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ADVANCING WOMEN’S RIGHTS THROUGH GENDER EQUITABLE LOCAL DEVELOPMENT,
GRB HLGM,Kigali 26th July 2011
Gender equitable planning, budgeting and service
delivery
Nalini Burn, Regional Advisor GRB, North Africa SRO
Questions to address
How are institutional actors at the state and local level interconnected in shaping patterns of gender equality and access to services in different local contexts?
Where responsibility for service provision is shared amongst local and other levels of government, at what level are gender concerns dealt with most effectively?
What institutional mechanisms can facilitate planning, budgeting and delivery of services in a gender responsive manner?
How can planning and budgeting systems integrate gender equitable requirements? (examples of planning and budgeting frameworks and processes that have ensured effectiveness of local government in addressing gender equality issues)?
3
What do we mean by Gender equitable? Gender equity is about the ‘equivalence in life outcomes for women
and men, recognizing their different needs and interests, and requiring a redistribution of power and resources’. (IDS, 2000).
› Issues :contested meanings of equity, some of which reproduce existing gender roles and relationship, and some ‘proper’ redistribution
Gender justice is defined by the ending of, and the provision of redress for, inequalities between women and men that result in women’s subordination to men. › As an outcome it is about access and control over resources, combined
with agency, which is the ability to make choices and decisions › As process, it is about accountability to redress injustice
(Goetz 2007).
4
Gender justice, citizenship
Dilemma of citizenship for women. Not a one to one relationship between citizen and state.
Women’s relationship to the state is specifically through kinship and particularistic groupings –colonial construction, hardened and codified in overlap of statutory, customary and religious systems of law --
‘Grounded and situated for women whose lived experiences are mediated by race, ethnicity, family connections, status in social hierarchies and economic status.’› ( Celestine Nyamu –Musembi 2008)
Implications for principle of subsidiarity, for exercise of political power
Nalini Burn 5
Decentralisation and Local public policy processes.
Citizens
Elected representatives
Plan, Budget and administration( includ
es tax and land)
Service delivery
Shor
t acc
ount
abili
ty r
oute
Nalini Burn 6
Local policy process.
• M&Esystem• Sex-disaggregated data
AND other variables of discrimination rimination
Diagnostic
• Representative and participatory democracy
• Informed by diagnosis,• Institutional analysis: roles,
mandates and competencies, procedures
Priorisation • A local development plan and its translation into
• A local budget plan • Participatory monitoring of
plans and budget• Accountability mechanisms
Programming/ monitoring
7
Decentralisation: Two broad prescriptive
forces 1. Normative policy
transfer: is good (the pros):› political, fiscal and
administrative 2.Part of political and
economic liberalisation(state failure, market virtues)- › governance + liberalisation› Competition and choice in
politics and economy
Dynamics of policy process› of a top down policy transfer +
funds transfer and › forms of either partnership or
resistance, obstruction, accommodation, instrumentalising in pursuit of own objectives: elite capture) contested, ambivalent terrain of decentralisation
› Rather technocratic approach to delivering good governance
› Underfunded mandates
Who and what shapes Decentralisation and local governance (DLG)?
Nalini Burn 8
Situating local planning and budgeting
Local Development
Local Governance
Local Planning and Budgeting
• Local , provincial, regional council
• Urban and land use planning• Sectoral ministries• Private local enterprises• Mutinational businesses
• Multiple actors Local Council• Deconcentrated sectoral Services• NGOs , CBOs , committees• Agencies
• Local council• Local administration• Central ministries
9
MDG
No wish list planning, so linked to budget constraint,
How does the reconciling of top
down and bottom-up happen?* Scope for intersectoral approach,
local level? Bounded sphere of
ParticipatoryP&B, using CDD approach
So felt need to have earmarked Funds for national MDG/PRS priorities at LG level
Issue: limited localising of MDGs, Issue :MDGs are sector based and
practised… Issue whose indicators to use:
MDG/PRS/sector related Who sets criteria and priorities for
ranking and prioritising? Conditional block grants Reduced scope for planning at LG
Complex realities: Top down and bottom up planning, budgeting, context specific, evolving
MDG
Poverty Reduction Strategy
Sector/line
LG
SWAPs, baskets
Macro,
Budget ,GBS?
hard top-down budget constraint,IPF block, sectoral grant (conditional)
LLG LLG
Entry points for GELD numerous, but scope? IGA fund
10
Example of Rwanda: top-down and bottom-up planning
Planification District
cellules
villages
Document de cadrage budgétaire au niveau district: ressources locales,+transferts intergouvernementaux + partenaires techniques et financiers
Faible gendérisation à ces niveaux
Echelles gouvernements/CL
Min IntérieurMin EcoFin
villages
Secteur
•Dans la pratique, ascendante est une consolidation des plans de plusieurs cellules.•Planification sectorielle au niveau des divisions administratives provinciales et communales
ProvinceSectoriels
cellules
Nalini Burn
11
Aligning budgets to evidenced –based policy for gender-responsive service delivery and results: avoiding policy evaporation.
