities that reflect any gender analysis

− # of activities that include gender specific objectives and indicators?

− # of activities that provide sex-disaggregated data

− # of policy related items (events, briefs, propositions etc.) that reflect gender analysis

− # of policy related items that include recommendations which specifically link to promoting

gender equality

− Examples of policy advice being adopted by relevant agencies


TNP2K will collect and/or collate a large amount of data related to the implementation of the various

programs, including data on adherence to the various conditionalities. PRSF will monitor that these

indicators refer to disaggregated data. More related to its end of program outcomes, PRSF will focus on

monitoring gender equality in access to social protection programs. Indicators will include:

− % of households identified as eligible for social assistance which are male headed/female headed

− % of households identified as eligible for social assistance which do not access the various social

assistance programs (disaggregated by sex of the nominated household head, and by the type of

assistance)

− % of male and female headed households which access grievance processes

3.3.3.3. Community driven empowerment (cluster 2)Community driven empowerment (cluster 2)Community driven empowerment (cluster 2)Community driven empowerment (cluster 2)

The National Program for Community Empowerment (PNPM) in its various forms (urban/rural, incentive

and non-incentive based) provides annual block grant transfers to community councils to be used for

productive investment. PNPM in all its forms includes a facilitated community planning process, and

PNPM-Generasi participation is conditional on communities committing to improving health and

education conditions (as per box 1).

A review of gender in community driven development (CDD) projects in Indonesia was conducted in

2008 to inform development of a gender strategy for PNPM and provides a good analysis of issues,

lessons and recommendations (see GOI, WB, AusAID et.al. 2008). A number of staff in the PNPM

Support Facility (PSF) who are reviewing the approach and activities of the initiative. PNPM staff within

TNP2K are involved in developing a road map. It is recommend that this gender strategy support and

complement, rather than re-invent ongoing work.


The need for gender responsive planning to be informed by gender analysis

There is a difference between procedures that require a proposal from women’s groups, and a process

which requires gender analysis to inform those proposals. A gender and poverty analysis (see Part 3 for

a summary of this kind of analysis) would identify factors which cause or maintain men’s and women’s

poverty. These may be different, and good analysis can enable more efficient targeting of limited

resources. A review of PNPM community analysis processes could identify the extent to which gender

analysis informs proposal development.

Building commitment amongst PNPM community facilitators

PNPM community facilitator training includes a gender component, but PSF staff report that this is not

particularly emphasised, and sometimes often cut from the training. PSF is supporting a team of

consultants, with government endorsement, to set up a certification system for facilitators: Materials

have been developed, and it is intended that the process with start with the 16,000 PNPM facilitators.

There is an opportunity through this process to ensure that gender awareness, analysis, and gender

sensitive programming are core standards.

Potential for experimental approaches to increasing equality in decision-making and participation

Depending on the outcomes of the PNPM review processes and road map development, there may be

opportunities to explore opportunities for PRSF to support PNPM (working with PNM PSF) to improve

knowledge about how community grants can act as leverage for gains in gender equality. For example, a

trial of incentivised community grants, whereby subsequent grants were allocated partly on the village‘s

performance on each of the 12 health and education indicators was conducted under PNPM Generasi.

The evaluation of this found that making grants conditional upon performance improves program

effectiveness in health, less so for education (Olken, Onishi, Wong, 2011). This raises the question of

whether the incentive system could also be used to promote faster gains in women’s participation in

governance structures and decision-making – by incentivising these criteria.

A second area for greater experimentation is linked to the assumption that the requirement for female

participation will automatically lead to genuine participation. While opening the space for women’s

participation is essential, working on the invisible barriers to genuine participation – including women’s

own confidence and self-belief that they have something to contribute, is also needed. A number of civil

society actors, including PEKKA, emphasise the need for capacity development of women to accompany

other community based social protection measures. There is an opportunity for longitudinal study of

empowerment (where human capacity is also developed) vs. targeting (where the poor are more

passive recipients) approaches.


PNPM grant proposals are encouraged from mixed and women’s groups. In PNPM Generasi, grants are

tied to key health and education indicators, as per individual transfers this has demonstrated potential

to improve maternal health and education for all children.


There are a number of possible actions, but leadership will come from PSF. This is not likely to the be a

focus of gender specific support under PRSF. Rather, the approach with be to identify opportunities to

coordinate with and complement the work of other actors.


Support existing processes to encourage integration of

gender sensitive process, skills development and so on

− Gender specific

activities and indicators

in PNPM plans

Road-map – Q2 2012

Others to be

identified

Audit of PNPM community processes to assess the level

and process of gender analysis which informs

community proposals, including trends in proposals put

forward by women’s groups and mixed groups, and

how these relate to identified roots of poverty.

− Understanding of level

of gender analysis in

PNPM community

planning


analysis

To be agreed with

PNPM

Commission comparative analysis of outcomes of

empowerment vs. more passive targeting approaches

[possibly linked to PEKKA monitoring, however may be

too long term for PRSF]

− Relative effectiveness of

different approaches

able to be

demonstrated (in

selected areas)


studies

To be agreed with

PNPM

Pilot PNPM with incentives linked to equal participation

in governance and decision making.

To be developed as part of

pilot design.

To be agreed with

PNPM



As per cluster 1, the key indicator PRSF will monitor the performance of activity proposals and policy

events or advice against very simple checklists. The indicators that will be focused on are as per the list

in on page 10.


Indicators for cluster 3 need to be discussed with PNPM staff, but based on a review of available

information, the following may be appropriate.

− Average grant amount awarded to women only groups

− Average grant amount awarded to mixed groups

− % of grant proposals in each sector of support, disaggregated by women only/mixed groups.

− % of committees with 30% or more female membership

− % of committees with no female membership

− % of committees with a female chairperson

− % of PNPM facilitators who are female

4.4.4.4. MicroMicroMicroMicro----finance and SMEs (cluster 3)finance and SMEs (cluster 3)finance and SMEs (cluster 3)finance and SMEs (cluster 3)

The focus of cluster three was largely undefined at the time of writing the initial gender strategy.

However, this first update (March 2012) has been able to draw on the new cluster three working group

strategy, which defines the group’s objective as being to provide high quality evidence based policy

advice related to MSEs which enables the Government to make more informed policy decision for

reducing poverty. The working group aims to

i. improve coordination and conduct effective implementation of various on-going Government

activities to support individuals/ households/MSEs;

ii. deepen the understanding of MSEs and the challenges and constraints to be fully included in

formal economic and financial sector and determine appropriate government support

mechanisms;

iii. support systematic monitoring and evaluation of the implementation of KUR (Kredit Usaha

Rakyat) program and any other emerging MSE supporting vehicles;

iv. review existing government poverty programs and improve their effectiveness in enhancing

financial and economic inclusion;

v. develop an overall strategy for creating an enabling environment for individuals, households,

and MSEs for financial and economic inclusion (including for those enterprising poor without a

MSEs);

vi. develop the strategy to encourage private sector participation to outreach to MSEs; and

vii. share findings and analysis and provide the recommendations to taskforces and the National

Team.

While the strategy makes no specific reference to gender, there are a number of opportunities relevant

to these objectives.


The sector in Indonesia is perceived to be gender neutral

It will be important for TNP2K policy advice to challenge the notion that financial inclusion, SMEs, and

access to credit strategies can be developed without consideration of gender, and then uniformly

applied. An issue is that much analysis, if it considers gender at all, finds few significant gender

differences (see page 28 for a brief summary of recent analysis by the World Bank). This may be a true

representation of the situation, or be symptomatic of a lack of sensitivity in data collection as many

pressures and constraints that are felt by different sections of a society may not be revealed in largely

quantitative analysis.

According to the Asia Foundation (n.d.) women own 35% of Indonesia’s small and medium sized

enterprises. The Ministry of Women’s Empowerment and Child Protection (MoWECP (2011)) analysis

states more than 50% of Indonesia’s micro enterprises are owned by women, but most are not

registered. Indonesian tax law includes a number of discriminatory clauses whereby married women are

not entitled to the same tax concessions as their husbands, even if they are the primary or sole income

earner. This can act as a disincentive to formal registration. As discussed following, international

experience suggests that gender is a critical aspect of SME development and support, both to promote

gender equality and to avoid well-meaning programs creating new gender inequalities.

