UNIFEM’s work IN s Upport oF GEN dEr rEspoNsIv B GEtING · UNIFEM’s work IN s Upport oF GEN dEr...

�UNIFEM’s work IN sUpport oF GENdEr rEspoNsIvE BUdGEtING

Table of conTenTs

overview ..............................................................................................2

national level Gender Response budgeting........................................3.

local level Gender Response budgeting ............................................4

Global advocacy ...................................................................................5

case studies .......................................................................................7

. Latin.America.................................................................................... .8

. Morocco.......................................................................................... 10

. Philippines...................................................................................... 12

. India............................................................................................... 14

. Mozambique.................................................................................... 15

� UNIFEM’s work IN sUpport oF GENdEr rEspoNsIvE BUdGEtING

oveRviewFor.the.past.8.years,.UNIFEM.has.contributed.to.building.interest,.capacity.and. commitment. to. incorporate. Gender. into. budgetary. processes. by.supporting.initiatives.in.over.30.countries..UNIFEM’s.global.programme.‘Gender.Strengthening.Economic.Governance:.Applied.Gender.Analysis.to. Government. Budgets’,.launched. in. 2001,. provided. technical. and.financial. support. to.gender.budgets. initiatives. in.Latin.America,.Africa,.and.Asia-Pacific..

The. first. four. years. of. the. programme. focused. on. making. gender.budgeting. tools. and. methodologies. available;. increasing. stakeholders’.capacity.to.advocate.for.and.carry.out.gender.budget.analysis;.improving.budgeting. and. planning. processes. to. enhance. gender. equality;. and.increasing. resource. allocations. to. support. implementation. of. gender.equality.plans.and.policies..

�UNIFEM’s work IN sUpport oF GENdEr rEspoNsIvE BUdGEtING

naTional level GendeR Responsive budGeTinG

The.second.phase.of.the.program,.launched.in.2005,.aimed.to.ensure.that.national.budgeting.processes.adequately. reflect. in.poor.women’s.priorities.. Initiatives. are. currently. underway. in. Morocco,. Senegal,.Mozambique.and.Ecuador.. In.these.four.countries,. the.program.seeks.to.transform.budget.execution.processes.and.policies.so.that.they.are.more.responsive.to.principles.of.gender.equality..The.program.also.aims.to. make. concrete. changes. for. resource. allocations. towards. women’s.priorities..The.identified.outcomes.of.the.program.include:.

. •..National.budget.processes.and.policies. in.four.countries.reflect.gender.equality.principles.

. •..Priorities.of.poor.and.excluded.women.reflected.in.budget.allocations.in.national.programmes.

The. strategies. adopted. by. the. program. focus. on. positioning. GRB.initiatives. within. the. framework. of. mainstream. fiscal. policy. as. well. as.national.planning,.programming,.budgeting.and.monitoring.processes..In.Mozambique.and.Senegal,.the.program.specifically.engages.in.Poverty.Reduction. Strategy. Paper. (PRSP). formulation. and. review. processes...The. program. builds. capacity. of. key. national. actors. to. engage. in. the.budget.process.in.at.least.two.priority.sectors.to.improve.the.effectiveness.of.responses.to.women’s.priorities..In.order.to.ensure.that.priorities.of.poor.women.are.reflected.in.budget.allocations,.the.programme.seeks.to. design. budget. monitoring. systems. and. support. the. participation.of. civil. society. groups. dedicated. to. social. and. gender. justice. in..budget.processes.

� UNIFEM’s work IN sUpport oF GENdEr rEspoNsIvE BUdGEtING

local level GendeR Responsive budGeTinG

Trends.towards.decentralization.have.prompted.a.need.to.focus.on.local.level.planning.and.budgeting..It.is.also.at.local.level.where.services.and.resources.are.delivered.and.where.women’s.lives.are.shaped.by.exclusion.and.poverty.and.where.resources.to.fulfill.women’s.basic.rights.are.often.inadequate..Local.government.is.also.able.to.assess.local.needs.more.accurately. and. can. respond. by. ensuring. that. resource. collection. and.allocation.is.carried.out.in.ways.which.redress.biases.that.contribute.to.poverty.and.gender.inequality..Local.governments.are.therefore.emerging.as.key.actors.in.light.of.their.role.vis-a-vis.central.government.as.well.as.in.their.accountability.towards.local.constituencies..

