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Guidance note gender Equality Marker


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GUIDANCE NOTE

Gender Equality Marker

Tracking of Resource Allocations and Expenditure for Gender Equality Results



16 September 2010



Policy and Practice, New York
United Nations Children’s Fund (UNICEF)


TABLE OF CONTENTS

I. Background 3

II. Purpose of the Guidance Note 3

III. The Methodology 4


IV. Instructions for Rating 4

V. Important Issues to Consider when Rating Intermediate Results 7


VI. The Rating Process 8

VII. Monitoring and Reporting 9


Annex 1. Examples of Gender Equality Marker in Practice 10
I. Background

UNICEF is fully committed to promoting gender equality and the empowerment of girls and women. Based on the recommendations of the Evaluation of Gender Policy Implementation in UNICEF (2008), and the Executive Board decision 2008/10 to receive a management response, UNICEF developed a one-year plan contained in the Follow-up to Evaluation of Gender Policy Implementation in 2009. As part of the plan, UNICEF committed to identifying best practices and develop an improved system and tools to track its resource allocations and expenditure for gender equality results. It also committed to exploring ways of doing so in VISION, one of the on-going key improvement initiatives aimed at consolidating the organizational information system into a One ERP Application System. A 2009 review of partner practices showed that the Gender Equality Marker (GEM), as developed by OECD/DAC, refined by UNDP, CIDA and piloted by the IASC in emergency contexts offers a sound financial tracking system for resource allocation and expenditures for gender equality results. The GEM will measure the extent to which these results contribute to the promotion of gender equality and/or the empowerment of girls and women.

The UNICEF GEM:


  • Provides UNICEF with an improved system of tracking resource allocations and expenditures that are made to advance gender equality and/ or the empowerment of girls and women.

  • Is expected to sensitize planning teams to develop results that, to the greatest extent possible, advance gender equality and empower girls and women.

  • Will be applied at all levels of the organization, i.e., country, regional and HQ locations.

  • Is expected to have an attribute in ProMS 9.1 and subsequently in VISION. The attribute will be placed at the level of intermediate results where the GEM will be scored.

  • Will be applied to programme results that receive an allocation of programme funds.

It is expected that offices, as part of normal practice, would have supported the strengthening of gender analysis within situation analyses and other assessments that form the basis of the formulation of intermediate results. Programme support intermediate results (formerly referred to as programme management results), should not be rated in ProMS 9.1.

II. Purpose of the Guidance Note

This note is intended to guide UNICEF staff on how to assess result statements on their expected contribution to gender equality and/ or the empowerment of girls and women. All offices will apply the GEM as they adopt the revised results structure and develop their intermediate results. The note has been developed collaboratively by Samuel Momanyi; Rekiya Adamu-Atta, Programme Officer; Noreen Khan, Gender Specialist; and Mita Gupta, Gender Specialist.



III. The Methodology

The Gender Equality Marker rates the expected contribution of a result to advancing gender equality and/ or the empowerment of girls and women. This involves rating every intermediate result against a four-category scale that ranges from 0 (not expected to contribute to gender equality in any noticeable way) to 3 (advancing gender equality as a principal objective of the result).

The rating is mandatory for all intermediate results and will be available in the Operating Systems starting with ProMS 9.

IV. Instructions for Rating

Each intermediate result must be rated with 3, 2, 1 or 0. Intermediate results:



  • Whose principal objectives are to advance gender equality and/ or empower girls and women should be rated “3”

  • That are expected to make a significant contribution to advancing gender equality and/ or the empowerment of girls and women should be rated “2”

  • That are expected to make a marginal contribution to advancing gender equality and/ or the empowerment of girls and women should be rated “1”

  • That are not expected to make a noticeable contribution to advancing gender equality and/ or the empowerment of girls and women should be rated “0”

Note: Interventions for boys [where they are disadvantaged] may contribute to gender equality but not necessarily to the empowerment of girls and women. In such situations, specific interventions for boys (or even men) may be considered to contribute to gender equality, and thus could receive a “principal” or “significant” rating.

Table 1 below provides examples of intermediate results and indicates how they could be rated. Additional examples are provided in Annex I.