Micro-finance and SME support should be developed with gender analysis and

women’s empowerment at their centre

Micro-finance has been considered the silver bullet ‘fix’ for women and families in poverty. However

recent analysis is more critical (see Mayoux, 2002, Mayoux, 2005, Mayoux and Harti, 2009, Banerjee,

Du.o, Glennerster et.al. 2009, ODE, 2009). Negative outcomes of programs designed without adequate

attention to gender have included:

� Micro-finance pushes already poor women into unwanted debt, particularly when there is a push to

establish new business without the required support or previous experience;

� Micro-finance programs are often not accompanied by capacity development in necessary areas such

as market analysis, product development, and small business skills;

� Women targeted micro-finance can push household labour demands onto the female children in the

household;

� A lack of prioritisation of women and girls needs once funds have been earned which reinforces and

increases existing gender inequalities; and

� Micro-finance does little to change women’s status, and in some instances has left women more

vulnerable to violence, either intra-household (as a way of seeking control over the threat of

economic independence) or from creditors.

This experience is echoed to some extent in the gender review of CDD projects (GOI, WB, AusAID et.al.

2008). This review found that Simpan Pinjam (women’s revolving loan funds established under PNPM)

and economic activities in which women participate do not significantly change their economic

participation and opportunities, and are rarely open for poor women. Further, capacity building is not

always a complementary strategy, and links to external providers of skills development are weak and

the opportunities are not being well used. PEKKA identifies barriers to women’s participation in Simpan

Pinjam as being the high interest rates charged on loans, the high sanctions imposed on those who are

late with payments, and the need to prepare an application to qualify for entrance into the program

which is difficult for many of the poor.

There are a number of tools available to support development of gender sensitive micro-finance (see

reference list), which as a minimum should be utilised by TNP2K in development of policy for this

cluster.

Available models in Indonesia

There are also examples in Indonesia of women focused micro-finance initiatives, from which TNP2K can

learn. For example, PEKKA’s model, which is savings based, has cumulatively generated about $430,000

by the end of 2010, reflecting savings of about $102 US per member per year in a group whose average

annual household income is around $800. An independent evaluation conducted in 2009 found that the

income of PEKKA members with 2 dependents rose by 41% after they became involved in PEKKA. PEKKA

has also facilitated establishment of higher level Cooperative Microfinance Institutions as the village

level programs mature. At the end of 2008 these had Rp.11.4 trillion in assets (PEKKA, 2011). Asia

Foundation also works with women’s loan funds to increase their knowledge of and access to financial

institutions, and their understanding of the legal rights (such as being able to obtain licenses in their

own names (Asia Foundation n.d.).


Existing practice in this area overall is unclear. There is some effort to target women for micro-finance

activities under PNPM, but actual gender mainstreaming is not yet apparent in this strategy analysis.



Review Cluster 3 strategy and provide input as to gender

focused activities or mainstreaming opportunities

Short paper March 2012, Gender

Adviser

Arrange opportunities for learning from established micro-

finance programs with central attention to gender issues.

Seminars/workshops

conducted.

Improved

understanding of

gendered approaches in

Indonesia

2012 and ongoing

Gender

Adviser/Cluster 3

Support development of micro-finance and SME policy in

accordance with available experience and guidelines for

gender mainstreaming. At a minimum this should include:

− ensuring full understanding by women and men of

goals, risks, and liabilities;

− consideration of gender issues in employment policy for

SMEs (e.g. access to childcare, maternity leave,

insurance, security, equal opportunity and anti-

harassment;

− ensuring gender sensitivity and understanding of

gender equality goals of front-line staff;

− integrating market research and product diversification;

− considering gender equality in all steps from the

application process onwards;

− making sure women and men have equal access to

support and training services;

− promoting women’s control over resources – and if

they borrow money for asset purchase, making sure

that the asset is in their name and control.

Micro-finance/SME

policy includes attention

to minimum standards

for gender

mainstreaming.

Timing to be agreed

with Cluster 3

Gender

Adviser/Cluster 3





in on page 10.


Depending on the focus of this working group, the following indicators should be considered:

− % of females from households identified as poor which access microfinance (disaggregated by

source of funds)

− % of males from households identified as poor which access microfinance (disaggregated by

source of funds)

− % of loan clients who are female

− (If savings and loans/credit groups) – analysis of group composition, including decision making

positions

− Average amount of loan taken out by women

− Average amount of loan taken out by men

− Purpose of loan disaggregated by sex of the borrower

− Where loans are for large assets, the % of these registered in name of the woman only, man only,

both

− % of loans taken out by women which are repaid on time

− % of loans taken out by men which are repaid on time

− Type and frequency of support services accessed, disaggregated by sex of person accessing the

service.

5.5.5.5. Employment, including migrant labourEmployment, including migrant labourEmployment, including migrant labourEmployment, including migrant labour

Gender and employment issues are not yet an explicit focus of TPN2K’s work, although migrant labour is

an area of interest, and an employment strategy is in development under cluster one. These issues are

discussed this analysis because of two reasons:

� One of the clearest links between increasing gender equality and improving performance on

economic indicators of poverty is in the area of labour force participation provides; and

� Poverty often pushes women, more than men, into very marginal and risky industries, including

migration, factories, and the informal sector.

There may be opportunity to provide input into the employment strategy at a later date, but the

political nature of this has meant it has not been possible as yet.


Migration

Migrant labour is currently a prominent issue in Indonesia. In 2007, Bank Indonesia estimated that the

total number of Indonesian workers abroad was approximately 4.3 million. Official statistics indicate

that the combined total value of net remittances was US$6 billion in 2008, with the gross in-flows

assumed to be considerably higher The majority of Indonesian migrant workers are females from rural

regions with lower levels of educational attainment. Female migrant workers are more likely to have

legal status (in terms of immigration, as migrant workers) and work in the informal sector as domestic

helpers. Male migrant workers are more likely to have a job in the formal sector, such as in factories or

on plantations. Migrant workers mainly come from poor households in rural areas where agriculture is

the main economic activity, and a high proportion of migrant workers’ households surveyed for a World

Bank study were at least moderately indebted. The World Bank analysis found few significant

differences between patterns of accessibility to financial services amongst men and women migrant

workers, with the exception being access to some types of savings accounts. A gap was not found in

critical areas, including access to credit and the rate of incidence of financial exclusion (World Bank,

2010), but female migrant workers in the Middle-East rarely remit money to Indonesia. This is attributed

to restrictions on women’s mobility and language constraints, meaning that women migrant workers

are often heavily reliant on their employers to remit their salary to Indonesia (World Bank 2010a).

While gender differences in migrant worker situations may not be significant, the strategies that are

required to assist migrant worker households to graduate from poverty may need to be different

depending on the roles and responsibility of the worker and those left behind. Understanding gender

differences in spending and financial decisions may be a useful basis for this. Migrant worker

remittances have been proposed as a coping strategy in times of financial crisis, but it appears that the

impact on the household only seems to last for the time the migrant is away. Evidence on poverty

reduction in migrant sending areas is showing that the cumulative effect on poverty reduction at the

district level is more sustainable than at the household level (AusAID and TIFA Foundation, 2011).

PRSF has commenced support to TIFA Foundation for a pilot initiative Poverty Reduction Through Safe

Migration which aims to decrease poverty for migrant workers and their families by: i) improving their

financial management and access to appropriate financial services; ii) improving safety of migration;

and, iii) initiating and advancing commitment of the Government of Indonesia and other relevant

stakeholders to take and scale up the successful activities when the project is completed in 2014. This

provides some opportunity for developing a better understanding of gender differences in migrant

worker situations vis-à-vis. poverty, and the policy implications of these.

Labour force participation and labour rights

Women’s labour force participation in Indonesia is 53.3%, compared to 86.2 % for males (UNDP, 2010

(2008 data). Other issues are:

� Women are disproportionately represented at the lower ends of the socioeconomic and political

scale.

