Introduction.[1]
The new national policy on women advancement and gender identifies gender mainstreaming as one of its key emphasis in attaining gender equality. The policy intends to establish and use gender focal points as a crucial entry strategy in achieving and speeding the implementation of creating and consolidating gender equality in the country. In order to apply this strategy, the policy thus holds as one of its specific objectives the establishment of women and gender focal points in all sectors in the country”[2]. These focal points are to be instituted in the central government ministries, local government council structures, and different institutions[3].
The gender focal points are expected to assist in coordinating and monitoring mechanisms, as well as ensure that all sectoral policies and programmes are gender sensitive. It is advocated by the policy, “women or gender focal points will be independent and will make follow up of gender issues and advise the sector concerned accordingly”.[4] It is obvious from the policy that the gender focal point approach has been selected as the main tool for effecting gender mainstreaming in the country in the near future However, if this is the case, it is imperative to study and review what are the advantages and disadvantages of such an approach in order to capitalise on the potency of the approach and minimize its drawback.
This paper shall present a discussion on the pro and cons of the focal point approach, by drawing experiences from various sources, both within and outside the country. The paper aims at creating a wide ground for continuing the analysis on best practices for mainstreaming gender in different environs. It is anticipated that through such a discussion, we shall facilitate improved understanding of factors that limit or impinge mainstreaming efforts from the choice on location of responsibility, or factors that one should take heed and address when choosing to apply the gender focal point method.
It is emphasized by the writer, that these views are not a definitive account of the gender focal point approach, but a view of experiences abounding and lessons to be taken on board when selecting such an approach. As we have mentioned above, since the policy on women advancement and gender has decided to peg its implementation on gender focal points, it is prudent to scrutinize what the implications might be on gender mainstreaming efforts gauging from existing experiences. But before we proceed further, it is of the essence we define what we mean by gender mainstreaming.
Gender Mainstreaming.
Generally, mainstreaming gender means, “to integrate gender concerns into every aspect of an organisation’s priorities and procedures.”[5] The aim for mainstreaming gender is normally “making gender concerns the responsibility of all in an organisation, and ensuring that they are integrated into all structures and all work”. Nevertheless, there is considerable diversity and sometimes-outright confusion on what gender mainstreaming on the ground is supposed to imply. But perhaps this is the result of a more realistic and participatory approach to the subject that everyone has the right to give their own practical and functional meaning to what gender mainstreaming is supposed to imply in practice. According to Caren Levy’s “Intitutionalisation Web”[6] there are 13 elements (or areas of concern), in gender mainstreaming, among which is the location for responsibility, or “mainstream location of responsibility” for gender issues.
Location of Responsibility for Gender Mainstreaming.
There are three types of gender mainstreaming approaches as regards location of responsibility.
First, there is the use of gender experts or specialists, or ad-hoc and task force approach. These are supposed to be used on a short-term basis or briefly while the organization is building up capacity among its staff. This approach can involve outsiders such as consultants or committees of in-house staff members. This approach is supposed to oblige organisations to develop and maintain a more visible and radical commitment to gender equality.
The main critique on this approach is its risk in making gender concerns the sole responsibility of a smaller specialist team or unit, and sometimes work on the margins of core organisational activities.
Secondly, there is the focal point approach, where selected persons in certain units or departments are given the coordinating responsibility for mainstreaming gender, this is merely a medium term solution and should be entertained as a transition towards the training of all staff members.
The main critique in this approach is its risk in structurally being weak, under-resourced, and vulnerable to changing political fortunes.
Thirdly, the ultimate approach is that on allocating the responsibility at the feet of each staff member, the mainstreaming approach. This last step requires more resources. But are a lasting and therefore a more long-term and sustainable solution. It consists of building in the capacity for gender analysis, advisory and assessment skills within all units and departments. The idea is to enable each staff member to design and implement gender related interventions, by enabling each to address gender issues in the workplace. The mainstreaming approach is an ongoing process, and does not require go-betweens.
The main critique on this approach is its risk of leading to the dilution, distortion or disappearance of gender issues altogether due to lack of consistent attention and resources, sustained commitment and male resistance.
The Gender Focal Point Approach.
