96048   Gender  Inclusion  Strategies  in  PNPM   Sippi  Azarbaijani-­‐Moghaddam   Consultancy  conducted  for  World  Bank  Programme  support  Facility   Jakarta,  Indonesia   February  2014     Gender  Inclusion  Strategies  in  PNPM     TABLE  OF  CONTENTS   ..................................................................................................  2   List  of  Abbreviations  and  Terms   Executive  Summary  ....................................................................................................................  3   List  of  Recommendations  ...........................................................................................................  6   Introduction  ...............................................................................................................................  9   Methodology  ..............................................................................................................................  9   Gender  in  PNPM  –  An  Overview  ...............................................................................................  10   Understanding  and  Application  of  Gender  Principles  ................................................................  12   Gender  Affirmative  Actions  ..........................................................................................................  13   Recommendations:  ......................................................................................................................  13   ..............................................................................  13   Monitoring  Progress  and  Evaluating  Impact   Recommendations:  ......................................................................................................................  15   Women’s  Participation  .............................................................................................................  15   Assumptions  about  Participation  .................................................................................................  16   The  Importance  of  Invitation  for  Full  Participation  ......................................................................  20   The  Role  of  adat  in  Moderating  Women’s  Participation  .............................................................  20   Women’s  Participation  as  Ritual  ..................................................................................................  21   Recommendations:  ......................................................................................................................  22   Empowering  Women  ................................................................................................................  23   Expectations  and  Concerns  ..........................................................................................................  26   Gender  Stereotyping  ....................................................................................................................  26   Group  Formation  in  PNPM  ...........................................................................................................  28   SPP  and  Women’s  Economic  Empowerment  ...............................................................................  29   Recommendations:  ......................................................................................................................  30   Appendix  1  -­‐  Locations  Visited  ..................................................................................................  32   Appendix  2  -­‐  Interviewees  ........................................................................................................  32   Appendix  3  –  Gender  Affirmative  Actions  .................................................................................  33   Appendix  4  -­‐  Responses  to  Questionnaires  ...............................................................................  33   Appendix  5  –  Resources  ............................................................................................................  36   ...............................................................  37   Appendix  6  –  Terms  of  Reference  for  Gender  Mission   Appendix  7  –  Arnstein’s  Ladder  of  Participation   .......................................................................  39   1   Consultancy  conducted  for  World  Bank  Programme  Support  Facility   S.Azarbaijani-­‐Moghaddam,  May  14   Gender  Inclusion  Strategies  in  PNPM     List  of  Abbreviations  and  Terms   BKAD   Badan  Kerja  Sama  Antar  Desa  (Inter-­‐Village  Cooperation  Board)   Badan  Pengawas  –  Unit  Pengelola  Kegiatan  (Oversight  Body  of  the  Sub-­‐district   BPUPK   Management  Unit)   Faskab   Fasilitator  Kabupaten  (District  Facilitator)   Kader  Pemberdayaan  Masyarakat  Desa  (Village  Community  Empowerment   KPMD   Cadre)   MIS   Management  information  system   MKP   Musyawarah  Khusus  Perempuan  (Special  Meeting  for  Women  )   Program  Pemberdayaan  Perempuan  Kepala  Keluarga  (Women-­‐Headed   PEKKA   Household  Empowerment  Program)   Program  Kesejahteraan  Keluarga  (Family  Welfare  Program  (village  women’s   PKK   group)  )   Program  Nasional  Pemberdayaan  Masyarakat  (National  Program  for   PNPM   Community  Empowerment  )   PSF   PNPM  Support  Facility   PTO   Petunjuk  Teknis  Operasional  (Technical  Operational  Guidelines)   RLF   Revolving  Loan  Fund   RPJMDes   Rencana  Pembangunan  Jangka  Menengah  Desa  (Village  Medium-­‐Term   Development  Plan)   SPP   Simpan  Pinjam  Khusus  Perempuan  (Women-­‐specific  Savings  and  Loans)   TOT   Training  of  Trainers   TPK   Tim  Pelaksana  Kegiatan  (Activity  Implementation  Team)   UPK   Unit  Pengelola  Kegiatan  (Activity  Management  Unit)     adat   Local  norm  or  custom   arisan   Savings  group   kecamatan   Sub-­‐District   Ninik  mamak   Customary  leader  in  West  Sumatra     2   Consultancy  conducted  for  World  Bank  Programme  Support  Facility   S.Azarbaijani-­‐Moghaddam,  May  14   Gender  Inclusion  Strategies  in  PNPM   Executive  Summary   The   Program   Nasional   Pemberdayaan   Masyarakat   (PNPM)   or   National   Community   Empowerment   Program   is   the   world’s   largest   program   of   its   kind   with   long   term   goals   to   reduce   poverty   by   making   development   planning   more   inclusive,   accountable,   and   reflective   of   local   needs.   PNPM   currently   covers   about   70,000   rural   and   urban   communities   across   Indonesia.   PNPM   works   by   giving   communities   block   grants   to   spend   on   projects   developed   through   a   participatory,   bottom-­‐up   planning   process,   facilitated   by   social   and   technical   specialists   who   provide   advice   to   communities   without  controlling  funds.  PNPM  is  supported  by  a  multi-­‐donor  trust  fund  called  the  PNPM  Support   Facility   (PSF).   Part   of   PSF’s   role   is   to   provide   more   effective   strategic   support   to   the   government’s   objectives,  especially  by  improving  the  effectiveness  of  PNPM’s  gender  action  plan.  The  PSF  engaged   a  gender  specialist  with  expertise  in  working  in  challenging  rural  contexts  to  review  the  system  and   provide  a  short  critical  report  and  practical  recommendation  on  gender  sensitive  approaches  in  the   overall   implementation   of   PNPM   Rural.   A   PSF   operational   analyst   with   in   depth   knowledge   of   PNPM   accompanied  the  specialist  to  the  field.  The  report  below  lays  out  the  findings  and  recommendations   of  the  mission.     PNPM   Rural,   referred   to   as   PNPM   in   this   report,   attempts   to   respond   to   many   women’s   needs   by   funding   water   supply,   health   and   education   facilities,   by   increasing   the   potential   for   women   to   engage   in   economic   activities,   by   ensuring   that   women   are   active   participants   in   planning   and   decision-­‐making,   and   that   their   voices   are   heard   (World   Bank   2012).   PNPM   public   goods   in   the   form   of   infrastructure   benefit   women   and   increase   their   access   to   basic   services.   The   program   is   also   one   of   the   few   programs   reaching   isolated   areas   and   having   near-­‐blanket   coverage   across   Indonesia.   There  are  also  plans,  based  on  feedback  from  a  previous  gender  review,  to  introduce  female  village   monitoring  teams  and  women  in  procurement  committees.  An  Enhanced  Empowerment  Experiment   and   a   stronger   focus   on   good   and   inclusive   participation   are   also   planned   (ibid).   Many   reports   recognize   PNPM’s   potential   as   a   crucial   government   instrument   to   address   barriers   to   gender   equality   (Joint   Donor   &   Government   Mission   2009).   The   same   reports   often   state   that   PNPM   is   mechanistic   and   too   large   to   an   apparatus   to   focus   on   nuanced   differences   and   the   needs   of   various   groups   within   communities.   This   detracts   from   its   capability   to   deliver   quality   facilitation   and   empowerment  to  women  within  the  current  timeframes  envisaged.       There  is  substantial  unrealized  potential  in  PNPM  since  it  is  a  delivery  pipeline  reaching  almost  every   part   of   Indonesia   with   ancillary   systems   in   place.   It   is   efficient   at   delivering   outputs   and   outcomes   specified   within   the   implementation   timeline   but   there   are   difficulties   in   involving   women.   Also   impact,  in  comparison  to  stated  objectives  of  empowerment,  leaves  a  great  deal  to  be  desired.  The   intensive  facilitation  required  for  the  level  of  community  empowerment  the  program  envisages  does   not  lend  itself  to  large  scale  projects  which  tend  to  have  a  specific  focus  on  practical  objectives  and   become   mechanical   to   ease   efficient   implementation.   Many   of   the   technical   problems   faced   in   involving   women   in   the   program   can   be   solved   by   judiciously   addressing   gender   issues   described   below.   Amplifying   and   adjusting   the   impact   of   interventions   can   also   be   fixed   through   gender   responsive  intervention.       A  more  tactical  approach  to  improving  gender  impacts  of  PNPM  involves  focusing  on  strategic  issues   and   taking   advantage   of   key   ‘nodes’   or   critical   points   in   the   program   design   and   planning   cycle   rather   than   attempting   a   wholesale   gender   mainstreaming   effort.   The   areas   which   need   urgent   attention  at  this  stage  are:       a) gender  dynamics  in  the  decision-­‐making  process,     b) the  gender  division  of  labour  related  to  program  activities  where  women’s  labour  is  invisible,     c) improving   possibilities   for   women   to   build,   control   and   own   assets   (even   if   beginnings   are   modest),  and     3   Consultancy  conducted  for  World  Bank  Programme  Support  Facility   S.Azarbaijani-­‐Moghaddam,  May  14   Gender  Inclusion  Strategies  in  PNPM   d) the  introduction  of  child  care  as  the  first  in  a  series  of  measures  where  the  program  invests   in  women’s  welfare  to  improve  productivity  and  participation.       No   research   has   been   done   to   date   to   show   the   correlation   between   improved   performance   for   PNPM   on   indicators   related   to   women’s   involvement   and   the   work   of   other   organizations   with   special  focus  on  the  areas  mentioned  in  the  report  below.  Such  research  may  highlight  the  strategic   benefits  of  cooperating  with  organizations  which  are  more  responsive  and  interested  in  facilitating   social  change  on  a  smaller  scale.  They  can  work  with  PNPM  beneficiaries  to  enhance  performance.     PNPM   is   already   partially   and   informally   outsourcing   its   technical   gender   requirements   by   piggy   backing   on   existing   programs   within   program   areas.   Outsourcing   is   occurring   unintentionally   at   present  but  should  be  inserted  into  program  design  and  made  a  formal,  national  component  of  the   program  to  overcome  implementation  issues  and  to  amplify  and  adjust  outcomes  and  impact.       Gender  awareness  is  low  –  in  fact  it  was  found  that  ‘gender’  is  equated  with  women’s  participation   in  PNPM  and  the  main  ‘gender’  problem  is  seen  as  women’s  non-­‐participation.  Less  than  a  quarter  of   interviewees  in  categories  one  to  four  had  had  gender  awareness  training.  Gender  is  currently  not   mainstreamed   into   NMC-­‐run   training   for   all   facilitators   at   national   level.   PNPM   does   not   currently   have  the  in-­‐house  capacity  to  deal  with  the  gender  issues  which  would  amplify  and  strengthen  the   impact   of   its   product   delivery   and   outcomes.   Neither   does   it   contract   or   draw   such   capacity   in   in   other  ways.  Gender  affirmative  actions  have  been  accepted  as  an  integral  part  of  the  PTO  and  are   executed   in   order   to   achieve   the   targets   and   outputs   set.   The   positive   outcome   is   that   guidelines   they   are   being   adhered   to.   The   negative   outcome   is   that   they   are   being   implemented   mechanistically  with  little  or  no  understanding  which  reduces  effectiveness  and  impact.     Technically  PNPM  is  realizing  most  of  its  specific  objectives  but  as  mentioned  in  other  gender  reports   the   actual   impact   of   activities   and   processes   could   be   improved.   The   description   of   the   program’s   ‘gender’   impact   is   numerical,   based   solely   on   participation   figures   for   PNPM   processes   and   SPP   financial   records.   Social   impacts,   in   particular   those   related   to   gender   relations,   and   even   impacts   of   physical  infrastructure  on  the  daily  lives  of  men  and  women  are  not  recorded,  analysed  or  described.   Staff  must  understand  that  the  collection  of  sex-­‐disaggregated  data  on  a  narrow  range  of  indicators   is  not  the  same  as  addressing  gender  issues  although  collecting  data  on  men  and  women  on  such  a   vast  scale  provides  an  important  resource  which  can  contribute  to  gender  analysis.  A  pressure  to  tick   boxes   and   to   hit   targets   to   be   considered   a   ‘success’   will   encourage   a   ‘survival   of   the   fittest’   mentality   in   all   program   processes.   Better   indicators   can   be   developed   with   corresponding   small   changes  in  program  facilitation.       Women’s   participation   is   seen   as   problematic   by   program   staff   because   there   is   not   enough   of   it.   Gender  consultants  see  women’s  participation  as  a  difficult  issue  from  gender  because  they  believe   that  the  quality  is  low.  This  section  unpacks  some  of  the  relevant  issues.  Together  with  the  gender   equity   and   equality   principle,   the   program   has   attempted   to   squeeze   these   aspects   into   a   neat   parcel   bounded   by   forms   and   boxes   which   can   be   ticked   but   the   reality   on   the   ground   is   that   women’s   active   participation   in   community   driven   development   is   necessary   to   ensure   that   their   realities,  their  needs  and  solutions  to  their  problems  are  accurately  reflected  in  processes,  outcomes   and  impacts  together  with  those  of  men.  The  success  in  inculcating  a  strong  belief  that  women  must   participate   in   the   program   shows   the   success   of   ‘messages’   from   central   level   government.   Not   a   single  person  interviewed  at  any  level  questioned  women’s  participation  and  program  stakeholders   single-­‐mindedly  pursued  the  goals  related  to  women’s  participation  because  it  was  understood  that   they  were  a  non-­‐negotiable  part  of  program  requirements.       There   are   a   number   of   assumptions   about   women’s   participation   in   the   design   of   PNPM   which   have   not   been   adequately   addressed   and   continue   to   plague   implementers   and   diminish   the   positive   impact  of  the  program.  These  are  as  follows:     4   Consultancy  conducted  for  World  Bank  Programme  Support  Facility   S.Azarbaijani-­‐Moghaddam,  May  14   Gender  Inclusion  Strategies  in  PNPM   • Assumption  1:  Women  are  willing  and  able  to  participate   • Assumption  2:  Women  derive  benefits  from  participating  in  PNPM   • Assumption  3:  Women  have  time  and  control  how  they  use  it   • Assumption  4:  The  family  will  provide  childcare.   • Assumption  5:  Women  will  automatically  be  involved  in  the  decision-­‐making  process  once   they  attend  meetings     Failure  to  acknowledge,  understand  and  deal  with  these  assumptions  leads  to  smaller  numbers  of   women  facing  low  quality  participation.   PNPM   staff   are   deliberately   avoiding   interacting   analytically   with   indigenous   traditions   and   leave   existing  'social  harmony'  undisturbed,  even  where  social  systems  clearly  discriminate  against  women   and   place   them   in   a   vulnerable   position.   Staff   tendencies   to   shy   away   from   adat   dynamics   which   may   discriminate   against   women   and   reinforce   patriarchal   norms   ensures   that   community   leaders   help   them   reach   program   goals   and   targets   and   allows   them   to   avoid   conflict   but   it   represents   a   conflict  of  interests.  Men  and  women  relating  to  each  other  based  on  a  strict  demarcation  of  gender   roles   generally   feel   constrained   to   cultural   scripts   and   expectations   which   create   a   number   of   delineated   spaces   considered   as   belonging   predominantly   to   one   sex,   with   some   spaces   shared   by   both.   Some   individuals   and   groups   have   the   resources,   skills   and   knowledge   to   manipulate   underpinning   sociocultural   systems   through   private   negotiation   in   order   to   orchestrate   a   desired   public  sanction  for  their  activities.       Funds,  capacity  and  time  are  necessary  resources  which  empower  individuals  and  groups  to  follow   all  the  stages  of  a  program’s  cycle  to  achieve  the  desired  results.  It  is  necessary  to  take  a  good  hard   look  at  some  of  the  factors  which  would  form  the  foundation  of  the  process  which  include:       a) women’s  control  of  their  time,     b) the  value  and  visibility  of  their  skills,  labour  or  contributions,     c) asset  ownership  and  finally,     d) bargaining  power.     At   present   PNPM   rarely   changes   existing   gender   roles   and   relations.   It   tends   to   reinforce   existing   ones  and  in  some  cases,  even  cause  deterioration.  Women  can  have  ownership  of  their  time  when   they   realize   that   it   has   value   and   when   they   feel   they   have   choices   in   how   to   use   it   to   their   own   advantage.  