MINISTRY OF GENDER, CHILDREN AND SOCIAL DEVELOPMENT DEPARTMENT OF GENDER AND SOCIAL DEVELOPMENT

Transcription

1 MINISTRY OF GENDER, CHILDREN AND SOCIAL DEVELOPMENT DEPARTMENT OF GENDER AND SOCIAL DEVELOPMENT MONITORING AND EVALUATION FRAMEWORK FOR GENDER MAINSTREAMING MARCH, 2009

2 TABLE OF CONTENTS LIST OF ACRONYMS AND ABBREVIATIONS INTRODUCTION AND BACKGROUND Background of Gender Department The Concept of Gender Mainstreaming Basic Principles of Mainstreaming Strategies in Gender Mainstreaming Definitions of the terms monitoring and evaluation Rationale for Developing an M & E Framework Objectives of the M &E Framework Methodology Situation analysis of the current M&E Framework THE M&E FRAMEWORK FOR GENDER MAINSTREAMING Purpose and Scope of the M&E Framework Performance Questions, performance indicators and information needs mapping Performance Questions and Information needs mapping Performance Indicators Performance Indicators Matrix for Gender Mainstreaming M&E Framework Data collection, processing and Analysis Reporting Framework and dissemination Reporting Framework Communication / Dissemination of Reports Reviews / Evaluation Necessary Conditions and Capacities for M&E M&E Institutional Framework Computer equipment and skills Human Resource Implementation and coordination of the Gender Mainstreaming M&E Framework National Commission on Gender and, Department of Gender and Social Services, and Office of Gender Secretary Gender Officers in Ministries, Parastatals and Institutions of Higher Learning : Provincial Gender and Social Office, District Gender and Social Office Partners Underlying M& E Framework Assumptions...24 ANNEX 1: BIBLIOGRAPHY...26 ANNEXE 2: PROPOSED LOWER LEVEL MONITORING INDICATORS...27 ANNEX 3: TERMS OF REFERENCE...29 ANNEX 4: M & E FRAMEWORK FLOW AND DATA BANK...30 ANNEXE 5: COMMONLY USED TERMINOLOGIES...31 ANNEXE 6: PROPOSED REPORTING FORMAT...32 ANNEXE 7: LIST OF ATTENDANCE...34 ANNEXE 8: LIST OF INTERVIEWEES

3 LIST OF ACRONYMS AND ABBREVIATIONS CBO s CEDAW CPPMU DGDSO ECOSOC EAC KNBS ILO NGO M&E NCAPD NEPAD NIMES TWG UN UNDP Community Based Organizations Convention of the Elimination of All forms of Discrimination against Women Central Planning and Project Monitoring Unit District Gender and Social Officer United Nations Economic and Social Council East African Community Kenya National Bureau of Statistics International Labour Organization Non-Governmental Organization Monitoring and Evaluation National Coordination Agency for Population New Partnership for African National Monitoring and Evaluation system Technical Working Group United Nations United Nations Programme 4

4 1.0 INTRODUCTION AND BACKGROUND The United Nations Economic and Social Council (ECOSOC July 1997) defined the concept of gender mainstreaming as: " the process of assessing the implications for women and men of any planned action, including legislation, policies or programmes, in any area and at all levels. It is a strategy for making the concerns and experiences of women as well as of men an integral part of the design, implementation, monitoring and evaluation of policies and programmes in all political, economic and societal spheres, so that women and men benefit equally, and inequality is not perpetuated. The ultimate goal of mainstreaming is to achieve gender equality Gender equality was officially recognized as a global goal for economic growth and poverty reduction by the world community (in the Charter of United Nations) in It was adopted on 7 th November 1967 by the UN General Assembly of the Declaration on Convention of the Elimination of All forms of Discrimination against women (CEDAW) and entered to force as an international treaty on the 10th Anniversary in The spirit of the CEDAW is rooted in the goals of the United Nations: to reaffirm faith in fundamental human rights, in the dignity and worth of the human person, in the equal rights of men and women. This has been confirmed by subsequent international and regional treaties, conventions and agreements/instruments that promote gender equality and gender equity of which Kenya is a signatory. Kenya signed and ratified CEDAW in 1984; the BPFA in 1995; is committed to MDGs (2000) which are consistent with the 12 critical areas of concern in the BPA; the resolution of African Union Summit (September 2004) on employment creation and poverty alleviation; Convention of the Rights of Children (CRC) 1989; United Nations declaration Violence Against Women(1993); International Conference on Population and (ICPD)1994; Nairobi Forward Looking Strategies for the advancement of women (NFLS)-1985;and NEPAD-Peer review mechanisms, African Union(AU) and the East African Community(EAC) Partnership Treaty; among others. In addition, Kenya has ratified two core labor standards of the ILO: Convention No.100 on equal pay for work of equal value and Convention No.111 on Discrimination (Employment Occupation Convention 1968). The commitment of the Government of Kenya to mainstream gender in national development for equitable growth and poverty reduction is evidenced by the establishment of different national machineries with different but complementary roles. In Kenya, Gender Mainstreaming has continued to be a challenge at both national and community levels despite efforts put in place by the Government. Assessments undertaken in the past indicate that gender mainstreaming in the public, NGO and private sectors has been weak both at national and community levels. Various factors have contributed to this shortcoming key among them being lack of an effective monitoring and evaluation framework which are an integral part of the implementation programme. 1.1 Background of Gender Department The is the national machinery assigned with the responsibility of implementing Gender mainstreaming in policy formulation, planning, budgeting, monitoring and evaluation. The Ministry was curved out of the then Ministry of Gender, Sports and Social Services under the Presidential Circular No 1 of May Specifically the Ministry is to promote Gender mainstreaming in national development processes, co-ordinate and 5