A senior Ugandan government officer once said the following about focal points: “people who can be forgotten and neglected. They can only be useful if they are powerful. Most of them are too junior and overloaded with work”[7]. She therefore suggested that these should preferably be Under Secretaries or Heads of Department (because they are the ones who decide on resources), they should be listeners and counselors providing guidance, and should not be selected entirely among women. Junior focal points are not effective because they take years to break into the senior hierarchies.
The gender focal point approach could be designed in two main ways. It could either be individuals or small groups. The selected focal points are mandated to provide input on gender related programmes and projects. The functions might include appraisal and advising on gender issues in the organization. Gender focal points operate on an ongoing basis, and serve as a go-between between the management and other staff.
Moreover, they are supposed to serve as points of contact for specific groups and issues like women, children, girls, etc. They are responsible for collecting and disseminating information. As stated in the introduction, the appointment of “gender focal points” in government institutions or offices is at present among one of the government policy measures as directed in the policy on Advancement of Women and Gender. There are obviously benefits to be accrued through such a move. A few of these benefits are covered below.
Benefits of the Gender Focal Point Approach.
There are three key benefits that could be experienced with the gender focal point approach, these include:
They are mostly persons who are insiders in their respective departments or units. They posses position and responsibilities within the system, know the institutional networks, posses knowledge on the organisation, and sometimes have resources to implement gender related policies or measures. and, The use of gender focal points in any organisation, might result in slightly more empowerment of women.
It is undeniable that chances for success in gender mainstreaming improve when project objectives, output and activities are gendered. These are discussed below.
Limitations of the Gender Focal Point Approach[8].
Nonetheless, there are plentiful limitations that could be experienced with the gender focal point approach. For instance, in order to facilitate their effectiveness, gender focal points must be provided with sufficient expertise and given adequate political and logistical support from the organisation or office they serve. Presence of gender responsive activities seems to facilitate in gender awareness rising. Most of the limitations in the gender focal points approach stem from the fact that the approach was initially designed for assisting or facilitating the focus on women or gender.
However, gradually they were allocated additional functions that were way outside their capacity. This expansion of the functions and role of gender focal points inundated them with numerous operation and organizational handicaps vis-à-vis other staff. However several other limitations can be observed as regards this approach, these include:
Inadequate institutionalization of the focal point approach.
The approach is still dependent on ad hoc selection of staff for assuming such responsibility without addressing institutional requirements for designing the position and its functions into the formal institutional set-up. This therefore prevents the standardization of the approach, and isolates its occupants; Absence of senior staff/officers directly in charge of this function; and, Unavailability of resources specifically targeted at promoting or effecting gender mainstreaming.
Hierarchical and departmentalised procedures for gender mainstreaming.
Structural changes that transform the gender focal point functions from a unit to a section, and vice versa; and, Inadequate institutional linkage vertically and horizontally (e.g., more collective interventions rather than sector separated approaches).
Poor ownership over the gender mainstreaming process and activities.
Some programme staff prefer having gender mainstreaming skills on their own, rather than having to wait upon the gender specialist in the office; Other staff feeling it necessary for the gender focal point to take initiative and intervene in every situation; and, Gender focal points being too “protective” while there are other interested actors.
Insufficient commitment of senior management to gender mainstreaming.
So far, gender is not being viewed as cross cutting in the project and thus priority has been low. Some project staff seem to resist mainstreaming gender and a few even perceive mainstreaming as a triviality. Since there is no systematic follow-up nor pressure or direct obligation to project staff (especially heads of unit) to mainstream gender, this situation will not change; and, Senior management participating at management meetings where sometimes gender was on the agenda, but the gender focal point not partaking in these meetings. This is a missed opportunity for the focal point to advise and advocate for improved efforts on mainstreaming.
Inadequate integrated institutional approach on gender issues.
It is common in most organizations to have weak institutional procedures and poor accountability mechanisms as regards gender mainstreaming. T his could be in the form of absence of guidelines or their neglect, use of gender insensitive programming methods, inconsequent monitoring and evaluation of gender mainstreaming mechanisms, and weak mechanism for enforcing accountability. In addition in most institutions, gender focal points are left to deal mostly with women specific activities only; The original design of most projects does not link mainstreaming to either the Beijing Platform for Action, the organisation’s GAD policy, nor Tanzania’s areas of commitment as regards the Platform for Action; and, Inadequate resources allocated for such a task.
Insufficient clarity on their roles and functions.