� Female workers in manufacturing generally receive lower wages than men. Many female factory

workers are hired as day labourers instead of as full-time permanent employees, and companies are

not required to provide benefits, such as maternity leave, to day labourers.

� Women often are not given the extra benefits and salary that men are given when they are the

heads of households, and in many cases do not receive employment benefits for their family

members, such as medical insurance and income tax deductions.

� Law Number 21/1999 requires that the Government to formulate national policies to forbid and

eliminate discrimination (including by gender) in the workplace. However, there were no

implementing regulations in effect and discrimination continued in practice.

� Women are provided with three months maternity leave by law. However, there are reports that

pregnant women often are dismissed or replaced while on leave from their jobs. Some companies

require women to sign statements that they do not intend to become pregnant.



Support TIFA to ensure implementation of their pilot

initiative includes adequate attention to gender.

Gender sensitive program

documentation and

implementation.

From January 2012,

ongoing.

Gender Adviser.

Consideration of gender issues in poverty reduction

strategies which touch on employment strategies as

they are explored by TNP2K (maintain a watching brief)

- To be developed as

area of work comes

on-line

Work with World Bank and others to identify links

between migrant labour and poverty reduction, and

gender issues in this, possibly starting with analysis of

differences in remittance and spending decisions

according to sex of send and receiver of remittance.

Coordinated studies

conducted.

To be developed as

area of work comes

on-line


Indicators for this area of work will be identified as projects come on line. As at February 2012, TIFA are

developing their monitoring and evaluation framework, Input has been provided to encourage all data

to be disaggregated and to identify gender sensitive indicators and monitoring processes.

6.6.6.6. AdvocacyAdvocacyAdvocacyAdvocacy


From the beginning of 2012 TNP2K’s Advocacy team has moved out from the Secretariat to become a

working group. The group’s mandate is to increase the alignment of sub-national programs and budget

with poverty reduction policy. The Advocacy working group therefore will support the Tim Koodinasi

Penanggulangan Kemiskinan (Coordination Team for Poverty Reduction (TKPK)) at province and

district/city levels to increase their institutional and poverty reduction technical analysis capacity. The

goals of the Advocacy working group are to:

� Increase program and budget alignment to poverty reduction;

� Sharpen priority interventions;

� Increase budget compliance with intervention priorities;

� Optimise utilisation of the integrated poverty data as a basis for targeting;

� Improve the quality of cross-sector and stakeholders coordination.

The Advocacy working group therefore has potentially a very pivotal role in ensuring the integration of

gender considerations in poverty policy development and implementation outside of Jakarta.

Gender budgeting

Gender budgeting is a process of analysing (usually) government budgets to identify how they respond

to the differentiated needs of women, men, girls and boys. This, with analysis of differences in men’s

and women’s experiences, opportunities, and fulfilment of their human rights, then informs formulation

of gender-sensitive budgets. The ultimate objective is to support the achievement of a gender-sensitive

allocation of resources (Hofbauer Balmori, 2003). There have been a number of efforts to roll-out

gender budgeting in Indonesia (see Part 3), under the Ministry of Finance Regulation

No.119/PMK.02/2009 which promotes gender responsive budgeting. There is an opportunity for

PRSF/TNP2K to support analysis of poverty related data, budgets, and policies with attention to gender,

and also to other forms of vulnerability such as on the basis of disability, ethnicity, land tenure and so

on. This indicates the need for a shift from the current focus of TNP2K’s existing sub-national training

(see TNP2K, 2011).


The Advocacy working group has a training manual, which refers to gender within the MDGs. New

activities are being developed (as at quarter 1 2012) which will enable the attention to gender to be

considerably strengthened.



Commission a gender review of the TKPK training to

identify light revisions which can improve the gender

sensitivity of existing training.

Gender review/

recommendations

Q1 2012 to be

undertaken by TAF

Develop recommendations for introduction of more

specific gender mainstreaming in training.

Training

recommendations

Q2 2012-03-08

TAF, Advocacy Team,

with support from

Gender Adviser

Integrate gender budgeting and policy analysis into work Training modules and 2012 – 2013


with TKPKs training experience

(Advocacy) Selected contractor

with support from

Advocacy Team and

Gender Adviser





in on page 10.


These will be developed as part of the activity design, but draft indicators for the first stage are below.

# of M/F Provincial/District/ City staff trained in gender sensitive/inclusive poverty budget and policy

analysis;

# of Provincial/District/City TKPK budget analysis and planning meetings attended by representatives of

women/gender focused organisations (government or non-government)

# of Provincial/District/City poverty budgets and policies showing evidence of gender analysis

# of Provincial/District/City poverty budgets and policies showing evidence of responsiveness to gender

analysis.

7.7.7.7. Internal issues (human resources, systems, operating procedures)Internal issues (human resources, systems, operating procedures)Internal issues (human resources, systems, operating procedures)Internal issues (human resources, systems, operating procedures)


Human Resources

Research underpinning this gender strategy has not considered the gender issues in staffing outside of

the PRSF and TPN2K headquarters.

PRSF/TNP2K overall have a significant imbalance in male/female staff numbers, both at senior levels

and overall (Figure 1). This indicates a need for affirmative action, in accordance with Indonesia’s

commitments to CEDAW and constitutional provision

regarding equal access to employment opportunities (see

Part 3). The number of years of professional experience,

along with a general lack of female applicants appear to

be the main barriers. Government policies, such as the

requirement for civil servants to be posted in regional

locations in order to gain promotion have implications

for women’s ability to gain the necessary seniority and

experience, and thus be competitive for TPN2K/PRSF

positions. PRSF may consider promoting different

selection criteria, which are more aptitude rather than

experience focused, as well as including experience in

gender mainstreaming as a selection criteria in

applications and interviews. Conversely, a candidate’s

resistance to the concept of gender mainstreaming and

gender equality in poverty reduction may be negatively

weighted in a recruitment process. Women should be encouraged to apply on the advertisements.

As important, perhaps more so in terms of the poverty reduction objectives of PRSF and TNP2K, is the

level of gender awareness and analysis skills, and commitment to promoting gender equality amongst

all staff, female and male. It has been demonstrated that gender aware project staff or consultants can

have a significant impact on program outcomes (GOI, WB, AusAID et.al. 2008). Within TNP2K and PRSF

only a very few staff have previous formal training or experience in gender sensitive programming or

gender analysis, and similarly few staff have an understanding of the concepts and how to implement

them. At a minimum it is recommended that each working group has someone who is tasked with

reviewing everything from a gender perspective, and is skilled up accordingly.

Templates and procedures

The existing activity proposal template includes a requirement to describe the way in which the activity

addresses identified cross cutting issues including gender. However this is somewhat lost amidst similar

boxes for disability, environment, anti-corruption, people living with HIV and AIDS, and child protection,

and the level of analysis or direction required is not specified. It is recommended that preparation of

future activity proposals draw on the analysis in this gender strategy, and incorporate the proposed

actions as appropriate. Activity proposals should include gender specific objectives and indicators, which

are then resourced and monitored over the life of the activity. A checklist of questions guiding the

development and assessment of Activity proposals is included in Part 3. This form will be completed as

part of the activity approval process.

Terms of reference for working groups also do not include the requirement for groups to undertake

gender analysis, nor to mainstream gender in activity planning, evaluation, nor in policy development. It

is recommended this be amended in the next version of those terms of reference.

Figure 1; Male and female staff breakdown

PRSF/TNP2K


An existing ‘box’ in activity proposals directs consideration of gender, although this needs to be

expanded and completed in a meaningful way.

Disaggregated information on staff is available. Maternity leave (3 months paid leave) is provided in

accordance with government policy. All staff are required to agree to abide by GRM’s code of conduct

which includes provisions against harassment and discrimination.



Review HR procedures to incorporate gender awareness

and skills as a selection criteria, to encourage women to

apply, and to support the eligibility of under-

represented groups.

Gender considerations

(selection criteria,

responsibilities in terms of

reference and

performance review etc.)

included in SOP.

Ongoing:

HR Manager with

support from Gender

Adviser

Activity proposal templates to include requirement for

gender specific tasks and indicators (can be drawn from

this strategy)

Activity proposal format

modified

In place as at

February 2012

Activity approval to include attention to gender

sensitivity of proposal.