5 harmonize the implementation of the National Policy on Gender and 2000 as stipulated in the National Plan of Action ( ). The Ministry comprises two departments namely Department of Gender and Social Services and the Department of Children Services. The Broad functions of the ministry include: Formulating polices in Gender, Children and Social ; Gender Mainstreaming into National ; Promotion and Coordination of volunteer services; Promotion and coordination of volunteer services as well as provision of social welfare and; Guiding community development and supervising programmes and institutions for children s care department. The draft Strategic Plan ( ) outlines the vision of the ministry as being the leader in the provision of Gender responsive, child friendly and social services leading to a society where all enjoy equal rights, opportunities and a high quality of life. In order to effectively work toward this vision the Ministry has committed itself under the Mission statement to Promote, coordinate, monitor and evaluate gender equality, women s empowerment, social development, care and protection of children and other vulnerable groups as an integral part of national development. In order to address the issue of Gender Mainstreaming, one identified key strategic issue is Gender disparities in Power, resource distribution and social economic opportunities. The strategic objective is to facilitate and accelerate gender mainstreaming in national development for gender equality and women s empowerment. The Ministry s draft strategic plan is well aligned with the Vision 2030 that provides the macro framework and has identified three gender related goals within the strategic period that need to be achieved. These goals are expected to contribute towards Gender equality and can be obtained through the process of Gender mainstreaming. The Goals are: Increasing the purchasing power for both women and men from US$1,242 and US$ 1,037 for men and women to US$ 3,000 for both women and men; Increasing the proportion of women in Parliament from 7% to 30% and implement the 30% representation in recruitment, promotion and appointment of women at all levels ; and Decrease from 50%-38% the proportion of people traveling more than 5km to the nearest social amenities. 1.2 The Concept of Gender Mainstreaming The concept of bringing gender issues into the mainstream of society was clearly established as a global strategy for promoting gender equality in the Platform for Action adopted at the United Nations Fourth World Conference on Women, held in Beijing (China) in It highlighted the necessity to ensure that gender equality is a primary goal in all areas of social and economic development. As a holistic and comprehensive strategy, gender mainstreaming also addresses the environment (corporate, office) in which policies and programmes are developed and implemented. Thus a strategy to integrate gender concerns into programming must be accompanied by a strategy to 6

6 ensure that staff and the working environment is gender-sensitive, guaranteeing equal opportunities and treatment of both men and women. Significantly, gender mainstreaming differs from a women in development (WID) approach in that it takes as its starting point not a -priori assumption about women s disadvantage, but rather a thorough and rigorous analysis of the development situation. At the same time, experience has shown that such an analysis almost invariably reveals gender-differentiated needs and priorities, as well as gender inequalities in terms of opportunities and outcomes, which gender mainstreaming then seeks to redress. Analysis will determine the level of priority and the degree of intervention that should be accorded to solving these problems. Given the above, it is clear that a gender mainstreaming approach does not necessarily make the need for specific policies, programmes or projects on gender equality obsolete. Again, the level of intervention is entirely dependent on the specific needs and priorities revealed by a gender-sensitive situation assessment. Mainstreaming includes gender-specific activities and affirmative action, whenever women or men are in a particularly disadvantageous position. Gender-specific interventions can target women exclusively, men and women together, or only men, to enable them to participate in and benefit equally from development efforts. These are necessary temporary measures designed to combat the direct and indirect consequences of past discrimination. Mainstreaming Gender is not about adding a "woman's component" or even a "gender equality component" into an existing activity. It goes beyond increasing women's participation; it means bringing the experience, knowledge, and interests of women and men to bear on the development agenda. It may entail identifying the need for changes in that agenda. It may require changes in goals, strategies, and actions so that both women and men can influence, participate in, and benefit from development processes. The goal of mainstreaming gender equality is thus the transformation of unequal social and institutional structures into equal and just structures for both men and women. In practice, gender mainstreaming means identifying gaps in gender equality. Despite good intentions and some real progress, the development community, UNDP included, is still falling short in delivering on its promises. Many of the problem areas were identified in the UN Secretary- General's Review and Appraisal of the Implementation of the Beijing Platform for Action. These areas include the development of accountability mechanisms; allocation of sufficient resources; attention to gender equality; targeting not just 'soft' areas for gender mainstreaming (such as health and education), but also supposedly 'gender-neutral' areas, such as infrastructure development and economic policies; and strong political commitment and will. 1.3 Basic Principles of Mainstreaming Responsibility for implementing the mainstreaming strategy is system-wide, and rests at the highest levels within agencies, according to Carolyn Hannan, Director of the UN Division for the Advancement of Women. Other principles include: Adequate accountability mechanisms for monitoring progress need to be established. The initial identification of issues and problems across all area(s) of activity should be such that gender differences and disparities can be diagnosed. Assumptions that issues or problems are neutral from a gender-equality perspective should never be made. 7