Table 1: Examples of intermediate results and ratings


Rating

Description

Category 3: Intermediate results that have advancing gender equality and/ or the empowerment of girls and women as a principal objective

Gender equality and/ or the empowerment of girls and women is a principal objective of the intermediate result and one of the main reasons the result was formulated. The result has corresponding indicators to measure how gender equality will be advanced.

Example of an intermediate result that is rated 3

Intermediate Result: Legal and policy frameworks protect girls from FGM/C

Indicators:

  • Prevalence (percent) of FGM/C among adolescent girls

  • Number of survivors of FGM/C receiving services

  • Number of cases of FGM/C prosecuted

  • Per cent of reported cases of FGM/C prosecuted

  • Number of court decisions on FGM/C implemented


Rationale for rating: The main objective of the intermediate result is to address a harmful traditional practice targeted at girls and women. The indicators measure the extent to which the issue of FGM/C is being addressed through legal and policy frameworks.


Category 2: Intermediate results that make a significant contribution to advancing gender equality and/ or the empowerment of girls and women

Gender equality and/ or the empowerment of girls and women is not the main objective of the intermediate result. However, it is a secondary objective expected to make a significant contribution to advancing gender equality, with corresponding indicators to measure how gender equality will be advanced.


Example of intermediate result that is rated 2

Intermediate Result: Increased access to safe water supply, adequate sanitation and hygiene facilities for children in 500 primary schools

Indicator:

  • Percent of schools with separate, lockable, safe water supply, adequate sanitation and hygiene facilities for girls

Rationale for rating:

The main objective of this intermediate result is to increase access to water supply, sanitation and hygiene facilities for children in general in the 500 schools – there is no mention of addressing any gender gaps. However, the indicator measures the extent to which girls have access to these facilities – especially to separate, lockable facilities, which can be an important factor in girls’ attendance in school, particularly in the case of adolescent girls. While promoting gender equality is not the main objective of this result, it is a secondary objective in that it addresses what is often a barrier to girls’ education.



Category 1: Intermediate results that make a marginal contribution to advancing gender equality and/ or the empowerment of girls and women

Gender equality and/ or the empowerment of girls and women is not an objective of this intermediate result. At least one indicator refers to gender in some way (e.g., the indicator is disaggregated by sex, measures the engagement of women, girls, boys, men, etc.), but none of the indicators show how gender equality will be advanced.

Example of an intermediate result that is rated 1

Intermediate Result: By the end of 2014, ministries, institutions and civil society organizations systematically monitor child rights to influence the implementation of national strategies, plans and programmes addressing poverty and exclusion of children and families

Indicator:

  • Statistical agencies at all levels and Ministries provide data, updated and disaggregated by sex, on the situation of children and young people, in line with the EU statistical framework and national strategies

Rationale for rating:

The intermediate result aims to monitor child rights overall, and to address poverty and exclusion of children and families – children are mentioned as a group and without reference to girls and boys and any gender disparities to be addressed. The indicator calls for statistical agencies to provide data disaggregated by sex on the situation of children and young people. However, it is neither clear what gender disparities will be analyzed or monitored with this disaggregated data in relation to the result, nor how the data will be used to promote gender equality.



Category 0: Intermediate results that are not expected to make a noticeable contribution to advancing gender equality and/ or the empowerment of girls and women

The intermediate result is not expected to contribute to gender equality in any noticeable way. There are no indicators that are disaggregated by sex, measure the engagement of women, girls, boys, men, etc., nor do any of the indicators show how gender equality will be advanced.



Example of an intermediate result that is rated 0

Intermediate Result: By the end of 2013, the percentage of children from 60 prioritized municipalities who have not completed their primary education has been reduced by 6 percentage points

Indicators:

  • Per cent of children who complete their primary education in prioritized municipalities

  • Per cent of children passing their primary grades

Rationale for rating:

The intermediate result relates to the reduction of the percentage of children who have not completed their primary education – children are referred to as a group, and there is no mention of any targeted action for girls or boys who might be at a greater disadvantage. The indicators also monitor children as a group, not calling for disaggregated data to look at any differences in school completion or achievement between girls and boys.