Activities not approved

unless have gender

analysis and appropriate

targets or specific

objectives.

Ongoing:

Approval team

Working group terms of reference and performance

criteria reviewed and amended to include the

requirement for gender analysis to inform policy, and for

gender aware activity development.

Amended working group

TOR

As reviewed

Track PRSF expenditure on gender focused and gender

mainstreamed activities.

Budget information

available annually and

informs annual review and

planning process

ATL/DTL/FM

8.8.8.8. Monitoring and evaluationMonitoring and evaluationMonitoring and evaluationMonitoring and evaluation

M o n i t o r i n g a n d e v a l u a t i o n o f i m p l e m e n t a t i o n o f t h i s g e n d e r s t r a t e g y

Indicators for monitoring the progress against the objectives of this strategy are outlined in the

following table. The primary mechanisms for collecting data on these indicators will be:

� an annual review of key documents including activity proposals, analytical reports and so on, against

a gender checklist;

� annual interviews with working groups;

� a questionnaire which provides a simple baseline of PRSF/TNP2K staff confidence with gender

concepts and access to the necessary tools and data.

Impact indicators will need to be developed as part of activities which respond to key gender

inequalities.

Strategic objectives Indicators

1: PRSF and TNP2K have

increased access to

information regarding the

gender dimensions of

poverty and gendered

constraints to poverty

reduction in Indonesia.

− Number of working groups with access to data which is sufficiently

disaggregated to inform gender and social inclusion strategies and policy

(minimum disaggregation: sex, age, disability)

− Number of instances of specific analysis commissioned to determine

differences between men’s and women’s situation and experience of the

program

− Number of instances of working groups using data to monitor changes

experienced by men and women as separate groups

2: PRSF and TPN2K have

increased understanding of

gender issues and increased

capacity and commitment

to incorporating gender

strategies in policies and

projects.

1. Staff capacity:

− Percentage of staff with knowledge of gender concepts

− Percentage of staff who answer Yes, gender is relevant to the work of their

working group

− Percentage of staff who answer Yes they have applied gender analysis in their

work from i. the gender strategy, and ii. other sources

− Percentage of staff who answer Yes they feel their supervisor/colleagues

encourage attention to gender issues

− Percentage of staff who have attended at least one gender focused event in

the previous 12 months.

2. Tools and resources

− Percentage of working group staff saying they have the required tools to

support gender analysis and gender mainstreaming

− Percentage of working group staff saying they have the required data to

support gender analysis and gender mainstreaming in policy development

3. Internal issues/ systems and procedures

− Percentage of male and female staff at management/technical and non-

management/technical levels

− Percentage of activity proposals which fulfil requirements of checklist for

activity proposals (see Part 3)

3: PRSF and TNP2K are

supporting activities which

are promoting gender

equality in end user’s access

to and decision making

about a range of poverty

reduction tools available to

them.

− Number of issue specific activities addressing key gender issues designed and

contracted

− Budget allocated to specific activities addressing key gender issues

Outcome and impact indicators to be developed as part of activity design, and at a

framework level led by the TNP2K M and E working group and PRSF M and E staff.

I n t e g r a t i n g g e n d e r e q u a l i t y c o n s i d e r a t i o n s i n t o P R S F a n d T P N 2 K m o n i t o r i n g

a n d e v a l u a t i o n

The TPN2K and PRSF M and E Frameworks are in development. This strategy therefore provides a

preliminary list of gendered quantitative indicators for which data might be routinely collected (included

with the discussion of each working group area). However these will need to be refined to ensure

appropriate measurement against the program’s logic as to how sustainable, broadly defined, poverty

reduction will be achieved for men and women as well as households and families. A commitment to

gender mainstreaming should be reflected in gendered outcome and impact objectives in TPN2K’s and

PRSF’s M and E Frameworks.

C o n t r i b u t i n g t o A u s A I D k e y q u e s t i o n s

The PRSF design framework and scope of services state that the Facility’s progress on gender will be

regularly assessed by using the following questions:

1. How has the Facility contributed to removing constraints to gender equality in poverty reduction

programs?

2. How has the Facility contributed to improved access by women to services?

3. How has the Facility contributed to equality of decision-making for women?

4. How has the Facility contributed to improved women’s rights?

5. How has the Facility contributed to improved understanding by Indonesia and Australia of the

constraints to gender equality?

Activity design and development of the PRSF M and E framework will include attention to these

questions as is possible, and they are likely to be included in TOR for mid-term and end-point

evaluations. However, with the exception of question 5, the causal chain between PRSF inputs and

changes in these specific areas is not particularly direct, and outcomes are reliant on the actions of

implementing agencies. This means that expectations about the extent and nature of changes in these

areas that PRSF is able to demonstrate a direct contribution to, should be very modest. PRSF’s

demonstrable direct contributions to change in relation to the five questions are more likely to be linked

to pilot projects and research, rather than the flow through effect from PRSF inputs, to TNP2K’s policy

advice outputs, to line ministries adopting the police change advice in their implementation, and then to

measureable significant changes in the experiences of poor women and men.

9.9.9.9. Internal capacity developmentInternal capacity developmentInternal capacity developmentInternal capacity development

The strategy for building the capacity of TNP2K and PRSF to develop gender sensitive strategies and

policies is based on a holistic, rather than solely skills based conceptualisation of capacity. Key aspects of

this strategy are:

Area of capacity Mechanism for development/use Timing

Access to relevant gender

analysis and disaggregated

data

Various studies and analysis identified

with the capacity outcome being that:

− Staff are able to see the relevance of

gender to their work, and

understand the key issues (building

organizational commitment); and

− Information is available for evidence

based policy development.

Ongoing (see above)

Staff understanding of key

concepts

Initial gender training. Aim for at least 1

staff per working group able to

undertake basic gender analysis relative

to their area of work.

First training March 2012,

repeated as necessary

Peer support network Peer-to-peer learning and support

promoted through email groups and

monthly, externally facilitated gender

action-reflection process.

First session March 2012, ongoing

External networking and

partnerships

Relationships developed with civil

society organisations, Universities and

other government agencies to

coordinate, reinforced, and complement

gender work.

Ongoing

Technical assistance On-call Gender Adviser + regular inputs

for document review, advice, coaching,

provision of materials, participation in

designs, reviews etc.

Inputs August 2011, January 2012,

then to be confirmed

Reference materials Establishment of an electronic and hard

copy library of relevant tools and

resources, including use specific

development or adaptation of required

tools and checklists

Commenced January 2012

Financial and human

resources

Funding allocated to gender focused

activities

Compiled annually

Monitoring and evaluation Learning focused and strengths based

analysis of gender progress and results

Annual review against strategy

10.10.10.10. Risk identificationRisk identificationRisk identificationRisk identification

The key risk identified related to this strategy is that TNP2K does not take on gender as a key issue

linked to poverty reduction. To mitigate this, the first strategy is to use the data collected via the PPLS

and other sources to identify in a concrete way what the gender dimensions of poverty, and therefore

the policy implications are. A second strategy is to build the commitment, understanding, and capacities

of staff to include gender analysis in their policy advice. Thirdly, it will be important for PRSF senior

management and AusAID to reinforce the importance of gender as a critical issue in PRSF and TNP2K

work.

P a r t 3 .P a r t 3 .P a r t 3 .P a r t 3 . S u p p l e m e n t a r y i n f o r m a t i o n a n d r e s o u r c e sS u p p l e m e n t a r y i n f o r m a t i o n a n d r e s o u r c e sS u p p l e m e n t a r y i n f o r m a t i o n a n d r e s o u r c e sS u p p l e m e n t a r y i n f o r m a t i o n a n d r e s o u r c e s

The following items are included to provide information and additional resources relevant to the goals

of PRSF to assist with initial gender analysis for activity proposals. The items include a summary context

analysis, a list of the Indonesian government’s gender related policy commitments, and details of

resources relevant to each thematic area. It should facilitate, rather than substitute for, more in depth

analysis.

