PCW Guidelines For Developing and Implementing Gender Responsive Programs and Projects 1993
PCW Guidelines For Developing and Implementing Gender Responsive Programs and Projects 1993
PCW Guidelines For Developing and Implementing Gender Responsive Programs and Projects 1993
Funded by.
'*{
National Commission on the Role of Filipino Women (NCRFW)
Produced by
National Commission on the Role of Filipino Women
National Economic and Development Authority
1993
Foreword
ll
BACKGROUND
PROGRAM/PR.OJECT DEVELOPMENT
PROGRAM/PROJECT IMPLEMENTATION
AND MANAGEMENT
POST-EVALUATION an
JI
Annexes
We are confident that the present publication will prove useful to decision-
makers, project planners and implementors in providing them with a firm basis for
strengthening their efforts to address gender concerns in development.
<1\3.\SSs{J ae,^*/*4PiaL-
CIELITO F. HABITO REMEDIOS I. RIKKEN
Director General Executive Director
NEDA NCRFIT
Adopting such an orientation in the identification of programs and projects has
'implications on their effectiveness, particularly, in terms of reaching and addressing
the needs ofthe appropriate beneficiaries.
As a l99l UNIFEM study concluded, "History and experience show that so long
as the different roles of women and men have remained "invisible" to development
planners, efforts to achieve development have too often excluded women. The result
has been the marginalization and undermining of women's productive roles both in the
household and in the broader economic, social ano political spheres. Women, have
thus, in many cas€s been disadvantaged by development, and, through this, the
development process itself has been slowed down and distorted."
The need to adopt a perspective that takes into account the different roles, interests
and needs of women and men in development planning is based on the Gender and
Development (GAD) framework, a recent and major advance in development theory
and practice. It has grown out of attempts to understand both the ongoing inequality
betwen women and men and the failure of countless development and women's projects.
GAD has evolved from a concern with the on-going and increasing disadvantage
of women despite almost two decades of Women in Development (WID) efforts. The
GAD analysis looks beyond the functions of women and men in society, to examine
the relations between them, and the forces that both perpetuate and change these relations.
The GAD approach not only seeks to integrate women into development, but also
looks forthe potential in development initiatives to transform unequal social and gender
relations to empower women. A long-term goal of GAD is the equal partnership of
women and men in determining and directing their collective future.
Major lssues/GaPs
l. e Planning
mentors or
erns in the
Objectives
Description
These guidelines address the different stages ofthe project cycle, namely: project
identification and preparation, investment program formulation, project evaluation,
implementation and monitoring, and post-evaluation and impact assessment. For easy
reference and applicability, they have been structured based on each stage ofthe project
development process.
Efforts were exerted to make each section of the document as self-contained and
independent ofthe other sections as possible. A user, therefore, may refer only to the
particular component applicable to the phase of the project she/he is working on. The
guidelines with all its components can however be useful to the user at any stage of
the project development cycle, and cross-referencing across sections is encouraged to
attain a fuller perspective.
Generally, each section ofthe document starts with a brief description of the process
involved in every stage of the project. This is followed by guidelines on how gender
concerns can be fully integrated in the process, with specific guide questions to help
the user identify other relevant information and details.
Since these guidelines are a pioneering efforts in the country, they do not offer
prescriptions, rather, they present issues and measures to be considered in each step ofthe
project development process. Their application will be continuously monitored to ensure
thatthey respond appropriately to the changing needs ofdevelopment projects. Comments
from users are thus encouraged to keep the guidelines updated and responsive.
Underlying Principles
This set ofgeneral guidelines subscribe to two basic assertions: l) that gender is
both an essential and critical variable in the "development equation," and 2) that the
use and expansion of women's productive capacities are a necessary condition for
social and economic progress.
Essentially based on the GAD theory, the guidelines make use of concepts or
analytical tools which have been developed to guide development workers translate
theory into actual practice. Conceptual tools such as gender division of labor, practical
and strategic gender needs, the concept of condition vs. position and others are put
forth throughout the document.
