Gender Aspects of Disaster Recovery and Reconstruction. Presentation. Session 3. Slide 1. Mainstreaming Gender for Equitable Disaster Recovery
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1 Gender Aspects of Disaster Recovery and Reconstruction Presentation Session 3 Slide 1 Mainstreaming Gender for Equitable Disaster Recovery This last presentation describes some of the tools that help in integrating gender concerns at different stages of recovery planning. It is important to remember that a precondition of incorporating gender aspects into recovery policies, planning, projects and interventions is the availability of gender disaggregated data and information. The establishment of base-line information should be a primary objective of any preparedness activity. Slide 2 In the context of our topic, gender mainstreaming is a process of assessing the implications of disaster recovery and reconstruction, including related legislation, policies and programs, on different gender groups and at all levels, from individual, through community to national level. It is a strategy for making women s as well as men s concerns an integral part of the design, implementation, monitoring and evaluation of interventions in political, social and economic spheres so that women and men benefit equally. Gender mainstreaming is a technical process with corresponding tools and methods for achieving equitable and efficient development outcomes. At the same time, it challenges existing power structures in society and as such, it could face resistance in many forms. It promotes women s participation in decision-making and supports collective action by those who are marginalized. To realize the potential of mainstreaming often requires significant and systemic change leading to social transformation. Slide 3 It is widely accepted that recovery and reconstruction activities should be led by the intention of building back better, among other reasons to reduce the risk of future disasters. As much as physical reconstruction contributes to reduced vulnerabilities, the role of social architecture in this regard is undeniable. The dramatic changes in gender needs and gender roles during disasters opens up a window for social transformation in form of changing the gender relations. Making use of a solid analytical framework makes it possible to achieve more effective outcomes as it enables us (i) to learn about the differential impact of emergencies on men and women in relation to their needs and multiple roles; (ii) to understand post disaster changes in access to and control of resources, and (iii) to identify and develop the strategic capabilities of men and women. The analysis of the situation prior to and following a disaster allows us to arrive at an analytical framework for gender-focused disaster reconstruction by evaluating different characteristics of the affected population and the gender groups within. These include their needs, activity and livelihood profiles, access and control over resources, and constraints and opportunities assessment. 1
2 Slide 4 The integration of gender concerns into recovery and reconstruction programs requires progressing through five aspects of intervention, from defining the objectives through implementation and monitoring to communication from a gender perspective. More specifically: Slide 5 1. Collecting background information should involve identifying the targeted population groups and clearly defining the primary objectives of the intervention. The following questions need to be asked: Are the needs of both women and men reflected in the goals and objectives of disaster recovery and reconstruction programs and plans? Do they seek to correct gender imbalances through addressing practical needs of men and women? 2. Well-grounded intervention needs to be based on reliable data and information. The mapping exercise identifies what information is missing and the gender analysis generates the necessary additional data. 3. The analysis of the formulation and implementation of recovery and reconstruction policies from a gender perspective includes answering the following questions: Has the independent input of each gender group been sought? Have financial inputs been gender-proofed to ensure that both men and women will benefit from the planned intervention? Will all gender groups participate in the implementation? Are they gender aware? 4. Outcomes also need to be monitored and evaluated from a gender perspective among other reasons, so that the project facilitates gender equitable improvement and does not perpetuate existing gender imbalances. To help this process, gender specific indicators for base line data, monitoring and evaluation should be identified. Appropriate sampling methods should ensure that data and information are obtained from all gender groups. 