1.1.1.1. Key gender and poverty issuesKey gender and poverty issuesKey gender and poverty issuesKey gender and poverty issues

Overall, Indonesia is ranked 100 out of 134 countries in the UN gender inequality index (UNDP, 2010).4

The following table provides data on key gender related Indicators and selected comparison groups.

Table: Gender Inequality Index Indonesia and selected comparison groups

Gender

inequality index

Seats in

Parliam

ent (%)

Population with at

least secondary

education (% aged

25 and older)

Labour force

participation rate

(%)

HDI

Rank/location

Rank Value

Maternal

mortality

ratio (per

100,000

live

births)

Adoles’t

fertility

ratio

Female Female Male Female Male

Contracep

tive prev.

rate, any

method

(% of

married

women

15-49)

Antenatal

coverage

of at least

1 visit (%)

Births

attended

by skilled

personnel

(%)

2008 2008 2003-

2008

1990-

2008

2008 2010 2010 2008 2008 1990-2008 1990-2008 2000-2008

108 Indonesia 100 0.680 420 39.8 11.6 24.2 31.1 53.3 86.2 61.4 93 73

East Asia and

the Pacific

— 0.467 126 18.1 19.8 48.2 61.4 70.1 84.5 .. 91 91

Very high

human

development

— 0.319 8 19.1 20.5 83.7 86.1 65.3 80.2 .. 100 99

High human

development

— 0.571 82 47.7 13.3 61.2 61.3 52.7 79.5 66.3 95 96

Medium human

development

— 0.591 242 41.8 16.0 40.9 57.4 54.7 84.1 68.4 84 74

Low human

development

— 0.748 822 108.9 14.4 19.0 32.0 61.3 83.4 27.8 66 39

(Source: UNDP, 2010)

Education and employment

Understanding the quantitative dimensions of poverty is difficult, primarily because of the lack of

appropriate disaggregation of data, and also because major studies are now becoming dated. The 2010

Gender Gap Report identifies economic participation and opportunity as being the area of greatest

inequality in Indonesia. UNESCAP calculates that if the female labour force participation rate in

Indonesia rose to that of the US (86%) Indonesia’s GDP would grow by 1.38% – a 0.56 percentage point

with a yield of 2.4 billion dollars per year (UNESCAP, 2007). Female workers also tend to receive lower

wages than their male counterparts (Arif, Syukri, Holmes, and Febriany, 2010). Although now relatively

old data, analysis of male and female wages in agriculture showed that even where men and women

were doing the same job, women earned less (ADB, 2006).

Feridhanusetyawan, Aswicahyono and Perdana. (2001) examined the structural causes of the continuing

wage differential by sex using BPS Labor force survey data from 1986 and 1997. They found that job

experience was a significant factor in explaining wage gaps, but education was more important,

particularly in urban areas. The effect of one additional year of education on hourly wages for urban

women was estimated to be 15% in 1986 and 12% in 1997 for primary school graduates (6 years of

education). The effect of each additional year of education was greater for urban female upper high

school graduates: 20% in 1986 and 17% in 1997. The most pronounced impact of each year of additional

4 The gender inequality index considers only inequalities between men and women at the country level, and is not linked to the

overall level of development in a country. It ranges from 0 (no inequality in the included dimensions) to 1 (complete inequality).

education was for graduates of tertiary education: 22% in 1986 and 19% in 1997. In rural areas the

marginal effect of additional years of education on females was also larger than that of males but the

difference was less dramatic than in urban areas. THis highlights the importance of continuing female

education as a longer term poverty reduction strategy.

Control over assets and decision making about spending

Women’s access to and control of economic assets, including those which can be used to obtain credit,

is an important consideration in poverty reduction and gender equality. Using data from the Indonesian

Family Life Survey (IFLS), Beegle, Frankenberg and Thomas, (2001) found that Indonesian women’s

power in household decision-making is strongly linked to the value of her assets compared to those of

her husband. A study using data from Bangladesh, Ethiopia, Indonesia, and South Africa to test whether

assets held by men and women when they enter into marriage influence subsequent household

expenditure patterns found that (i) the larger amount of assets under the control of women in

Bangladesh, Ethiopia, and Indonesia tends to increase the share of household expenditures spent on

children’s education; (ii) different assets may have different implications for bargaining power within

the household, if cultural factors such as “status” or “prestige” are associated with specific assets; and

(iii) differences in social norms governing use of assets across communities or ethnic groups may in

some cases be more important than variations in asset holding of men and women within those groups.

(Ezemenari, Chaudhury, and Owens, 2002).

Intra-household vulnerability is linked to limited decision-making and bargaining power based on age

and/or sex. This can be exacerbated by time poverty due to unpaid productive or caring roles. A lack of

time can mean that women in particular have fewer opportunities and capacity to develop their

livelihoods, and in turn may contribute to women tolerating discriminatory and insecure employment

conditions or abusive domestic relationships.

Similarly, at a community level, women’s absence

from discussions and decisions can mean that they

may not be aware of their entitlements, or have a

say in allocation of community resources in a way

that will address women’s collective poverty (Arif,

Syukri, Holmes, et.al. 2010).

A study by SMERU showed that transfers in

themselves had little impact on how household

work and finances were managed. Transfers were

used for a range of purposes: helping other family

members, particularly older children, accumulating

assets, such as buying livestock or making

improvements to their houses, and daily needs.

SMERU’s research showed that in their sample, the

poorer the household, the larger the share of

transfers used to meet household needs not directly

related to children’s health and education (Social

Protection in Asia, 2011).

Characteristics of the household head and poverty

The table at right summarises demographic

characteristics of the household heads of poor and

non-poor households. The household head has

previously been one of the few areas where sex-

disaggregated data has been collected. While an

important step, it is less useful than it might be due

to the lack of a formal definition. Analysing the characteristics of households on the basis of who

Table: Demographic Characteristics of Household

Head, 2008

Household Characteristics Poor Not Poor

The average number of household members

- Urban 4.70 3.86

- Rural 4.61 3.74

- Urban + Rural 4.64 3.79

Percentage of women as heads of households

- Urban 14.18 14.15

- Rural 12.30 13.03

- Urban + Rural 12.91 13.52

Percentage of household heads who cannot read

or write

Urban 14.30 4.20

- Rural 19.57 11.13

- Urban + Rural 18.01 8.07

The average length of the head of household’s

schooling (years)

Urban 5.19 9.06

Rural 4.06 5.78

Urban + Rural 4.40 7.23

Sources: BPS (2008)

maintains the household, the reasons for the absent spouse (for example if for labour migration), and

the legal status of the household head are important steps in design effective anti-poverty programs

that target female headship (Cagatay, 1998).

Household vulnerability

How poor households are able to cope with and mitigate the impacts of shocks and ongoing stresses

also depends on a number of intra-household factors. These include dependency ratios, sex of the

household head, number of boys and girls in the household, individual and household ownership and

control of assets (land, labour, financial capital, livestock, time), access to labour markets, social

networks and social capital and levels of education. Where women have lower levels of education, less

access to and ownership and control of productive assets and different social networks to men, they

may also have lower economic productivity and income generation and less decision making power

(Arif, Syukri, Holmes, and Febriany, 2010).

Financial inclusion

It will be important for TNP2K policy advice to challenge the notion that financial inclusion, SMEs, and

access to credit strategies can be developed without consideration of gender, and then uniformly

applied. An issue is that much analysis, if it considers gender at all, finds few significant gender

differences. For example, World Bank (2010a) collected sex-disaggregated data on a number of

indicators and found one of the few areas were there were significant gender differences was

motivation to have a bank account. For male respondents the motivation was more likely to be to

obtain a formal loan, while for women it was in order to save for future needs. No significant differences

were found between male and female respondents in terms of having savings accounts, bank accounts,

or their saving informally. Women were found to be slightly more likely to borrow from informal

sources. A far greater proportion of women purchase education insurance, whereas men prefer life

insurance and, to a lesser degree, asset insurance. There is no difference as regards private health

insurance. However, a significantly higher proportion of women perceive illness to be a significant risk

than men (82% vs. 77%) with the same being true of loss of employment (60% vs. 53%). By contrast, a

significantly higher proportion of men perceived harvest failures to be a risk than women (32% vs. 19%).