V. Important Issues to Consider When Rating Intermediate Results

Intermediate results that target women and/or girls may not necessarily contribute to promoting gender equality. For example, an intermediate result that focuses on ensuring that only women have increased knowledge of child care practices, not recognizing men’s shared responsibilities in this area, reinforces the perception that only women are responsible for caring for children. However, intermediate results addressing maternal health, which also target only women, do address gender inequality. Some communities maintain patriarchal cultural norms and values which place lower value and status on women and girls. In these communities, lack of prioritization of maternal health contributes to maternal mortality, a global concern which gender inequality underlies.

Ratings 3 and 2 require a focus on gender equality and/ or the empowerment of girls and women as an objective of the intermediate result. The related indicators should not just make a token reference to gender (such as the collection of sex-disaggregated data without making clear how this will be analyzed and used; involving women’s groups/promoting women’s participation without indicating how their inputs will be utilized in the context of the result, etc.) but should measure how gender equality will be advanced.

If an intermediate result mentions gender equality, but there are no corresponding indicators measuring progress in addressing gender inequality/disparities related to the result, it would need to be rated 0. Gender equality merely being among the objectives of a result is not sufficient – indicators must be formulated to monitor progress against this objective of the result.

The financial amount allocated to an intermediate result should not influence the rating. The rating is based on the nature of the intermediate result, not on the amount of financial resources allocated to it.

The aim of the exercise is to give an honest and accurate reflection of the likely contribution of an intermediate result to promoting gender equality. A secondary aim of the exercise is to build awareness among UNICEF staff on gender equality and the need to mainstream gender equality in all programme areas.



VI. The Rating Process

The programme specialist or manager responsible for supporting implementation of a given intermediate result will be responsible for its rating. The rating process suggested is intended to facilitate the easy application of the marker. However, in those cases where it is felt that additional assistance is required, it is recommended that the gender focal point/gender coordination team is consulted in the rating process. Where offices do not have the necessary expertise, an external gender specialist (e.g. UN Women, RO/HQ, gender consultant, etc.) can be consulted.

The rating will be done when the intermediate result is being developed. It is expected that the rating process will sensitize the planning team to take into account gender equality considerations.

Quality assurance: The Deputy Representative or her/his designate will be responsible for quality assurance. The Regional Office and Gender and Rights Unit in Policy and Practice in New York will monitor and provide second-line support and quality assurance. The Office of Internal Audit is expected to conduct spot checks and include the application of the GEM in programme performance assessments. The Evaluation Office is also expected to incorporate the use of the GEM in evaluations conducted.


VII. Monitoring and Reporting
There are benchmarks in relation to the GEM in the Strategic Priority Action Plan for Gender Equality (2010-2012):


  • Percentage of UNICEF expenditure that contributes to gender equality results (those results rated 3 and 2). Target: 75% by 2012.

  • Percentage of UNICEF Intermediate Results with at least a significant gender equality focus (those results rated 3 and 2). Target: 50% by 2012,

Information from ProMS will be captured in the Business Intelligence Reports (BIR) and displayed as part of the Office Management Reports. These benchmarks will be monitored through the BIR.


In reporting, results that are funded exclusively by support budget and private fundraising and partnerships budget (zero programme budget allocation) are not required to be rated and will be excluded from the GEM-related reports. GEM-related reports by MTSP Focus Area will be generated using the Organizational Target code at the intermediate result level.
The following Country Office standard reports will be available through the Office Management Reports:


  1. Number and per cent of intermediate results providing principal, significant, marginal or no contribution to gender equality

  2. Number and per cent of results in each of the four categories, by MTSP Focus Area and by Programme Component

  3. Percent of total programme resources allocated and spent in relation to each of the four categories of results

  4. Percent of total programme resources allocated and spent in relation to each of the four categories of results, by MTSP Focus Area, and by Programme Component.

Performance of offices will be measured against the benchmarks in the Strategic Priority Action Plan for Gender Equality (2010-2012).








Annex 1: Examples of Using the Gender Equality Marker in Practice

Category 3: Gender equality and/ or empowerment of girls and women is a principal objective of the intermediate result and one of the main reasons the result was formulated, with corresponding indicators to measure how gender equality will be advanced.