Women  join  men  in  discounting  the  value  of  the  work  they  do  in  the  home  and  in  the   village.   For   them   work   involves   a   formal   job   in   an   office   or   similar   context   but   most   women   have   transferable  skills  from  their  tasks  in  the  domestic  and  community  context  which  should  be  noted,   listed   and   used.   An   important   part   of   improving   social   accountability   which   is   mentioned   in   the   World   Bank   Project   Appraisal   document   is   empowering   women   to   be   able   to   ask   for   payment   for   their  time  and  skills.  PNPM,  however,  seems  to  use  women’s  labour  in  many  ways  while  reinforcing   notions  that  it  should  be  available  at  high  quality  and  quantity  for  nothing.  Highlighting  women  as   social  capital  and  women’s  capacity  as  a  community  asset  can  be  one  of  many  positive  steps  towards   changing  such  attitudes.       Finally,   women’s   interest   in   increasing   their   income   probably   draws   them   in   numbers   to   attend   PNPM   activities   in   the   hope   of   accessing   SPP,   the   savings   and   loans   component   of   PNPM   Rural   assumed  to  assist  in  livelihood  and  job  creation.  It  has  been  noted  elsewhere  that  implementation  of   SPP   needs   improvement   (Joint   Donor   &   Government   Mission   2009;   Akatiga   2010)   and   apparently   modifications  are  in  the  pipeline.  PNPM  can  report  very  little  in  terms  of  social  cohesion  or  change   especially   when   it   comes   to   gender   relations.   Since   women   are   not   traditionally   influential   figures   with  power  and  a  space  delineated  by   adat  practices  their  best  course  of  action  is  to  try  and  build   groups  and  to  influence  processes  by  building  up  critical  mass  and  creating  new  spaces.     5   Consultancy  conducted  for  World  Bank  Programme  Support  Facility   S.Azarbaijani-­‐Moghaddam,  May  14   Gender  Inclusion  Strategies  in  PNPM   List  of  Recommendations   Understanding  and  Application  of  Gender  Principles   1. As   mentioned   in   previous   reports,   there   is   patently   a   need   for   a   well-­‐articulated   gender   strategy   with   clear   performance   indicators,   qualitative   as   well   as   quantitative,   included   in   the   management   information   system   (MIS)   and   reporting   systems   (McGlynn   Scanlon   et   al   2012;   Joint   Donor  and  Government  Mission  2009).  The  program’s  definition  of  gender  and  its  gender  strategy   need   to   be   articulated   and   communicated   more   clearly   to   field   staff   and   those   training   and   supporting  them.   2. It  is  stressed  once  again,  as  done  in  previous  gender  assessments,  that  PNPM  should  actively   take  advantage  of  the  availability  of  locally  available  and  external  gender  technical  resources.  Policy   and  planning  should  focus  on  this  and  specific  staff  members  in  the  human  resource  sector  should   be  given  the  responsibility,  with  oversight  from  PSF  and  NMC  gender  expertise,  to  decide  when  and   where  such  cooperation  can  most  usefully  take  place.   3. It   is   highly   recommended   that   gender   elements   are   mainstreamed   into   the   national   training   for  PNPM  facilitators  and  that  gender  is  mainstreamed  into  the  TOTs  provided  longitudinally  within   the   program   structure.   The   gender   component   should   be   approached   from   a   practical   approach   but   not  be  honed  down  to  a  myopic  focus  on  tokenistic  program  participation  from  women.  A  strategic   approach  should  also  be  encouraged  where  possible.   4. In   spite   of   the   success   in   inculcating   a   sense   of   importance   surrounding   women’s   participation  quotas  in  PNPM  it  is  necessary  to  caveat  this  in  trainings,  helping  staff  understand  the   basics  of  gender  and  working  more  on  short  messages  and  explanations  mainstreamed  into  existing   training  which  help  staff  understand  why  women  need  to  participate.     5. Another   important   attitude   shift   which   may   need   to   occur   in   PNPM   from   national   level   down  is  to  realize  that  the  program  is  not  only  about  hitting  targets  but  achieving  specific  impacts   and  promoting  change.       Monitoring  Progress  and  Evaluating  Impact   1. MIS   and   staff   should   produce   more   detailed   sex-­‐disaggregated   data   on   the   impact   of   infrastructure  projects.  This  would  help  them  see  how  much  physical  outputs  are  serving  different   groups   in   the   community.   An   example   might   be   the   reduction   in   transport   costs   and   time   taken   when  a  road  is  built.  The  road  may  go  to  places  men  want  to  reach  but  not  women  (e.g.  a  clinic).  The   road  might  also  reduce  transport  costs  for  school  children  meaning  the  women’s  incomes  are  freed   up  for  other  family  expenses.  Such  beneficial  changes  should  be  captured  by  MIS  and  described  both   by  quantitative  and  qualitative  measurements.   2. MIS   and   staff   should   also   capture   how   many   sub-­‐projects   are   proposed   by   women   or   are   recommended  by  women  or  men  to  address  women’s  needs  directly.   3. It   is   recommended   that   women   are   familiarized   with   the   notion   of   expecting   reasonable   outcomes   from   their   presence   in   meetings   (information,   getting   their   points   across,   making   contacts,   networking,   outcomes,   supporting   a   representative,   etc.).   An   indicator   which   can   be   helpful   if   such   facilitation   takes   place   is   how   often   women   get   what   they   want   from   a   meeting   or   activity  they  attend.  This  is  a  good  step  towards  encouraging  women  to  demand  accountability  from   programs   and   processes   which   require   their   participation   and   contributions   while   developing   a   quality  of  participation  indicator.   4. A   useful   indicator   for   participation   which   can   be   added   is   how   far   women’s   proposals   get   before  they  are  rejected.  Once  program  designers  see  at  which  points  the  obstacles  exist,  they  can   analyse  the  gender  dynamics  and  come  up  with  practical  solutions  for  overcoming  impediments.   5. Program   planners   should   develop   some   success   indicators   based   on   positive   impacts   for   beneficiaries.  ‘Success’  should  not  only  be  defined  as  executing  PTO  rules  effectively.     6   Consultancy  conducted  for  World  Bank  Programme  Support  Facility   S.Azarbaijani-­‐Moghaddam,  May  14   Gender  Inclusion  Strategies  in  PNPM   Women’s  Participation   1. Planners  must  think  of  ways  to  help  women  describe  and  overcome  structural  barriers  they   perceive   in   entering   meetings   and   processes   within   the   hierarchy   of   men   and   women   in   a   given   community.     2. PSF   should   explore   ways   which   can   help   PNPM   designers,   staff   and   beneficiaries   explore   ways  to  change  the  cultural  scripts  and  dialogues  women  feel  constrained  to  repeat  when  inserted   into   ‘men’s   spaces’.   With   awareness   of   such   dynamics   and   potential   confusion,   program   designers   can  expose  men  and  women  to  possibilities  for  new  scripts  and  ways  of  relating  to  one  another.  This   may  involve  working  with  NMC  to  mainstream  gender  in  an  accessible  way.   3. At   least   one   module   in   trainings   should   cover   the   assumptions   related   to   women’s   participation  mentioned  above.   4. Messages   on   women’s   participation   have   worked   well.   The   key   is   obviously   to   craft   more   simple  messages  which  take  staff  along  a  continuum  which  develops  their  understanding  of  gender   and   participation.   Messages   should   define   the   change   which   is   being   sought.   This   can   be   done   through   various   media   such   as   SMS   alerts   repeating   the   goals   and   providing   tips   or   inspiring   messages.   5. PNPM  staff  should  not  turn  a  blind  eye  to  local  leaders  using  pressure  to  coerce  women  to   participate  in  activities.   6. Staff   must   show   more   sensitivity   constraints   faced   by   local   women   and   resulting   from   factors  such  as  time  management,  family  and  so  on.   7. Planners,   staff   and   male   leaders   must   understand   women’s   use   of   time   as   a   valuable,   multi-­‐ faceted  resource  and  the  extent  to  which  they  can  control  how  their  time  is  spent.  PNPM  should   not   be   putting   additional   burdens   on   women’s   time.   Cost-­‐benefit   calculations   of   how   much   earning   opportunity  or  time  on  household  tasks  may  be  lost  in  attending  meetings  may  be  useful.     8. It  is  recommended  that  assumptions  around  childcare  provision  are  explored  as  its  provision   may  allow  more  women  to  participate  in  activities  farther  afield  from  their  home  base,  impact  the   quality  of  and  time  available  for  participation.     9. A   typology   of   meetings   as   perceived   by   men   and   women   is   required.   This   must   include   descriptions  from  men  and  women  of  the  various  activities  and  attitudes  permissible  for  women  in   different  milieus.   10. A   strategic   decision   needs   to   be   made   on   the   negative   impact   of   some   adat   rules   and   practices.   PNPM   staff   ignoring   these   should   not   be   an   option.   PNPM   staff   can   be   shown   ways   of   not   supporting   and   reinforcing   discrimination.   Strategic   cooperation   with   other   organizations   should   also   involve   soliciting   their   intervention   when   PNPM   is   in   danger   of   overlapping   with   adat   principles   to   create   discrimination.   Contingencies   for   potential   conflict   should   be   put   in   place.   These   can   be   incorporated  into  the  social  safeguard  modules,  materials  and  trainings.   11. It   would   be   extremely   useful   to   facilitate   meetings   to   exchange   cultural   norms   as   well   as   good   practice   where   it   does   exist   and   to   organize   exchange   visits   for   groups   to   see   areas   where   sociocultural  factors  impact  gender  relations  in  a  dramatically  different  way.  An  example  would  be   an  exchange  between  Sumba,  where  women  are  not  permitted  to  own  assets,  and  West  Sumatera,   where  the  matrilineal  tradition  allows  women  to  own  and  inherit  property.  Such  visits  would  have  to   be  structured  and  heavily  facilitated  to  have  a  constructive  impact.   12. PNPM   does   not   have   the   resources   to   facilitate   the   development   of   negotiation   skills   in   women  but  it  should  cooperate  with  organizations  that  do  in  order  to  achieve  its  stated  impact  of   empowerment.   13. To   avoid   ritual   and   wastage,   it   is   important   to   include   impact   as   well   as   process   indicators   in   the   MIS.   This   requires   a   contextualized   participatory   gender   analysis   which   involves   generating   indicators  for  desired  impacts  for  factors  which  can  be  addressed  by  the  program  intervention.   14. The  selection,  training  and  ongoing  support  to  village  cadres  should  reflect  their  important   role  and  include  a  strong  gender  mainstreaming  process  at  a  level  appropriate  to  their  functions  and   needs.     7   Consultancy  conducted  for  World  Bank  Programme  Support  Facility   S.Azarbaijani-­‐Moghaddam,  May  14   Gender  Inclusion  Strategies  in  PNPM   Empowering  Women   Many  of  the  recommendations  below  should  be  forwarded  to  NMC  and  their  SPP/RLF  specialist  to   develop   more   comprehensive   trainings   for   SPP   groups.   The   issues   considered   should   be   included   when   developing   training,   capacity   building   and   support   for   SPP.   They   should   also   be   considered   when  developing  additional  indicators  for  SPP/RLF.     1. Women   need   to   learn   to   transfer   their   well-­‐honed   bargaining   skills   to   other   fora   and   situations   to   overcome   structural   barriers   to   their   participation   at   community   level.   Determining   outcomes   which   can   be   negotiated   by   women   form   strategic   entry   points   where   insertion   of   technical  gender  expertise  on  appropriate  issues  can  have  profound  impacts.   2. The   consultant   proposes   experimenting   with   facilitating   ‘shame   free’   zones   as   part   of   women’s  meetings  when  women  can  communicate  issues  which  they  would  normally  find  taboo  by   sharing   them   anonymously.   Women   should   be   encouraged   to   decide   what   they   would   do   if   they   were   unencumbered   by   shame.   How   would   their   behavior   change?   What   activities   would   they   undertake?   The   group   can   then   decide   which   of   these   ‘shameful’   activities   is   actually   feasible   and   would  be  supported  by  the  group.   3. It  is  important  to  ascertain  how  much  women  are  being  pressured  to  shoulder  the  burden  of   all   tasks   which   require   ‘diligence’   while   men   lead.   It   is   also   important   to   ensure   that   women   are   not   being  ‘invited’  into  the  program  to  be  given  instructions  to  do  tasks  which  men  find  below  them  or   tedious.   4. Program   staff   and   communities   should   be   made   aware   that   accepting   women’s   proposals   for  preschool  and  other  childcare  facilities  frees  up  women’s  time  to  pursue  other  activities  whether   it  is  developing  their  businesses  or  attending  more  PNPM  or  SPP  meetings.   5. There   is   a   move   to   involve   women   in   the   procurement   committee.   The   program   can   also   give  women  entrepreneurs  a  boost  by  ensuring  that  small  and  medium  scale  enterprises  headed  by   women  are  given  priority  during  procurement  where  feasible,  especially  those  linked  to  SPP.   6. Communities   should   be   encouraged   to   acknowledge   and   celebrate   specific   achievements   and  contributions  to  community  life  made  by  women.  Achievements  could  be  anything  from  running   small   businesses   to   the   number   of   high   school   graduates   who   enter   university,   the   number   of   professional   women   a   community   possesses   and   so   on.   Contributions   can   be   cleaning   up   and   the   provision  of  snacks  and  food  for  every  visiting  dignitary  or  for  religious  ceremonies.  This  can  be  done   through  formal  thanks  or  any  other  public  gesture  of  acknowledgement.  Celebrations  can  be  actual   events,  tagged  on  to  other  events,  prize  giving  ceremonies,  placed  on  websites  or  communicated  in   ways   selected   by   the   community.   The   important   factor   is   that   men   and   women   see   women’s   contribution  and  learn  to  value  it1.   7. PNPM  must  ensure  that  it  is  not  contributing  to  processes  which  devalue  and  disregard  the   value   of   women’s   time,   skills   and   contribution.   Strategies   must   be   found   to   encourage   men   and   women   need   to   begin   valuing   women’s   time.   Similarly   strategies   are   required   to   make   women’s   work   visible   and   to   allot   value   to   their   skills   and   labour.   Women   should   be   empowered   to   ask   for   reasonable  recompense  for  their  time  and  skills.   8. Programs  that  seek  to  empower  women  should  be  looking  at  conditions  leading  to  change  in   gendered  access  and  control  of  assets.  They  should  also  be  looking  at  asset  creation  and  ownership.   9. Part   of   the   facilitation   processes   for   PNPM   must   include   encouraging   women   to   develop   expectations  for  positive  change  as  a  result  of  their  activities  and  for  outcomes  which  they  define.   Where  women’s  strategic  gender  concerns  are  affecting  their  participation  PNPM  should  outsource   external  expertise  and  collaborate  with  organisations  which  can  assist.   10. PNPM   staff   must   be   assisted   to   identify   where   they   are   reinforcing   negative   gender   stereotypes  and  take  steps  to  counter  this.                                                                                                                             1  This  practice  was  recommended  by  the  consultant  to  a  program  building  women’s  business  skills  in   Afghanistan.  Anecdotal  evidence  has  shown  that  it  is  having  a  profound  impact.  The  consultant  will  be  doing   follow  up  work  on  this  in  Afghanistan  in  May  2012.   8   Consultancy  conducted  for  World  Bank  Programme  Support  Facility   S.Azarbaijani-­‐Moghaddam,  May  14   Gender  Inclusion  Strategies  in  PNPM   Introduction   The   Program   Nasional   Pemberdayaan   Masyarakat   (PNPM)   or   National   Community   Empowerment   Program   is   the   world’s   largest   program   of   its   kind   with   long   term   goals   to   reduce   poverty   by   making   development   planning   more   inclusive,   accountable,   and   reflective   of   local   needs.   PNPM   currently   covers   about   70,000   rural   and   urban   communities   across   Indonesia.   PNPM   works   by   giving   communities   block   grants   to   spend   on   projects   developed   through   a   participatory,   bottom-­‐up   planning   process,   facilitated   by   social   and   technical   specialists   who   provide   advice   to   communities   without  controlling  funds.  PNPM  is  supported  by  a  multi-­‐donor  trust  fund  called  the  PNPM  Support   Facility   (PSF).   Part   of   PSF’s   role   is   to   provide   more   effective   strategic   support   to   the   government’s   objectives,  especially  by  improving  the  effectiveness  of  PNPM’s  gender  action  plan.     Increasing  women’s  voice  in  community  planning  and  decision-­‐making  has  been  an  explicit  goal  of   PNPM  since  its  founding,  and  since  2007  PNPM  Rural  has  had  an  overarching  gender  action  plan  to   guide  actions  to  involve  women  in  all  procedures.  A  maximum  of  25  per  cent  of  all  PNPM  funds  are   reserved  to  support  proposals  from  village  women’s  groups  for  RLF  groups  referred  to  in  this  report   as  SPP.  Women  play  increasingly  central  roles  in  PNPM’s  kecamatan  and  village  administration.       The  PSF  engaged  a  gender  specialist  with  expertise  in  working  in  challenging  rural  contexts  to  review   the   system   and   provide   a   short   critical   report   and   practical   recommendation   on   gender   sensitive   approaches   in   the   overall   implementation   of   PNPM   Rural.   A   PSF   operational   analyst   with   in   depth   knowledge  of  PNPM  accompanied  the  specialist  to  the  field.  Objectives  and  outputs  are  laid  out  in   full  in  described  in  Appendix  6.  