UNIFEM’s.Local.Level.Gender.Responsive.Budgets.program.(LLGRB),.funded. by. the. European. Commission. (2003-2006),. provided. support.to. local. initiatives. in. India,.Morocco,.Uganda.and. the.Philippines..The.project.focused.on.strengthening.women’s.representation.in.local.bodies.and. supporting. their. effective. participation. in. budget. processes.. The.project.also.built.awareness.of.gender.budget.analysis,.and.advocated.for.adequate.allocations.for.local.women’s.priorities..

Other. leading. experiences. of. local. level. gender. responsive. budgeting.have.been.supported.in.Latin.America.Region–namely.in.Peru,.Ecuador,.Bolivia,.Mexico,.Argentina.and.Brazil.

�UNIFEM’s work IN sUpport oF GENdEr rEspoNsIvE BUdGEtING

Global advocacy

UNIFEM.has.also.engaged.in.global.and.regional.advocacy.to.support.the. application. of. GRB.. In. 2001,. UNIFEM. organized. an. international.conference.on.GRB.that.endorsed.the.vision.of. implementing.gender-responsive.budget. initiatives. in. all. countries.by.2015..The.conference.was. organized. in. collaboration. with. the. Government. of. Belgium. as.President. of. the. European. Union,. the. Organization. for. Economic..Co-operation. and. Development. (OECD). and. the. Nordic. Council..Since. then,. the. Commonwealth. Finance. Ministers. in. 2002. and. 2005.committed.to.integrating.gender.into.their.respective.budget.formulation.processes. and. to. establishing. institutional. mechanisms. within. their.countries.to.monitor.progress.on.implementing.GRB..Similarly,.the.2004..Inter-Governmental. Authority. on. Development. (IGAD). meeting. of.senior.East.African.government.officials.called. for.policies. that.ensure..that. gender. aspects. are. considered. when. making. budgets. and..allocating.resources..

The.aid.effectiveness.agenda.creates.new.and.critical.opportunities.for.the.application.of.GRB.. In.2005,. the.EC/UNIFEM.conference.“Owning.Development:. Promoting. Gender. Equality. in. New. Aid. Modalities. and.Partnerships”. was. amongst. the. first. multi-stakeholder. gatherings. to.review.and.debate. the. issue.of.gender.equality. in. the.context.of.new.aid.modalities..GRB.was.considered.a.potentially.powerful.monitoring.tool.for.tracking.the.impacts.of.the.aid.effectiveness.agenda.on.gender.equality..Since.then,.a.number.of.convenings.have.taken.place.on.this.issue,.including.the.joint.meeting.of.the.OECD-DAC.Gender.Network.and.the.UN.Inter-agency.Network.on.Gender.Equality.(Nairobi,.2006).and.the.OECD.workshop.on.“Development.Effectiveness. In.Practice:.Applying.The. Paris. Declaration. To. Advancing. Gender. Equality,. Environmental.Sustainability.And.Human.Rights”.(Dublin,.April.2007)..

UNIFEM’s.programming.on.GRB.has.received.financial.support.from.the.governments.of.Austria,.Belgium,.Canada,. the.European.Commission,.Italy,.and.the.UK,.and.partner.UN.organizations..

�UNIFEM’s work IN sUpport oF GENdEr rEspoNsIvE BUdGEtING

case sTudies compiled by debbie budlender based on presentation by

implementing partners during unifeM/unfpa GRb workshops in cape Town and bangkok, april and June �006

� UNIFEM’s work IN sUpport oF GENdEr rEspoNsIvE BUdGEtING

laTin aMeRica

Latin.America’s.GRB.initiatives.are.different.from.those.in.other.regions.and.countries,.partly.because.GRB.work.has.taken.place.at.local.level..The. emphasis. on. women’s. participation. in. decision-making-building.on. the. ‘mainstream’. participatory. budget. initiatives. that. already. exist.in. the. region–also. distinguish. Latin. American. initiatives. from. those. in..other.regions..

