WATER GUIDANCE NOTE A Data-Driven Framework to Address Gender Issues in Managing Flood Risks Flood Risk Management Support Project for the City of Buenos Aires, Argentina Mariano Jordan Kristoff,1 Maria Catalina Ramirez,2 Leda Pereira,3 Sabrina Couvin4 This study contributes to the broader literature demonstrating the devastating impact of floods on the poor, particularly women, making it very difficult to move out of poverty. Research on flood impacts in low-income communities in Buenos Aires found that most first responders to floods are women and it is them who assume leadership roles in high-risk situations, despite the serious gender gaps in education and economic opportunities they face. They are also affected differently and more adversely than their male peers, bearing primary responsibility for restoring their family’s housing and livelihoods after the flood, and for household chores and care duties for children and older adults. The results of this analysis can help decision makers design gender-inclusive approaches for flood risk management, promoting and empowering women as positive agents of change. Gender gap analysis is essential to prevent existing inequalities from being maintained or accentuated as a part of the recovery process. © Mariano J. Kristoff Incorporating a Gender Analysis into a and allowed for a participatory diagnostic, enabling the Flood Risk Management Project for the project’s beneficiary population to identify problems and City of Buenos Aires co-create solutions based on the challenges identified. As a coastal city, Buenos Aires is exposed to extreme weather Social and Economic Challenges in Villa No6 conditions. Floods are one of main hazards the city faces (figure 1). The main causes are intense rainfall and exceptionally The quantitative analysis revealed that social and economic high tides in the La Plata River. Increasing rainfall intensities, vulnerabilities in Villa N°6 exacerbate the existing gender combined with extremely low slopes and rapid urbanization gaps (figure 2). that have modified the natural drainage network by diminishing the capacity of soil to absorb water, pose big challenges for Moreover, gender inequalities in Villa N°6 are greater than in appropriate flood risk management in the city. the rest of the city. For instance, 7 out of 10 women older than 25 years have not completed secondary studies (Figure 3). The “Flood Risk Management Support for the City of Buenos Aires (CBA)” project,5 approved in 2016, aims Furthermore, women from this settlement are generally at strengthening the city’s capacity to efficiently manage self-employed, work in unstable occupations, and have flood risks and improve drainage systems. The project higher levels of job informality than men. They are usually introduced an innovative approach regarding gender roles domestic workers or employed in jobs in the vicinity of the and differential impacts of floods on men and women. To neighborhood (such as commerce or social organizations). supplement quantitative analyses drawing on government Women in Villa N°6 belong to the lowest-income decile in the surveys and other data, an ethnographic and qualitative city, yet are among the hardest working; their participation approach was also taken after the first analysis. As a result rate in unpaid work tasks at home is 5 percentage points of the World Bank’s encouragement, the Government of higher (93.6 percent) than the average time women spend CBA assessed the different effects of floods by gender. For in unpaid work in the city (88.1 percent), according to the this purpose, 500 interviews were conducted in two of city’s Survey on Unpaid Work and Use of Time (Instituto the city’s basins; 250 were carried out in one of the city’s Nacional de Estadísticas y Censos (INDEC), 2013), most vulnerable settlements, Villa N°6, in the Cildañez Stream Basin (CSB). Women from the settlement who FIGURE 2. Differing Social and Demographic had experienced a major 2013 flood participated in the in- Characteristics of Women and Men in Villa No6 depth interviews, which helped reveal the role they played during the event. The interviews consisted of open-ended Head of household 43% 57% and closed questions aimed at men and women over 18, Unemployment 45% 23% Employment 50% FIGURE 1. Model Output Showing Affected 73% Areas (in Blue) in the Cildañez Stream Basin 0% 10% 20% 30% 40% 50% 60% 70% 80% 90% 100% Women Men Source: General Directorate of Statistics and Census, 2017. FIGURE 3. Low Levels of Education Achieved by Women over 25 in Villa No6, Compared to the City of Buenos Aires Average 5% 25% 70% CBA 24% 48% 28% Villa Nº6 0% 20% 40% 60% 80% 100% Incomplete primary level Complete primary level and incomplete secondary Complete secondary and beyond Source: UPE Hydraulic Plan Unit of the City of Buenos Aires, 2018. Source: General Directorate of Statistics and Census, 2017. WATER GLOBAL PRACTICE | A DATA-DRIVEN FRAMEWORK TO ADDRESS GENDER ISSUES IN MANAGING FLOOD RISKS 2 Also, it is mainly women who travel outside the area daily. FIGURE 5. Activities Suspended by Men and They walk or use public transportation to carry out a Women of Villa No6 due to April 2, 2013 Flood variety of daily activities such as shopping, taking children to school, and going to the doctor. When confronted 23% Shopping 31% with extreme events, like floods, they are more exposed to 15% insecurity and physical risk due to deficiencies in the urban Errands 24% environment, such as water-logged streets. 10% Recreation 12% How Do Floods Affect Women in Villa No6? 