12
Cash management system for disbursement › evaporation of planning& budget allocations (authorised, despite
bottom-up), and the protection of administrative, HR expenditure. another rationale for gender equitable earmarked funds)
Process › How it happens and actors involved. Where does the accountability
lie, the reporting and monitoring requirements weak. Underlying political economy issues.
Disbursement delays › expenditure chain from Ministry of Finance, › scope for local revenue generation and retention.
Service delivery. › Implications for its undermining. › Who to hold to account in the chain and for what?
What should the front line staff be held to account for, when their salaries are late and there is no provisioning for supplies
Policy evaporation:Budget execution , implementation
13
Lessons learned on DLG
Informal Donor Working group on decentralisation and local governance guiding principles ( Nov 2008) DLG: will address sectoral/swap constraint to DLG, are aware of political economy issues, World Bank evaluation
Harmonisation: UNCDF Local Development Fund + partnership with other development partners
Actors will work with: Local government associations and Partnerships of state and DP partners ( UCLGA, MDP etc)
Enlarging fiscal space: association of tax commissioners in Africa – to address aid dependency, capital flight etc.)
Aligning political+ fiscal + administrative decentralisation (example Morocco constitutional and regionalisation reform)
14
Accountability failures --and redress?
Grassroots woman :
How can we question what these people are doing when we do not even know what they have in the planning document?’
Woman councillor in Paidha Town, Uganda:
We refused to pass the budget of this financial year because we could not see something specifically for affirmative action.
We only relented when we were assured and shown that our concerns were captured under the various sectors – health, education, and production – where specific budget lines were made for women’s special needs’
15
Women leaders to become champions
Mandates What women leaders need
to be able to do: Identify women’s concerns Sensitise and mobilise
women on national issues Linking women in the
community and the decision-makers and mobilising resources for women concerns
Participate in planning processes
Advocate for women’s rights
Monitor service delivery
Challenges No skills Denial of rights, obstruction, shelved off
from policy space Status quo benefits a few officials Need for challenging existing power
structures Strategy Collective mobilisation: awareness, civic engagement, alliance
building Negotiation, political organisation,
mobilise constituency, generate factual and relevant information
Create a harmonised budget cycle and women leaders’ engagement tool
Ongoing learning by doing, takes time, resources, yields results… Each of skills and results generate performance indicators, on the voice side
16
Lessons learned South Africa and Morocco South Africa: Strong national guidelines are
needed› For women as contractors and
workers and to benefit› Contestation of women in local
politics› Difficult to get in as ward
councillors, representation comes from insistence of parties
› Women in participatory processes but not in decision-making
› Local councils assign low priority to gender
› IDP LED: none looked at LED› Women are very present in
committees related to their needs, usually chaired by a man
› Hostile institutional environment
Morocco: Constitutional and
Decentralisation/regionalisation reform
Constitution: rights-based and primacy of international rights instruments
Regionalisation and legal-backed linkages and transfers among levels of government
No devolution of mandates without devolution of funds
17
Uganda: local
Incentive-based grants transfer performance system› Check list of indicators for gender mainstreaming- gender
analysis, disaggregated data; gender impact analysis and annual allocations- maximum score of 10 out of 190;
› + or – 20%; capacity-building grant› District level gender policies pioneered by FOWODE:
annual Gender Aware Budget Plans [GAPB], using the Local Government Guidelines, but with no extra funds provision (50% of districts); monitoring indicators
› Field lessons :Community development officers: difficulty of fulfilling mandates for gender mainstreaming without dedicated funds
18
Performance based Planning and Budgeting
Performance Indicators built into LG’s own PPB indicators.
Performance-linked grants: difficult to get off ground because of data difficulties, hence need to address it with LG-Based Community Based Monitoring System CBMS.