5. And last but not least, a communication strategy should be developed for informing people about the existence, progress and results of recovery projects from a gender perspective. Executing a mapping exercise situation assessment - on gender in disaster context helps to create a systematic inventory of all available information. It contributes to identifying (i) missing information; (ii) the planned and ongoing activities related the project, and (iii) the tools available and necessary for gender mainstreaming. The table given here indicates how the mapping exercise could proceed. Information on government programs, policies, NGO activities, etc. can be mapped for each sector and/or policy issue related to gender aspect of disaster recovery and reconstruction. One can map the existing sources of gender discrimination and use it for making disaster preparedness plans. Consulting mapping exercises from elsewhere, country gender assessment, and primary data from the field could all be a source of valuable information in asking the right questions in this exercise and covering all of the relevant concerns. Slide 6 A gender diagnostic tool underscores that the key in achieving gender equity is in how projects, policies and programs designed. The tool presented here is a slightly modified version of that recommended by the Pan American Health Organization (PAHO). Background information from analysis related to gender roles, gender needs and access and control of resources and information allows the formulation of the objectives of intervention and the identification of policy 2
3 approaches. The process relies on the participation of those concerned and their support of the technical analysis. Slide 7 Gender analysis is a critical tool in ensuring that gender concerns are mainstreamed into recovery and reconstruction. It is defined as a process that helps to understand the roles and relations of men and women. It frames questions about who does what, when and why. The three guiding principles of the analysis are (i) the facilitation of the participation of local people and all gender groups in the design, implementation and monitoring of recovery and reconstruction interventions; (ii) the importance of addressing the needs of disadvantaged population groups; (iii) the importance of gender roles and relations. Gender analysis needs to be conducted on three interlinked levels the macro, meso and micro levels in order to recognize gender patterns throughout the disaster cycle and to promote gender equality, hazard mitigation and vulnerability reduction. The focus at the macro level is on policies and plans, economic and social, including national development plans. The focus at the meso level is on structures such as institutions and services, which link the macro level with micro/field level, including communication, transport systems, credit institutions, markets and extension services, health and education. The importance of institutions stems from the fact that institutions are in a position to interpret national policies and develop processes for implementation. The focus on the micro level is on livelihood strategies of women and men as individuals and among households and communities as a whole. It is vital that during recovery and reconstruction the vulnerabilities of people and structures are not recreated. This would imply changing the societal wealth-risk tradeoffs. It also implies changing behavior that addresses the strategic needs of the most disadvantaged men and women, including their long-term interests related to equalizing gender based disparities. Short term practical interventions focus on practical and special needs that relate to socio-culturally accepted gender roles and the immediate survival requirements following a disaster. Lastly, the information gathering, analysis and planning activities need to be applied in three contexts. First is the development context the review of environmental, social, economic and institutional patterns that support or constrain progress. Second is livelihood the analysis of resource flows to activities that represent the source from which people make their living. Thirdly, there is the stakeholder s aspect a broad based preparation of interventions based on the priorities of those concerned. Slide 8 Creating a policy map is a complementary tool to gender analysis. In some cases, gender analysis covers the preparation of the policy map as well. The mapping exercise helps to evaluate the extent to which gender concerns are reflected in the political and economic environment and whether disaster recovery would require special provisions to put in place to ensure gender equitable outcomes. The policy map characteristics include the following: (i) Policy areas are categorized according to the administrative level responsible for endorsing or passing the relevant policy provisions. These range from the central government level to the local authority, with a separate series of responsibilities suggested for disaster management institutions. It is important to determine the locus of responsibility for each policy area in order to facilitate a timely response, and to keep the process from stalling due to ambiguities. 3
4 (ii) At each institutional level, policies are grouped into those that are disaster-specific, and those that are general policies, which mediate the impact that disasters have on those affected. As an example, requiring that houses built as part of a post-disaster reconstruction effort be registered jointly in the names of both spouses is disaster-specific policy. By contrast, legislation to acknowledge the general and equal right of women to own and inherit property is a general policy, and not specific to the disaster. Whether or not such legislation is in place when a disaster strikes, however, makes an enormous difference to the ability of those affected to recover. An additional advantage of policy mapping is the systematic identification of areas where progress has been made, and the provision of guidance for policy reform. Slide 9 The slide presents an extract