Users
Agency Responsibilities
B.cause sifuations may change from one technical field or sector to another and
based on the agency involved, these guidelines can only provide a general framework
with broad indications of main points to be considered. They are general enough to be
used in all planing sectors, including the economic and social sectors. Government
agencies and local units are however enjoined to prepare and evolve more detailed
checklists to take account of relevant factors within their resions and sectors.
6
Section 5 of the IRR for RA 7192 also tasks local government agencies with
developing their own sectoral guidelines based on the issues and concerns distinct to
their sector, to wit: "More specific guidelines have to be drawn vis-a-vis the requirements
of the Local Government Code." This means the Nl(Os and concerned sub-national
development ofEces, may have to firrthertanslate these guidelines into more operational
terms when necessary, for the adequate implementation of the R.A. at field levels.
Also, government agencies are encouraged to improve on these guidelines based on
the document's applicability and usefulness and to submit feedback to NCRFW or
NEDA.
PROGRAM/PROJECT
DEVELOPMENT
P roject dentification
I
The initial phase of the project cycle is concerned with generating project ideas
that represent a high priority use of the country's resources to achieve an important
development objective. It is the process of searching for viable development initiatives
aimed at responding to specific issues and problems.
Since development programs and projects address the needs of specific clientele groups,
the target beneficiaries should, at the earliest stage of the project, be given equally important
roles as those of other project team members or staff. This is to ensure that their concems
and interests are taken into account in all the critical phases ofthe project.
4. The proponent caters to the needs ofdistinct constituents, e.9., agrarian reform
benefi ciaries (DAR), farmers and fi sherfolk (DA), disadvantaged/vulnerable
groups (DSWD), etc.
5. Project staff has technical competence in project planning and community
development activities.
Guide Questions:
[2] What method was adopted in the identification of the project concept
(secondary data, field visit, ocular inspection, consultation with the
community)?
2. Identifu the major characteristics of the target area and determine its population
groups, both directly and indirectly targetted by the project. In particular, the
following should be considered:
c) patterns of major and significant activities and role structures (by age,
sex, locus) and how these influence decision making among individuals
in the community;
II ] Are the following considered in the identification of the target area population.
[2] What is the composition ofthe community? Are there distinct subpopulations
within the community? What is the degree of social cohesion in the
community? Are there existing factions within the community?
[3] What are the major roles/activities of men and women in the community?
[4] What are the resources (human, financial, etc.) available in the
community? Are these resources utilized by and easily accessible to the
various population groups?
Guide Ouestions:
t1l What are the needs, problems/issues of the community? What are the
factors (socio-cultural, environmental, political, economic, etc.) that
primarily cause these problems/issues?
t2l Are the needs of one population group different from the others? What
are the different needs of the various women and men in the communitv?
Were there efforts to address these needs?
t3l What are the major sources of information on the problems/needs and
demands of the community?
tsl What are the major factors which confibute or impede the development
of certain groups in the community?
10
- availability of resourceis (both existing and potential) other than those which
will be provided by the proponent; and
Guide Questions:
[2] Which specific groups are most seriously aflected by the problems?
[3] What are the strategic implications of the problems on the different roles
of the members of the community?
[4] Are the practical and strategic needs of women and men coniidered in
the prioritiiation? (Please refer to the Glossary for definitions of practical
and strategic needs.)
[5] Are there available resources (financial, human, skuctures) which could
be utilized to address the problem?
- data generated from the preceding steps and guidelines for project development;
6. Determine the possible requirements (both lurancial and physical) ofthe project
based on identified components.
Once problems and needs have been identified, assessed and appropriate
interventions have been determined, the next stage in the project development cycle
is the project preparation/formulation. This stage essentially determines whether the
project can and should be undertaken and if so, how and when. In formulating gender-
responsive projects, the following should be considered:
- directly address the sectoraVregional program thrust and the gender issues
therein;
- be doable, measurable and attainable within the expected life span ofthe project.