A slightly higher proportion of men demonstrated financial literacy than women (54% vs. 50%), with

men doing better in the mathematics test in particular (83% vs. 79%). The World Bank found slightly

more women than men were represented in the group ‘truly financially excluded’ (defined as those who

have neither a savings account of any kind nor a loan).

Gender budgeting

There has been some previous attention to sub-national gender budget and policy analysis in Indonesia.

In 2008, the Ministry of Home Affairs issued regulation No.15/2008: Guidelines for the implementation

of gender mainstreaming in the region, aimed at local government officers. In 2009, seven ministries

(National Development Planning (BAPPENAS), Agriculture, Education, Health, Public Works, Women’s

Empowerment and Child Protection and Finance) were appointed as pilot institutions for gender

responsive budgeting under the Ministry of Finance Regulation No.119/PMK.02/2009. A number of

national and district gender planning and budgeting capacity building events were been held. BAPPENAS

has announced that the Indonesian government will implement a gender-responsive budget in 27

ministries and institutions and 10 pilot provinces in 2012 as part of the 2010-2014 Midterm National

Development Plan. Relevant to the work of TNP2k one ministry involved will be Cooperatives and Small

and Medium Enterprises, and the provinces are East Java, Central Java, Yogyakarta, Banten, West Java,

North Sumatra, Bangka-Belitung, Riau Islands, West Kalimantan and Lampung (Asrianti, 2011).

2.2.2.2. Overview of policy contextOverview of policy contextOverview of policy contextOverview of policy context

G o v e r n m e n t o f I n d o n e s i a

Indonesia has a relatively strong institutional framework for the promotion of gender equality. Key

commitments specifically relevant to poverty reduction and the work of PRSF and TPN2K are

summarised in the following table.

Document Provisions

1945 Constitution

of the Republic of

Indonesia

Article 27:

(1) All citizens shall be equal before the law (…)

(2) Every citizen shall have the right to work and to earn a humane livelihood.

Article 28H:

(1) Every person shall have the right to live in physical and spiritual prosperity, to have

a home and to enjoy a good and healthy environment, and shall have the right to

obtain medical care.

(2) Every person shall have the right to receive facilitation and special treatment to

have the same opportunity and benefit in order to achieve equality and fairness.

(3) Every person shall have the right to social security in order to develop oneself fully

as a dignified human being.

Article 28I:

(2) Every person shall have the right to be free from discriminative treatment based

upon any grounds whatsoever and shall have the right to protection from such

discriminative treatment.

Article 34:

(2) The state shall develop a system of social security for all of the people and shall

empower the inadequate and underprivileged in society in accordance with human

dignity.

Convention on the

Discrimination of

All Forms of

Discrimination

Against Women

(CEDAW)

Signed by

Indonesia: 29 Jul

1980

Ratified by

Indonesia with Law

7/1984: Ratification

of the Convention

on the Elimination

of All Forms of

Discrimination

Against Women

(CEDAW), 13 Sep

1984

Article 14:

(2) States Parties shall take all appropriate measures to eliminate discrimination

against women in rural areas in order to ensure, on a basis of equality of men and

women, that they participate in and benefit from rural development and, in particular,

shall ensure to such women the right:

(a) To participate in the elaboration and implementation of development planning at

all levels;

(b) To have access to adequate health care facilities, including information, counselling

and services in family planning;

(c) To benefit directly from social security programmes;

(d) To obtain all types of training and education, formal and non-formal, including that

relating to functional literacy, as well as, inter alia, the benefit of all community and

extension services, in order to increase their technical proficiency;

(e) To organize self-help groups and co-operatives in order to obtain equal access to

economic opportunities through employment or self employment;

(f) To participate in all community activities;

(g) To have access to agricultural credit and loans, marketing facilities, appropriate

technology and equal treatment in land and agrarian reform as well as in land

resettlement schemes;

(h) To enjoy adequate living conditions, particularly in relation to housing, sanitation,

electricity and water supply, transport and communications.

Document Provisions

Presidential

Instruction

No.9/2000: Gender

Mainstreaming in

National

Development

This instruction requires the mainstreaming of gender issues in state agencies and their

programs at all steps of development: i.e. planning, implementing, monitoring and

evaluating.

Ministry of Home

Affairs Regulation

No.15/2008:

Guidelines for

implementing

gender

mainstreaming in

the regions

These guidelines aim to support gender mainstreaming at the local government level,

in accordance with Presidential Instruction No. 9/2000.

Ministry of Finance

Regulation

No.119/PMK.02/20

09: Gender

budgeting

This directs the consideration of gender analysis in budget formation. Seven pilot

ministries are implementing gender responsive budgeting (Ministry of National

Development Planning (BAPPENAS), Ministry of Agriculture, Ministry of National

Education, Ministry of Health, Ministry of Public Works, State Ministry of Women’s

Empowerment and Child Protection and Ministry of Finance).

Work is also underway to develop Guidelines on the Prevention of Sexual Harassment in the Work place

and a specific Law on Gender Equality (JICA, 2011). Nevertheless, implementation of existing provisions

remains patchy. Decentralisation has also allowed for development of a number of inconsistencies

between locally developed laws and regulations and the higher level commitments. Komnas Perempuan

(2010) has identified 154 regulations issued at village, municipal, and provincial level from 1999-2009

which discriminate against women. 61% of these violate women’s freedom to protection, 33% freedom

of expression, and 6% women’s right to work. These local level regulations may have implications for

women’s ability to participate in and benefit from a number of poverty reduction activities.

G o v e r n m e n t o f A u s t r a l i a

Advancing gender equality and empowering women through more equitable involvement in

development and decision making across the whole program is identified as a high priority in the

Australia – Indonesia Partnership (AIP) Strategy (AusAID, 2008). The objective of the AIP Gender Action

Plan is: to contribute to improving gender equality in Indonesia by helping internal stakeholders to bring

about changes that improve women’s access to services, democratic process, decision-making, and to

women’s rights (AusAID, 2009).

At the time of drafting this Strategy, AusAID is also in the process of developing a new overarching

Gender Strategy, which will focus on four priorities:

i. Increasing gender equality in access to health and education services;

ii. Increasing women’s participation in decision making;

iii. Increasing women’s economic opportunities; and

iv. Decreasing violence against women.

The activities of PRSF will most directly (albeit through the channel of assisting quality policy

development) contribute to priority i, (through increases household income, health insurance and

scholarships aiming to increase access to health and education services. Also through policy channels,

PRSF has potential to also contribute to priorities ii (through engagement with PNPM) and iii (through

support to micro-finance activities). Whilst priority iii responds to an issue that is undoubtedly felt at the

community level, and in emerging work on migrant labour, meaningful engagement with this issue is

outside the scope of PRSF and TNP2K.

3.3.3.3. Glossary of terms and conceptsGlossary of terms and conceptsGlossary of terms and conceptsGlossary of terms and concepts

Gender: adalah konsep yang mengacu pada peran-peran dan tanggung jawab laki-laki dan

perempuan yang terjadi akibat dari dan dapat berubah oleh keadaan sosial dan budaya

masyarakat.

(Gender is a concept that refers to the roles and responsibilities of men and women that occur as a

result of and can be changed by social circumstances and cultural society.)

Kesetaraan Gender: adalah kesamaan kondisi bagi laki-laki dan perempuan untuk memperoleh

kesempatan dan hak-haknya sebagai manusia, agar mampu berperan dan berpartisipasi

dalam kegiatan politik, ekonomi, sosial budaya, pertahanan dan keamanan nasional, dan

kesamaan dalam menikmati hasil pembangunan tersebut.

(Gender equality is a common condition for men and women to the opportunity and rights as human

beings, to be able to play a role and participating in political activities, economic, social,

cultural, defense and national security, and equality in the enjoyment of the fruits of

development.)

Pengarusutamaan Gender: adalah strategi yang dibangun untuk mengintegrasikan gender menjadi satu

dimensi integral dari perencanaan, penyusunan, pelaksanaan, pemantauan, dan evaluasi

atas kebijakan dan program pembangunan nasional.