from a policy map for Thailand, prepared in consultation with government officials, independent experts and various NGOs. It provides an overview of the policies in place with the potential to promote gender mainstreaming in disaster response. It also identifies policies that would be useful but are not yet in place. From the complete map, which is included among the course references, it is possible to conclude that gender mainstreaming in the Thai disaster management system has made a promising start but there is also room for improvement. Some of the reasons why the system is in its current shape were revealed in consultations conducted during the preparation of the map. Accordingly, part of the problem is due to the fact that the institutions relevant to disaster management are very new. The other practical obstacle that has hindered gender mainstreaming in Thailand was the difficulty in cultivating institutional knowledge. Civil servants are frequently reassigned, which means that the accumulated experience is not necessarily passed on to successors in the absence of specific provisions. Slide 10 Institutional analysis is a recommended component of comprehensive gender analysis. Drawing up a policy map is an important first step in this process. Further institutional analysis of a broader nature may focus on social institutions: intra-households dynamics, inter-household relations, as well as the institutional constraints and opportunities covered by the policy map and beyond. The latter aspect therefore encompasses (i) policies, laws, regulations and procedures from national agency level to community level, (ii) agency organization, responsiveness, activities, training, gender, mobility, and skills of personnel; (iii) planning and evaluation procedures, (iv) information flow and outreach activities Conducting a general institutional review helps to determine who are in charge of decisions related to disaster risk reduction, recovery and reconstruction, and what their perspective is on gender. As one aspect of this process, this figure illustrates the disaster management system in Tamil Nadu. The state disaster management hierarchy at the time of the 2004 tsunami ranged from the Chief Minister through the Revenue Minister, the State Secretary and the Revenue Secretary to the State Relief Commissioner. Following the tsunami, a Special Officer was also appointed to supervise the tsunami response, recovery and reconstruction. In India, the district level administration has been the main locus of government response to natural disasters. Each district is headed by a district collector, who coordinates much of the response and reconstruction effort. They do so subject to the provisions of district and state contingency plans and state government orders, which are formed mainly on the basis of inputs from the district collector and their administration. It can be seen that there were limited systematic institutional arrangements for incorporating gender concerns in disaster policy in Tamil Nadu. The main body influencing government policy on gender is the Social Welfare Department. During the tsunami its role was limited to coordination and the provision of information for tsunami response. Instead, the National 4
5 Commission for Women (a federal, non-state body) was instrumental in putting gender policies on the agenda of Tamil Nadu reconstruction, such as the joint titling of new houses. Other state departments, from rural development to forestry, also had gender representatives, whose function was to advise on development-related projects. Slide 11 Where gender mainstreaming is not advanced and there is little preparation ahead of crisis, the only feasible solution might be to proceed sequentially and concentrate on those basic and urgent needs that require immediate attention. Obstacles to gender mainstreaming may be particularly difficult to overcome in such situations. To this end, post disaster gender concerns could be conceived of in a hierarchy of urgency, ranging from basic survival needs to issues affecting political participation in decision-making. However, it must also be realized that the issues involved at the various levels of this hierarchy are interlinked, and that it is not advisable to proceed sequentially if this can be avoided. We can also associate the steps in this hierarchy of urgency with specific disaster phases. The most immediate priority when a disaster strikes is to improve the survival chances of a given gender group. Following the rescue phase, the priority shifts towards creating safety through access to food, shelter, healthcare and other physical needs, compensation and livelihoods. As part of rehabilitation, concerns related to psycho-social stress and trauma should be addressed. Strategies related to community and political participation and decision making contribute to the self-actualization of gender groups and to achieving full gender mainstreaming. Nevertheless, the various steps involved affect other concerns in both directions of this hierarchy. For example, equal political participation is likely to result in an improved consideration of gender concerns across the board, including basic survival issues. Addressing longer-term strategic concerns and shorter term, practical gender concerns during preparedness, relief and reconstruction are both essential aspects of formulating a gender mainstreaming strategy Slide 12 The different gender roles assigned