Guide Questions:
3. Will the objectives address the practical and strategic needs of women
and men in the targetted areas?
4. Are the target groups clearly specified in the objectives? Are both women
and men equally considered as project beneficiaries?
t2
Guide Questions:
[2] Will the project implementation strategies respond to the differential needs
and potentials/capabilities of women and men?
[3] Are there implementing stategies which will provide for mechanisms/
opportunities for increased or more significant participation of women?
t3
Guide Questions:
Guide Questions:
II ] Are other agencies or organizations which will have an indirect role in the
implementation of the programs identified?
[2] Are qommunity members, women and men, identified as part of the
organizational set-up?
[3] Does the organizational sfucture include project implementors who have:
). The establishment of the monitoring and evaluation scheme should take into
consideration the following:
Guide Questions:
[3] Are there measurable or quantifiable indicators that will reflect the equal
and/or equitable enjoyment of project benefits/gains by both women and
men beneficiaries?
- deciding on the nature and size of several progrums and projects to address gaps
and to achieve a given set of goals (i.e. priority subsector or activities or PSAs);
Guide Questions:
[2] Does the prcject utilize technology that is appropriate to the specific needs
of women and men? In the case of labor displacing techniques, does the
project provide for adequate safeguards and/or alternative employment
for women/men who would displaced?
[3] Does the project promote equal participation of women and men in the
use and conservation ofindigenous resources relative to the project?
Guide Questions:
[] Does the project ensure equal participation of women and men in any
organization and development activities (i.e., extent of involvement in
terms of membership)?
[2] Does the project promote and strengthen the participation of women and
men not only as beneficiaries but as agents of change (e.g., educators,
planners, organizers) in their own organization and in development
activities?
I6
'Guide Questions:
- prioritl for gender responsive projects as provided for by IRR for RA 7192,
and
Project Evaluation
This stage involves an analysis of the technical, financial, economic, social and
operational viability of the proposed project. It also involves an assessment of the
potential impact of the proposal on the target area or beneficiaries. In evaluating
projects and in ensuring that they are gender-responsive, the followirig guidelines
should be adopted.
General
- include objectives which considerand address the practical and strategic gender
needs ofthe target beneficiaries;
t7
have project components and activities wh ich address the assessed or identified
needs oftai'get beneficiaries and ensure that intended benefits would be realized
(e.g., beneficiaries would have direct access to project cornponents, activities,
services, etc.). This, therefore, presumes that a specific needs analysis was
conducted in the target area prior to project formulation;
Ciuide Questions:
t3l How can the project components or activities address the assessed and
identified needs oftarget beneficiaries? How will the project activities affect
the social and economic situation of women and their access to resources?
t5l Does the project have a built-in gender sensitive monitoring and evaluation
system? Were the target beneficiaries involved in the development of
such M & E system? Will the beneficiaries be involved in the
implementation of the system?
Specific
In evaluating the technical aspect ofthe project the following should be considered:
- Existing and proposed market outlets for goods and services to be produced;
and
- Effect on the resources and time allocation of women for productive and
reproductive activities.
On Technoloey
t2l Will the new technology be appropriate for women? Dees the proposed
technology have potential negative effects on women? How does the
project intend to counteract these effects?
[3] Has there been a reallocation of women's work load or time and have the
changes been positive or negative with the introduction of the new
technology?
t4l Will women be able to afford the cost of the new technology? Will
women have access to credit opportunities to purchase equipment?
t6l Are these technologies appropriate to the level ofeducation and skills of
women?
On Marketine
[2] Are changes in marketing patterns or systems part of the project design?
' Is there a danger that these will reduce or eliminate women's role in
marketing? If so, what steps are being taken to prevent this?
[3] Does the project reflect the traditional position of women in marketing?
[4] Does the project increase women's marketing workload and opporfirnities?