It is common for focal points not having clarity in gender mainstreaming concept, and goals. They are often confused whether their mandate is to deal with women or gender issues, or as to whether their main focus should be to deal with gender mainstreaming or women specific activities; Interviews done with project management during a UNDP assessment have revealed that using gender focal points and specialist does not necessarily translate into gender responsive project activities (e.g., projects under the UNDP’s Poverty Alleviation theme topped others in use of gender specialists (61% of its projects used gender specialists), but were overall only 27% successful in mainstreaming gender); Being accepted as an individual or as a contributor to the organization; and, Acting as a clearinghouse and supporting agent for gender issues rather than a gender mainstreaming agent.
Challenges and suggested future direction to the Gender Focal Point Approach.
As we have seen above, the use of gender focal points as the main entry strategy in mainstreaming gender in an organisation, institution or agency, has its benefits and challenges. From a glance, it would seem that there are more disadvantages than otherwise. Nevertheless, it is undisputable that the focal point approach is a start, and in order to make it more effective, one has to combine it with other measures. The gender focal point approach could be revamped through the hereunder suggested improvements:
Institutionalisation of the structural location of focal points in MDAs.
Instead of a specifically designated WID/GAD Unit, the approach should later be developed into selecting or creating focal points in each department to work in collaboration with existing organistional structure to promote WID and gender issues; Creating specific and formalized institutional structures within existing organizational framework to accommodate the focal point position, role, functions and duties; Making standard Terms of Reference and Scheme of Service for focal points in order to assist them in guiding and following up on gender mainstreaming in their respective projects or programmes; and, Designating specific senior staff members to monitor mainstreaming functions in each office (a focal point network).
Targeting of senior personnel for focal point functions and responsibilities in MDAs.
Gender focal points acting as catalysts throughout the organization, instead of controlling the WID/GAD mandate and “providing” expertise to others; Utilisation of gender specialists (whether consultants or staff members) within project planning, implementation and monitoring steps (e.g., projects and programmes should engage gender specialists not only at the project formulation or situational/background analysis stages, but also their utilisation could be built into the project or programme frame); Designating specific staff members to monitor mainstreaming functions in each office (a focal point network); and, Selecting and making senior management staff responsible as focal points.
Priority interactions for gender focal points in MDAs.
Creating a critical mass of personnel interested in and working with gender mainstreaming; Promoting incremental training in gender planning and awareness among the staff; and, Development of gender specific tools as well as engendering existing operational procedures (planning procedures, and development of new methodological tools).
Networking with gender focused actors.
Gender focal point establishing and upholding contacts with organisations, institutions, or individuals working with women or gender related issues.
Bibliography.
MARCH, Candida. SMYTH, Ines. And MUKHOPADHYAY, Mitrayee,
A Guide to Gender-Analysis Frameworks.
Oxfam. 1999.
UNDP UNDP Country Office Gender Focal Points.
Terms of Reference.
ISNAR Gender Analysis for Management of Research in Agriculture and Natural Resources. A Training Module. ISNAR. 1997.
NYAKYOMA, Rachel et al., Report of Needs Assessment on Gender/Women Focal Points in Ministries and Selected Public Institutions. Preliminary Report. Ministry of Community Development, Women Affairs & Children. 19th July 2001.
[1] This Paper was written by Mr. Edward H. Mhina (a gender trainer and freelance consultant, a member of Tanzania Gender Networking Programme: email: ehmhina@hotmail.com).
[2] Women Advancement and Gender Policy. Ministry of Community Development Women Affairs & Children. 2000. Objectives.
[3] Women Advancement and Gender Policy. Ministry of Community Development Women Affairs & Children. 2000. Introduction.
[4] Ibid, C hapter 5.
[5] Candida March, Ines Smyth and Maitrayee Mukhopadhyay. A Guide to Gender Analysis Frameworks. Oxfam, 1999. pg. 10.
[6] Ibid. pg. 128.
[7] Honourable Joyce Mpanga (MP), National Chairperson of the NGO Registration Board, during an interview at the Ministry of Home/Internal Affairs, 23rd July 1997. During a Comsec Consultancy visit to Uganda
[8] Carol Miller (Independent Consultant), The Role of Gender Focal Points in Mainstreaming Gender Concerns in the ILO. Paper presented at the DPU-University of London 1st July 1999 .
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