7 Gender analysis should always be carried out. Clear political will and allocation of adequate resources for mainstreaming, including additional financial and human resources if necessary, are important for translation of the concept into practice. Gender mainstreaming requires that efforts be made to broaden women's equitable participation at all levels of decision-making. Mainstreaming does not replace the need for targeted, women-specific policies and programmes, and positive legislation; nor does it do away with the need for gender units or focal points. 1.4 Strategies in Gender Mainstreaming One of the key reasons why gender is not mainstreamed is because the concept of gender mainstreaming is not well understood. The vast majority of actors do not know what it means to do gender mainstreaming and what the benefits are if it is done or the negative consequences if it is not. This is why the following suggested strategies are key in the process of Gender mainstreaming; i) Develop gender standards: Actors and implementers of gender mainstreaming cannot be effective if there is no clear set of information and instructions on what gender is, or how to ensure gender equality. There should be a handbook that provides guidance on how to conduct simple analysis of gender differentiated-needs, specific actions to mainstream gender equality into sectors/clusters and most importantly indicators to use for measuring progress in gender mainstreaming. ii) Creating a roster of Gender Experts: While clear standards for mainstreaming gender are needed, equally essential are competent specialists (with the support of focal points in the various institutions) on the ground that can facilitate analysis of the needs of women, men, boys and girls. For a long time and for lack of understanding gender issues have been relegated to the most junior person on the team almost always a woman with little or no training on gender issues. Timely deployment of senior experienced gender advisors to mainstream gender concerns into their work as well as finding and supporting women friendly spaces and other targeted programmes for women and girls is required. iii) Capacity Building: There needs to be a concerted effort to build knowledge and skills on gender equality and how to effectively incorporate this in the daily work. To date individual agencies, such as Community Based Organisations, NGO s and to some extent the Ministry of Gender have undertaken some gender training but this is not routine. With the gender handbook as the basis, an interactive learning package on gender is proposed. Capacity building will also be one of the main functions of the deployed gender experts who will be able to do on-the-spot gender training and demonstrate in real-time how gender mainstreaming is done. iv) Sex and Age Disaggregated data: Continued lack of analysis of sex and age disaggregated data stands in the way of understanding the true impact of the crisis on different people in the community and blurs the understanding of who is receiving assistance and if that assistance is meeting the specific needs of women, girls, boys and men in a gender responsive manner. This strategy aims to build a stronger understanding of the importance of such data for decisionmaking and provide concrete methods to ensure that sex and age disaggregated data is collected and analysed. 8

8 v) Partnership Building: In retrospect, the work to support gender mainstreaming and targeted programmes for women has relied upon too few actors. Many actors rush to provide support for children or do their work in a gender-blind fashion. Formal commitments to attend to gender differences may not be supported by accountability mechanism and simple tools for ensuring that attention is paid to gender in programme design and funding strategies is missing. By building partnerships between and among UN agencies, NGOs, governments and other actors with agreed upon goals and concrete outputs much can be achieved for the populations we are called upon to serve. 1.5 Definitions of the terms monitoring and evaluation1 Monitoring and Evaluation are terms commonly used together but differently described/defined. The two terms are distinct yet complimentary. For purposes of this framework, the terms are defined as follows; Monitoring is a continuous assessment/surveillance of project implementation in relation to targeted output. It ensures required actions are proceeding according to agreed work-plans as well as equipping management at all levels with accurate/timely data about progress and performance i.e. identifies actual or potential successes and problems as early as possible to facilitate timely adjustment to project operations.. Evaluation is an objective process of systematically determining the relevance, efficiency, effectiveness, impact and sustainability of activities in relation to objectives. It provides information needed to carry out adjustments of the objectives, implementation strategies and assumptions. It involves itself with four major issues related to the target group i.e. who or which group has benefited (or has been adversely affected), by how much compared to the situation before the activity, in what manner (directly or indirectly), and why (establishing casual relationships between activities and results to the extent possible). There are three types of evaluation i.e. on-going evaluation, terminal evaluation and ex-post evaluation. On-going evaluation is the analysis, during implementation phase of a project, of its continuing relevance, efficiency, effectiveness, effects and likely impact. A good example of on-going evaluation is mid-term review normally carried out when the project implementation is at the middle of the project life or 50% of the funded have been expended. Terminal evaluation is done six to twelve months after project completion. It is more detailed in analysis than on-going evaluation because it considers project from beginning to the end. Ex post evaluation is done several years after project completion. Its major focus is assessing whether full project benefits and impacts have been realized. Usually ex-post evaluations are done five or more years later after project completion. An M&E Framework is therefore an institutional framework for providing feedback on the effectiveness of implementation of the policies and programmes set out in the policy documents, ministries strategic plans, annual work plans and performance targets. The Framework ensures that the objectives, programmes/activities and projections are based on sound understanding of the various circumstances, parameters, and dynamics that influence the success of plans through using lessons learned from current plan implementation for future planning. 1 See Annex 5 for definition of more commonly used terminologies. 9