17% Health care 23% On April 2, 2013, a flood affected 350,000 people in Buenos 70% Aires and resulted in 8 deaths. In the Cildañez Stream Basin, Study 51% 82.5 percent of the population was flooded; 64.6 percent 94% of residents had to cope with more than 1  meter of water Work 92% inside their homes (UPE Plan Hidraúlico de la Ciudad de 0% 20% 40% 60% 80% 100% Buenos Aires, 2018). Furthermore, more than 90 percent of Women Men the Basin’s inhabitants suffered material losses and/or were Source: UPE Hydraulic Plan Unit of the City of Buenos Aires, 2018. unable to continue their routines, as shown in Figure 4. The floods affected women’s and men’s daily routines differently. As seen in Figure 5, a higher percentage of What Roles Did Women in Villa N°6 Play women, compared to men, were unable to carry out activities During the Flood? outside the household, such as studying (70 percent) and The in-depth interviews built into the project helped working (94 percent). Similarly, the percentage of women identify that 85 percent of first responders were women who did not suspend their household care activities, such and that both men and women helped to protect their as shopping, running errands or taking family members to property, assets, vulnerable family members, and even health care appointments, was higher than the percentage neighbors. Yet, after the event, women remained in the of men, indicating that women continued to be responsible house and took primary responsibility for the recovery of for household-related activities during and after floods. the family’s housing and livelihood, regardless of whether they worked outside the home or not, while men returned Given the low levels of educational attainment by women, to work immediately. The interviews show that women the interruption of their studies due to floods is an assume leadership roles in high-risk situations, acting additional deterrent to the development of their capacities collectively to respond to threats directed to their families and employment potential.6 Similarly, considering that and communities. many women in Villa N°6 are employed in domestic work, absenteeism resulted in a loss of their daily income of approximately Arg$282 (General Directorate of Statistics Everything must be redone. You have and Censuses, 2017). to start over, repair many things, bear the burden. Men suffer, but in a different way. FIGURE 4. Type of Damages Suffered in Villa —Female interviewee No6 as a Result of April 2, 2013 Flood Water entered the house/business or building Qualitative information obtained through the study, 93% entrance along with prior quantitative analysis, helped to illustrate Suffered material losses (car, furniture, other) 92% women’s potential role as agents of change when You or someone in your family were unable to responding to flood-risk management challenges. These 92% go to work, study or leave the house findings suggest that addressing gender issues in climate- Had to be evacuated 6% threat scenarios can help adjust policies throughout the project implementation cycle, to provide holistic None of the above 3% solutions that reduce the gender gap while managing Source: UPE Hydraulic Plan Unit of the City of Buenos Aires, 2018. water-related risks. WATER GLOBAL PRACTICE | A DATA-DRIVEN FRAMEWORK TO ADDRESS GENDER ISSUES IN MANAGING FLOOD RISKS 3 A Framework to Empower Women in management teams, as well as contractors and supervisory Flood Risk Management crews, by building incentives in the bidding procedures, as rewarding companies that encourage the hiring and A data-driven framework that acknowledges the existing promotion of women. gender issues in the community is vital to ensure that investments respond equally to women and men’s needs Second, to assure an inclusive process, the framework before, during, and after floods. While projects traditionally highlights the importance of consolidating the links focus on addressing risks and threats to citizens’ lives among women in the community, devising a contingency and assets, a gender-sensitive framework may allow the with these key stakeholders, that helps the population be initiatives to consider women’s livelihoods in particular and prepared for such events. It incorporates steps to work with value their different social roles as well. news and other forms of media to adjust communication channels to target a diverse population, taking both men’s As stated, traditional gender inequalities worsen women’s and women’s, interest into consideration. vulnerability during natural hazards, particularly because women are primarily responsible for household chores and Third, the framework calls for taking steps before floods care duties, including the rescue or support of children occur to promote gender-inclusive outcomes. Given that and older adults. The consequences of floods remain with 85 percent of first responders are women, these steps include them even after the events have passed, as they take on supporting the First Responders Program, led by Civil more responsibilities than their male counterparts in the Defense, aimed at capacity building for emergency attention restoration of their houses and households. in slums and poor neighborhoods. The framework also calls for improving the physical condition of evacuation points The co-design of household- and community-based and providing adequate facilities considering the priorities nonstructural measures for flood risk management with of women and girls, including their safety from physical community participation, and rebuilding a positive and emotional abuse, and the need for infant and childcare. relationship with water, can promote gender equality and In addition, the framework supports the prototyping of empower women. Women’s key role in the community innovative solutions that take into account a gender-diverse ought to be recognized and emphasized to encourage beneficiary group. innovative approaches that respond to their needs and promote sustainable development. The gender-inclusive For the periods during and after the flood, the framework flood risk management framework also seeks to strengthen focuses on providing aid and assistance to the affected links among women within the community, as well as foster community, with a special focus on women’s needs. For initiatives that address the existing gender gap and recognize instance, guaranteeing temporary institutional actions that its exacerbation due to marginalization and other forms of support the care of infants can free up affected women discrimination because of age, race, ethnicity, disability, to continue their daily activities, especially working and and/or migration status. studying, and thus reduce existing inequalities. In addition, gender-sensitive