UNIFEM.has.taken.a.regional.approach.in.Latin.America,.so.that.different.countries. in. the. region. can. learn. from. each. other.. At. the. local. level.UNIFEM.has.supported.work.in.five.countries..Its.partners.have.included.local. governments. (both. officials. and. elected. representatives),. NGOs.and.women’s.organizations,.and.national.and.international.organizations,.such.as. the.United.Nations.Population.Fund. (UNFPA),.United.Nations.Development.Program.(UNDP).and.United.Nations.Volunteers.(UNV).

In Ecuador,. the. municipality. of. Cuenca. worked. with. women’s.organizations. to. draw. up. an. Equal. Opportunities. Plan,. which. is. now.being. implemented. by. the. Department. of. Social. and. Gender. Equity..In.parallel,. the.municipality. introduced.a.participatory.budget.process.in. rural. areas,. which. provided. opportunities. for. women. to. organize.themselves.and.participate.

In Bolivia,.the.1994.Law.of.Popular.Participation.established.participatory.development.of. local.development.plans.and.vigilance.committees.as.two.of.the.main.citizenship.participation.mechanisms.at.local.level..The.Instituto. de. Formación. Femenina. Integral. (IFFI). of. Cochabamba. has.mobilized.and.trained.members.of. local.women’s.organizations.to.use.these.opportunities.to.bring.a.gender.perspective.into.local.public.policies..As.a.result.of.IFFI’s.advocacy.campaign,.an.article.was.introduced.in.the.municipal.budgetary.guidelines,.which.obliges.municipalities.to.allocate.budgetary. resources. to. programs. that. promote. gender. equality. and.provide.services.for.women’s.victims.of.violence.

�UNIFEM’s work IN sUpport oF GENdEr rEspoNsIvE BUdGEtING

In Brazil,. the. Municipality. of. Recife. created. the. post. of. women’s.coordinator. in. 2001,. to. assist. with. addressing. women’s. demands. for.gender. mainstreaming. and. to. promote. the. participation. of. women. in.local.politics..Women.who.attend.the.public.assemblies.have.called.for.budgets.to.address.issues.of.violence.against.women,.women’s.poverty,.participation,.racial.inequality,.and.safe.abortion.care..

In Argentina,.the.women’s.coordinator.of.the.Municipality.of.Rosario.has.worked.to.create.mechanisms.that.promote.women’s.participation.in.the.participatory.budget.process..

In Peru.in.the.Municipality.of.Villa.El.Salvador,.a.federation.of.grassroots.women’s. organizations. provides. volunteer. services. to. the. community.through. programmes. such. as. the. “Glass. of. Milk”. and. the. “Popular.Dinning-Rooms”.. The. participatory. budget. process,. launched. in.2000,.has.provided.opportunities. for.women.to.demand.equal.access.to. public. services. and. better. conditions. in. which. to. carry. out. their..volunteer.work.

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MoRocco

Morocco.is.one.of.four.countries.in.which.UNIFEM’s.global.GRB.program.is. supporting. GRB. work. over. the. period. 2005-2008.. Morocco. was.chosen.as.an.interesting.site.for.the.work.because.of.the.renewed.interest.demonstrated. by. the. Moroccan. government. in. advancing. women’s.rights. and. also. because. of. the. good. opportunities. for. partnerships.between.government.and.civil.society..Morocco.is.undergoing.a.series.of. government. reforms,. including. devolution. to. local. government,..results-oriented. management. and. budgeting,. and. reforms. of. sectoral.funding.systems.in.health,.education,.housing.and.justice..These.reforms.provide.entry.points.for.GRB.

GRB. work. started. in. Morocco. in. 2002. with. a. study. assessing. the.possibilities. for. a. GRB. initiative.. The. assessment. report. stressed. the.importance. of. working. with. and. building. on. other. reform. processes,.rather. than.approaching.GRB.as.a. separate. initiative.. The. report. also.pointed.out.ways.in.which.GRB.work.could.complement.and.strengthen.other.reforms..Similarly,.it.pointed.out.how.GRB.could.contribute.to.key.government.objectives.such.as.poverty.alleviation..This.study.thus.also.served.as.an.advocacy.tool.in.convincing.the.Government.of.Morocco.of.the.benefits.of.adopting.a.GRB.approach.