Intermediate Results and the Rationale for their Rating

Indicators

Programme Results
IR: X frontline health workers (FHWs) in y districts have the awareness and skills to provide health and counselling services, and report gender-based violence (GBV) cases to law enforcers by December 2012

Rationale: The main aim of this result is to increase awareness and skills to provide services and report GBV cases, and thus the principal objective is to address a gender issue. The indicators also show how gender equality will be advanced, by not only monitoring the number of health workers trained, but by also ensuring that this training strategy is institutionalised and endorsed by the Ministry, so that it is systematically conducted, community awareness is raised, etc.



  • Maximum of 4 districts and maximum of 4,000 FHWs and others identified

  • Capacity assessment and baseline survey conducted

  • Capacity development strategy endorsed by Ministry

  • Training materials developed and courses held

  • Training strategy institutionalized

  • Community awareness strategy developed and rolled out

  • End line survey completed

IR: By end of 2015, national and sub-national authorities use a reliable sex-disaggregated data system for planning, budgeting, and monitoring to address child poverty and social exclusion

Rationale: The objective of this result is to ensure that sex-disaggregated data are used, so that differences in how girls and boys may be impacted by poverty and social exclusion can be taken into account in planning, budgeting and monitoring. The associated indicator monitors the extent to which state institutions actually use this disaggregated data.



  • Evidence of social inclusion and child-focused data, disaggregated by sex by state institutions in their plans and budgets

  • Per cent of municipalities where local Child Rights Commissions monitor children’s situation and update local action plans





Category 2: Gender equality and/ or girls’ and women’s empowerment is not the principal objective of the intermediate result. However, it is a secondary objective expected to make a significant contribution to advancing gender equality, with corresponding indicators to measure how gender equality will be advanced.


Intermediate Results and the Rationale for their Rating

Indicators

Programme Results
IR: Strengthen acute flaccid paralysis (AFP) case detection, routine expanded programme on immunization (EPI) delivery services and National Immunization Days (NIDs) for polio

Rationale: The intermediate result relates to AFP case detection, EPI delivery services and NIDs for polio, without mention of any analysis of differences between girls and boys or any action to address gender disparities or inequalities. Thus, it is apparent that advancing gender equality is not the principal objective of this result. However, one of the indicators calls for disaggregated data on girls and boys to monitor the extent to which both girls and boys are being reached through the NIDs and services provided. Furthermore, another indicator is the development and implementation of a gender responsive communication strategy, also implying that efforts will be made to ensure that both girls and boys are being reached and there is awareness on the need for both girls and boys to receive the polio vaccine. Therefore, it can be seen that addressing a gender inequality is a secondary objective of this result.



  • National coordination committee on polio eradication

  • Surveillance system established and monthly report generated

  • 2 rounds of polio campaign (NIDs) conducted each year

  • Disaggregated data on boys/girls from surveillance and NID coverage surveys

  • Gender responsive communication strategy developed and implemented before each round

IR: Support the creation and implementation of child-friendly learning environments

Rationale: The main objective of this result is to support the creation of child friendly learning environments. An element of child friendly learning environments is that they promote gender equality and that the teaching and learning processes and curricula are gender sensitive, and therefore a secondary objective of this result can be said to be promoting gender equality. In addition, the indicators include one on ensuring that a primary Child-Friendly School (CFS) curriculum is in place, which would be a curriculum that is gender sensitive; and another looking at the percentage of students, comparing male and female students, who achieve the essential learning competencies.

  • Primary education CFS curriculum in place

  • Number of schools with adequate infrastructure Number of school development plans (SDPs) developed

  • Per cent of students (male/female) at end of primary who achieve Essential Learning Competencies (ELCs)

  • Monitoring framework developed and approved by teachers

IR: By end 2015, the health system addresses disparities and gaps in access to quality maternal, child and adolescent health and nutrition services.

Rationale: This IR addresses disparities and gaps in access to health and nutrition services of mothers, children and adolescents. Children and adolescents are referred to as a group, without mention of any gender disparities or inequalities that will be addressed. However, there is reference to maternal health services, with a corresponding indicator tracking the percentage of health facilities that apply approved standards in maternal and child health services. This addresses an area of health services that is often neglected, given that women’s health needs, particularly maternal health care, is afforded lower status in many cases due to patriarchal norms and values. Therefore, given that promoting maternal health care is part of the objective of this result (though not a principal result, as monitoring or addressing any gender gaps with regard to children and adolescents is not reflected in the result or indicators), this is rated 2.