The  report  below  lays  out  the  findings  and  recommendations  of  the   mission.   Methodology   The   team   adopted   the   gender   mainstreaming   values   of   the   2012   Women’s   Participation   study   (McGlynn  Scanlon  et  al.  2012),  namely  that  “addressing  gender  inequalities  is  a  development  aim  in   of  itself,  without  which  economic  and  other  benefits  are  not  maximized;  second,  women’s  as  well  as   men’s  roles,  viewpoints,  and  needs  need  to  be  actively  considered  in  programmatic  and  institutional   design   and   actions.”   With   the   caveat   that   there   was   no   time   for   an   in-­‐depth   study,   the   same   study’s   definition   of   quality   participation   was   also   adopted.   This   states   that:   “women’s   voices   contribute   meaningfully  to  project  and  program  decisions,  whether  or  not  directly  engaged;  women  are  actively   involved   in   every   stage   of   project   planning   and   implementation,   and   in   every   level   of   program   management;  a  cross  section  of  women  are  heard  and  involved,  not  just  elite  women”.     Before   going   to   the   field,   the   team   conducted   a   desk   review   on   several   existing   studies,   project   documents,  guidelines  and  manuals  (see  Appendix  5)  as  a  baseline  for  their  work.  The  fieldwork  was   carried  out  over  16  days  in  13  villages  across  NTT,  South  Sulawesi  and  West  Sumatera  (see  Appendix   1).  The  short  timeframe  and  small  team  meant  that  this  was  not  a  rigorous  analytical  endeavor.  For   practical  reasons  and  to  save  time,  all  villages  except  one  visited  were  close  to  main  roads.     This  was  an  in-­‐depth  qualitative  study  with  a  small  sample  size  (149  interviewees)  in  the  field,  38%  of   whom  were  men  and  62%  women.  Participants  can  be  split  into  five  broad  categories.       Category  1:  PNPM  office  staff,  provincial  consultants,   39   district   facilitators,   UPK.   Local   government   (not   PNPM)   Category  2:  PNPM  facilitators   17   Category  3:  Local  councils   26   Category  4:  PNPM  village  cadres   13   Category  5:  PNPM  female  beneficiaries   54     9   Consultancy  conducted  for  World  Bank  Programme  Support  Facility   S.Azarbaijani-­‐Moghaddam,  May  14   Gender  Inclusion  Strategies  in  PNPM   In   the   field   interviewees,   mostly   women,   were   engaged   in   small   focus   groups.   Selection   of   female   interviewees  was  left  to  PNPM  field  staff  in  locations  visited.  They  were  under  the  impression  that   the   team   was   checking   SPP   performance   so   all   women   encountered   were   loan   recipients   apart   from   a   small   group   encountered   in   a   remote   village.   There   were   also   a   number   of   key   informant   interviews  with  program  staff,  government  and  consultants  at  provincial  and  district  level,  singly  or   in   small   groups.   In   addition   to   the   interviews   in   the   field,   the   team   met   with   some   National   Management  Consultant  (NMC)  members  (team  leader,  ‘gender’  or  women’s  participation  specialist,   training  specialist  and  local  institution  specialist).     The  team  had  a  checklist  for  semi-­‐structured  interviews.  In  addition  the  primary  field  instrument  was   a   short   questionnaire   as   part   of   a   ‘quick   and   dirty’   survey   using   proxy   indicators   to   examine   interviewee’s   level   of   gender   awareness,   gender   sensitivity   in   the   program   and   gender   analysis   of   the   context.   Different   questionnaires   were   provided   for   the   five   categories   mentioned   above.   The   field  instrument  was  altered  in  the  duration  of  the  field  trip  in  response  to  issues  encountered  which   required  further  probing  and  clarification.  In  spite  of  the  limitations  of  the  crude  instrument  some   interesting  insights,  observations  and  discussions  resulted.     Since  the  instrument  was  crude  and  created  for  rapid  usage  ‘gender’  and  ‘women’  ended  up  being   used   interchangeably.   Where   categories   of   interviewees   were   expected   to   have   a   definition   of   what   gender  means  the  word  ‘gender’  was  used.  It  rapidly  became  clear  that  most  conflated  ‘gender’  with   ‘women’.   It   was   assumed   that   some   categories   had   not   received   gender   awareness   so   the   word   ‘women’   was   used   rather   than   ‘gender’.   This   is   reflected   in   the   report   where   survey   results   mention   ‘gender  or  women’.     Gender  in  PNPM  –  An  Overview   PNPM   Rural,   referred   to   as   PNPM   in   this   report,   attempts   to   respond   to   many   women’s   needs   by   funding   water   supply,   health   and   education   facilities,   by   increasing   the   potential   for   women   to   engage   in   economic   activities,   by   ensuring   that   women   are   active   participants   in   planning   and   decision-­‐making,   and   that   their   voices   are   heard   (World   Bank   2012).   PNPM   public   goods   in   the   form   of   infrastructure   benefit   women   and   increase   their   access   to   basic   services.   The   program   is   also   one   of   the   few   programs   reaching   isolated   areas   and   having   near-­‐blanket   coverage   across   Indonesia.   There  are  also  plans,  based  on  feedback  from  a  previous  gender  review,  to  introduce  female  village   monitoring  teams  and  women  in  procurement  committees.  An  Enhanced  Empowerment  Experiment   and  a  stronger  focus  on  good  and  inclusive  participation  are  also  planned  (ibid).     Many   reports   recognize   PNPM’s   potential   as   a   crucial   government   instrument   to   address   barriers   to   gender   equality   (Joint   Donor   &   Government   Mission   2009)   The   program   has   specific   targets   for   participation   from   female   beneficiaries,   set   numbers   of   proposals   which   must   come   from   women,   organized   special   meetings   for   women   to   discuss   their   proposals   (MKP)   and   loans   which   are   technically   only   available   to   women   (SPP)   (Akatiga   2010)   The   same   reports   often   state   that   PNPM   is   mechanistic   and   too   large   to   an   apparatus   to   focus   on   nuanced   differences   and   the   needs   of   various   groups   within   communities.   This   detracts   from   its   capability   to   deliver   quality   facilitation   and   empowerment  to  women  within  the  current  timeframes  envisaged.       Why   should   women   be   interested   in   what   PNPM   has   to   offer?   If   women   were   to   conduct   a   cost-­‐ benefit   analysis,   is   the   investment   of   time   and   effort   worth   the   tangible   benefits   they   receive?   Before  starting  an  in  depth  discussion  of  findings  and  implications  which  answer  such  questions,  it   must   be   noted   that   there   is   substantial   unrealized   potential   in   PNPM   since   it   is   a   delivery   pipeline   reaching   almost   every   part   of   Indonesia   with   ancillary   systems   in   place.   It   is   efficient   at   delivering   outputs   and   outcomes   specified   within   the   implementation   timeline   but   there   are   difficulties   in   involving  women.  Also  impact,  in  comparison  to  stated  objectives  of  empowerment,  leaves  a  great   deal  to  be  desired.  The  intensive  facilitation  required  for  the  level  of  community  empowerment  the   10   Consultancy  conducted  for  World  Bank  Programme  Support  Facility   S.Azarbaijani-­‐Moghaddam,  May  14   Gender  Inclusion  Strategies  in  PNPM   program   envisages   does   not   lend   itself   to   large   scale   projects   which   tend   to   have   a   specific   focus   on   practical  objectives  and  become  mechanical  to  ease  efficient  implementation.  Many  of  the  technical   problems  faced  in  involving  women  in  the  program  can  be  solved  by  judiciously  addressing  gender   issues   described   below.   Amplifying   and   adjusting   the   impact   of   interventions   can   also   be   fixed   through  gender  responsive  intervention.       A  more  tactical  approach  to  improving  gender  impacts  of  PNPM  is  focusing  on  strategic  issues  and   taking  advantage  of  key  ‘nodes’  or  critical  points  in  the  program  design  and  planning  cycle  rather   than  attempting  a  wholesale  gender  mainstreaming  effort.  The  areas  which  need  urgent  attention   at  this  stage  are:       e) gender  dynamics  in  the  decision-­‐making  process,     f) the  gender  division  of  labour  related  to  program  activities  where  women’s  labour  is  invisible,     g) improving   possibilities   for   women   to   build,   control   and   own   assets   (even   if   beginnings   are   modest),  and     h) the  introduction  of  child  care  as  the  first  in  a  series  of  measures  where  the  program  invests   in  women’s  welfare  to  improve  productivity  and  participation.       A  number  of  other  areas  for  potential  intervention  are  mentioned  in  this  report.     The  caveat  to  handling  most  gender  issues  within  PNPM  is  as  follows:  “Gender  aware  project  staff  or   consultants   can   have   a   significant   impact   on   outcomes…[H]owever,   the   percentage   of   staff   and   consultants   who   can   be   considered   in   this   category   is   very   low”   (Joint   Donor   &   Government   Mission   2009).   As  in  many  countries,  competent  staff  with  technical  gender  expertise  is  a  scarce  resource   which   needs   to   be   deployed   strategically.   It   is   also   evident   that   a   more   prudent   approach   is   to   outsource   gender   expertise   into   the   program   in   the   short   to   medium   term   rather   than   try   to   build   gender   responsive   critical   mass   within   the   program   which   should   be   seen   as   a   long   term   endeavour.     No   research   has   been   done   to   date   to   show   the   correlation   between   improved   performance   for   PNPM   on   indicators   related   to   women’s   involvement   and   the   work   of   other   organizations   with   special  focus  on  the  areas  mentioned  in  the  report  below.  Such  research  should  be  conducted  and   may   highlight   the   strategic   benefits   of   cooperating   with   organizations   which   are   more   responsive   and   interested   in   facilitating   social   change   on   a   smaller   scale.   They   can   work   with   PNPM   beneficiaries  to  enhance  performance.  At  present  PNPM  is  benefitting  through  the  employment  of   staff  trained  by  small  scale  programs  focused  on  social  development:       “Individuals  with  a  broad  empowerment  mindset  [in  PNPM]  seem  to  come  from  work  backgrounds   in   which   they   were   exposed   to   such   models,   such   as   NGOs   or   corporate   social   responsibility   setting,   or   KDP   when   the   program   was   smaller   and   more   personal.   The   gender   aware   individuals   gained   them  through  such  exposure,  trainings  from  non-­‐PNPM  entities,  or  their  personal  experiences  with   injustice   or   empowered   female   role   models.   They   learned   their   networking   and   community   mobilization  skills  through  previous  experiences,  or  by  individual  trial  and  error  in  their  roles  within   PNPM…   There   is   not   a   formally-­‐sanctioned   space   for   peers   to   learn   from   each   other,   share   about   challenges   and   good   practices,   or   to   receive   feedback   from   more   senior   or   experienced   facilitators.”(McGlynn  Scanlon  et  al  2012)     PNPM   is   already   partially   and   informally   outsourcing   its   technical   gender   requirements   by   piggy   backing   on   existing   programs   within   program   areas.   Outsourcing   is   occurring   unintentionally   at   present   but   should   be   inserted   into   program   design   and   made   a   formal,   national   component   of   the   program   to   overcome   implementation   issues   and   to   amplify   and   adjust   outcomes   and   impact.   It  was  at  times  observed  by  the  team  that  PNPM  activities  benefited  from  the  fall  out  of  the  activities   of  civil  society,  groups,  NGOs  and  institutions  (e.g.  ACCESS,  OXFAM,  previous  credit  groups)  with  a   11   Consultancy  conducted  for  World  Bank  Programme  Support  Facility   S.Azarbaijani-­‐Moghaddam,  May  14   Gender  Inclusion  Strategies  in  PNPM   special  focus  on  gender,  social  organization  and  empowerment.  An  example  is  well-­‐functioning  SPP   groups  built  on  the  strong  foundations  of  previous  credit  groups,  making  the  work  of  PNPM  easier.   There  were  also  communities  in  South  Sulawesi  where  OXFAM  was  providing  skills  training  to  some   of  the  beneficiaries  registered  for  SPP  thus  improving  their  performance.  Similar  results  were  seen   where  ACCESS  was  working  in  Sumba.  These  overlaps  are  currently  coincidental  rather  than  planned.   Also,   most   women   are   linked   to   other   groups   or   involved   in   multiple   activities   (see   Appendix   4).   Some  of  these  are  listed  in  the  PTO  as  ‘community  groups’  that  support  PNPM.  These  involve  civil   society,  religious  groups  or  other  government  programs.  There  is  ample  opportunity  to  inject  gender   responsive  trainings  and  activities  into  some  of  those  groups  to  have  a  knock  on  effect  on  women’s   participation  in  PNPM.   Understanding  and  Application  of  Gender  Principles   In  the  PTO  principles  gender  equality  and  equity  mean:  “communities,  both  men  and  women,  shall   have  equality  in  their  role  at  every  stage  of  the  program  and  in  enjoying  the  benefits  of  development   activities,  equality  also  in  the  sense  of  equality  in  position  during  conflict  situations.”       Gender   awareness   is   low.   Less   than   a   quarter   of   interviewees   in   categories   one   to   four   had   had   gender   awareness   training.   The   overwhelming   majority   of   respondents,   asked   to   provide   a   definition   of   gender   saw   it   as   equality   between   men   and   women,   effectively   a   garbled   understanding   of   ‘gender’   principles   as   explained   in   the   program   manual.   Questions   on   mainstreaming  gender  and  gender  responsiveness  brought  the  realization  that  the  program  version   of  ‘gender’  as  understood  by  field  staff  is  currently  exclusively  about  women  attending  meetings  and   forming   SPP   groups   which   can   repay   loans   on   time.   Only   fifteen   people   provided   passable   to   reasonable   definitions   of   gender   based   on   training   provided   by   external   organizations.   There   is   currently  little  or  no  technical  advice  on  gender  for  program  staff  let  alone  other  stakeholders.       Gender  is  currently  not  mainstreamed  into  NMC-­‐run  training  for  all  facilitators  at  national  level.  In   the  21  day  national  training  period  in  2006/7  one  or  two  hours  were  devoted  to  gender.  Since  then   gender  has  been  removed  from  training  materials  and  is  not  an  element  in  the  14  different  types  of   community  training  offered.  There  are  also  no  earmarked  sessions  on  the  gender  affirmative  actions.   PNPM  does  not  currently  have  the  in-­‐house  capacity  to  deal  with  the  gender  issues  which  would   amplify  and  strengthen  the  impact  of  its  product  delivery  and  outcomes.  Neither  does  it  contract   or  draw  such  capacity  in  in  other  ways.   The  program  benefits  indirectly  from  the  gender  expertise   of   other   programs   e.g.   where   former   staff   are   hired   as   PNPM   facilitators   or   facilitators   are   invited   to   gender  workshops.     ‘Gender’  is  equated  with  women’s  participation  in  PNPM.  Most  interviewees  reported  that  gender   or   women’s   issues   were   important   in   and   affected   their   work   but   they   found   it   difficult   to   explain   the  significance  of  gender  and  how  their  work  was  affected  by  ‘gender  issues’  (see  Appendix  4).  In   response   to   the   questionnaire,   the   majority   saw   gender   issues   as   ensuring   women   participated   obediently   in   whichever   part   of   the   PNPM   process   the   staff   member   was   handling.   A   part   of   this   group   saw   gender   as   the   problem   faced   by   women   who   had   to   juggle   family   responsibilities   and   securing   a   livelihood,   thus   impacting   participation   in   the   program   negatively.   They   mentioned   this   with   irritation   but   felt   powerless   to   offer   solutions   or   support   to   overcome   the   challenges   women   face.     The   main   ‘gender’   problem   is   seen   as   women’s   non-­‐participation.   Responses   to   other   questions   provided  further  details.  Asked  whom  one  would  approach  if  there  was  a  problem  related  to  gender   or   women’s   issues   at   work,   a   very   small   group   responded   that   they   would   involve   women’s   rights   activists   or   those   with   experience   with   gender   issues.   It   was   clear   that   the   number   one   ‘gender’   problem  they  were  envisaging  was  non-­‐participation  in  meetings  or  late  repayment  in  SPP.  Their  go-­‐ 12   Consultancy  conducted  for  World  Bank  Programme  Support  Facility   S.Azarbaijani-­‐Moghaddam,  May  14   Gender  Inclusion  Strategies  in  PNPM   to   problem   solvers   were   their   supervisors,   line   managers,   sub-­‐national   government   personnel   and   village  leaders  who  could  help  motivate  women  to  behave  ‘appropriately’  within  program  confines.   In   most   cases,   it   seems   target   groups   are   facilitated   to   behave   in   ways   that   fulfil   program   expectations.   Staff   are   not   focusing   on   enabling   the   achievement   of   impacts   and   change.   As   noted   by   previous   reports   reviewed,   facilitators   at   some   levels   are   overburdened   with   administrative   work   and  have  to  focus  on  program  procedures.  Even  short  interactions  demonstrated  that  the  multiple   layers  of  bureaucracy  did  not  create  an  agile  and  responsive  program.  The  time  and  skills  required   for   having   an   impact   and   facilitating   meaningful   change,   as   well   as   being   gender   responsive,   is   largely   unavailable   (Akatiga   2010).   In   spite   of   calls   to   add   trainings   and   awareness   on   a   range   of   issues   including   gender,   it   is   unlikely   that   program   staff   can   presently   be   burdened   with   more   outcomes,  more  rules  and  activities  which  then  have  to  be  monitored.   Gender  Affirmative  Actions   Appendix   3   provides   a   table   with   a   summary   overview   of   the   gender   affirmative   actions   proposed   for   PNPM.   