The. GRB. initiative. has. engaged. in. capacity. building. and. training.activities.on.gender.analysis.and.GRB.for.senior.planners.and.budget.professionals. from. the. Ministry. of. Finance. and. line. ministries.. It. has.published.and.disseminated.a.guide.on.GRB.and.performance.budgeting,.and. a. handbook. on. GRB. for. parliamentarians. and. non-governmental.organizations.(NGOs)..The.initiative.has.also.supported.the.development.of. gender-sensitive. indicators. as. part. of. the. performance-oriented.budget.reform..In.2005,.workshops.were.conducted.with.the.Ministries.of.Health,.Education,.Agriculture.and.Rural.Development.and.Finance.to.encourage. the.development.and.use.of.gender-disaggregated.data.throughout.the.policy.and.budget.cycles..Special.emphasis.was.given.to.monitoring.and.evaluation.

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The. initiative. is. led. by. the. Ministry. of. Finance,. involving. the. Budget.Directorate,.the.Directorate.for.Studies.and.Financial.Forecasts,.and.the.Directorate.for.General.and.Administrative.Affairs.

The.production.of.the.first.Gender.Report,.led.by.the.Ministry.of.Finance,.was.one.of.the.highlights.of.2005..The.Gender.Report.was.presented.as.an.annex.to.the.annual.Economic.and.Financial.Report.for.the.year.2006,.which.accompanied.the.presentation.of.the.Bill.of.Finance.(the.Budget.Law)..The.Ministry.aims.to.institutionalize.the.Gender.Report.as.part.of.the. budget. documents. by. involving. a. greater. number. of. Ministries. in.its.production,.and.ultimately.covering.all.sectors..In.the.first.years.the.report. focused.on.sectors.most. important. in.achieving. the.Millennium.Development. Goals.. In. 2007,. nineteen. ministries. and. government.departments.were.involved.in.producing.the.2008.gender.report:.Finance.and.Privatisation,.Health,.Education,.Agriculture,.Justice,.Employment,.Family. Affairs,. Housing,. Energy,. Water,. Infrastructure. and. Transport,.Habitat.and.Urbanism,.High.Commissioner.for.Planning,.Foreign.Affairs,.Modernization.of. the.Public.Sectors,.Vocational.Training,.Literacy.and.Non.Formal.Education,.Handicraft.and.Social.Economy,.Secretariat.of.State.in.charge.of.Youth,.and.the.Ministry.of.the.Interior..

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philippines

Over. the. period. 2004-2005,. UNIFEM. supported. the. Women’s. Action.Network. for. Development. (WAND),. a. well-known. women’s. coalition,.to. implement. local. level. GRB. projects. in. two. local. government. units..(or. LGUs,. the. term. used. for. local. government. in. Philippines).. GRB.work.has.a. longer.history. in.Philippines. than. in.most.other. countries:.a.law.was.passed.in.1995.stating.that.5%.of.the.budget.of.all.national-level. agencies. must. be. allocated. for. gender. and. development.. This.GAD.budget.policy.was. later. extended. to.other.parts.of. government,..including.LGUs.

After.some.years,.both.the.National.Commission.on.the.Role.of.Filipino.Women.(NCFRW)–the.Philippines’.national.gender.machinery-and.gender.activists.recognized.a.danger.that.the.GAD.5%.approach.to.GRB.would.result. in. gender. being. regarded. as. a. separate,. marginal. issue,. rather.than.being.incorporated.into.mainstream.budgeting..NCFRW.therefore.began. asking. gender-related. questions. about. the. remaining. 95%..of.the.budget.

WAND. hoped. that. the. GRB. project. would. increase. civil. society.participation. in.budget-making,.as.well.as.the.ability.of.civil.society.to.analyse.budgets.and.lobby.around.budget.preparation,.implementation.and.monitoring..It.also.hoped.to.assist.the.LGUs.in.developing.indicators.for. measuring. the. gender. performance. of. sectoral. programmes. and.budgets..The.partners. took.advantage.of. the.Government’s.shift. from.input-based.to.results-oriented.performance.budgeting.as.the.latter.type.of.budgeting.makes. it.easier. to.measure.performance.and.to.demand.gender-related.indicators..

As.the.project.was.a.pilot,.WAND.and.local.partners.focused.on.the.health.sector.in.Sorsogon.City–an.LGU.with.high.maternal.mortality.rates,.and.on.the.agriculture.sector.in.Hilongos–a.rural.LGU.affected.by.quarrying.activities.of.agricultural.land..Project.activities.included.gender.analysis.of.sectoral.programmes,.budgets.and.expenditure,.capacity.building.of.stakeholders,.and.meetings.between.officials.and.civil.society.to.advocate.for.applying.the.lessons..The.capacity.building.included.training.events,.