9 1.6 Rationale for Developing an M & E Framework The need to mainstream gender issues into national development has been recognized in many government policy pronouncements and commitments reflected by signing and ratifying various instruments, treaties and international conventions. Despite the recognition, assessments undertaken continue to confirm that gender mainstreaming in the public, NGOs and private sectors has been weak both at national and community level resulting to myriad challenges being experienced in mainstreaming gender. These challenges are not unique to developing countries but also at the UN level. Consequently, for effective gender mainstreaming, Kenya provided institutional mechanisms through the Sessional Paper No. 2 of These include Ministry of Gender, Sports, Culture and Social Services; Department of Gender and Social Services; the National Commission on Gender and, Office of the Secretary for Gender; Gender Officers in Ministries, Parastatals and Institutions of Higher Learning; District Gender and Social Officers and Government Officers at the divisional level. These Government institutions are required to work very closely with the Civil Society Organizations (CSOs), Communities and other Partners. Given the challenges being experienced in gender mainstreaming, the wide network of players and stakeholders, and the substantial resources and efforts deployed to gender mainstreaming, there is need to provide a structured process that will enable tracking of progress, ensure informed decision making in the planning and implementation of interventions, inform prudent use of resources or avoid wastage of resources and ensure that there is no duplication of efforts by any of the key stakeholders. Such a structured process will be provided through development of an M&E framework. Specifically, the M&E framework will aim at: Tracking the implementation of gender mainstreaming initiatives and establish whether the national objectives have been achieved. Providing regular, timely and reliable report on the effectiveness of government programmes on gender mainstreaming. Building a system for reporting on gender mainstreaming at both central government and lower devolved levels (mainly the district level). Providing timely and reliable feedback on gender mainstreaming to the budgetary preparation process. Assist in identifying programmatic, geographic and financial gaps in the national response to gender mainstreaming. Promoting utilization of monitoring and evaluation data in the gender mainstreaming future planning. Monitoring the success of the gender mainstreaming and documenting best practices. Generating information base for Kenya s timely reporting on its gender mainstreaming interventions. Encouraging active participation of civil society, communities and other development partners. Promoting / entrenching the culture of M&E at all levels of government and civil society in gender mainstreaming. 1.7 Objectives of the M &E Framework The overall objective of the M&E framework is to put in place a standardized functional system of tracking progress; documenting experiences, challenges, lessons learned and assessing impacts; informing decision-making in the implementation of interventions to address gender 10

10 mainstreaming; and reviewing the achievement in gender equality. The framework will also feed into the relevant national database and information systems where users can draw upon their needed information. The specific objectives of the gender mainstreaming M&E framework are: To describe the conceptual basis on which the gender mainstreaming M&E framework was developed; To identify gender mainstreaming set of indicators for monitoring national programmes and activities; To identify all data sources that are necessary to provide indicator values; To describe the information outputs and their dissemination where all key stakeholders both at national and at decentralized levels will periodically access the reports. To describe how the Ministry of Gender and its partners will manage the gender mainstreaming M&E framework, so as to ensure that the system remains fully operational, functional, and sustainable and is linked to the National Integrated Monitoring and Evaluation System (NIMES) Methodology A participatory approach to this assignment was adopted that involved working closely with the Ministry personnel. This approach is crucial to achieve a clear understanding of the assignment objectives and scope, and also benefit from the enormous knowledge and institutional memory possessed by the relevant client s staff. The approach also enhances consensus building, ownership and accountability at each stage of implementation as well as ensuring roles and responsibilities got clearly defined, tasks became clearer, and expected deliverables and communication channels were mutually agreed. The Methodology can be categorized into three main parts; (i) Initial consultation and review of relevant documents (ii) Information gathering and (iii) Analysis and Reporting. Initial consultation and review of relevant documents phase of the assignment commenced after the contract negotiations were concluded and the contract signed. Initial briefing meetings/consultations were planned with the client to get a better understanding of the assignment objectives as well as the scope. The relevant documents to be reviewed were also agreed (see annex 1). Information gathering involved use of key informant interviews where key Ministry Officers were interviewed through use of prepared questionnaire and semi-structured interviews in group meetings. A list of stakeholders interviewed / consulted is annexed to this report (see Annex 3). In addition, information was gathered through review of relevant documents. The gathered information from different sources was analyzed and reported on bearing in mind the key steps in designing an effective M&E framework; o o o o o Purpose and Scope of the M&E System Performance questions, indicators development and information needs mapping Information Gathering, Processing, analyzing and organization Reporting and Communication Institutional Framework (Necessary Conditions and Capacities) Specifically, the methodology involved the following key stages; 11

11 (i) Consultative meetings with the key staff in charge of Gender Policy, Programmes Coordination, implementation and Monitoring and Evaluation. (ii) Consultative meetings with various government line ministries and Parastatals involved in Gender mainstreaming to establish the aspects of monitoring and evaluation mechanisms in place. (iii) One day consultative meeting with other various stakeholders including Provincial Gender and Social Officers, the District Gender and Social Officers and Gender Officers from Ministries and Parastatals. (iv)desk review of relevant documents some of which are National Policy on Gender and 2000, Sessional Paper on Gender and 2005, National Plan of Action to implement the National Gender Policy , the Ministry s draft Strategic Plan, the Gender Commission draft Strategic Plan, National HIV/AIDS Monitoring and Evaluation Framework, National Coordinating Agency for Population and M&E Framework, and Monitoring & Evaluation Directorate s National Integrated Monitoring and Evaluation System (NIMES). The information gathered through the described methodology was synthesized to provide a general overview of the current M&E situation and the areas that need improvement. The key issues identified guided the development of a draft M&E framework that was then presented to a stakeholders workshop that took place on 17 th February 2009 at Kenyatta International Conference Centre. The input from the workshop was then used to refine and finalize the M&E framework. 1.9 Situation analysis of the current M&E Framework Consultations with several key stakeholders and review of relevant literature provided a clear understanding of the current situation in relation to gender mainstreaming M&E framework. This situation analysis is always very important to determine the current M&E initiatives, key actors, how M&E has worked, its known strengths, weaknesses, opportunities, and threats. Based on the situation analysis, we really cannot say there is a Gender mainstreaming M&E framework because there is nothing structured and only bits and pieces of M&E framework. For instance, the purpose and scope are not clearly defined; there is no framework for coordination and harmonization at the local, regional, and national levels; performance indicators have not been developed; data collection and analysis is not institutionalized; reporting formats are not standardized and generated reports are rarely shared with other key partners; financial resources allocated for M&E are quite negligible and lack a clearly defined budget line; M&E capacities are grossly inadequate; any M&E efforts just concentrate on recoding input and process indicators; there are very limited levels of utilization of the information generated for decision-making; and the culture of M&E is far below expectation. Despite the managerial and operational importance of M&E, very few officers have been tasked to coordinate monitoring and evaluation and capacity building programmes rarely consider limited M&E skills as a major constraint. The development of this framework is expected to address the existing monitoring and evaluation challenges and enhancing a coordinated approach to monitoring gender mainstreaming activities in the country. 12