(Gender mainstreaming is a strategy that is built to integrate gender becomes an integral dimension of

planning, preparation, implementation, monitoring, and evaluation of policies and

programs of national development.)

Keadilan Gender: adalah suatu proses untuk menjadi adil terhadap laki-laki dan perempuan.

(Gender justice is a process to be fair to men and women.)

Analisa Gender: adalah proses yang dibangun secara sistematik untuk mengidentifikasi dan memahami

pembagian kerja/peran laki-laki dan perempuan, akses dan kontrol terhadap sumber-

sumber daya pembangunan, partisipasi dalam proses pembangunan dan manfaat yang

mereka nikmati, pola hubungan antara laki-laki dan perempuan yang timpang, yang di

dalam pelaksanaannya memperhatikan faktor-faktor lainnya seperti kelas sosial, ras, dan

suku bangsa.

(Gender analysis is a process that is built systematically to identify and understand the division of work /

role of men and women, access and control of resources development, participation in the

development process and the benefits they enjoy, the pattern of relationships between

men and women who unbalanced, which in practice pay attention to other factors such as

social class, race, and ethnicity.

Source: Government of Indonesia, Inpres 9/2010

4.4.4.4. Checklist of questions against which tChecklist of questions against which tChecklist of questions against which tChecklist of questions against which to assess gender sensitivity of o assess gender sensitivity of o assess gender sensitivity of o assess gender sensitivity of activity proposalsactivity proposalsactivity proposalsactivity proposals

Key question Yes/No Comments/recommendations

1. Does the activity reflect any gender analysis (at a

minimum what is included in the discussion of each of

the PRSF/TNP2K priorities in this strategy)?

Yes �

No �

2. Does the activity include gender specific objectives

and indicators?

Yes �

No �

3. Will data be disaggregated by sex? Yes �

No �

4. Will data be disaggregated by age? Yes �

No �

5. Will data collection include attention to disability? Yes �

No �

6. Does the activity consider gender constraints to

program delivery – for example women’s relative lack

of awareness of the activity, mobility and education

barriers curtailing participation?

Yes �

No �

7. Is there an effort to ensure staff on the activity have

an awareness of gender issues?

Yes �

No �

8. If the activity involves field research, does the design

specify that information collection and recording

should be gender disaggregated (e.g. involve men and

women in separate groups, record interview

respondents as being male or female)?

Yes �

No �

9. If it is a training activity, are there requirements for

female participation of at least 30%, and provisions

made to make this possible (such as access to child

care for residential training, identification of lower

level staff who may benefit from the training)?

Yes �

No �

Assessment summary (tick one): (refer to section 6.2 of PRSF Operations Manual for guidance on classification).

This activity: (1) Is gender focused �

(2) Has an explicit gender mainstreaming strategy �

(3) Considers gender, but with no additional activity or cost implications �

(4) Is gender blind �

5.5.5.5. Key Key Key Key questions questions questions questions for monitoring policyfor monitoring policyfor monitoring policyfor monitoring policy

Key question Yes/No Comments/recommendations

Does the policy advice reflect any gender analysis? Yes � No �

Does the policy advice include any

recommendations which specifically link to

promoting gender equality?

Yes � No �

Has the policy advice been adopted by relevant

agencies

Yes � No �

6.6.6.6. Gender and poverty vulnerability analysisGender and poverty vulnerability analysisGender and poverty vulnerability analysisGender and poverty vulnerability analysis

There are a number of approaches to and tools for gender and poverty analysis, and decisions will need

to be made, based on the purpose, what the focus should be. The following are a list of possible

questions which may be considered. The most important thing is however, to make sure that both men

and women are involved in the analysis. If conducting the analysis also at above the community level,

proactively involve women’s organisations, as well as mainstream and government agencies.

Possible focus questions:

How do men and women define poverty and its causes?

What services are available and are they accessible by men and women, boys and girls?

How are decisions made within the household regarding expenditure on health and education? Are

decisions regarding males and females accessing health and education services?

Do women participate in community decision making? Through what means?

Are there particular religious, cultural, or legal constraints to men and women’s participation in

development activities or that might affect program delivery mechanisms?

What are the gender and employment issues:

� Are wages for the same work equal for men and women?

� Are men and women on different types of contracts (e.g. temporary vs. permanent)?

� Do men or women dominate in particular sectors? Are these more or less regulated?

� Is there evidence of discrimination or harassment, or are there protective measures in place?

� Are there provisions for maternity leave and child care, and are benefits (such as family health

insurance) provided to male and female employees or only to the ‘head of the household’ which may

only be considered a male

Is access to markets equal, or is women’s access limited, for example by mobility and security

constraints?

What are the environmental risks and the implications of these for livelihood opportunities, coping

strategies and household roles and responsibilities of men, women, boys and girls?

What are the different lifecycle stresses and financial demands such as expenses related to marriages,

births, or funerals?

What are the time use patterns between men, women, girls and boys, and how these are distributed

between paid and unpaid work within and outside the household, as well as leisure time?

What resources and assets are there in the household? Who has access to these (M/F)? Who has

control (M/F)? Whose name are they registered in (M/F)?

What complementary programs are there which address underlying gender and poverty issues – for

example, legal empowerment, skills development, anti-violence services;

Source: Adapted from AusAID (n.d.), Vibrant Communities (n.d.), Wilde (2001), Oxfam (2006), and

Holmes and Jones (2010)

7.7.7.7. Useful Useful Useful Useful documents, tools, and guidelinesdocuments, tools, and guidelinesdocuments, tools, and guidelinesdocuments, tools, and guidelines

See also the list of references. This list provides a summary of the some of the more relevant resources.

G e n d e r i n I n d o n e s i a ( o v e r v i e w a n a l y s i s )

Asian Development Bank (2006a) Indonesia: Country Gender Assessment. Manila: ADB.

Japan International Cooperation Agency (2011) Indonesia Country Gender Profile January 2011,

G e n d e r a n d s o c i a l p r o t e c t i o n

Holmes, R. and Jones, N. (2010) How to design and implement gender-sensitive social protection

programmes. A toolkit. ODI, London UK

Government of Indonesia (GOI), World Bank, AusAID, ADB, DfID (2008) Gender in Community Driven

Development Project: Implications for PNPM Strategy Working Paper on the Findings of Joint Donor and

Government Mission. Jakarta: PNPM.

Ezemenari, K, Chaudhury, N and Owens, J (2002) Gender and Risk in the Design of Social Protection

Interventions. Social Protection Discussion Paper 0231. Washington, DC: World Bank.

G e n d e r a n d m i c r o f i n a n c e

Mayoux L and Harti M (2009) Gender and rural microfinance: Reaching and empowering women Guide

for practitioners, International Fund for Agricultural Development (IFAD).

Sustainable Micro-finance for Women's Empowerment (website – includes links to a number of

resources) http://www.genfinance.info/

G e n d e r a n d o r g a n i s a t i o n a l c h a n g e

Hunt J (2000) Institutionalising gender equality commitments in development organisations & programs.

The Winston Churchill Memorial Trust of Australia. Available at

http://www.churchilltrust.com.au/sitemedia/fellows/HuntJuliet2000.pdf, accessed 23 July 2011.

G e n d e r a n d m o n i t o r i n g a n d e v a l u a t i o n

Canadian International Development Agency (CIDA) (2005) CIDA’S framework for assessing gender

equality results. Quebec: CIDA

G e n d e r b u d g e t i n g a n d p l a n n i n g

UNIFEM (2006) Gender Responsive Budgeting in Practice: a Training Manual, New York: UNFPA,

UNIFEM.

Available at

http://www.unfpa.org/webdav/site/global/shared/documents/publications/2006/gender_manual_eng.

pdf

A t t a c h m e n t sA t t a c h m e n t sA t t a c h m e n t sA t t a c h m e n t s

BibliographyBibliographyBibliographyBibliography

Abu-Ghaida D and Klasen S (2002). The costs of missing the millennium development goals on gender

equity, Discussion Paper in Economics, 2003-01, University of Munich, available at

<http://epub.ub.uni-muenchen.de>.

Arif S, Holmes R, Syukri M, and Febriany V (2010) Gender and social protection in Indonesia: Raskin food

subsidy programme. ODI Project Briefing 49, London, UK.