These   have   been   accepted   as   an   integral   part   of   the   PTO   and   are   executed   in   order   to   achieve   the   targets   and   outputs   set.   Moving   further   down   the   chain   towards   field   level   staff,   individuals   are   less   aware   of   these   as   ‘gender   affirmative   actions’   and   more   as   quotas   which   have   to   be   reached   because   superiors   say   so.   The   presence   of   women   is   now   a   major   concern   for   team   projects  and  actors  at  the  community  level  as  a  prerequisite  for  eligibility  to  stay  within  the  PNPM   process.   The   positive   outcome   is   that   guidelines   they   are   being   adhered   to.   The   negative   outcome   is   that   they   are   being   implemented   mechanistically   with   little   or   no   understanding   which   reduces   effectiveness  and  impact.   Recommendations:   6. As   mentioned   in   previous   reports,   there   is   patently   a   need   for   a   well-­‐articulated   gender   strategy   with   clear   performance   indicators,   qualitative   as   well   as   quantitative,   included   in   the   management   information   system   (MIS)   and   reporting   systems   (McGlynn   Scanlon   et   al   2012;   Joint   Donor  and  Government  Mission  2009).  The  program’s  definition  of  gender  and  its  gender  strategy   need   to   be   articulated   and   communicated   more   clearly   to   field   staff   and   those   training   and   supporting  them.   7. It  is  stressed  once  again,  as  done  in  previous  gender  assessments,  that  PNPM  should  actively   take  advantage  of  the  availability  of  locally  available  and  external  gender  technical  resources.  Policy   and  planning  should  focus  on  this  and  specific  staff  members  in  the  human  resource  sector  should   be  given  the  responsibility,  with  oversight  from  PSF  and  NMC  gender  expertise,  to  decide  when  and   where  such  cooperation  can  most  usefully  take  place.   8. It   is   highly   recommended   that   gender   elements   are   mainstreamed   into   the   national   training   for  PNPM  facilitators  and  that  gender  is  mainstreamed  into  the  TOTs  provided  longitudinally  within   the   program   structure.   The   gender   component   should   be   approached   from   a   practical   approach   but   not  be  honed  down  to  a  myopic  focus  on  tokenistic  program  participation  from  women.  A  strategic   approach  should  also  be  encouraged  where  possible.   9. In   spite   of   the   success   in   inculcating   a   sense   of   importance   surrounding   women’s   participation  quotas  in  PNPM  it  is  necessary  to  caveat  this  in  trainings,  helping  staff  understand  the   basics  of  gender  and  working  more  on  short  messages  and  explanations  mainstreamed  into  existing   training  which  help  staff  understand  why  women  need  to  participate.     10. Another   important   attitude   shift   which   may   need   to   occur   in   PNPM   from   national   level   down  is  to  realize  that  the  program  is  not  only  about  hitting  targets  but  achieving  specific  impacts   and  promoting  change.     Monitoring  Progress  and  Evaluating  Impact   “[I]t   is   not   enough   to   report   how   many   people—men   and   women,   poor   and   non-­‐poor—attend   a   meeting,  but  also  who  speaks  to  influence  the   decision  taken.  This  information  would  show  to  what   extent  PNPM-­‐Rural  is  reaching  its  self-­‐defined  goal  of  empowerment.”(Akatiga  2010)   13   Consultancy  conducted  for  World  Bank  Programme  Support  Facility   S.Azarbaijani-­‐Moghaddam,  May  14   Gender  Inclusion  Strategies  in  PNPM   PNPM   has   a   complicated   reporting   system   which   absorbs   most   of   the   facilitators’   time.   The   administrative  burden  of  the  program  makes  it  labour-­‐intensive  and  implementation  occurs  within  a   very   tight   timeframe.   As   a   result   “facilitators   in   PNPM-­‐Rural   (from   KPMDs   to   TPK)   are   good   administrators”  (Akatiga  2010).  It  is  unfair  to  demand  too  much  from  them  in  terms  of  attention  to   socioeconomic   impact   but   since   the   PTO   highlights   various   forms   of   empowerment   as   program   impacts,  scrutiny  of  shortcomings  in  implementation  cannot  be  avoided  in  this  report.     Technically   PNPM   is   realizing   most   of   its   specific   objectives   but   as   mentioned   in   other   gender   reports   the   actual   impact   of   activities   and   processes   could   be   improved.   The   description   of   the   program’s  ‘gender’  impact  is  numerical,  based  solely  on  participation  figures  for  PNPM  processes   and  SPP  financial  records.  Current  indicators  demonstrate  clearly  that  the  program  is  interested  in   women   ‘participating   in   participation’   (See   Appendix   7   –   Arnstein’s   Ladder   of   Participation   which   describes  different  stages  of  participation).  The  figures  show  as  previously  noted  that  setting  specific   targets   for   women’s   participation   leads   to   an   increased   presence   from   women   (Akatiga   2010),   at   least   on   paper.   The   impact   of   this   increase   in   numbers   participating   is   not   described   or   captured.   There   is   a   rigid   focus   on   women’s   participation   figures   reinforced   and   backed   up   by   trainings,   instructions  and  procedures  which  almost  exclusively  focus  on  reaching  numerical  targets.  In  every   location   visited   interviewees   were   ready   with   quantitative   and   low   qualitative   information   on   women’s   participation   as   well   as   related   issues   and   problems.   Very   few   staff   could   explain   actual   gender  issues  affecting  the  program.     Social   impacts,   in   particular   those   related   to   gender   relations,   and   even   impacts   of   physical   infrastructure   on   the   daily   lives   of   men   and   women   are   not   recorded,   analysed   or   described.   A   clear  description  of  the  impact  of  the  program  on  men,  women  and  gender  relations  does  not  exist   in   official   records.   The   figures   highlight   the   degree   to   which   staff   successfully   obeyed   instructions   and   met   targets   set   by   the   PTO.   ‘Gender’   goals   beyond   numbers   of   women   participating   are   not   articulated   thus   staff   are   not   driven   to   seek   out   and   describe   impacts.   The   focus   is   on   successful   implementation   of   program   activities.   Impacts   are   assumed   as   a   result   of   implementation   outcomes   and  specific  outputs  (infrastructure,  activities,  funds  disbursed,  loans  revolved,  etc.)  produced.  The   impact  evaluation  is  contracted  out  and  the  gender  sensitivity  of  evaluation  processes  was  beyond   the  scope  of  this  mission.     Most  facilitators  and  village  cadres  reported  success  in  dealing  with  gender  and  women’s  issues.  It   became   clear   after   probing   that   their   definition   of   success   was   performing   the   tasks   involving   women  (SPP,  getting  women  to  meetings,  helping  women  produce  proposals)   efficiently  rather  than   facilitating   a   beneficial   impact   for   women.   One   respondent   wrote   rather   honestly:   “Gender   is   not   important  because  it  does  not  influence  my  job.”  There  were  only  two  interesting  descriptions  of  a   different   type   of   success.   One   involved   succeeding   in   getting   women   to   debate   with   men   in   meetings.  Another  from  Lewa  district  in  Sumba,  described  a  mixed  meeting  in  which  women  were   allowed   to   lead   the   meeting.   Some   of   the   confusion   may   arise   from   the   definition   of   indicators   as   listed   in   the   PTO.   Rate   of   participation   for   example   is   a   success   indicator,   not   a   performance   indicator.  The  question  here  is  who  is  defining  ‘success’  and  setting  indicators.     Staff   must   understand   that   the   collection   of   sex-­‐disaggregated   data   on   a   narrow   range   of   indicators   is   not   the   same   as   addressing   gender   issues   although   collecting   data   on   men   and   women   on   such   a   vast   scale   provides   an   important   resource   which   can   contribute   to   gender   analysis.   Interestingly,   a   number   of   interviewees   said   they   were   confused   by   the   questionnaire   because   they   had   never   been   asked   to   think   why   they   were   performing   certain   activities.   The   questionnaire   highlighted   that   staff   had   become   so   invested   in   implementation   that   they   had   no   time  to  think  about  the  program  process,  its  components  and  its  impact,  especially  where  gender  is   concerned.   Principles,   requirements,   and   program   procedures   aimed   at   women   are   routinely   measured  through  attendance  records  and  figures  only.       14   Consultancy  conducted  for  World  Bank  Programme  Support  Facility   S.Azarbaijani-­‐Moghaddam,  May  14   Gender  Inclusion  Strategies  in  PNPM   Better   indicators   can   be   developed   with   corresponding   small   changes   in   program   facilitation.   “Local   actors   base   their   understanding   of   program   requirements   on   the   information   that   is   monitored;   thus   that   information   should   encourage   attention   to   factors   that   influence   the   quality   of   women’s   participation”   (McGlynn  Scanlon  et  al  2012)  As  a  result  it  is  necessary  to  monitor  factors   which   impede   participation,   not   all   of   which   can   be   measured   with   quantitative   data   alone.   Other   reports  on  women’s  participation  in  PNPM  have  recommended  monitoring  how  often  women  speak   in  meetings  and  similar  activities  to  determine  quality  of  participation.       A  pressure  to  tick  boxes  and  to  hit  targets  to  be  considered  a  ‘success’  will  encourage  a  ‘survival  of   the   fittest’   mentality   in   all   program   processes.   This   will   impact   program   culture,   recruitment,   interaction   with   communities   and   a   host   of   other   factors.   This   can   result   in   potential   negative   outcomes   such   as   aggressive   pursuit   of   goals   straining   community   relations   and   less   interest   in   recruitment  of  female  facilitators  if  males  can  cooperate  with  village  leaders  to  corral  the  necessary   numbers  of  women.     Recommendations:   6. MIS   and   staff   should   produce   more   detailed   sex-­‐disaggregated   data   on   the   impact   of   infrastructure  projects.  This  would  help  them  see  how  much  physical  outputs  are  serving  different   groups   in   the   community.   An   example   might   be   the   reduction   in   transport   costs   and   time   taken   when  a  road  is  built.  The  road  may  go  to  places  men  want  to  reach  but  not  women  (e.g.  a  clinic).  The   road  might  also  reduce  transport  costs  for  school  children  meaning  the  women’s  incomes  are  freed   up  for  other  family  expenses.  Such  beneficial  changes  should  be  captured  by  MIS  and  described  both   by  quantitative  and  qualitative  measurements.   7. MIS   and   staff   should   also   capture   how   many   sub-­‐projects   are   proposed   by   women   or   are   recommended  by  women  or  men  to  address  women’s  needs  directly.   8. It   is   recommended   that   women   are   familiarized   with   the   notion   of   expecting   reasonable   outcomes   from   their   presence   in   meetings   (information,   getting   their   points   across,   making   contacts,   networking,   outcomes,   supporting   a   representative,   etc.).   An   indicator   which   can   be   helpful   if   such   facilitation   takes   place   is   how   often   women   get   what   they   want   from   a   meeting   or   activity  they  attend.  This  is  a  good  step  towards  encouraging  women  to  demand  accountability  from   programs   and   processes   which   require   their   participation   and   contributions   while   developing   a   quality  of  participation  indicator.   9. A   useful   indicator   for   participation   which   can   be   added   is   how   far   women’s   proposals   get   before  they  are  rejected.  Once  program  designers  see  at  which  points  the  obstacles  exist,  they  can   analyse  the  gender  dynamics  and  come  up  with  practical  solutions  for  overcoming  impediments.   10. Program   planners   should   develop   some   success   indicators   based   on   positive   impacts   for   beneficiaries.  ‘Success’  should  not  only  be  defined  as  executing  PTO  rules  effectively.   Women’s  Participation   Women’s   participation   is   seen   as   problematic   by   program   staff   because   there   is   not   enough   of   it.   Gender  consultants  see  women’s  participation  as  a  difficult  issue  from  gender  because  they  believe   that  the  quality  is  low.  This  section  unpacks  some  of  the  relevant  issues.     PTO   principles   include   participation   which   means   “the   people   play   an   active   role   in   the   process   or   flow   of   program   stages   and   their   oversight,   from   socialization,   planning,   implementation,   and   maintenance  activity  phases  by  contributing  labor,  thoughts,  or  in  material  form.”  Together  with  the   gender  equity  and  equality  principle,  the  program  has  attempted  to  squeeze  these  aspects  into  a   neat   parcel   bounded   by   forms   and   boxes   which   can   be   ticked   but   the   reality   on   the   ground   is   that   women’s  active  participation  in  community  driven  development  is  necessary  to  ensure  that  their   realities,   their   needs   and   solutions   to   their   problems   are   accurately   reflected   in   processes,   outcomes  and  impacts  together  with  those  of  men.  Control  of  decision-­‐making,  funds  and  assets  is   not   touched   in   the   participation   principle   and   the   gender   equality   and   equity   principle   also   leaves   out  specifics  about  the  decision-­‐making  process  and  the  dynamics  therein.   15   Consultancy  conducted  for  World  Bank  Programme  Support  Facility   S.Azarbaijani-­‐Moghaddam,  May  14   Gender  Inclusion  Strategies  in  PNPM     The  success  in  inculcating  a  strong  belief  that  women  must  participate  in  the  program  shows  the   success   of   ‘messages’   from   central   level   government.   Much   research   has   pointed   to   women’s   participation  contributing  to  the  success  of  poverty  reduction,  community  empowerment  and  other   socioeconomic  processes  (World  Bank,  2000;  World  Bank,  2007).  It  has  been  noted  elsewhere  that   “PMD   has   a   strong   commitment   to   women’s   inclusion   and   participation   in   PNPM   though   the   operational   focus   is   largely   on   quantity   and   good   practices   related   to   quality   are   not   being   captured   or   mainstreamed”   (McGlynn   Scanlon   et   al   2012).   In   other   words   the   program   appears   to   be   mobilizing  women  but  the  reality  is  more  complex.  This  mission  reconfirmed  those  findings.  Beyond   set   ‘messages’   provided   by   manuals   and   trainings   very   few   staff   encountered   could   explain   convincingly  why  it  was  important  for  women  to  participate  in  the  process  and  how  they  were  doing   so.       Not   a   single   person   interviewed   at   any   level   questioned   women’s   participation   and   program   stakeholders   single-­‐mindedly   pursued   the   goals   related   to   women’s   participation   because   it   was   understood   that   they   were   a   non-­‐negotiable   part   of   program   requirements.   Although   all   interviewees  agreed  that  women  should  be  involved  in  program  decision-­‐making  processes  further   probing   showed   this   to   be   a   vague   notion.   It   is   also   well   known   that   participation   can   take   many   forms,   some   less   contentious   than   others   (See   Appendix   7).   The   voluntary   contribution   of   labour   from   women   was   also   classed   as   ‘empowering   participation’   by   a   program   staff   member   in   South   Sulawesi.   PNPM   has   been   successful   in   ensuring   that   a   less   contentious   form   of   women’s   participation  be  wholeheartedly  accepted  by  community,  implementers  and  local  government  alike.   This   reinforces   findings   from   previous   reports   (Joint   Donor   and   Government   Mission   2009)   which   also   noted   that   such   practices   are   very   good   examples   of   affirmative   action   but   once   again   as   the   same   studies   noted   it   is   clear   that   women’s   participation   needs   to   be   maximized   to   move   them   further  towards  the  program’s  empowerment  goal.     Participation   currently   hovers   somewhere   between   non-­‐participation   and   tokenism   on   the   continuum   to   empowerment.   The   next   steps   on   the   road   to   women’s   fully   empowered   participation   have   as   yet   to   be   taken   (See   Appendix   7).   Programme   and   sub-­‐national   governance   leaderships  understand  that  women’s  participation  is  a  prerequisite  for  accessing  program  benefits   and  reporting  target  specific  success.  Women’s  participation  remains  active  where  their  presence  for   consultation,  labour  or  contributions  is  required  but  predominantly  passive  in  decision-­‐making  fora.   Numbers   from   the   database   can   certainly   back   claims   that   there   is   consensus   for   PNPM   activities   from  women  in  the  community  but  the  reality  is  different.  During  the  mission,  for  example,  only  a   very   small   number   of   the   stakeholders   could   provide   concrete   examples   of   listening   to   women’s   concerns  (See  Appendix  4)  and  acting  on  them  during  program  implementation.       The   positive   aspect   of   women’s   participation   is   that   it   exposes   them   to   a   government   program,   even   if   they   are   not   always   certain   what   benefit   they   can   gain   from   that   contact.   In   spite   of   the   lack   of   quality   participation   it   has   been   claimed   that   the   ‘rules’   on   involving   women   in   PNPM   are   having   a   cumulative   effect   and   “an   impact   on   local   Government   decision   makers,   increasing   awareness/   acknowledgement   of   the   value   of   women’s   participation   and   the   need   for   affirmative   action   strategies/activities”   (Joint   Donor   &   Government   Mission   2009).   This   has   been   disputed   by   other   reports   which   advise   a   slightly   modified   approach:   “[s]trong   strategies   for   engaging   women   within   PNPM   can   be   models   for   stronger   strategies   in   other   government   and   empowerment   programs,  further  multiplying  and  reinforcing  the  impact  of  strategies  used  within  PNPM”(McGlynn   Scanlon  et  al  2012).   