[5] Does the project ensure that women get a fair share of the benefits from
improved marketing activities?
[7] Does the project directly address women's marketing needs (e.g.,
transportation, equiprirent, facilities, etc. )?
On Trainine
On Credit
[2] Are women aware of sources of credit available, and will they receive
training on how to apply for credit?
20
- Financial viability of the project and the income position of womcr and
men,
and
Economic analysis which identifies the costs and benefits of the project to
women and men: and
Time allocation for the work of women and men in its cost and benefit analvsis.
ln evaluating the social soundness of the project, the following should be considered:
- Tire likelihood that new practices or institutions introduced among the initial
project target population will be diffused among other groups (spread effect).
To make this possible, the following should be considered:
. leadership/authority;
. patterns of mobility;
. previous project design and execution; and
. maximum information and resource distances.
. those groups of women and men who may be indirectly affected (either
positive ly or negatively).
In assessing the social costs and benefits, the following criteria should be considered:
- access to resources and opportunities (including the ways and extent such
access is broadened./narrowed);
- employment;
- changes in the political participation of the target group and the different
socioeconomic, regional, ethnic and other groups as well as the implication of
such changes on public policy.
II ] Does the agency have the suffrcient humanpower, financial and equipment/
facilities to implement the project?
[2] What are the mechanisms provided to ensure the participation of target
benefi ciaries in decision-making and project implementation?
Guide Questions:
[3] Does the project have linkages with relevant agencies implementing
women's prograns to increase its impact and avoid duplication of efforts?
[4] How can the project positively influence and promote ot]er gender-
responsive prograns?
' [5] What are the mechanisms provided to ensure that the project will be
sustained even aft€r the termination of funding assistance? Is the
organizational and institutional capability sustainable?
24
A. General Items
2. percentage of women and men receiving credit among the total beneficiaries;
(b) legal and traditional practices with regard to the ownership, inheritance
and use of land, houses and other property, and production assets by
women and men; and
(a) total employment in major agricultural tasks in project area and its
division by socio-economic status and sex;
(b) economic activity of women and men, including unpaid work in'the
family holdings (e.9., childcare, cooking and cleaning);
(d) secondary occupations of rural women (e.g., cottage industries) and men.
PROGRAM/PROJECT
IMPLEMENTATION AND MANAG EMENT,
MONITORING AND EVALUATION
Program/Project lm plementation
and Management
Personnel
l. The terms ofreference for project personnel should identify their lesponsibility
in ensuring the participation of women and men as agents and beneficiaries of
the project.
The project management and staff should have sensitivity to gender issues
and concerns and should be providecl with skills necessary to manage and
monitor the gender dimension of the project.
28
Guide Questions:
[] Are there equal opportunities for women and men to participate in project
management positions?
[2] Are both women and men involved in the delivery of goods and services
to the beneficiaries? In what ways are their involvement reflective of
either traditional or non-traditional activities for both women and men?
[3] Has management been provided with the human resources, awareness
and expertise or skills necessary to manage and monitor the gender
dimension of the project (e;g. provision of special inputs required by
women)?
[4] What taining and extension techniques are being used to develop delivery
systems that are responsive to gender concerns?
[5] Are resources allocated to fain project personnel on the specific skills
necessary to ensure the inclusion of both women and men, in consideration
of the nature of project activities?
[6] Do the Terms of Reference (TOR) for project personnel state the
responsibility ofeach one in ensuring the participation of women as agents
and beneficiaries ofthe project?'
2. The organizational structure of the project should permit and encourage the
consultation and participation of relevant organizations and institutions
(government agencies, women's organizations, local NGOs, etc.)
Quide Questions:
[3] Does the project provide support systems, structures, arrangements and
facilities for both sexes (e.g. day care centers) to protect their interest and
encourage their participation in project activities? If not, how will this
concern be addressed?
Op e rati o n s an d Logr.sfics
l. The project should ensure equal opportunities for all beneficiaries (men and
women) in all the project components (e.g. training and extension services,
employment, access to credit, etc.)