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seminars. and. workshops.. Topics. covered. gender. sensitivity,. strategic.assessment.and.planning,.gender-responsive.budgeting,.monitoring.and.evaluation,.resource.mobilization,.public.participation,.and.advocacy.

The. concrete. outputs. of. the. project. include. gender. profiles. of. the.health. and. agriculture. sectors. of. the. two. sites. and. sectoral. GAD.plans. to. be. incorporated. into. the. existing. multi-year. plans. of. local.government..In.addition,.the.2006.budgets.of.the.two.LGUs.were.more..gender-responsive.and. results-based. than.previously.. For. example,. in.Sorsogon. City. the. health. budget. increased. from. 25. million. pesos. in.2005.to.37.million.pesos.in.2006..This.increase.allowed.for.a.much.larger.allocation.for.reproductive.health.services,.family.planning,.as.well.as.for.prevention.and.control.programs.for.sexually.transmitted.infections.and.HIV/AIDS..Less.concrete.outputs.included.increased.gender.awareness..and.GRB-related.skills.among.local.actors,.increase.commitment.by.local.leaders.to.GAD,.and.enhanced.service.delivery..The.LGUs’.operations.were.also.more.transparent.both.because.local.people.knew.more.about.how.government.worked.and.what.questions.to.ask,.and.because.the.LGUs.were.reporting.to.a.greater.extent.and.better.than.before.

UNIFEM’s work IN sUpport oF GENdEr rEspoNsIvE BUdGEtING

india

GRb woRk in india.has.taken.many.forms..The.diversity.of.the.work.is.partly.explained.by. the.size.of.and.diversity.within. the.country.. It. is.also.explained.by.the.diversity.of.actors.who.have.taken.up.GRB,.and.by.the.fact.that.GRB.work.has.been.carried.out.at.central.(federal),.state.(provincial).and.local.level.

GRB. led.by. the.Government.of. India.began.when. the.Ninth.Five.Year.Plan.of.1997-2002.introduced.the.“Women.Component.Plan”..This.plan.required.all.central.and.state.plan.(i.e..non-recurrent).budgets.to.allocate.30%.of.their.funds.for.women..Analysis.of.subsequent.allocations.found.that,.in.fact,.42.9%.of.funds.in.15.departments.had.been.allocated.for.women..However,.this.42.9%.was.still.much.less.than.the.proportion.of.women.and.girls.in.the.population.

The.Tenth.Five-Year.Plan.of.2002-2007.again.reinforced.that.central.and.state. budgets. must. have. a. Women. Component. Plan.. In. addition,. the.Tenth. Plan. also. introduced. a. broader. notion. of. GRB. and. “committed.to. gender. budgeting. to. establish. its. gender. differential. impacts. and.to. translate. gender. commitments. into. budgetary. commitments”..Government. and. UNIFEM. commissioned. the. National. Institute.of. Public. Finance. and. Policy. (NIPFP),. an. economic. think-tank.respected. and. used. by. government,. to. analyse. the. Union. (central).Budgets. of. 2001-02,. 2002-03,. 2003-04,. 2004-05. and. 2006-07. from.a. gender. perspective.. The. National. Institute. of. Public. Cooperation.and. Child. Development. (NIPCCD). was. meanwhile. commissioned.in. 2002. by. the. Department. of. Women. and. Child. Development,..– India’s.national.gender.machinery–to.analyse.the.budgets.of.22.states.from.a.gender.perspective.

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UNIFEM’s work IN sUpport oF GENdEr rEspoNsIvE BUdGEtING

in �00� The finance MinisTRy. established. an. expert. group,.which. it. tasked. with. to. make. recommendations. on. GRB.. The. expert.group. recommended. that. an. inter-departmental. committee. on. GRB.be.established,.that.gender.budget.cells.be.set.up. in.all.departments,.that.18.of.the.total.of.50.ministries.immediately.start.undertaking.GRB,.and. that. a. new. expenditure. category. be. established. in. the. budget..The. recommendation. about. a. new. expenditure. category. was. made.because.India.was.using.line-item.budgeting,.and.as.a.result.identifying.gender-related.expenditure.in.the.budget.was.more.difficult.than.when.Performance-budgeting. is.used..The.expert.group.also. recommended.that.departments.monitor.outputs.and.outcomes,.and.include.an.analysis.of.the.beneficiaries.reached.by.expenditure.in.their.annual.reports.