  • Per cent of health facilities applying approved standards in maternal and child health and nutrition services and using quality assurance mechanisms, including referrals to other social services

  • Change in selected regional disparity indices in health and nutrition








Category 1: Gender equality and/ or girls’ and women’s empowerment is not an objective of this intermediate result. At least one indicator refers to gender in some way (e.g., the indicator is disaggregated by sex, measures the engagement of women, girls, boys, men, etc.), but the indicator(s) does not show how gender equality will be advanced.


Intermediate Results and the Rationale for their Rating

Indicators

Programme Results
IR: An integrated nutrition package targeting under-five children is designed and implemented in at least 5 districts by 2011

Rationale: The main objective of this IR is to address nutrition of under-five children – there is no mention made of analyzing gender gaps in nutrition and taking any targeted action to address these gaps. The indicator monitors the increase in the number of women’s groups consulted, but there is no clear indication of how their inputs will be used and how the involvement of greater numbers of women’s groups will necessarily strengthen a gender perspective in the context of the result. While involving women’s groups is a good practice, efforts should be made to ensure their inputs and views are taken into account.




  • Number of women’s groups in targeted districts that were consulted/surveyed increases from X to Y by 2011




IR: 1,600 wells cleaned, disinfected and renovated and used by April 2010

Rationale: The main objective of this intermediate result is to ensure 1,600 wells are cleaned, disinfected, renovated and used – there is no apparent objective in terms of promoting gender equality. However, the indicators measure the extent to which females have access to the cleaned wells compared with males, indicating that ensuring men and women have equal access to the wells is one of the aims of the result. From this it would seem that promoting gender equality is a secondary objective of the result. But this does not take into account the fact that women and girls are often the ones tasked with fetching water. Given that the indicator is disaggregated by sex, though not focusing on women’s and girls’ increased access to the wells, this result is rated 1.
It must be noted that this explanation is contextual, looking at this in terms of fetching water. Other contexts in which women and men access and utilize wells or in which women’s and men’s roles are different than in the example may be analyzed differently. Furthermore, this example does not address the issue of transforming gender roles – i.e., working on social change to lead to women and men sharing this role. It considers only women’s/girls’ practical needs in terms of ensuring access to the wells, given fetching water is a task they tend to carry out.

  • Per cent of females with access to cleaned wells

  • Per cent of males with access to cleaned wells








Category 0: The intermediate result is not expected to contribute to gender equality in any noticeable way. There are no indicators that are disaggregated by sex, measure the engagement of women, girls, boys, men, etc., nor do they show how gender equality will be advanced.


Intermediate Results and the Rationale for their Rating

Indicators

Programme Results
IR: By end of 2011, disparities and gaps in access to quality social services for excluded and vulnerable children and families addressed.

Rationale: While addressing disparities and gaps is mentioned in this IR, it does not specify if this includes gender disparities or gaps. Furthermore, vulnerable children and families are mentioned as groups, with no mention of addressing specific issues faced by girls and boys, women and men. The indicators also measure the per cent of socially excluded children and families with access to education and services, without disaggregating these figures and taking into account different barriers to access girls and boys or women and men may face.



  • Per cent of socially excluded children accessing quality ECD and formal education

  • Per cent of socially excluded children and families with access to health and social welfare services




IR: By the end of 2011, adolescents from 20 municipalities have access to information and quality basic services, focusing on risk prevention.

Rationale: The result and indicators relate to ensuring access of adolescents to information and basic services towards risk prevention, without consideration of addressing different barriers to access girls and boys may face in this respect. Furthermore, the indicator on social expenditure does not call for a comparison of national expenditure on issues and services related to girls’ particular needs and those related to boys’ needs to analyze if these are receiving equal attention in the national budget.

  • Number of adolescent-friendly services running in 20 municipalities

  • Number of adolescents who have access to information and tools on risk prevention

  • Per cent of the national social expenditure on issues and services related to adolescents





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