2. The project should consider/address both practical and strategic needs and
interests of women.
3. The project's operation and logistics should allow for flexibility in adapting
to the changing or new-found situations of women.
Guide Questions:
[] What are the requirements for beneficiaries to be able to use the goods
and services offered by the project? Can women moet these requirements
(e.g. financial contribution, level of formal education, collateral, etc.)?
[2] Are there mechanisms to ensure that the project resources or benefits are
equally accessible to women and men?
[4] Does the organization have enough flexibility to adapt its 3tructures and
operations to meet the changing or new-found situations of women?
Corrective measures may include but should not be limited to the followine
On the other hand, ongoing and periodic evaluation is conducted to provide early
feedback to project management on the following concerns:
Guide Questions:
- Does it collect data which will indicate the access and control of
resources of both women and men?
[3] Hastheprojectidentifiedthegender-responsiveindicatorstobemonitored
and the monitoring frequency (e.g. income levels of household heads)?
[5] What mechanisms have been built into the project for corrective action
on the basis of evaluation?
[6] Are copies of the final evaluation report given to project developers,
implementors and national decision-makers to guide them on insights
and lessons learned for future use?
aa
JJ
Guide Questions:
[2] Are beneficiaries involved in the collection and validation of data collected
for monitoring purposes?
There are two types of indicators that are usually used for monitoring and ongoing
evaluation.
Input indicators are those which measure the resources available for the
program
Output indicators are those kind and magnitude of results that can be expected
from good management of inputs including activities
Guide Questions:
[] Operational
- Does the project have any negative etTects on the beneficiaries (women
and men) which were identified in the course of project implementation?
If so, what attempts are being made to avoid, minimize or compensate
those affected?
[2] Oreanizational
[3] Socio.Economic
- Are women's access to, or control of, the following resources changing
as a result of this project? In what way? How does the project contribute
to these changes? (e.g. formal education, food and nutrition, etc.)
- Are women being given access to the new opportunities and services
which the project provides? If not, why not, and can this be rectified?
- Has there been a reallocation of women's work load or time, and have the
changes been Positive or negative?
35
Guide Questions:
[3] Are the necessary logistics and support stuctures in place for the operation
'of the desigrred monitoring and evaluation system?
POST EVALUATION
Post-evaluation is carried out to: l) determine whether the set objectives and
targets were attained; b) evaluate project efficiency; c) assess project effects and impact,
including their potential to be sustained in the longer-term.
The country's thrusts on GAD are based on the premise that the culturally-defined
roles of women and men have reinforced unequal gender relations, resulting in the
marginalization of both sexes, especially women. The GAD approach seeks not only
to fully integrate women into the development process, but also to continually search
for new and innovative measures that will help transform unequal sociaVgender relations
into creative opportunities to equally benefit women and men.
Guide Question:
- Was the project consistent with the national thrusts on gender and
development as outlined in the national plan or other national documents?
If yes, in what way? If no, why not?
38
2. The extent to which the interests. roles and needs of women and men were
considered in the different phases ofthe project cycle.
Guide Questions:
[] Were results of the pre-project study used in making the project relevant
and equally beneficial to women and men?
[2] Did the objectives ofthe project address gender concerns? Did they take
into account women's roles as agents and beneficiaries?
[3] Did the project desigr establish gender-related goals and objectives against
which project performance or success was to be evaluated?
[4] Was the potential impact of the project on women and mdn anticipated?
Were approaches considered and carried out to minimize and avoid any
negative effects?
[5] In designing, outlining the project activities and components, were gender
concerns considered? For example, in determining specific project sites,
were women's time and spatial constraints taken into account to ensure
their parlicipation in the project? Were support structures/systems (e.g.,
child care services) provided to enable women to actively participate in
project activities?
[6] Did the project address the practical gender needs of women and men?