12 2.0 THE M&E FRAMEWORK FOR GENDER MAINSTREAMING 2.1. Purpose and Scope of the M&E Framework The M&E framework for Gender Mainstreaming has three purposes that are equally weighted as agreed with all the key stakeholders. The three purposes are: i) to ensure effective operations and accountability to all stakeholders. This purpose is very important but it will be applied in a way that keeps the M&E framework lean, avoiding unnecessary or double information flows and simple enough to keep all those involved comfortable. ii) to use M&E framework for strategic guidance so that it is instrumental in helping management to improve the strategy, and to adjust it whenever necessary. The main trend of strategic improvement is to inform shifting from a more implementing role to a role in coordinating, capacity building & advocacy, so that best practices in gender mainstreaming are mainstreamed. iii) to use M&E framework for learning throughout the organisation, and with partners. In this way M&E framework will enable Ministry staff and partners to take charge of M&E outputs and use them to improve future planning of programmes. In terms of scope of the M&E framework (extent and degree of sophistication), the Stakeholders resolved to have a simple M&E framework that will cater for all stakeholders both at the National Level and the District Level. This resolution was made after careful consideration of potential funding levels, desirable or feasible participation by primary stakeholders, level of details of the quantitative and qualitative data, desirable or feasible baseline data and current M&E capacities. 2.2 Performance Questions, performance indicators and information needs mapping Performance Questions and Information needs mapping Before an M&E framework is designed, it is very important to identify key performance questions that must be answered prerequisite to passing a verdict on whether the programme has been a success or failure after implementation. The performance questions are informed by the generally agreed institutional strategic objectives and provide the justification for information needs and the development of the indicators. The agreed performance questions are founded on the key Policy documents reviewed and interviews conducted with stakeholders in relation to Gender mainstreaming. Consequent to identification of the performance indicators, information needs for each of the stakeholders were mapped to ensure the M&E Framework services the needs of all. Information needs were established on the basis of who needs the information, for what purpose is the information needed, what level of details is needed and how regularly should the information be provided. The gender mainstreaming key stakeholders information needs is presented below: The Ministry / Parastatal Management Team: The top Management requires information on results & impact of projects / programmes, organisational development, how planned activities fit into the strategic plan, how the programme contributes to Policy objectives, how strategies and experiences increase partner ownership and sustainability, and how project planning are based on 13

13 relevant information. Top management would also require information on how opportunities for learning are being created. The Gender Commissioners: play a key role in promoting gender mainstreaming goals and act as gender ambassadors. To play their role optimally, they need to know trends in key statistics on gender mainstreaming in relation to other countries, provinces and districts. Key Partners: The development partners demand information on implementation progress that is used to confirm use of availed resources for intended purposes. The information needs include, planned activities, level of implementation, challenges experienced in implementation, proposed solutions to challenges, budgeted funds, expended funds, explanation for any deviations, project results and impacts. Programme implementers: Implementers include the District Gender and Social Officers and the Gender Officers based in the Ministries, Parastatals and Institutions of Higher Learning. The Implementers information needs include, the amount of resources provided, what activities are planned, level of implementation, challenges being experienced, level of staffing, logistical support like transport, equipment and stationary, training opportunities, and scheduled review meetings. General Public: General public means general Kenyan Public including NGOs, CBOs and other professionals. This group of stakeholders need information on key gender mainstreaming statistics, Ministries achievement in mainstreaming gender, challenges faced in mainstreaming gender, Kenya performance relative to other countries, advocacy strategies in place and key players in gender mainstreaming Performance Indicators Indicators are defined as specific and objectively verifiable measures of change brought about by an activity. They provide a standard against which to measure the progress of an activity against stated target. Indicators represent a quantitative and /or qualitative statement about the situation that will exist when programme objective is achieved. Indicators are very central in an M&E framework because they facilitate in establishing whether the performance questions are being answered as programme implementation continues. Indicators are generally classified in four groups (in line Logical framework approach), input indicators, process indicators, output indicators and outcome / impact indicators. Input indicators are quantified and time bound statements of resources to be provided. They are mainly used by managers closest to the tasks of implementation and are consulted frequently e.g. officer deployed, vehicles allocated, stationary, office space, equipment and furniture. Process indicators measure what happens during implementation i.e. focuses on the process of converting inputs to outputs. For instance, training of officers, delivery of computers, creating awareness, sensitizing community members and collecting data which is gender disaggregated. Output indicators measure the immediate physical and financial outputs of a project e.g. number of officers trained on gender issues, number of sensitization workshops conducted, number of laws reviewed, number of gender focal points established and number of cultural events organized to change attitude. 14