Also.in.2004,.the.Department.of.Women.and.Child.Development.started.building.capacity.of.staff.in.central.ministries.and.state.governments.on.GRB..Several.of. the.states–Karnataka,.West.Bengal,.Kerala,.Himachal.Pradesh,.Delhi.and.Rajasthan.were.especially.enthusiastic.and.undertook.extra.activities.beyond.those.required.by.the.Women’s.Component.Plan.

For. the. 2005-06. Union. Budget,. the. Finance. Ministry. introduced. a.gender.budget.statement.that.identified.“demands.for.grants”.(proposed.allocations).which.would.substantially.benefit.women.in.10.departments..In. the. 2006-2007. Union. Budget,. the. gender. budget. statement. was.expanded. to. 24. demands. for. grants. of. 18. ministries.. Each. ministry.identified. two. categories. of. allocations.. The. first. category. concerned.allocations. that. targeted. 100%. women. or. girls.. The. second. category.concerned. allocations. where. at. least. 30%. of. the. allocations. were.targeted.at.women.or.girls..The.number.of.gender.budget.cells.was.also.expanded.from.the.previous.18.to.32.ministries.and.departments..As.of.2008,.51.ministries.have.set.up.gender.budget.cells.and.twenty-seven.ministries.present.annual.reports.and.performance.budgets.highlighting.budgetary.allocations.for.women.

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UNIFEM’s work IN sUpport oF GENdEr rEspoNsIvE BUdGEtING

MoZaMbiQue

in MoZaMbiQue. the. GRB. initiative. started. out. as. a. partnership.between.Forum.Mulher. (a.national.coalition.of.women’s.organisations).and. government,. with. support. from. UNIFEM.. The. Tanzania. Gender.Networking.Programme,. the.NGO. that.has. led.GRB.work. in.Tanzania.has.provided.technical.support.to.the.program.

Ensuring.that.gender.issues.are.addressed.in.key.policy.documents.has.been. an. important. focus. of. the. project.. These. key. policy. documents.are.the.Government.Five.Year.Plan.(2005-2009),.the.Poverty.Reduction.Strategy.Paper.(called.PARPA.in.Mozambique).and.the.annual.Economic.and.Social.Plan,.which. lays.the.basis. for.sector.policies.and.budgets..A. special. interest. group. has. been. formed,. bringing. together. donors,.government.and.civil.society,. to.work.on.mainstreaming.gender. in.the.PARPA.and.national.budget.

The. focus.on.key.policy.papers.also.provided.an.opportunity. to. raise.the. issue. of. public. participation–and,. in. particular,. participation. of.women–in. the.development.of.government.policies.. The.participation.of.Forum.Mulher,.the.Mozambican.coalition.of.women’s.organisations.in.policy.discussions.led.to.the.inclusion.of.gender.indicators.in.the.annual.monitoring.tool.for.the.PARPA..Issues.covered.by.the.indicators.included.violence.against.women,.HIV/AIDS.and.implementation.of.the.national.gender.policy.

A.second.focus.in.the.first.phase.of.the.GRB.project.has.been.raising.awareness. and. establishing. entry. points.. For. example,. women’s.organisations,. UNIFEM. and. the. Ministry. of. Women. and. Coordination.of. Social. Action. (the. national. gender. machinery). have. met. with.representatives.of.the.Ministries.of.Planning.and.Development,.Interior,.and.Health.to.discuss.how.to.take.gender-responsive.budgeting.forward.in.the.country..The.Ministry.of.Planning.and.Development.was.targeted.because.it.plays.a.key.role.in.formulating.budgets.and.macroeconomic.policies..The.Ministry.of.Interior.was.targeted.because.its.scope.includes.the. police,. who. should. play. a. key. role. in. combating. gender-based.violence.. The. Ministry. of. Health. was. targeted. because. of. its. role. in.addressing.the.HIV/AIDS.pandemic.

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