Did the project consider the strategic gender needs of the community, in
general, and women, in particular? (For definitions of praciical and
strategic gender needs, please refer to the Glossary section.)
3. The nature and extent of project effects on the roles, interests and needs of
women and men.
- access to and control over resources and benefits (Please refer to the Glossary
for the definitions ofaccess and control.)
- social and bconomic position (Please refer to Annex B for a sample list of
indicators of improvements in women's position.)
- skills/technicalknow-how
- level of empowerment
Guide Questions:
[] What were the effects of the project on the time allocation of women and
men for productive and reproductive activities? Had the effects been
positive or negative? Did the project increase or decrease women's and
men's work loid? lllease refer to the Glossary section for definitions of
productive and reproductive work.)
[2] How and to what extent did the project contribute to improving the
conditions of women and men? How and to what extent did it contribute
to improving women's position in society? (Please refer to the Glossary
for defuritions of condition and position.)
[3] Did women receive a fair share, relative to men, of the benefits derived from
the project? Did the project redress a previous unequal sharing ofbenefits?
[4] To what extent did the project affect women's and men's access to and
control over resources? For example, how many women, relative to the
number of men gained or lost access to: land, housing, market centers,
training, credit, etc.? (Please refer to the Glossary for the definition of
access and control.)
[5] To what extent did the project affect women's and men's access to and
control over benefits? How many women, relative to the number of men,
gained or lost control over: wages, revenue from services/sale of goods,
new technology, etc.?
40
Guide Questions:
[6] What effects did the project have on the socio-economic status of women
and men? For ixample, how many local women gained or lost roles in
the locai economy and jobs at the different levels of the project?
[7] What effecs'did the project have in the transformation of gender relations.
Did the project contribute to the transformation of relations between the
disadvantaged and.the advantaged? In what way? Did the project tend to
reinforce or challenge the existing gender division of labor? (For
definitions of gender, transformation of gender relations, and gender
division of labor, please turn to the Glossary.)
1S1 What are ttre long-term effects ofthe project in terms ofwomen's increased
ability to take chaqge of-their own lives, understand their situation and
the difficulties thby face, and to take collective aclionto solve problems?
19] Did the project result to women's and men's gain or loss in terms ofi
- workload
-.economic and social position
- gender relations
- level of skills
- access to and control over resources and benefits
- level of empowerment
4l
Annex B
Annex A
GLOSSARY OF TERMS
7. Gender Issues/Concerns
Issues, concerns and problems arising from the different roles played
by women and men, as well as those that arise from a questioning of the
relationship between them.
9. Gender-Responsive Planning
These concern the activities ascribed to men and women on the basis
of perceived gender differences. While men are mainly identified with
productive roles, women have a triple role: a productive role; a reproductive
(or domestic) role; and a community managing role. Gender roles and
responsibilities vary between cultures and can change over time.
13. Marginalization
This involves the care and maintenance of the household and its
members including bearing and caring for children, food preparation, water
and fuel collection, shopping, housekeeping and family health care.
Reproductive work is crucial to human survival, yet it is seldom considered
"real work". In poor communities, reproductive work is, for the most part
manual - labour-intensive, and time consuming. It is almost always the
responsibility of women and girls.
This involves changing the way wolnen and men relate to one ancther
from that of domination/subordination to that of equality and empowerment.
1. Capital Assistance
3. Economic Viability
Ihe possibility or likelihood that the proposed project will contribute
significantly to the development of the total economy, such that the project's
use of scarce resources is justified. The analysis is applied to estimate the
project's retums to society as a whole.
4. Financial Viabilitv
fhe moneta.y aspect of project preparation and analysis, which
estimates the project's effect on the income of project participants.
5. Investment Program
A program that prioritizes capital formation and technical assistance
activities consistent with sectoral and resional thrusts.
6. TechnicalAssistance
Support aimed at rmparting technical, economic, and organizational
skills and knowhow and improving all that is needed to effectively apply the
knowledge/skills required.
49
Writing team
NEDA