Assumptions  about  Participation   “Sometimes  women  don't  want  to  think  about  development  in  the  village.”  PNPM  Staff   “It  is  difficult  to  make  women  understand  the  importance  of  their  involvement…”PNPM  Staff     16   Consultancy  conducted  for  World  Bank  Programme  Support  Facility   S.Azarbaijani-­‐Moghaddam,  May  14   Gender  Inclusion  Strategies  in  PNPM   There   are   a   number   of   assumptions   about   women’s   participation   in   the   design   of   PNPM   which   have   not   been   adequately   addressed   and   continue   to   plague   implementers   and   diminish   the   positive   impact  of  the  program.  This  section  addresses  some  of  these  assumptions.   Assumption  1:  Women  are  willing  and  able  to  participate   The  reality  involves  special  efforts  to  increase  the  active  participation  of  women  because  they  join   community  meetings  less  frequently,  do  not  speak,  do  not  propose  anything,  and  are  not  involved  in   decision-­‐making.  This  assumption  undoubtedly  needs  to  be  unpacked.       1. Participation  is  not  always  voluntary  and  only  reinforces  existing  gender  relations.  One  can   safely  assume  that  in  the  social  hierarchy  of  the  village  a  command  from  a  respected  local  leader   and/or   men   would   have   to   be   obeyed   by   women.   Some   facilitation   staff   complained   that   women   only  attended  in  high  numbers  in  initial  meetings.  This  indicates  a  number  of  dynamics  one  of  which   may   involve   a   sense   of   having   to   join   a   village   ‘ritual’   if   instructed   to   do   so   by   a   local   leader.   The   program  should  monitor  numbers  of  women  who  are  ‘volun-­‐told'  to  participate  in  activities.   2. Interviewees  showed  themselves  to  be  at  a  loss  on  how  they  would  encourage  women  to   participate   in   PNPM.   As   point   5   in   Appendix   4   demonstrates   interviewees   did   not   often   have   detailed   answers   on   how   they   encouraged   and   motivated   women   to   participate   in   the   process.   They  said  they  would  simply  invite  the  women.     3. Women   are   often   not   comfortable   or   willing   to   be   inserted   into   what   they   perceive   as   male-­‐dominated  spaces  and  processes.  A  great  deal  of  preparation  needs  to  take  place  before  the   insertion  occurs.  Expecting  women  who  have  been  invited  to  male  fora  to  succeed  simply  by  virtue   of   presence   has   proven   an   erroneous   assumption   .   Without   adequate   preparatory   work,   simple   insertion  rarely  results  in  women  entering  with  an  agenda  which  they  are  equipped  to  pursue.  Other   reports   have   described   in-­‐depth   challenges   to   inclusion   and   participation   for   certain   groups   (Akatiga   2010).     4. Time  is  a  valuable  commodity  for  women  impacting  participation.  Time  has  to  be  juggled   between   household   chores,   family   duties   and   business,   livelihood   or   paid   employment.   Many   women   have   to   supplement   the   family   income   and   cover   household   expenses.   Additionally,   social   sanctions   have   been   set   in   place   to   ensure   that   women   perform   all   of   their   tasks   with   the   utmost   diligence  otherwise  they  may  face  punishments  including  domestic  violence.     5. The   biggest   assumption   about   women’s   participation   is   that   women   are   seen   as   individuals  participating  on  their  own  behalf.  The  reality  is  that    women  by  nature  of  their  gender   triple   role   have   to   be   approached   by   planners   and   designers   as   deeply   embedded   within   a   gendered   family   unit.   A   husband’s   consent   cannot   be   assumed.   A   number   of   women   emphasised   that  husbands  allowed  them  to  attend  meetings  and  saw  this  as  encouragement  to  participate.     6. Women   do   not   all   understand   the   direct   benefits   the   program   may   provide   (except   where   they  can  access  loans)  and  may  be  reluctant  to  participate.   When  planners  say  that  it  is  important   for  women  to  participate  one  has  to  understand  whose  priorities  are  being  dealt  with.  A  woman  will   probably   not   prioritize   PNPM   activities   in   her   day   to   day   life   unless   she   is   absolutely   clear   about   tangible  benefits.  Intangible  benefits  such  as  experience,  exposure  and  so  on  have  to  be  explained  in   concrete  terms  as  a  possible  investment.   Assumption  2:  Women  derive  benefits  from  participating  in  PNPM   1. At  present,  one  of  the  few  attractions  for  the   women   the  team  encountered   in  PNPM  is  the   possibility   of   getting   a   loan.   How   widespread   this   is   cannot   be   answered   by   this   report.   If   this   is   a   finding  which  can  be  generalized  across  the  thousands  of  beneficiaries,  then  what  the  program  lacks   is  the  availability  of  individuals  who  have  the  time  to  clearly  explain  to  potential  beneficiaries,  male   and  female  what  other  resources  lie  within  PNPM  and  how  best  to  access  them.  This  is  the  job  of   facilitators   but   as   mentioned   they   are   overburdened   with   tasks   which   keep   the   PNPM   machine   running.     2. Women   are   invited   into   PNPM   to   provide   labour   and   to   fulfil   reporting   criteria   but   the   program’s   size   makes   it   unresponsive   and   can   only   respond   to   some   of   their   needs   in   general   17   Consultancy  conducted  for  World  Bank  Programme  Support  Facility   S.Azarbaijani-­‐Moghaddam,  May  14   Gender  Inclusion  Strategies  in  PNPM   terms.  Since  the  program  is  predominantly  about  delivery  of  outputs  and  limited  outcomes  but  not   social  change  (which  is  assumed  to  occur)  it  provides  limited  benefit  to  women  at  the  moment.     3. Women’s   general   inability   to   plan,   articulate,   organize,   and   lobby   in   groups   minimizes   their   chances   of   actively   seeking   results   from   PNPM.   Failure   to   act   in   established   groups   with   an   influential  leadership  during  the  PNPM  process  reduces  women’s  chances  of  achieving  their  goals.     Assumption  3:  Women  have  time  and  control  how  they  use  it   Women’s  lack  of  time  can  be  read  in  a  number  of  ways.  “Empowerment  needs  time  to  deepen  or   advance  gradually  over  time.  Most  FKs  do  not  have  the  skills  for  (nor  the  awareness  of)  this  kind  of   facilitation.”   (Akatiga   2010).   In   PNPM   women   are   not   given   extra   time   because   it   is   not   a   feasible   change  in  program  design.     1. Time   is   a   precious   commodity   for   women   with   their   gender   triple   role   and   the   prioritization  process  for  what  activities  time  is  spent  on  needs  to  be  understood  before  programs   are   designed   to   involve   and   benefit   women,   especially   poorer   women.   There   may   be   an   assumption   from   planners   that   women   are   somehow   wasting   their   time   (since   they   are   not   in   an   office  or  do  not  have  a  formal  job)  whereas  a  lot  of  time  is  spent  looking  for  ways  to  juggle  family   responsibilities   and   supplement   incomes   (Akatiga   2010)   as   well   as   attending   to   community   responsibilities.   Time   becomes   a   valuable   commodity   and   if   an   activity   is   perceived   as   having   no   immediate  monetary,  economic  or  other  value  it  will  be  avoided  or  discarded  (ibid).     2. Women’s   time   is   largely   controlled   by   men   in   the   family   and   men   in   the   public   sphere.   Women   do   not   control   much   of   their   own   time   because   their   choices   are   limited   by   their   gender   roles   in   family   and   community.   Many   program   staff   complained   or   commented   that   women   were   prioritizing   household   concerns   over   attendance   at   program   meetings.   They   were   assuming   that   women  were  controlling  their  own  time  and  not  prioritizing  PNPM.   3. Women’s   time   and   labour   is   also   appropriated   by   PNPM   as   by   many   other   male   dominated  institutions  both  formal  and  informal.  The  most  alarming  case  of  this  was  a  female  staff   member   in   South   Sulawesi   in   charge   of   putting   good   news   stories   on   the   web.   She   described   a   ‘gender’  story  focusing  on  the  progress  of  an  infrastructure  where  women  were  involved.  One  lady   got  sick,  her  relative  died  and  her  child  also  got  sick  but  in  spite  of  this  her  work  for  the  project  was   uninterrupted   and   the   team   continued   to   meet   deadlines.   PNPM   involvement   may   be   an   added   burden   for   women   and   the   program   is   blind   to   women’s   current   time   and   labour   constraints   related   to  existing  family  and  community  responsibilities.   4. Women’s   use   of   their   time   should   be   an   important   consideration   for   program   design   where   women’s   participation   is   sought.   One   document   mentions   “specific   guidance   to   facilitators   to   identify   times   and   locations   that   were   conducive   to   women’s   participation”   (Joint   Donor   &   Government  Mission  2009).  Timing  of  meetings  and  time  and  cost  of  travel  to  and  from  meetings  are   probably  one  of  the  important  variables  at  local  level  which  influence  gender  behaviours  in  relation   to   PNPM.   It   may   be   that   the   consequences   of   domestic   tasks   left   unattended   may   not   be   clear   to   male  planners  or  that  the  meeting  time  coincides  with  a  popular  TV  program  which  is  the  only  time   women   can   escape   from   their   realities.   Planners   must   understand   that   for   some   women   meeting   attendance  is  an  irritation  while  for  others  it  may  be  a  luxury.   Assumption  4:  The  family  will  provide  childcare.   1. For   some   reason   program   designers   do   not   appear   to   realize   that   lack   of   childcare   significant  participation  barriers  for  female  beneficiaries  and  staff  and  not  only  for  meetings  but   also  for  expanding  business  activities.   The  burden  of  shame,  organizing  and  negotiating  child  care   and  having  to  curtail  participation  in  activities  when  there  is  no  childcare  is  on  women.  Women  do   not   expect   assistance   with   childcare   and   cultural   factors   push   women   to   relying   on   family   and   extended  family.  If  a  family  does  not  show  solidarity  by  making  childcare  arrangements  rather  than   seeking  it  outside  the  family  it  is  considered  shameful.  In  some  places  people  explained  that  using   childcare  services  is  like  announcing  that  you  have  no  family  and  thus  carries  stigma.   18   Consultancy  conducted  for  World  Bank  Programme  Support  Facility   S.Azarbaijani-­‐Moghaddam,  May  14   Gender  Inclusion  Strategies  in  PNPM   2. Cultural  attitudes  to  childcare  also  deny  women  the  possibility  of  providing  childcare  as  a   business   and   attaching   an   economic   value   to   women’s   reproductive   gender   roles.   Childcare   provision  is  likely  to  have  an  impact  on  women’s  participation  in  a  number  of  spheres  and  at  every   stage  of  the  program  process.   Assumption  5:  Women  will  automatically  be  involved  in  the  decision-­‐making  process  once   they  attend  meetings   It  may  be  useful  to  envisage  this  situation  by  a  discussion  of  ‘space’.  A  community  is  composed  of  a   series   socio-­‐culturally   determined   spaces   some   of   which   overlap.   Each   space   is   associated   with   specific  relations,  behaviours,  activities  and  scripts.  Gender  relations  are  also  affected  by  space  e.g.   public/private,  domestic/professional.  Programs  such  as  PNPM  occupy  their  own  space  and  overlap   with  other  spaces,  sometimes  being  superimposed  on  existing  space.     1. It  is  confusing  for  women  to  be  drawn  into  unfamiliar  space.  Even  if  women  are  invited  into   PNPM   space,   for   example,   they   sense   that   men   are   still   the   gatekeepers   and   moderators   of   the   activity   within   that   space   i.e.   decision-­‐making.   The   tendency   is   to   fall   back   on   or   replicate   existing   social  scripts  and  relations.  Their  activities  are  prescribed  and  limited  by  social  control  and  sanctions   not   only   from   those   enacting   program   rules   but   also   by   nature   of   the   relationships   between   women   and  men  in  the  established  hierarchy.  They  are  unsure  how  to  make  good  use  of  existing  space  when   they   are   invited   in   temporarily.   Some   groups   are   better   than   others.   For   example,   in   West   Sumatera   women   are   ordinarily   more   involved   in   religious   meetings,   community   consultations   and   social   gatherings  with  men  so  their  participation  in  externally  driven  programs  like  PNPM  is  also  consistent.     2. Separate  women’s  meetings  (MKP)  have  been  established  to  give  women  the  opportunity  to   voice  needs  and  discuss  problems  without  interference  from  men.  This  is  a  positive  development  as   long   as   planners   understand   the   pressures   for   women   to   fall   back   on   existing   scripts   once   they   leave  this  space.  It  has  also  been  noted,  however,  that  women  should  be  given  skills  to  be  able  to   function  effectively  in  meetings  with  men  (McGlynn  Scanlon  et  al  2012;  Joint  Donor  &  Government   Mission   2009).   What   is   required   in   addition   to   isolationist   approaches   typically   designed   to   give   women  room  to  manoeuver  are  gendered  processes  which  change  the  cultural  scripts  and  dialogues   women   feel   constrained   to   repeat.   This   is   by   its   nature   a   slow   process   which   requires   the   correct   inputs  from  the  right  people  at  specific  times,  places  and  junctures  where  specific  interactions  need   to  be  altered.     3. A   transition   has   to   take   place   where   realizations   and   scripts   developed   in   women   only   spaces  are  effectively  transferred  to  male-­‐dominated  and  gendered  spaces.  PNPM  staff  are  aware   of  this  but  may  not  think  about  instances  where  women  are  put  off  from  participating.  Since  women   are  expected  to  interact  with  male  relatives  as  dependents  and  predominantly  in  a  domestic  setting,   for  example,  entering  a  gendered  context  with  a  new  script  may  involve  an  uncomfortable  overlap   between  private  and  public  spheres.  It  may  serve  as  a  disincentive  for  women  who  feel  exposed  and   fear   violence   or   other   repercussions   at   home   for   challenging   a   relative   in   public,   gendered   space.   As   mentioned  elsewhere  “altering  the  quality  of  women’s  participation  is  a  much  harder  challenge  to   overcome.   Women’s   lack   of   confidence   and   inexperience   in   speaking   out   at   meetings   is   compounded   often   by   the   presence   of   their   own   husbands,   fathers   or   sons,   thereby   threatening   the   often  delicate  status  quo  of  relationships  within  the  home  and  family,  as  well  as  in  the  community”   (Joint  Donor  and  Government  Mission  2009).     4. Socializing   women   to   operate   in   male   dominated   space   may   also   have   to   start   with   adolescents.   There   is   very   little   for   adolescents   in   PNPM   even   though   they   will   very   soon   set   up   families  and  be  the  next  batch  of  beneficiaries  in  PNPM.  Many  useful  changes  can  be  programmed   into   PNPM   by   changing   attitudes,   behaviours   and   practices   among   adolescents.   As   a   pilot   in   some   locations  and  at  absolutely  no  additional  cost,  fathers  can  be  encouraged  to  take  their  daughters  to   program  meetings  and  processes  for  one  day  a  month.  Such  a  proposition  is  based  on  the  hypothesis   that  men  may  start  thinking  of  the  different  future  they  want  for  their  daughter  and  young  girls  may   start   to   see   such   meetings   and   processes   not   only   as   the   inaccessible   domain   of   men   where   something   mysterious   take   place.   Similarly   women   can   be   encouraged   to   take   school   age   and   adolescent  children  to  meetings,  especially  girls.  The  hypothesis  here  is  that  accompanying  mothers   19   Consultancy  conducted  for  World  Bank  Programme  Support  Facility   S.Azarbaijani-­‐Moghaddam,  May  14   Gender  Inclusion  Strategies  in  PNPM   will   socialize   children   with   program   culture   and   result   in   mothers   having   to   explain   what   is   happening  at  an  event.  Any  pilot  activities  of  this  nature  can  be  part  of  a  study2.   5. Good   facilitation   is   critical.   At   the   forefront   of   facilitation   and   mobilization   activities   are   the   village   cadres.   They   communicate,   facilitate   and   prepare   the   community   to   participate.   They   are   instrumental   in   socializing   and   planning   PNPM.   Their   training   and   support   should   reflect   the   importance  of  their  role.   The  Importance  of  Invitation  for  Full  Participation   It  was  mentioned  by  many  individuals  that  they  would  not  attend  meetings  unless  invited  but  it  is   permissible  to  attend  an  event  without  an  invitation.  The  team  tried  to  unpack  within  the  mission’s   time   limits   the   issue   of   invitation   to   meetings   and   why   it   was   so   important   for   women   to   be   invited.   According  to  interviewees  if  anyone  turns  up  to  a  meeting  uninvited  they  forfeit  their  entitlement  to   have  a  voice  in  that  meeting.  People  will  say  that  they  do  not  know  their  place  and  have  no  shame.   Some   activities   such   as   religious   events   or   PKK   meetings   are   considered   open   but   other   meetings   such   as   those   linked   to   adat   require   a   specific   invite   -­‐   others   who   turn   up   will   not   be   listened   to.   Also,  people  do  not  turn  up  to  meetings  because  they  often  assume  that  the  “right  people”  are  there   thus  delegating  responsibility  to  others.  The  “right  people”  are  invited  to  meetings  depending  on  the   activity   which   implies   gatekeeping,   probably   by   elites.   The   following   deductions   can   be   made   and   need  to  be  taken  into  consideration  since  they  impact  women’s  participation:     • There   are   obviously   categories   of   meetings   and   a   typology   is   required   to   define   the   characteristics.   