14 Outcome / impact indicators measure medium or long term development change to project beneficiaries. Outcome is a short - to medium range (e.g., 2-5 years) change brought about by the programme while impact is change that occurs over long-term. The changes could be determined by surveying beneficiaries' perceptions about project services. Good examples include full acceptance of gender equality. Input, Process and Output indicators can be easily quantified and are referred to as direct indicators while outcome / impact are normally qualitative in nature and are not directly measurable. At times use of proxies is encouraged to measure them. Indicators for this M&E framework have been developed in a very participatory manner using standard operational definitions and focusing more on the identified performance questions that are in line with strategic objectives for gender mainstreaming. These indicators will require data for verification and data source must be indentified from the design stage. Such data sources include administrative data from ministries, data from NGOs and religious organizations and other data from surveys such as those conducted by the Kenya National Bureau of Statistics Performance Indicators Matrix for Gender Mainstreaming M&E Framework 35 core performance indicators have been developed that are linked to the Gender mainstreaming core priority areas and based on the National Policy on Gender and 2000, the National Plan of Action to implement the National Gender Policy , the Ministry of Gender, Children and Social draft Strategic Plan , Vision 2030, Medium Term Strategy and NIMES. The Framework has primarily two main types of indicators. This includes the following: Impact/outcome-level indicators to measure the long-term and intermediary results and Output indicators to measure the results of the implementation process under each key priority area. Table 1 presents the indicators, data source and frequency of data collection/reporting for each of the indicators. The Focus for now is the current Strategic Plan Period and indicators will need to be reviewed when new strategic plans are developed. 15

15 Table 1: Gender Mainstreaming M&E Indicators Key area Performance Indicator Data Source Frequency Policy for Gender Mainstreaming Implementation of gender mainstreaming initiatives 1. Percentage of citizens who are satisfied with the efforts made towards achieving MGCSD Survey, CSOs survey, Annually Gender Equality UNFPA /UNIFEM Surveys 2. Decrease in purchasing power disparity between men and women. Administrative Data, Annually Survey data (GOK, CSOs, Donors) 3. Reduce population of women below poverty line in rural and urban areas. National Survey 2 years 4. The Number of policies, laws and regulations reviewed to eliminate gender disparities / make them gender responsive. Administrative Data ( Ministries, CSOs and Donors) 5. The Number of new policies formulated and laws enacted to address gender Administrative Data ( Ministries, disparities. CSOs and Donors) 6. The number of international instruments relating to the rights of women to Administrative Data (Ministries, which Kenya is a party that are domesticated by ratification. CSOs and Donors), Attorney General 7. Number of sectoral policies, plans and programmes that are gender responsive Administrative Data (Ministries and address gender mainstreaming. and NGOs) 8. Percentage of Ministries and parastatals that have programmes and plans in line Ministries Administrative Data with the goals of National Gender Policy. 9. Percentage of women representation in public service and Political Offices i.e. Administrative Data (Ministries, strategic decision making levels. Political Parties and CSOs) 10. Proportion of Aid policies that are subjected to gender analysis Ministries data, Donors Ministry of Finance 11. Reduced percentage of women subjected to gender based rights violation. National Survey, Police stations, NGOs and CBOs 12. Proportion of Ministries collecting and disseminating sex disaggregated data. Ministries Data KNBS Surveys 13. Proportion of Ministerial plans and programmes that are engendered. Administrative Data (Ministries and Departments) 14. Proportion of Ministries that have Gender mainstreaming Activities forming Administrative data (Ministry and part of the Accounting Officers Performance Contract. Parastatals) 15. Proportion of Ministries that have human resource policies and administrative Administrative data (Ministry and procedures that are gender responsive. Parastatals) 16. Proportion of Ministries that have national and sub-national machineries to Administrative data (Ministries coordinate gender mainstreaming. and CSOs) 17. Proportion of Ministries carrying out research to inform gender sensitive Administrative data (Ministry and initiatives. Parastatals) 18. Number of positive innovative community initiatives that are addressing Administrative data (District and retrogressive practices harmful to women and girls. CSOs reports) 19. Number of behavioral change programmes developed to address gender Administrative data (Ministerial, imbalances. CSOs and District reports) Annually Annually Annually Annually Annually Quarterly Annually Annually Annually Semiannually Semiannually Annually Semiannually Quarterly quarterly quarterly 16