indicators that monitor the efficiency of This framework is organized in three spheres: a gender- the framework to address different stakeholder’s needs can inclusive team, a gender-inclusive process, and a gender- help ensure that interventions contribute to improving inclusive outcome (see Figure 6). It incorporates policy women’s socioeconomic situation, especially in vulnerable guidelines for every stage of flood risk management: before, settlements. during, and after the event, allowing decision makers to understand and act upon the need for an integrative approach All in all, a data-driven framework, based on a g ­ender- and the importance of taking into consideration the different inclusive assessment, enables a more accurate understanding social roles that men and women play in water management. of the vulnerabilities, challenges, and opportunities faced by women and men, and allows the design of suitable actions to To develop an inclusive team, activities include the creation meet their different needs. Measures taken before, during, of a diverse design team to ensure the participation of and after a disaster to manage risk that focus on building professionals who can focus on incorporating gender- and strengthening gender-inclusive teams, processes, and based experiences identified in the diagnosis phase. The hence outcomes can act as positive reinforcements to framework also strengthens the implementation agency and narrow inequalities between women and men. WATER GLOBAL PRACTICE | A DATA-DRIVEN FRAMEWORK TO ADDRESS GENDER ISSUES IN MANAGING FLOOD RISKS 4 FIGURE 6. Proposed Actions for a Gender-Inclusive Framework for Flood Risk Management Inclusive team Inclusive process Inclusive Outcome Create a gender diverse design team Strengthen links among women in the community Support and strengthen First Responders Program Ensure the participation of professionals that focus on Promote active participation of women and girls in the incorporating the gender-based experiences identified in definition of risk maps through collaborative workshops. Informative meetings with neighbors and community the diagnosis. Encourage active participation of gender-diverse profiles leaders to activate a local preventive perspective. Training Identification, diagnosis, planning and prevention Promote the incorporation of women in the co-design of non-structural measures. on prevention, mitigation, rescue and first aid actions. professional in water management and infrastructure Improve the conditions of evaluation points. Provide project teams. adequate facilities considering the priorities of women and Elaborate a Contingency Plan girls, spaces for the professional support Before for the care of children and babies, protocols of action in Definition of a CP with a participatory vision that situations of gender violence, avoid overpopulation. encourages the appropriation of measures and actions by the community. Validation of the programs by different Prototype solutions that consider a gender-diverse stakeholders. beneficiary group Consider news and media in view of diversified audience Pay attention to the quality of participation, so that women not only have a voice but actually influence the design of Adjust communication channels to target population solutions through their opinions and contributions. Design considering the gender gap. Posters as well as public thinking is an innovative methodology that could be signage that incorporate gender-sensitive content are used for such purposes. alternatives. Develop a baseline considering existing and potential gender-issues Identify problems, needs and differential priorities of women and men. analyze gender roles and Strengthen implementing agency and management teams relationships. Ensure that benefits are distributed in a Provide aid to the affected community with special attention Works implementation and emergency attention balanced manner. that does not perpetuate existing Ensure the participation of professionals that allow the to women's needs inequalities. monitoring and compliance throughout the project cycle of Promote steps to include women as first responders and social management and the inclusion of gender issues. rescuers, particularly in vulnerable neighborhoods. Devise Implement internal training courses on gender issues linked During a gender sensitive protocol of action to deal with people or to water risk management. Promote including women in the families that resist evacuation. Provide shelter, food government teams working in water risk management. and drink to ensure adequate subsistence. Bolster gender diverse contractor’s teams Promote the participation of women professionals and workers in the water infrastructure teams by creating Provide assistance to the affected community with focus on incentives in the bidding procedures gender issues, such as school and nursery support Provide temporary institutional actions to support the Establish gender diverse supervisory teams care of children and babies that would help working Promote the participation of women professionals and women (nurseries in schools and evacuation points) workers in the water infrastructure teams by creating incentives in the bidding procedures. Recovery, monitoring and evaluvation After Monitor gender sensitive indicators to assess the impact of the implemented measures in the beneficiary population Include indicators that capture perceptions of vulnerability or resilience (how prepared individuals consider themselves to be to deal with water risks) NOTES 5. Project # P145686, IBRD Loan # 8628-AR. 6. The Directorate General of Statistics and Censuses 1. Social Expert for the Hydraulic Plan, Buenos Aires City (Gobierno de la Ciudad de Buenos Aires, Ministerio de Government. Hacienda, Dirección General de Estadísticas y Censos, 2. Senior Water and Sanitation Specialist, World Bank. 2017) found that on average women’s income in the city 3. Gender Specialist, consultant. World Bank. increases by 33.2 percent when they achieve a secondary 4. Water and Sanitation consultant, World Bank. level of education. 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