Presumably   attendance   of   specific   lists   and   categories   of   people   at   meetings   also  defines  people’s  perception  of  the  category  of  meeting.     • For  meetings,  invitation  gives  a  person  the  right  to  speak,  establishes  them  as  a  respectable   person,   establishes   that   a   person   understands   their   place   in   the   hierarchy,   and   establishes   that  the  person  is  considered  to  have  a  role  by  those  controlling  the  meeting.     • A   meeting   has   to   be   placed   into   the   right   category   if   the   expectation   is   for   people   to   just   turn  up  and  see  what  is  happening.       Women   may   feel   that   they   are   not   entitled   to   speak   when   there   is   no   formal   invitation.   Meetings   may   be   seen   as   an   extension   of   adat   meetings   because   of   those   present.   There   may   be   an   assumption   that   the   “right”   people   are   present,   representing   women’s   issues.   It   is   important   to   determine   what   types   of   meetings   women   feel   they   can   attend   to   demonstrate   ‘they   know   their   place’  and  which  ones  would  be  considered  ‘shameful’  to  attend  uninvited.     The  Role  of  adat  in  Moderating  Women’s  Participation   PNPM  staff  are  deliberately  avoiding  interacting  analytically  with  indigenous  traditions  and  leave   existing   'social   harmony'   undisturbed,   even   where   social   systems   clearly   discriminate   against   women   and   place   them   in   a   vulnerable   position.   Some   facilitators   openly   remarked   that   they   do   not  want  to  upset  the  status  quo  and  come  into  conflict  with  local  traditions  which  would  negatively   impact  program  function.  PNPM  has  brought  about  very  small  alterations  to  some  of  sociocultural   scripts   but   much   remains   untouched.   Some   of   the   practical   considerations   in   program   implementation   confirm   men’s   positions   as   women’s   controllers.   Since   adat   and   similar   factors   heavily   influence   status,   access   to   and   control   of   assets,   power   and   so   on   for   the   genders   they                                                                                                                           2   The   consultant   conducted   a   study   in   Afghanistan   in   2012   were   a   number   of   in-­‐depth   case   studies   were   written   on   businesswomen   working   with   an   NGO   which   develops   their   business   skills.   There   was   a   possible   correlation  with  childhood  experiences.  Women  with  fathers  or  mothers  in  businesses  and  paid  employment   had  excellent  business  acumen.  Women  with  fathers  in  community  and  religious  leadership  positions  regularly   ended   up   in   community   leadership   positions   with   some   running   good   businesses.   Women   who   had   been   dressed   and   treated   as   boys   when   they   were   children   had   more   confidence   to   operate   in   a   ‘man’s   world’.   Women  whose  fathers  were  farm  or  urban  labourers  had  very  low  expectations  and  little  business  acumen.   20   Consultancy  conducted  for  World  Bank  Programme  Support  Facility   S.Azarbaijani-­‐Moghaddam,  May  14   Gender  Inclusion  Strategies  in  PNPM   determine   dynamics   between   them.   Gender   relations   are   left   largely   unchanged   and   women   continue  to  operate  at  a  disadvantage  which  is  presumably  the  starting  point  the  program  is  trying   to  move  away  from.  The  program  gives  men  and  women  very  limited  exposure  for  new  possibilities   in   terms   of   how   the   genders   relate   to   each   other.   The   routine   and   mechanistic   procedures   limit   creativity  and  innovation  for  existing  stakeholders.       PNPM  staff’s  tendency  to  shy  away  from   adat   dynamics  which  may  discriminate  against  women   and  reinforce  patriarchal  norms  ensures  that  community  leaders  help  them  reach  program  goals   and   targets   and   allows   them   to   avoid   conflict   but   it   represents   a   conflict   of   interests.   As   mentioned,   facilitators   are   asking   traditional   leaders   and   community   leaders   (frequently   male)   to   ‘encourage’   women   to   attend   meetings   to   boost   participation   figures.   The   facilitators   acknowledged   that  women  will  be  obedient  and  do  what  is  decreed  by  community  leaders  or  elders.  This  is  hardly   participation  because  women  understand  PNPM  benefits  or  because  they  have  a  desire  to  fight  for   interests   and   aspirations   and/or   feel   a   need   to   voice   views   regarding   the   suitability   of   proposed   activities  for  women.       Men   and   women   relating   to   each   other   based   on   a   strict   demarcation   of   gender   roles   generally   feel  constrained  to  cultural  scripts  and  expectations  which  create  a  number  of  delineated  spaces   considered   as   belonging   predominantly   to   one   sex,   with   some   spaces   shared   by   both.   The   constructs   are   upheld   by   both   women   and   men   who   will   see   the   socio-­‐cultural   systems,   such   as   adat,  underpinning  such  constructs  as  a  given  or  absolute  in  their  lives.  People  believe  they  cannot   change  the  systems  but  they  can  work  out  accommodations  at  times,  sometimes  in  established  and   specific  ways,  in  order  to  extract  what  they  need.  What  gender  awareness  and  analysis  should  do  is   to   make   men   and   women   increasingly   aware   that   they   operate   in   an   artificially   constructed   gendered   space   which   can   be   altered   and   that   there   are   possibilities   for   change.   Exposure   to   the   range   of   sociocultural   diversity   across   Indonesia   in   itself   should   be   ample   evidence   that   nothing   is   absolute.       Some  individuals  and  groups  have  the  resources,  skills  and  knowledge  to  manipulate  underpinning   sociocultural  systems  through  private  negotiation  in  order  to  orchestrate  a  desired  public  sanction   for   their   activities.   Negotiation   and   accommodations   create   new   spaces   within   which   individuals   and  groups  can  operate.  Exploited  individuals  and  groups  will  not  have  the  wherewithal  to  engage  in   this  kind  of  process  and  will  remain  hidden  and  devoid  of  voice  until  assisted  to  enter  the  stream  of   deal  making  and  accommodations  which  are  the  difference  between  exclusion  and  empowerment  in   some   societies.   This   is   the   type   of   transformations   which   organizations   such   as   PEKKA   successfully   facilitate.     Women’s  Participation  as  Ritual   When   ‘principles’   such   as   gender   equality   are   interpreted   into   complex   ritual   processes,   participation   from   women   becomes   purely   symbolic.   Sometimes   programs   become   perceived   as   rituals  where  community  representatives  become  the  high  priests  ensuring  the  rites  are  performed   correctly   to   receive   the   ‘divine’   gift.   When   programs   and   processes   become   mechanistic   and   ‘ritualized’   there   is   a   tendency   for   the   implementers   to   end   up   talking   ‘at’   people   in   endless   meetings   and   herding   them   through   the   various   stages.   Ritualistic   approaches   are   often   single-­‐ mindedly   focused   on   quantifiably   verifiable   indicators   such   as   numbers   of   people   attending   meetings   or   numbers   of   meetings   held.   Staff   and   volunteer   workers   engaged   with   a   project   may   become   so   absorbed   with   these   ritual   aspects   that   they   often   lose   sight   of   the   basic   results   and   desired  outcomes  of  the  process  and  forget  that  they  are  trying  to  make  a  change  with  beneficiaries.   The  captive  audience  goes  through  the  ‘ritual’  process  because  they  feel  obliged  to.  The  process  is   not  participatory  and  interest  may  be  lost  or  outcomes  may  not  be  satisfactory.       21   Consultancy  conducted  for  World  Bank  Programme  Support  Facility   S.Azarbaijani-­‐Moghaddam,  May  14   Gender  Inclusion  Strategies  in  PNPM   Recommendations:   15. Planners  must  think  of  ways  to  help  women  describe  and  overcome  structural  barriers  they   perceive   in   entering   meetings   and   processes   within   the   hierarchy   of   men   and   women   in   a   given   community.     16. PSF   should   explore   ways   which   can   help   PNPM   designers,   staff   and   beneficiaries   explore   ways  to  change  the  cultural  scripts  and  dialogues  women  feel  constrained  to  repeat  when  inserted   into   ‘men’s   spaces’.   With   awareness   of   such   dynamics   and   potential   confusion,   program   designers   can  expose  men  and  women  to  possibilities  for  new  scripts  and  ways  of  relating  to  one  another.  This   may  involve  working  with  NMC  to  mainstream  gender  in  an  accessible  way.   17. At   least   one   module   in   trainings   should   cover   the   assumptions   related   to   women’s   participation  mentioned  above.   18. Messages   on   women’s   participation   have   worked   well.   The   key   is   obviously   to   craft   more   simple  messages  which  take  staff  along  a  continuum  which  develops  their  understanding  of  gender   and   participation.   Messages   should   define   the   change   which   is   being   sought.   This   can   be   done   through   various   media   such   as   SMS   alerts   repeating   the   goals   and   providing   tips   or   inspiring   messages.   19. PNPM  staff  should  not  turn  a  blind  eye  to  local  leaders  using  pressure  to  coerce  women  to   participate  in  activities.   20. Staff   must   show   more   sensitivity   constraints   faced   by   local   women   and   resulting   from   factors  such  as  time  management,  family  and  so  on.   21. Planners,   staff  and   male   leaders   must   understand   women’s   use   of   time   as   a   valuable,   multi-­‐ faceted  resource  and  the  extent  to  which  they  can  control  how  their  time  is  spent.  PNPM  should  not   be   putting   additional   burdens   on   women’s   time.   Cost-­‐benefit   calculations   of   how   much   earning   opportunity  or  time  on  household  tasks  may  be  lost  in  attending  meetings  may  be  useful.     22. It  is  recommended  that  assumptions  around  childcare  provision  are  explored  as  its  provision   may  allow  more  women  to  participate  in  activities  farther  afield  from  their  home  base,  impact  the   quality  of  and  time  available  for  participation.     23. A   typology   of   meetings   as   perceived   by   men   and   women   is   required.   This   must   include   descriptions  from  men  and  women  of  the  various  activities  and  attitudes  permissible  for  women  in   different  milieus.   24. A   strategic   decision   needs   to   be   made   on   the   negative   impact   of   some   adat   rules   and   practices.   PNPM   staff   ignoring   these   should   not   be   an   option.   PNPM   staff   can   be   shown   ways   of   not   supporting   and   reinforcing   discrimination.   Strategic   cooperation   with   other   organizations   should   also   involve   soliciting   their   intervention   when   PNPM   is   in   danger   of   overlapping   with   adat   principles   to   create   discrimination.   Contingencies   for   potential   conflict   should   be   put   in   place.   These   can   be   incorporated  into  the  social  safeguard  modules,  materials  and  trainings.   25. It   would   be   extremely   useful   to   facilitate   meetings   to   exchange   cultural   norms   as   well   as   good   practice   where   it   does   exist   and   to   organize   exchange   visits   for   groups   to   see   areas   where   sociocultural  factors  impact  gender  relations  in  a  dramatically  different  way.  An  example  would  be   an  exchange  between  Sumba,  where  women  are  not  permitted  to  own  assets,  and  West  Sumatera,   where  the  matrilineal  tradition  allows  women  to  own  and  inherit  property.  Such  visits  would  have  to   be  structured  and  heavily  facilitated  to  have  a  constructive  impact.   26. PNPM   does   not   have   the   resources   to   facilitate   the   development   of   negotiation   skills   in   women  but  it  should  cooperate  with  organizations  that  do  in  order  to  achieve  its  stated  impact  of   empowerment.   27. To   avoid   ritual   and   wastage,   it   is   important   to   include   impact   as   well   as   process   indicators   in   the   MIS.   This   requires   a   contextualized   participatory   gender   analysis   which   involves   generating   indicators  for  desired  impacts  for  factors  which  can  be  addressed  by  the  program  intervention.   28. The  selection,  training  and  ongoing  support  to  village  cadres  should  reflect  their  important   role  and  include  a  strong  gender  mainstreaming  process  at  a  level  appropriate  to  their  functions  and   needs.   22   Consultancy  conducted  for  World  Bank  Programme  Support  Facility   S.Azarbaijani-­‐Moghaddam,  May  14   Gender  Inclusion  Strategies  in  PNPM   Empowering  Women   “Sexual   division   of   labour   is   rigidly   segregated,   whereby   women   mostly   work   longer   hours,   multi-­‐ tasking   to   manage   multiple   domestic   and   productive   responsibilities…Women’s   bargaining   power   and   control   over   assets   and   decision   making   is   constrained   because   their   contribution   to   the   household   economy   (largely   unpaid)   is   invisible   while   any   money   they   do   earn   is   seen   as   supplementary.”  (Shatifan  2011)       Funds,  capacity  and  time  are  necessary  resources  which  empower  individuals  and  groups  to  follow   all   the   stages   of   a   program’s   cycle   to   achieve   the   desired   results.   PNPM’s   focus   on   “economic   empowerment   through   job   creation   and   income   generation,…political   empowerment   through   decision-­‐making  by  communities  [and]  social  empowerment  [by]  creating  an  enabling  environment   for  women’s  participation”  (Joint  Donor  &  Government  Mission  2009)  necessitate  a  good  hard  look   at  some  of  the  factors  which  would  form  the  foundation  of  the  process.  These  include:       e) women’s  control  of  their  time,     f) the  value  and  visibility  of  their  skills,  labour  or  contributions,     g) asset  ownership  and  finally,     h) bargaining  power.     There   are   also   other   factors   closely   tied   to   these,   for   example,   the   ability   to   continue   in   paid   employment  after  marriage  and  the  ability  to  work  in  locations  beyond  the  marital  family’s  comfort   zone.       At  present   PNPM  rarely  changes  existing  gender  roles  and  relations.  It  tends  to  reinforce  existing   ones   and   in   some   cases,   even   cause   deterioration.   A   recent   support   mission   reflected   the   team’s   finding   that   husbands   “play   a   reasonable   significant   role   and   must   approve   any   borrowing   plans   within  the  household.  For  SPP  applications,  his  KTP  must  be  produced  in  order  for  a  woman  to  be   included  (Support  Mission  2014).  In  locations  in  West  Sumatera  this  includes  the  ninik  mamak  .  Such   a   practice   would   undermine   existing   gender   relations   which   place   women   in   charge   of   their   own   business   finances.   Empowering   women   cannot   take   place   without   men   and   requires   changes   in   gender   relations.   This   in   turn   requires   a   commitment   to   impacts   and   social   change   rather   than   delivery   of   outcomes   and   outputs.   Ignoring   such   factors   would   ensure   the   “continued   dominance   of   men   and   of   traditional   gender   roles   within   PNPM   and   a   continued   focus   on   women’s   physical   presence  rather  than  their  voice  in  decision-­‐making…”(McGlynn  Scanlon  et  al  2012).   Women’s  Time   Women  can  have  ownership  of  their  time  when  they  realize  that  it  has  value  and  when  they  feel   they  have  choices  in  how  to  use  it  to  their  own  advantage.  Comments  during  interviews  indicated   that  women’s  time  is  considered  to  have  little  value  except  where  their  active  yet  largely  silent   presence  in  the  program  process  guarantees  flow  of  funds.  Women  clearly  do  not  consider  that  their   time  has  value  and  that  it  can  be  more  valuably  spent  focusing  on  business  development  rather  than   trying  to  juggle  domestic  chores  to  gain  men’s  approval.   Invisible  Labour  and  the  Devaluation  of  Women’s  Capacity   Making   women’s   work   and   contributions   visible   at   every   level   makes   it   more   difficult   for   institutions   to  succumb  to  the  historical  tendency  to  overlook  gender  issues  and  women’s  participation.  Previous   reports   have   noted   that   “[e]nsuring   that   opportunities   were   opened   up   through   the   project   for   women   to   participate   gave   them   the   chance   to   demonstrate   their   capabilities   to   the   community.   Several  cases  were  seen  where  this  lead  to  them  being  elected  or  chosen  for  other  positions  outside   the  project  including  in  the  village  governments.”  (Joint  Donor  &  Government  Mission  2009)     Women  join  men  in  discounting  the  value  of  the  work  they  do  in  the  home  and  in  the  village.  For   them  work  involves  a  formal  job  in  an  office  or  similar  context  but  most  women  have  transferable   23   Consultancy  conducted  for  World  Bank  Programme  Support  Facility   S.Azarbaijani-­‐Moghaddam,  May  14   Gender  Inclusion  Strategies  in  PNPM   skills  from  their  tasks  in  the  domestic  and  community  context  which  should  be  noted,  listed  and   used.   Such   skills   include   management   of   resources,   management   of   personnel,   quality   control,   purchasing,   planning   how   to   utilize   space,   planning   for   allocation   of  resources,  multi-­‐tasking   and   a   number   of   other   skills   which   is   what   they   do   at   home   with   available   resources,   space,   family   members  and  time.     Both   men   and   elite   women   expect   poorer   women   to   provide   services   and   products   for   a   lower   price  than  men  thus  devaluing  women’s  contributions.  In  West  Sumatera  we  asked  questions  about   gender   relations   in   the   market   place   and   whether   women   were   given   the   same   rates   as   men   for   the   same   goods,   The   answer   was   a   unanimous   ‘yes’   but   upon   probing   it   was   discovered   that   the   expectation  from  buyers  is  for  women  to  lower  their  prices  after  bargaining  while  men  have  a  ‘take   it  or  leave  it’  attitude  giving  the  seller  an  advantage.  