16 Key area Performance Indicator Data Source Frequency Capacity building for gender mainstreaming Gender mainstreaming monitoring and evaluation 20. Proportion of development programmes that have been subjected to sex disaggregated benefit incident analysis. Administrative data (Ministerial, CSOs and District reports) 21. Proportion of national budget allocated to gender equality initiatives. Administrative data (Ministry of Finance and Ministry of Gender) 22. Proportion of women with access to credit facilities. Administrative data (Ministry of gender and Lending institutions) 23. Proportion of women subjected to gender based violence with access to legal Administrative data (Ministries, aid. Judiciary, NGOs, CBOs) 24. Proportion of Ministerial budgets dedicated to advocacy campaign strategies Administrative data (Ministerial aimed at changing social attitudes and customary practices that promote gender reports) inequality. 25. Level of implementation of the 30% presidential directive on women Administrative data (Ministerial employment, appointments and promotions in the public service. reports) 26. Proportion of policy makers and high level managers in the public service Administrative data (Ministerial trained on gender analysis. CSOs and Donor reports) 27. Number of officers trained on gender responsiveness. Administrative data (Ministerial CSOs and Donor reports) 28. Proportion of Ministries who have done gender responsive / analysis training Administrative data (Ministerial needs assessment. CSOs, and Donor reports) 29. Proportion of Ministries with gender mainstreaming capacity building Administrative data (Ministerial programmes. reports) 30. Proportion of Ministries who have put in place mechanisms to ensure that Administrative data (Ministerial women get equal access to training opportunities. reports) 31. Proportion of oversight bodies members trained on evaluation of government Administrative data (Oversight programmes from a gender perspective bodies, CSOs and Donor reports) 32. Number of community committees trained on prevention of retrogressive Administrative data (Districts, traditional practices. NGOs, CBOs and Donor reports) 33. Proportion of parliamentarians and councilors trained on gender responsiveness Local Authorities, NGOs, Donors & Parliamentary reports. 34. Number of gender mainstreaming M&E forums held to share experiences. Administrative data (Ministerial, Parastatal, CSOs and Donor reports) 35. Proportion of Ministries submitting timely reports in the recommended formats. Administrative data (Ministerial and Parastatal reports) 36. Proportion of Ministries with sub M&E frameworks for gender mainstreaming. Administrative data (Ministerial and Parastatal reports) Annually Annually Quarterly quarterly Semi annually Quarterly Quarterly Quarterly quarterly quarterly quarterly quarterly quarterly quarterly Quarterly Quarterly Quarterly Note: All Indicators tracked at Ministerial level will be tracked at the District level where the word Ministry will be replaced with District. 17

17 2.3 Data collection, processing and Analysis Based on the developed performance indicators and stakeholders information needs, regular data collection is mandatory to keep the M&E framework updated. Regular data collection is generally the engine that drives effective M&E frameworks and ensures performance indicators are practical. The through their field officers and Gender Officers in the Ministries and Parastatals has decided to collect the necessary data through secondary sources, field visits, supervision missions, participatory rural appraisal, sample surveys and in-depth investigation. Information on output indicators will mostly be collected through quarterly meetings, regional coordinators meetings, regular project reports, annual reports and field visits. Information on outcome indicators will be generated through mid-term evaluations, terminal evaluation, ad-hoc evaluations and surveys. Baseline data will also be collected for all the developed performance indicators. The baseline is very important for effective M&E framework because it provides the starting point so that any progress made due to targeted interventions can be assessed. It is always impossible to prove that progress has been made unless baseline data is available. All collected data will be processed and analyzed by the. Currently, a number of challenges are being experienced in processing and analyzing data because of the low level of computerization in the districts and limited computer skills for most Officers in the Ministry as well as the other partners. The Ministry has resolved to improve the situation by budgeting for more computers and capacity building programmes. Capacity building programmes will be based on identified capacity gaps. This implies that the designed M&E framework will initially experience a mix of manual and computerized processing of data collected but as times goes, most of the data will be processed and analyzed using computers. External technical assistance on data processing and analysis might be sought when the need arises. In order to guarantee efficient repository of generated information on gender mainstreaming, the will maintain databases at the district and National level that captures the information needed for the developed gender mainstreaming indicators. The databases will also capture information for other program management purposes and reference. For details of these databases the section in-charge of M&E can be consulted. Due to low level of computerized especially at the districts, some information will be availed in hardcopies and files will be opened and stored at the Ministry Registry. Efforts should also be made to establish a networked database information sharing system to improve storage and retrieval process. 2.4 Reporting Framework and dissemination Reporting Framework The gender mainstreaming M& E framework is rendered useless unless it provides reporting and feedback mechanisms to policy making, planning, budgeting and implementation to ensure that lessons learnt are used to improve the effectiveness of the programme. Reporting is not currently properly structured where different partners are using different reporting formats, there is poor adherence to timelines, data credibility is doubtful and reporting is not generally taken seriously. To improve the current situation, standardized reporting formats have been developed and must be used by all the partners. The proposed standardized reporting format is attached to this framework (annex 18

18 6). The frequency of reporting was also agreed where the districts and gender focal points will submit three reports to the Ministry Headquarters i.e. Quarterly reports, Semi annual reports and annual reports. All the reports should be submitted to the Ministry Headquarters by 21st day of the following month after the reports are due. Details on the reports to be presented are; Quarterly Progress Report: Quarterly progress reports shall include information on key process and output indicators against set targets for the quarter. The report will capture planned outputs, performance indicators, planned activity; level of achievement, challenges in implementation, budget for each output, expenditure for the quarter, explanation for expenditure deviations and recommendations on the way forward for the next quarter. The quarterly progress report shall be used for reviewing progress and forward planning by Project Managers and Senior Ministry Officers. Semi Annual Progress Report: This report captures the same information as the quarterly progress report and is actually a cumulative report for two quarters. The semi-annual reports will be expected to contain more details in terms of implementation because of the longer implementation period. Annual Review Report: At the end of every calendar or financial year, annual progress report will be prepared that objectively highlights key achievements against set targets (both physical progress and financial status), constraining factors, lessons learned and recommendations on the way forward. The source of information for the report is from the reports listed above and the work done by other partners and special studies (if any). The annual report shall be used by the policy makers in the Ministry, implementing agencies, the relevant development partners and NGOs for review and planning processes. The Report will also inform the proposed annual review forums as well as the Monitoring and Evaluation Directorate annual reports. Some of the main uses of the annual review report will be performance assessment (very important for on-going public service performance contracting), learning through documented best and worst practices, developing necessary partnerships and alliances, and informed decision- making Communication / Dissemination of Reports Communication of results needs a professional approach to ensure that communication products are based on careful analysis of what is the targeted audience, and the purpose of the communication, and to ensure that the choice of appropriate language and effective media for the communication. Apart from communicating results by sharing regular reports or evaluation reports, there is the necessity to go over all these reports to take those experiences, good practices, lessons learned, that need to be communicated further for reflection and learning, for up-scaling, for promotion and for advocacy. Aggressive dissemination strategy will be put in place to ensure that reports are widely disseminated to influence effective programme management and policy making. Forums like Meetings, workshops, retreats, seminars and reviews will be used to share the findings and recommendations of the reports. Other channels like brochures, newsletter, news release, press conference, media appearance, public debate, mass media billboards, brochures, fliers, songs, dances, storytelling and electronic ( , Internet, websites) transmission will also be used. Using different dissemination channels is vital to enhancing organizational learning and sharing of experiences across organizations and with broader audiences. However, disseminating programme results does not ensure implementation of recommendations and use of lessons learned and active follow-up is always very necessary. The does not currently have generally agreed organizational forums for reflection, learning and sharing of experiences. To address that shortcoming, the M&E framework proposes the following forums for 19