Then build in incentives to use the more refined data as part of performance-linked part of the grant
Also link performance-part of grant to indicators of downward and horizontal accountability
Nalini Burn 19
Asia
India, Philippines, Indonesia, China: Focus CSOs – Budget advocacy , analysis and
accountability local media networks, (voice) Reform of social safety nets in Community-
based and driven development + conditional money transfers (using disaggregated data )
Indonesia: Musrenbang: elaboration of MOU et Decrees between local state and civil society actors ( 11 points +indicators to attain status of gender equality sub-district)
20
Rights-based approach A rights-based approach starting with
building ability to claim rights, can work even in settings with political quota, budget quota, and possibly elite driven- including women elites
Awareness of rights, compared to actual state of affairs in terms of rights
21
Example of rights-based approach, AFARD, Nebbi District, Uganda: Use of Gender responsive audit tool
After the project, against baseline conditions,› Women’s Council Executive effectiveness had increased
by 78%› Women’s participation in planning process by 68%› LLG responsiveness by 63% but› LLG transparency and accountability by 6%
22
Nebbi District: What it has involved
Technical and advisory support throughout, in planning meetings, as interlocutors,
Importance of political skill building for women, as well as women-only deliberations
Importance of building notion of accountability to constituents – how to demonstrably reach to grassroots women
Importance of using a tool such as a gender responsive audit to assess performance, along dimensions of capacity: 1 .awareness, 2. effectiveness and 3. empowerment - influencing change
Critical importance of human-rights based awareness, ability to claim rights
23
District level: Need for diagnosis, Planning, monitoring information system
Community Based monitoring System for planning and budgeting ( district level representative surveys + LLG rotating CBMS› Political economy analysis , inclusive livelihood analysis –
especially unpaid work - cross cutting issues of climate change, food and economic insecurity, human security, integrating physical/body integrity, VAW, using engendered statistical systems and processes principles- not only sex-disaggregated data, but also other inequality-relevant data; gender –sensitive expenditure and revenue analysis
Qualitative fine grained context-specific research System not a questionnaire, includes participatory
analysis and assessments, scope for narratives of change and qualitative indicators to interpret quantitative ones
Example of Morocco in ongoing fusion of Communal Information System and gender-responsive CBMS
24
Local development: infrastructure
Information and communication are part of infrastructure –resources for development, and for LDF to fund + others
Not aligning components but a rights-results chain of how infrastructure underpins development outcomes ( CEDAW+ CSECR)
Maternal mortality: why? What are the factors? Where to get information from? What output to get outcomes? ( participatory planning and budgeting)
Infrastructure in context of crises and poverty reduction: › addressing care economy and unpaid work constraints, labour
intensive programmes linked to achieving social sector outcomes; › using notion of sustaining the means to produce, to cover
reversing soil erosion, desertification, climate change adaptation and resilience
25
Planning and budgeting policy processes
Capacity development budget to be used not so much in sector-specific areas but in cross-cutting areas of LG precisely in gender equitable planning and budgeting training for duty-bearers ( also rec. 50 ILO)
Information baseline is cross-cutting expenditure and revenue-raising at district level, but rotating Community-based Monitoring System (CBMS )at LLG level (attract resources from other development partners)
Capacity development ongoing learning by doing facilitation ( supporting technical and advisory agencies), based on lessons learned from AFARD, Uganda and others.
Build on /consolidating linking council executives and staff to LG associations, national, sub-regional, regional and world-wide, for peer to peer learning and experience sharing networks . Also rec. 55 of IDRC Mexico Conference
26
Social accountability
Collective practices: consensus cooperation, commitment to participation
Responsiveness: Important not to marginalise men
Mobilising grassroots women: local information and communication materials
Radio talk, facilitation in closed door budget meetings
27
Concluding reflections
Issue of political quota, “budget “quota, segmentation along the lines of separate and unequal but considered equitable and non threatening of existing order, which then gets further legitimised ( have achieved 30% seats, 30% budget allocation) has to be seriously addressed.
GELD must be linked to a robust national GRB, fully claiming the application of new aid modalities-Accra including human rights, environment, gender justice on the one hand, as well as UN System and other response to Crises, also tracking and addressing new investment flows ( Non OECD-DAC) attracted to resource extraction – cross-border farming, sovereign funds, and also climate change mitigation and adaptation funds
Strategic alliances built on social, economic and cultural rights and local development approaches, emphasising LG-LG, south-south collaboration and networking, climate change adaptation and resilience, cooperatives/collective action, social protection floor and surveillance, vulnerability monitoring as well as vulnerability funds