In  South  Sulawesi  a  male  facilitator  explained   that   he   addressed   gender   by   ensuring   that   women   had   access   to   projects   which   had   an   intensive   unskilled   labour   component.   He   could   not   tell   us   whether   women   received   the   same   payment   as   men.     An  important  part  of  improving  social  accountability  which  is  mentioned  in  the  World  Bank  Project   Appraisal   document   is   empowering   women   to   be   able   to   ask   for   payment   for   their   time   and   skills.   Of  course  this  has  to  be  carefully  balanced  with  efforts  to  sustain  voluntarism  but  it  is  critical  that   women  are  given  a  sense  that  their  time  and  skills  are  valuable  and  also  that  women  are  not  cajoled   into   bearing   the   burden   of   voluntarism   in   a   community.   Discussions   with   skilled   Minang   women   weavers,  for  instance,  revealed  that  they  charge  buyers  for  materials  and  transport  costs  but  not  for   their  labour  in  terms  of  time  spent  or  skills.       The  program  seems  to  use  women’s  labour  in  many  ways  while  reinforcing  notions  that  it  should   be   available   at   high   quality   and   quantity   for   nothing.   Women’s   contributions   at   family   and   community   level   remain   invisible   and   undervalued.   Women   are   expected   to   turn   up   as   and   when   required,   for   as   long   as   necessary,   they   are   expected   to   carry   out   all   duties   meticulously   with   attention   to   detail.   It   was   difficult   for   interviewees   however   to   discuss   the   specifics   of   what   they   achieve  in  return.  If  women’s  time  and  labour  is  to  be  appropriated  the  program  must  ensure  that   there   is   a   tangible   benefit   for   women   which   can   be   described   specifically   in   monitoring   and   evaluation.       Highlighting   women   as   social   capital   and   women’s   capacity   as   a   community   asset   can   be   one   of   many   positive   steps   towards   changing   such   attitudes.   Changes   in   attitude   may   also   change   women’s  attitudes  about  what  they  can  expect  and  what  they  deserve  in  return  for  their  work,  skills   and   contributions.   Also,   whereas   infrastructure   projects   can   be   ‘seen’,   women’s   capacity   like   their   labour   is   invisible   even   though   it   is   a   community   asset.   This   is   another   reason   why   proposals   for   capacity  building  projects  for  women  may  often  be  rejected.   Control  of  Assets   Access   to,   ownership   and   control   of   assets   are   good   indicators   of   empowerment.   It   has   been   shown   in   studies,   for   example,   that   land   ownership   gives   women   power3.   Even   where   social   conditions   still   consider   men   as   family   heads   women   are   influential   and   heavily   involved   with   community   decision-­‐making.   Property   ownership   and   lack   of   reliance   on   a   man   to   provide   shelter   put  women  in  a  stronger  position  to  negotiate  with  men.  Land  inheritance  was  used  as  a  measure  of   women’s  empowerment  by  the  team  and  led  to  interesting  discussions.                                                                                                                             3   Across  the  world  women’s  lack  of  property  and  inheritance  rights  are  increasingly  being  viewed  as  obstacles   to   raising   levels   of   education,   hunger   and   improving   health.   Land   rights   impact   distribution   of   wealth,   production   patterns   and   market   development.   These   are   seen   as   prerequisites   for   economic   growth   and   poverty  reduction  (Panda  &  Agarwal  2005;  UN  Millennium  Project  2005)   24   Consultancy  conducted  for  World  Bank  Programme  Support  Facility   S.Azarbaijani-­‐Moghaddam,  May  14   Gender  Inclusion  Strategies  in  PNPM   Field   sites   showed   glaring   differences   in   terms   of   access   to   and   control   of   assets.   Women   in   Sumba4   would  appear  to  have  limited  property  ownership  or  inheritance  rights  except  for  jewelry.  Much  is   determined   in   customary   meetings   were   sanctions   and   reciprocal   arrangements   are   made   about   women   (e.g.   compensation   for   domestic   violence   where   a   woman   is  ‘damaged’)   effectively   reducing   them   to   assets   owned   by   men.   Even   the   children   belong   to   the   husband   or   the   male   head   of   clan   as   lead  decision-­‐maker.  In  Sumba  women  have  to  consult  their  husbands  to  buy  flip  flops  or  a  headscarf   even  if  they  are  using  money  they  have  earned  themselves.       In  South  Sulawesi,  Bugis  culture  reflects  Islamic  values  with  the  husband  being  the  household  head   and   claiming   ownership   of   large   assets   although   there   were   variations.   Men   inherit   two   thirds   of   property   and   assets.   In   Minang   culture   inheritance   rights   for   property   generally   favour   girls   and   women,  who  can  manage  finances  and  own  assets  including  property  and  land  thus  giving  them  an   advantage  in  the  decision-­‐making  hierarchy.  Asset  ownership  gives  women  confidence  to  participate   in   public   life   on   their   own   terms,   although   there   are   still   social   sanctions.   A   marital   dispute   here   would  result  in  the  husband  being  thrown  out  of  the  house  as  it  belongs  to  the  wife.       When   gender   relations   are   discriminatory   and   remain   unchallenged   the   products   of   women’s   labours   are   inevitably   appropriated   by   male-­‐headed   institutions   e.g.   the   family,   government   projects,   etc.   This   maintains   women’s   dependence   on   men   however   hard   they   work   or   whatever   they  earn.  It  also  leaves  them  unable  to  expect  financial  assistance  to  perform  their  gender  allocated   tasks  so  they  still  have  to  work  hard  to  cover  family  expenses.     Bargaining  Skills   “Specifically,   to   “level   the   playing   field”,   [special]   facilitation   should   aim   to   develop   marginalized   groups’   organizing   capacity,   negotiation   skills,   networking,   and   ability   to   access   information   hence   enabling  them  to  voice  their  needs  and  demand  response.”  (Akatiga  2010)     Women   need   to   feel   empowered   to   bargain   within   the   family,   the   community   and   in   the   marketplace.   When   women   feel   they   have   no   choice   they   will   accept   whatever   they   are   given.   They   will  work  hard  to  produce  and  be  pushed  hard  to  give  low  prices  to  buyers.  They  will  be  pressured  to   spend  what  little  they  make  prudently  and  to  stretch  it  as  far  as  possible.  They  will  negotiate  hard   probably   only   with   other   women   to   get   a   bargain.   It   has   been   noted   that   the   ability   to   lobby   and   bargain  hard  are  necessary  qualities  to  extract  what  one  needs  from  PNPM  (Akatiga  2010).  PEKKA’s   work  progresses  on  a  foundation  of  helping  marginalized  women  bargain  with  the  representatives  of   patriarchy   through   gendered   processes   such   as   forming   councils   of   traditional   adat   leaders   to   renegotiate  on  behalf  of  women  on  the  ground  of  rules  of  adat5.       Without   women   learning   bargaining   skills   to   alter   and   moderate   gender   relations   to   enter   and   challenge   male   domination   in   meetings   and   processes,   institutions   like   the   village   parliament   or   council  and  small  markets  will  continue  to  be  dominated  by  men.  None  of  the  documents  written   on   gender   or   women’s   participation   within   PNPM   explore   whether   women   are   encouraged   to   negotiate  with  men  and  which  outcomes  they  can  bargain  over.  Within  PNPM,  women  clearly  have   not  been  able  to  negotiate  for  more  capacity  building  projects  which  they  need  (McGlynn  Scanlon  et   al   2012).   Studies   such   as   that   conducted   by   Akatiga   (2010)   state   how   elites   and   other   groups   find   ways   to   influence   PNPM   agendas   to   achieve   their   own   goals.   Women   can   be   taught,   for   example,   to   use  their  presence  in  PNPM  as  a  bargaining  chip  since  community  men  cannot  proceed  and  access   program  funds  without  them.                                                                                                                             4  The  culture  of  the  Sabu  living  on  Sumba  differed  somewhat.   5  Private  communication  with  Scott  Guggenheim   25   Consultancy  conducted  for  World  Bank  Programme  Support  Facility   S.Azarbaijani-­‐Moghaddam,  May  14   Gender  Inclusion  Strategies  in  PNPM   Expectations  and  Concerns   The  template  for  interactions  between  men  and  women  is  formed  by  culture  among  other  factors.   When  asking  Merappu  women  in  Sumba  how  they  selected  wives  for  their  sons  they  stressed  that   the   wife   should   be   resourceful   but   she   must   know   her   place,   not   dominate   her   husband   or   question   him.   This   creates   a   challenging   gender   dynamic   which   puts   a   massive   burden   from   women   on   women  while  reducing  their  expectations  to  almost  nil.     An   important   derivation   from   an   examination   of   questionnaire   and   interview   results   was   that   women   have   low   expectations   for   themselves   and   their   lives.   Expectations   allow   individuals   to   visualize   outcomes   for   any   activity   from   starting   a   business   to   participating   in   PNPM.   For   instance,   a   question   asking   women   to   give   examples   of   when   men   had   listened   to   women   and   changed   something   in   PNPM   provided   interesting   results   as   women   could   not   give   good   examples   of   situations  where  men  had  actually  changed  anything  substantial  because  of  input  from  women.  Men   were  also  asked  the  same  question  and  similarly  responded  in  a  vague  manner  about  what  they  had   changed  in  response  to  women’s  requests  (See  Appendix  4).     Overall   the   impression   gleaned   from   the   interviews   was   that   women   are   busy   trying   to   keep   their   own  and  their  family’s  heads  above  water.  Their  only  expectation  is  a  lifetime  of  hard  work  and   doing   what   they   are   told.   In   another   example,   54   women   interviewees   were   asked   how   men   encourage   them   to   participate   in   PNPM   activities.   Just   over   half   responded.   Some   responses   were   tangential  or  nonsensical.  Of  the  50%  left  one  group  thought  that  inviting  women  to  meetings  was   encouragement  enough.  Another  group  mentioned  being  permitted  to  attend  meeting  by  husbands   and  saw  that  as  encouragement.  Telling  women  how  to  behave  and  ensuring  that  they  could  jump   the  bureaucratic  hurdles  were  also  seen  as  ‘encouragement’.       Women  consider  some  of  their  concerns  taboo  and  are  reluctant  to  share  these  openly.  This  can   impact   their   behavior   and   participation   in   public   spheres   whether   the   market,   the   development   process  or  the  political  arena.  In  some  groups,  for  example,  women  were  queried  as  to  why  they  did   not   hire   labour   from   poorer   families   for   domestic   chores   in   order   to   free   up   time   to   expand   their   businesses  after  they  receive  credit.  There  was  a  great  deal  of  smoke  screening  and  avoidance.  After   prolonged   questioning   the   issue   which   surfaced   was   the   worry   that   husbands   would   have   affairs   with   any   females   brought   into   the   house.   This   in   turn   launched   a   barrage   of   comments   and   questions   about   how   to   keep   husbands   faithful   and   how   to   stop   them   taking   second   wives.   This   taboo  issue  is  a  major  concern  for  women  all  over  the  world  stops  women  from  easing  their  burdens   by  hiring  domestic  help  to  free  up  time  for  more  strategic  pursuits.  Women  wholeheartedly  throw   themselves   into   the   role   of   good,   obedient   wife   and   mother   to   remain   blameless   because   society   tells  them  that  that  will  stop  their  husband  straying.  This  kind  of  issue  impacts  women’s  behavior,   participation  in  activities  and  motivation.     Women   have   expectations   for   a   better   life   for   their   daughters   but   do   not   know   how   to   realize   these.   Women   in   South   Sulawesi   talked   about   daughters   becoming   highly   educated,   getting   jobs,   moving   to   the   city   and   becoming   ‘independent’.   This   usually   means   from   their   parental   families.   They  explained  with  resignation  that  it  is  still  unacceptable  for  a  woman  to  be  independent  from  her   husband   and   that   she   will   be   forced   to   stay   at   home   after   marriage   and   start  a   small   home-­‐based   business.   Women   are   never   allowed   to   forget   their   responsibilities   to   their   husband   and   family.   This   dynamic   affects   programs   such   as   PNPM   where   qualified   female   staff   are   only   available   until   marriage   or   birth   of   children.   Men   interviewed   also   demonstrated   contradictory   interests   with   expectations  for  wives  to  ignore  educational  and  professional  achievements  to  stay  at  home  while   they  bemoan  the  small  pool  of  educated  women  available  to  apply  for  positions  in  the  workplace.   Gender  Stereotyping   Programs  such  as  PNPM  are  too  large  to  actively  address  stereotypes  but  designers  can  be  vigilant   in  ensuring  that  they  are  not  reinforced.  This  has  been  alluded  to  elsewhere:  “The  deeply  engrained   26   Consultancy  conducted  for  World  Bank  Programme  Support  Facility   S.Azarbaijani-­‐Moghaddam,  May  14   Gender  Inclusion  Strategies  in  PNPM   heavy   emphasis   by   government,   PKK,   and   facilitators,   on   activities   linked   to   women’s   traditional   role,   such   as   cakes   and   snacks,   or   sewing,   limits   the   opening   of   new   opportunities   for   women   which   could  more  effectively  lift  families  out  of  poverty”.  As  long  as  women’s  choices  are  narrow  and  tie   them  to  home-­‐based  economic  activities  and  while  they  have  the  main  responsibility  for  household   tasks   their   interests   will   remain   parochial.   This   is   a   legacy   of   “new   order”   ideology   which   saw   the   State   defining   women’s   primary   roles   as   good   wives   and   mothers   and   exerting   control   through   family   welfare   policies   and   institutional   mechanisms   such   as   PKK   (Joint   Donor   &   Government   Mission   2009).   Such   notions   keep   women   firmly   in   the   domestic   sphere   and   push   women   into   volunteer  position  where  men  would  be  paid  for  the  same  tasks.     Hidden   in   the   questionnaire   responses   examined   there   were   some   interesting   phrases   which   provided   a   slightly   different   view   from   the   official   line   of   encouraging   women   to   participate   to   promote  gender  equality.     “Women  are  the  servants  of  the  family  and  society.”   "If  women  do  not  participate  nobody  cooks  food"   “Community  contributions  are  a  mess  if  women  are  not  there  to  organise  things  -­‐  nobody  else  will   do  it.”   “Everything  is  a  mess  without  women.”   These  throw  away  phrases  point  at  some  interesting  gender  stereotypes  listed  below:       • Women  must  do  what  they  are  told  -­‐  their  time  and  labour  is  not  their  own   • Women  are  the  invisible  organisational  force  behind  community  activities  especially  where   tasks  are  considered  tedious  or  menial  by  men   • Women  provide  invisible  labour  by  providing  food  for  many  community  occasions   • Women   are   diligent,   accountable   and   honest   –   this   was   frequently   repeated   and   emphasised   Diligent  Women   “Family  obligations  remain  paramount  to  Indonesian  women,  creating  a  sensitivity  about  ‘shaming’   their  husbands  by  being  seen  as  ‘bad’  wives  and  mothers.”  (Shatifan  2011)       Women   should   be   obedient   and   not   question   orders;   women   are   the   army   while   the   men   command   as   generals.   The   notion   of   the   diligent,   honest,   accountable   (see   appendix   4)   but   unchallenging   woman   is   by   far   the   most   undermining   gender   stereotype   and   has   far   reaching   implications   especially   for   programs   designed   to   empower   women.   In   day   to   day   life   women   are   expected   to   take   responsibility   and   pay   meticulous   attention   to   detail   in   tasks   they   are   set.   They   are   expected  to  manage  funds,  resources,  households,  businesses  and  to  do  so  without  loss  or  wastage   (or  support)  -­‐  it  is  considered  a  gender  specific  attribute.  Further  probing  revealed  that  women  must   manage  but  not  control.  Even  though  women’s  abilities  are  not  valued  it  is  tacitly  understood  that   they  manage  resources  well.       Another   implication   is   that   women   should   never   make   mistakes.   It   was   said   by   several   interviewees   that   women   are   more   scrupulous   and   easily   shamed   if   they   are   caught   making   a   mistake   which   will   prevent   them   from   speaking   and   making   a   suggestion   on   behalf   of   others.   This   in   turn   makes   it   difficult   for   women   to   feel   confident   to   represent.   Women   in   group   settings   may   frequently  feel  that  they  are  exposed  and  vulnerable,  fearing  shame  rather  than  feeling  the  support   of   a   group   of   like-­‐minded   individuals.   Men   are   allowed   to   take   risks   with   businesses   and   other   endeavours   while   women   are   not.   Women   are   expected   to  drive   a   hard   bargain   and   be   prudent   and   frugal  with  funds  placed  in  their  care  while  men  spend  as  they  please.     27   Consultancy  conducted  for  World  Bank  Programme  Support  Facility   S.Azarbaijani-­‐Moghaddam,  May  14   Gender  Inclusion  Strategies  in  PNPM   It   is   a   positive   step   that   women   are   being   selected   as   treasurers   and   secretaries   in   the   PNPM   village   council   but   how   their   appointments   are   handled   may   reinforce   existing   gender   roles   and   stereotypes.  In  PNPM  where  budgets  are  predetermined  and  there  is  no  space  for  the  village  team   to   ‘play’   with   funds   –   women   are   perfect   custodians   of   funds.   The   head   of   the   TPK   is   often   male   but   the  administrative  staff,  dealing  with  the  minutiae,  are  often  women.  