19 reflection and learning on how implementation lead to good practices, and how to enhance good practices, and where there were challenges, or mistakes made, and how such can be addressed: Annual review Workshops: Before annual planning, a review workshop can be organized at regional or national levels to discuss the previous year s implementation strengths, challenges and lessons learned so as to inform next year planning as well as strategies. Such annual review workshops could also inform regional peer-learning workshops. Peer-learning (horizontal learning): Opportunities will be provided for peer learning where M&E information that captures best practices, implementation strengths, implementation challenges and lessons learned is shared amongst peers in gender mainstreaming. Such peer learning forums will be arranged once in a year at provincial level and the horizontal learning is to be on an equal basis where feedback on programmes should be reciprocal (there is no contest or competition). Cross-monitoring: Cross-monitoring is a particularly interesting tool that would fit in the Ministry s M&E activities. This means that two districts agree on a subject for monitoring in both the districts and agree on the key indicators and methodology. Then one team visits the other and monitors the subject, and then vice versa. This method provides deep insights in the practices of each district /province Reviews / Evaluation Evaluation of achievements / impact of the gender mainstreaming initiatives remain very crucial for the M&E framework to be effective. There will be formal mid-term evaluation for on-going programmes to assess progress towards achievement of the strategic plan s outputs and outcome and an end of term (terminal) evaluation for all completed programmes. It is important that budget provision for programme evaluations is factored into programme budget at the time of design for the gender mainstreaming M&E framework to be effective. 2.5 Necessary Conditions and Capacities for M&E To ensure smooth implementation of this gender mainstreaming M&E framework, the operating environment must be conducive in terms of; existing capacities, level of training, necessary external support, positioning of M&E within the organgram, level of computerization and resources allocated for M&E M&E Institutional Framework A functional institutional framework is vital to the gender mainstreaming M&E framework. This ensures that all M&E related functions are properly managed and responsibilities properly defined. Table 2 presents the institutional framework for the gender mainstreaming M&E framework, indicating responsibilities for each level. The institutional framework is divided into three main levels: national level (including Parastatals), provincial (regional) level and district level (implementing agencies - CBOs, line ministries, NGOs). Ideally at the national level, NIMES has been proposed as the overall M&E system of the government and all sub-m&e systems, including this one should feed into NIMES. NIMES is therefore supposed to be linked to the Gender Ministry M&E unit databank. A highly competent and 20

20 fully dedicated structure at the will provide stakeholders interested gender mainstreaming with necessary information for planning and decisionmaking. The Ministry s CPPMU will be assigned the task of designing, coordinating and supervising the implementation the M&E Plan as well as being responsible for overall data quality assurance. An M&E Technical Working Group (TWG) will also be formed with membership from Gender Commission, various implementation agencies, Gender Officers and development partners. The capacity of members for this team will have to be built. The team will be charged with the responsibility of providing technical assistance in the course of implementation of the M&E work plan, and providing training to the coordinating structures, implementing agencies and key stakeholders. Table 2: Gender Mainstreaming M&E Institutional Framework Level Unit Responsible Role Ministry of Gender, The Gender Provide overall leadership Children and Social Secretary and the Oversee the implementation of the M&E framework : Commission Provide strategic direction on the implementation of the M&E - Department of Gender Chairperson framework &Social. - Office of the Gender Secretary - National Commission on Gender & National Level CPPMU M& E Technical Working Group Gender Officers In-charge CPPMU & Gender Officers Coordinate and manage the M&E framework Develop and review related data collection and reporting tools Maintain functional databases Analyze data Produce information products and disseminate to stakeholders Supervise and ensure data and information use Sensitize on use of data/information for decision making/planning Coordinate national capacity building for M&E Develop and revise M&E Plan Ensure timely reporting and dissemination Sub National Level Provincial Gender and Social Office District Gender and Social Office District Gender & Social Officer Maintain District database Coordination and management of M&E framework Receive and compile related data from the districts Forwards data/information to HQs and gets feedback Sensitize on use of data/information for decision making/planning Supervise data collection at district level Ensures timely reporting and dissemination Computer equipment and skills The does not have adequate computers and necessary skills required for an effective M&E and more so at the district level. As a prerequisite for effective gender mainstreaming monitoring and evaluation, the Ministry needs to procure enough 21