Asrianti T. (2011) More agencies will apply gender-based budgeting in 2012: Agency. Jakarta Post (22

October)

Asia Foundation (n.d.) Gender and Women’s Participation in Indonesia. Jakarta: Asia Foundation.

Asia Foundation, ADB, CIDA, NDI and World Bank (2006) Indonesia: Country Gender Assessment.

Manila: ADB.

Asian Development Bank (2006) From Poverty to Prosperity: A Country Poverty Analysis for Indonesia.

Manila: ADB.

AusAID (n.d.) Guide to Gender and Development. Canberra: AusAID.

AusAID (2008) Australia Indonesia Partnership Country Strategy 2008–13. Canberra: AusAID

AusAID (2009) Gender Action Plan for Australia Indonesia Partnership Country Strategy 2008 – 2013.

Jakarta: AusAID.

AusAID (2010) Draft - Scope Of Services Poverty Reduction Support Facility – Design Document

AusAID (2011) Schedule 1 - Scope of Services, Poverty Reduction Support Facility (PRSF)

AusAID and TIFA Foundation (2011) Poverty Reduction through Migration: A Pilot Initiative, Concept

Note

Banerjee A, Du.o E, Glennerster R, and Kinnan C (2009) The miracle of micro-finance? Evidence from a

randomized evaluation. Abdul Latif Jameel Poverty Action Lab, MIT and the Center for Microfinance,

IFMR.

Beegle K, Frankenberg E, and Thomas D. (2001). Bargaining power within couples and use of prenatal

and delivery care in Indonesia. Studies in Family Planning; 32(2): 130–146.

Cagatay N (1998) Gender and Poverty. UNDP Working Paper Series; 5: 1-22

Devereux S and Sabates-Wheeler R (2004) Transformative Social Protection. Working Paper 232.

Brighton: IDS.

Ezemenari, K, Chaudhury, N and Owens, J (2002) Gender and Risk in the Design of Social Protection

Interventions. Social Protection Discussion Paper 0231. Washington, DC: World Bank.

Feridhanusetyawan T, Aswicahyono H, and Perdana A (2001) The Male-Female Wage Differentials in

Indonesia, Centre for Strategic and International Studies Working Paper, 059. Jakarta: CSIS.

Government of Indonesia (2000) Instruksi Presiden Republik Indonesia (Inpres) Nomor 9 Tahun 2000

(9/2000) tentang pengarusutamaan gender dalam pembangunan nasional (Presidential Instruction

number 9, Year 2000 (9/2000) concerning gender mainstreaming in national development).

Government of Indonesia (2010) Instruksi Presiden Republik Indonesia Nomor 3 Tahun 2010 tentang

program pembangunan yang berkeadilan (Presidential Instruction number 3, Year 2010 (3/2010)

concerning programs for just development.

Government of Indonesia (GOI), World Bank, AusAID, ADB, DfID (2008) Gender in Community Driven

Development Project: Implications for PNPM Strategy Working Paper on the Findings of Joint Donor

and Government Mission. Jakarta: PNPM.

Hofbauer Balmori H. (2003) Gender and Budgets Overview Report. Brighton: BRIDGE.

Holmes R, and Jones N (2009) Putting the social back into social protection: a framework for

understanding the linkages between economic and social risks for poverty reduction. ODI Background

Note, ODI London

Holmes R and Jones N (2010) How to design and implement gender-sensitive social protection

programmes. A toolkit. London: ODI.

Hunt J (2000) Institutionalising gender equality commitments in development organisations and

programs. The Winston Churchill Memorial Trust of Australia. Available at

http://www.churchilltrust.com.au/sitemedia/fellows/HuntJuliet2000.pdf, accessed 23 July 2011.

Hutagalung SA, Arif S. and Isdijoso W (2009) Problems and Challenges for the Indonesian Conditional

Cash Transfer Program – Program Keluarga Harapan (PKH). Working Paper 4. Jakarta: Social

Protection in Asia

Japan International Cooperation Agency (2011) Indonesia Country Gender Profile January 2011. Jakarta:

JICA.

Johnson S (n.d.) Gender and Microfinance: Guidelines for Good Practice. Available at

http://www.gdrc.org/icm/wind/gendersjonson.html, accessed 9 August 2011.

Komnas Perempuan (2010) Atas Nama Otonomi Daerah: Pelembagaan Diskriminasi dalam Tatanan

Negara-Bangsa Indonesia: Laporan Pemantauan Kondisi Pemenuhan Hak-Hak Konstitusional

Perempuan di 16 Kabupaten/Kota pada 7 Provinsi (In the name of area autonomy: Institutionalisation

of discrimination in Indonesian national systems: Monitoring report on the fulfilment of women’s

constitutional rights in 16 Regencies/Cities in 7 Provinces). Jakarta: Komnas Perempuan

Mayoux L (2002) Women’s empowerment or feminisation of debt? London: One World Action.

Mayoux L and Harti M (2009) Gender and rural microfinance: Reaching and empowering women Guide

for practitioners, International Fund for Agricultural Development (IFAD).

Ministry of Women’s Empowerment and Child Protection (2011) Micro Finance and Gender Equity in

Indonesia. Presentation to APEC Workshop on Microfinance Best Practices Ha Noi, Viet Nam (7-8 April).

Molyneux M (2007) Change and Continuity in Social Protection in Latin America: Mothers at the Service

of the State? UNRISD Working Paper. Geneva: UNRISD.

Olken B, Onishi J, Wong S (2011). Indonesia’s PNPM Generasi Program: Final Impact Evaluation Report.

Jakarta: World Bank.

OneWoman (n.d.) Women’s human rights situation in Indonesia. Available at

www.onlinewomeninpolitics.org/womensit/indon.pdf, accessed 1 August 2011.

Oxfam (2006) Rough Guide to Gender Analysis. Oxford: Oxfam.

Pirmana, V (2006) Earning Differentials Between Male-Female in Indonesia: Evidence from Sakernas

Data. Working Papers in Economics and Development Studies. Bandung: Center for Economic and

Development Studies.

PEKKA (2011) Proposal To AusAID Pekka Community Monitoring of Public Poverty Alleviation Program,

2011-2013.

Schech S and Mustafa M (2010) The Politics of Gender Mainstreaming Poverty Reduction: An Indonesian

Case Study, Social Politics 17(1): 111-135.

SMERU (2005). Gender and Poverty Newsletter. 14: Apr-Jun.

SMERU (2009) The Roles of Women in the New Indonesia’s Conditional Cash Transfer Program:

Preliminary Findings from Cirebon. Presented at SPA Annual Research Workshop Ha Noi, June 4th2009.

SMERU Research Institute www.smeru.or.id

Social Protection in Asia (2011) Are conditions pro-women? A case study of a conditional cash transfer in

Indonesia. Research Report Summary 03.

Sumner C (2010) Access to Justice: Empowering female heads of household in Indonesia. Jakarta: PEKKA

and AusAID.

TNP2K (2011) Panduan Penanggulangan Kemiskinan Buku Pegangan Resmi TKPK Daerah Poverty

Reduction Guide, Official Handbook). Jakarta: Government of Indonesia.

United Nations Development Programme (UNDP) (2010) Human Development Report, 2010 The Real

Wealth of Nations: Pathways to Human Development. New York: UNDP

UNESCAP, 2007. Economic and Social Survey of Asia and the Pacific 2007: Surging Ahead in Uncertain

Times. New York: United Nations.

Vibrant Communities (n.d.) Gender And Poverty Project: Gender Analysis Tools. Canada: Status of

Women.

Wilde V (2001) Socio-economic and Gender Analysis (SEAGA) Programme, Field Level Handbook. Rome:

Food and Agriculture Organisation (FAO.

World Bank (2010) Enhancing Access to Finance for Indonesian Overseas Migrant Workers: Evidence

from a Survey of Three Provinces. Jakarta: World Bank.

World Bank (2010a) Improving Access to Financial Services in Indonesia. Jakarta: World Bank.

version 2 march 2012 - department of foreign affairs and trade · version 2 march 2012 ... bappenas...

Documents