to men and women in a particular society are associated with the differences in the needs, interests and approaches of the gender groups. From a policy and operational viewpoint a distinction can be made between practical gender needs and strategic gender concerns. Practical gender needs concern immediate issues identified in a specific context. They often concern inadequacies in living conditions such as water provision and health care, or livelihood opportunities. They relate to obstacles in the way of realizing rights and capacities that are already accepted as valid and desirable throughout society. While these needs are a consequence of the gender division of labor and other socially defined gender roles, meeting these needs does not require change in the position of women and men. In the disaster context, examples include mapping vulnerable groups during the preparedness phase in the Dominican Republic, or drawing on the help of health workers to pass on early warning in the Philippines. In the relief stage, answering practical needs has included distributing essential feminine hygiene items (sanitary napkins) in relief packages in Philippines and Thailand. In Honduras and El Salvador, community washing machines were placed in refugee camps, and temporary houses included space for food storage and cattle in Maharashtra. To promote recovery, the Turkish government procured crafts from earthquake survivors, while in Ethiopia, women s committees were organized around water management. 5
6 Slide 13 Strategic needs, by contrast, flow directly from socially structured inequalities between women and men. These needs vary according to the given social context by definition, and may include gender-based discrimination in the division of labor and household management; in factor and products markets; in legal status and rights; and in participation in decision-making at the household, community/local and national levels. Meeting these needs necessitates policies and action to remove systematic gender biases in society and in political and economic institutions. In the context of disaster management, as part of improving preparedness and early warning, examples include setting up disaster watchdog committees with women s participation in India, and involving ministries or equivalent bodies for gender and for women in the design of disaster laws. To improve aid distribution and targeting, it is recommended to involve women in needs assessment and in distributing aid, food and clothes. During reconstruction strategic, long term needs have been addressed by assigning the ownership of new houses jointly to both spouses in Gujarat, India, or training women in traditional male tasks and skills in Maharashtra, also in India. Slide 14 Though a lot is happening in the area of gender mainstreaming, prior efforts have not been fully successful. The path to gender mainstreaming in disaster recovery and reconstruction is made complex by social cleavages, cultural expectations, competing demands on policy attention and the involvement of a number of institutions at various levels and spheres. Also, much of the effort is directed towards providing for basic needs and less on meeting the strategic needs of women and men. There are limitations in the policies and practices introduced by governments, which act as hurdles in the path of mainstreaming. For example, in calculating the economic impact of disasters, loss estimations usually ignore the loss of women s productive work or the extra time spent on care and community work. As another example, disaster bills may only mention a small subset of gender issues. The main challenges for mainstreaming gender in disaster risk reduction can be derived from general obstacles: (i) a lack of interest in institutionalizing gender in pre-disaster phases, and specifically in preparedness and mitigation. Though there are some good examples, such practices have not become a norm. They are not institutionalized into the day-to-day routines of governments at national, state and sub-national levels. (ii) a weak gender infrastructure. Strengthening this would encompass gender policy, establishing integrated gender units within the organizational structure, promoting a balanced number of women among technically skilled and managerial staff, the provision of gender training and the development of gender analysis tools, etc. (iii) a lagging introduction of accountability for gender equity and equality into organizational culture. Formal institutions like trade unions, NGOs, women s organizations, community-based organizations, state bureaucracies, or corporate structures can all tend to reinforce the position of those already wielding decision making power. Slide 15 We conclude our presentation with five key messages. These messages may serve well as guiding principles toward gender-sensitive disaster management. First, gender is not only about vulnerability, it is also about capacity. Second, effective gender mainstreaming into disaster reconstruction and recovery starts before the disaster. Third, the aftermath of disaster can allow changes to be scaled up, expanded and deepened. Fourth, information, coordination and 6
7 allocation of responsibility are key instruments in effective recovery. Fifth, disaster recovery and reconstruction should be managed not only for the benefit of those affected, but also by the beneficiaries themselves. 7
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