There  are  increasing  numbers   of   women   in   Village   Implementation   Teams,   Financial   Management   Units   and   Operation   and   Maintenance   committees.   Some   reports   state   that   this   improves   the   sustainability   of   sub-­‐projects   (Joint   Donor   &   Government   Mission   2009).   As   with   all   such   tasks,   women   are   given   little   or   no   support  in  doing  this  by  families,  community  or  government  and  face  pressure  not  to  make  mistakes.   Such   responsibilities   however   do   not   seem   to   give   women   a   commensurate   rise   in   negotiating   power  within  the  program.  Control  of  funds,  assets,  resources  and  decision-­‐making  always  remains   with  the  men.  An  example  provided  elsewhere  was  social  mapping  requiring  time  and  patience:  “the   men   got   bored   and   drifted   away   before   the   women   did,   meaning   that   women   tended   to   be   the   substantial  contributors  to  these”(ibid).   Group  Formation  in  PNPM   “Lessons   from   other   programs   show   the   benefits   of   organising   vulnerable   women   into   groups   improves  women’s  knowledge  of  their  rights,  builds  their  confidence,  supports  their  collective  action   and   elevate   their   social   position   in   the   community   by   improving   access   to   resources   and   the   opportunity   to   adopt   new   roles   and   responsibilities   in   their   families,   communities   and   broader   society6”.  (Shatifan  2011)     Continuing   with   unpacking   assumptions   on   women’s   participation,   number   six   is   that   asking   women   to  meet  sporadically  will  lead  to  the  development  of  a  fully  functioning,  cohesive  group.   PNPM  can   report   very   little   in   terms   of   social   cohesion   or   change   especially   when   it   comes   to   gender   relations.   There   is   little   tradition   of   women’s   communal   decision-­‐making   (even   in   West   Sumatra)   and   a   corresponding   ‘women’s   space’   so   women   do   not   know   how   to   create   such   space.   Group   formation   is   an   important   part   of   changing   women’s   spaces.   Individual   spaces   where   women   operate   in   isolation   within   families   are   joined   to   other   individual   spaces   to   create   an   archipelago   which,   facilitated   well,   becomes   women’s   space   within   the   community.   SPP   for   example   does   not   create  ‘groups’  through  facilitation  but  by  necessity.  The  women  involved  often  meet  once  a  month   and  have  little  interaction  beyond  the  project  meetings.  A  survey  of  SPP  groups  will  probably  show   that  they  do  not  function  as  groups  and  cannot  therefore  be  relied  on  as  village  ‘institutions’  which   can  be  called  on  during  exploration  and  planning  phases.     An  example  of  good  practice  in  relation  to  women’s  space  which  led  to  the  creation  of  networks   and  coalitions  appeared  in  a  village  in  West  Sumatera.  This  was  one  of  the  first  cases  the  team  saw   where  women  had  their  own  designated  physical  space  in  the  village.  Most  other  encounters  with   women   had   taken   place   in   homes   and   backyards.   In   the   village   visited   all   the   bodies   related   to   women  operate  out  of  the  same  space  located  in  the  centre  of  the  village  across  from  the  mosque  –   a   symbolic   placement.   Women   had   access   to   a   computer   and   a   phone   here.   A   women’s   cooperative   had  been  in  existence  since  1985.  A  memorandum  of  understanding  signed  by  the  governor  and  an   operational  manual  to  guide  collaboration  between  PNPM  and  PKK  at  provincial  level  for  District  IV   Koto   was   partially   responsible   for   this   arrangement.   The   initiative   came   from   the   PKK.   The   MoU   ensures  resource  sharing  and  specifies  that  PKK  members  are  involved  in  PNPM  activities  and  that   they  help  form  ten  new  SPP  groups  in  each  sub-­‐district.  This  example  can  be  replicated.     Since  women  are  not  traditionally  influential  figures  with  power  and  a  space  delineated  by   adat   practices   their   best   course   of   action   is   to   try   and   build   groups   and   to   influence   processes   by   building  up  critical  mass  and  creating  new  spaces.  The  PTO  allows  proposals  for  the  “improvement                                                                                                                           6  See  ACCESS  Phase  II,  civil  society  program  funded  by  AusAID,  Indonesia  and  PEKKA,  poverty  program  for  female  headed   households  funded  by  World  Bank.     28   Consultancy  conducted  for  World  Bank  Programme  Support  Facility   S.Azarbaijani-­‐Moghaddam,  May  14   Gender  Inclusion  Strategies  in  PNPM   of  capacity/skills  of  economic  enterprise  groups  established  by  women-­‐specific  village  consultation”.   Lower   numbers   submitting   smaller   proposals   may   account   for   women’s   lower   levels   of   success   in   getting  capacity  building  proposals  accepted  as  mentioned  by  interviewees  and  reports  such  as  the   Joint   Donor   &   Government   Mission   (2009).   This   mentions   “[a]necdotal   indications   that   women   proposed   training   more   often   than   men   but   these   proposals   were   rejected   –   perhaps   because   there   would  be  far  fewer  beneficiaries  of  training  activities,  than  say,  water  supply  or  roads  projects,  and   therefore   the   selection   criteria   were   against   it”   (2009).   An   explanation   for   this   provided   by   interviewees   was   the   male   dominated   handling   of   budget   and   priorities   which   meant   that   they   would  aim  for  the  ‘jackpot’   –  funding  for  an  expensive  infrastructure  project  which  the  village  could   not  ordinarily  afford.  Women  can  only  compete  if  they  can  submit  a  large  expensive  proposal.  Due   to   the   lack   of   focus   on   building   large   groups   ,   networks   or   coalitions   women   can   probably   never   manage   to   create   a   proposal   which   is   as   expensive   as   an   infrastructure   project.   Evidently   lack   of   women’s  presence  and  influence  at  sub-­‐district  level  will  also  impact  decisions.   SPP  and  Women’s  Economic  Empowerment   The   final   assumption   in   program   design   discussed   in   this   report   is   that   women   are   capable   of   running  successful  businesses  through  a  modest  cash  injection  from  the  SPP  program.     Women’s   interest   in   increasing   their   income   probably   draws   them   in   numbers   to   attend   PNPM   activities  in  the  hope  of  accessing  SPP,  the  savings  and  loans  component  of  PNPM  Rural  assumed   to   assist   in   livelihood   and   job   creation.   Technically   it   has   the   potential   to   provide   women   with   “organizing   capacity,   negotiation   skills,   networking,   and   access   to   information   to   enable   them   to   voice  their  needs  and  demand  some  response”  (Akatiga  2010)  all  factors  which  should  give  women’s   groups   voice.   A   number   of   reports   have   noted   that   SPP   is   “rarely   managing   to   change   the   overall   economy  of  the  family”  (Joint  Donor  &  Government  Mission  2009)  and  that  activities  are  “very  small   scale  and  enabled  women  to  manage  their  household  expenses  better,  or  invest  in  very  low  return   activities”(ibid).       It   has   been   noted   elsewhere   that   implementation   of   SPP   needs   improvement   (Joint   Donor   &   Government   Mission   2009;   Akatiga   2010)   and   apparently   modifications   are   in   the   pipeline.   Once   again,   however,   the   obsession   of   stakeholders   appears   to   be   with   hitting   targets,   ensuring   that   enough   women   participate   and   repay   loans,   automatically   excluding   anyone   who   appears   to   be   a   risky   prospect   (Akatiga   2010).   The   program   is   solely   concerned   with   disbursement   of   funds,   repayment  and  the  avoidance  of  idle  money.  The  pressure  to  succeed  is  placed  on  the  women  who   facilitate  and  the  women  take  loans.  They  are  left  unsupported  to  negotiate  with  family  and  markets   to  ensure  that  they  can  repay  on  time.       This   section   of   the   program   as   others   is   replete   with   assumptions   about   women.   There   is   an   erroneous   assumption   that   all   women   given   access   to   finance   have   business   skills  –   many   struggle   and  make  repeated  requests  for  business  skills,  access  to  markets  and  other  assistance  as  found  by   another   recent   field   mission   which   found   that   women   had   “never   received   any   guidance,   training   or   orientation  on  any  of  the  dimensions  related  to  managing  their  money  or  small  enterprises:  financial   management,   book   keeping,   business   planning,   marketing,   etc.     They   expressed   this   as   a   strong   desire   and   need   and,   when   asked   for   suggestions   as   to   how   to   improve   SPP,   the   request   for   training   on   business,   marketing,   finance   was   their   primary   demand”   (Support   Mission   2014).   Training,   extension   and   links   to   financial   institutions   are   also   listed   as   additional   resources   required   (Joint   Donor  &  Government  Mission  2009).     The   Support   Mission   also   found   that   successful   groups   “appear   to   be   those   with   strong   leaders   who   also   ensure   that   the   groups   take   care   of   broader   needs   –   social   support,   regular   meetings,   arisan,   etc.”  emphasizing  the  need  for  social  inputs  such  as  group  formation  and  women’s  leadership.  This   component  is  assumed  to  generate  group  formation  among  women  but  it  was  clear  that  women  had   not  been  exposed  to  the  knowledge  that  forming  groups  could  help  them  increase  production,  assist   29   Consultancy  conducted  for  World  Bank  Programme  Support  Facility   S.Azarbaijani-­‐Moghaddam,  May  14   Gender  Inclusion  Strategies  in  PNPM   with  marketing,  help  in  negotiating  for  better  prices  and  rates  in  markets,  pool  costs  for  productive   assets   and   so   on.   Women   need   to   be   forming   groups   along   value   chains   and   productive   activities   and  should  be  given  access  to  market  information  e.g.  through  their  mobile  phones.       Apart   from   not   leading   to   the   creation   of   savings   and   modest   assets,   activities   like   SPP   can   be   labour   intensive   and   time   consuming.   Taking   a   loan   brings   with   it   a   pressure   to   work   more   hours   in   order   to   repay   and   can   add   to   women’s   burden   of   labour   if   they   are   not   adept   at   organizing   existing   resources  (human,  time,  funds)  and  have  no  way  to  save  time.  In  spite  of  this  women  will  continue   to   struggle   and   work   every   available   moment,   where   family   help   is   unavailable,   to   complete   their   domestic  tasks  and  run  a  business.       Other   factors   to   consider   for   program   design   are   discussed   here.   One   is   an   assumption   that   all   women  are  taking  loans  for  business  purposes.  Some  are  taking  loans  to  fulfil  more  pragmatic  basic   daily   needs   such   as   covering   living   expenses,   home   improvements   or   to   deal   with   potential   economic   shocks.   Others   have   put   money   in   family   farms   which   wreaks   havoc   with   repayments   if   harvests  fail.  Another  is  that  if  women  are  indeed  being  ‘economically  empowered’  they  should  be   expanding   their   business   and   ‘graduating’   on   to   better   and   more   secure   forms   of   employment.   Also,   there  has  been  no  assessment  of  the  impact  of  the  loan  on  gender  relations  within  families  and  on   women’s   participation   in   other   activities   (e.g.   seeking   health,   quality   time   with   children,   skills   training,  attending  meetings,  etc.).  Finally,  women  may  be  wary  of  overstepping  the  mark  in  terms  of   earning  money  and  asserting  themselves  in  public  and  private  in  order  avoid  eclipsing  their  husband,   Recommendations:   Many  of  the  recommendations  below  should  be  forwarded  to  NMC  and  their  SPP/RLF  specialist  to   develop   more   comprehensive   trainings   for   SPP   groups.   The   issues   considered   should   be   included   when   developing   training,   capacity   building   and   support   for   SPP.   They   should   also   be   considered   when  developing  additional  indicators  for  SPP/RLF.     11. Women   need   to   learn   to   transfer   their   well-­‐honed   bargaining   skills   to   other   fora   and   situations   to   overcome   structural   barriers   to   their   participation   at   community   level.   Determining   outcomes   which   can   be   negotiated   by   women   form   strategic   entry   points   where   insertion   of   technical  gender  expertise  on  appropriate  issues  can  have  profound  impacts.   12. The   consultant   proposes   experimenting   with   facilitating   ‘shame   free’   zones   as   part   of   women’s  meetings  when  women  can  communicate  issues  which  they  would  normally  find  taboo  by   sharing   them   anonymously.   Women   should   be   encouraged   to   decide   what   they   would   do   if   they   were   unencumbered   by   shame.   How   would   their   behavior   change?   What   activities   would   they   undertake?   The   group   can   then   decide   which   of   these   ‘shameful’   activities   is   actually   feasible   and   would  be  supported  by  the  group.   13. It  is  important  to  ascertain  how  much  women  are  being  pressured  to  shoulder  the  burden  of   all   tasks   which   require   ‘diligence’   while   men   lead.   It   is   also   important   to   ensure   that   women   are   not   being  ‘invited’  into  the  program  to  be  given  instructions  to  do  tasks  which  men  find  below  them  or   tedious.   14. Program   staff   and   communities   should   be   made   aware   that   accepting   women’s   proposals   for  preschool  and  other  childcare  facilities  frees  up  women’s  time  to  pursue  other  activities  whether   it  is  developing  their  businesses  or  attending  more  PNPM  or  SPP  meetings.   15. There   is   a   move   to   involve   women   in   the   procurement   committee.   The   program   can   also   give  women  entrepreneurs  a  boost  by  ensuring  that  small  and  medium  scale  enterprises  headed  by   women  are  given  priority  during  procurement  where  feasible,  especially  those  linked  to  SPP.   16. Communities   should   be   encouraged   to   acknowledge   and   celebrate   specific   achievements   and  contributions  to  community  life  made  by  women.  Achievements  could  be  anything  from  running   small   businesses   to   the   number   of   high   school   graduates   who   enter   university,   the   number   of   professional   women   a   community   possesses   and   so   on.   Contributions   can   be   cleaning   up   and   the   provision  of  snacks  and  food  for  every  visiting  dignitary  or  for  religious  ceremonies.  This  can  be  done   30   Consultancy  conducted  for  World  Bank  Programme  Support  Facility   S.Azarbaijani-­‐Moghaddam,  May  14   Gender  Inclusion  Strategies  in  PNPM   through  formal  thanks  or  any  other  public  gesture  of  acknowledgement.  Celebrations  can  be  actual   events,  tagged  on  to  other  events,  prize  giving  ceremonies,  placed  on  websites  or  communicated  in   ways   selected   by   the   community.   The   important   factor   is   that   men   and   women   see   women’s   contribution  and  learn  to  value  it7.   17. PNPM  must  ensure  that  it  is  not  contributing  to  processes  which  devalue  and  disregard  the   value   of   women’s   time,   skills   and   contribution.   Strategies   must   be   found   to   encourage   men   and   women   need   to   begin   valuing   women’s   time.   Similarly   strategies   are   required   to   make   women’s   work   visible   and   to   allot   value   to   their   skills   and   labour.   Women   should   be   empowered   to   ask   for   reasonable  recompense  for  their  time  and  skills.   18. Programs  that  seek  to  empower  women  should  be  looking  at  conditions  leading  to  change  in   gendered  access  and  control  of  assets.  They  should  also  be  looking  at  asset  creation  and  ownership.   19. Part   of   the   facilitation   processes   for   PNPM   must   include   encouraging   women   to   develop   expectations  for  positive  change  as  a  result  of  their  activities  and  for  outcomes  which  they  define.   Where  women’s  strategic  gender  concerns  are  affecting  their  participation  PNPM  should  outsource   external  expertise  and  collaborate  with  organisations  which  can  assist.   20. PNPM   staff   must   be   assisted   to   identify   where   they   are   reinforcing   negative   gender   stereotypes  and  take  steps  to  counter  this.                                                                                                                             7  This  practice  was  recommended  by  the  consultant  to  a  program  building  women’s  business  skills  in   Afghanistan.  Anecdotal  evidence  has  shown  that  it  is  having  a  profound  impact.  The  consultant  will  be  doing   follow  up  work  on  this  in  Afghanistan  in  May  2012.   31   Consultancy  conducted  for  World  Bank  Programme  Support  Facility   S.Azarbaijani-­‐Moghaddam,  May  14   Gender  Inclusion  Strategies  in  PNPM   Appendix  1  -­‐  Locations  Visited   Total  Locations  visited   Propinsi  -­‐  province   3   Kabupaten  -­‐  district   3   Kecamatan  –  sub-­‐district     6   Desa  -­‐  village   13     Province   District   Sub  district   Villages   Lawepaku   NTT  –  Nusa   Lawe   Kambuhopang   Tenggara   Umalulu   Timur   Sumba  Timur   Umalulu   Wanga   Lampoko   Balusu   Balusu   Sulawesi   Kiru  kiru   Selatan   Barru   Soppeng  Riaja   Batu  Pute   Koto  Tuo   Lambai   IV  Koto   Koto  Panjang   Sumatera   IV  Koto   Barat   Agam   Palembayan   Talaok     Appendix  2  -­‐  Interviewees       Male     Female       Provincial  Coordinators   5   2   7   District   Facilitator/Faskab   4   3   7   -­‐District  Gov   Operational   Manager/PJOKab   1   0   1   UPK1   5   4   9   UPK2   5   5   10   Sub  district  Gov   Operational   Manager/PJOKec    1   2   1   3   Sub  district  Gov   Operational   Manager/PJOKec  2   1   1   2   Sub  District   13   4   17   Facilitators/FK  &  FT   Village  Cadres/KPMD   2   11   13   BKAD   10   0   10   BPUPK   3   2   5   TPK   5   2   7   32   Consultancy  conducted  for  World  Bank  Programme  Support  Facility   S.Azarbaijani-­‐Moghaddam,  May  14   Gender  Inclusion  Strategies  in  PNPM   PKK   0   4   4   Women   -­‐   54   54   Total   56   93   149     -­‐ Women  were  gathered  by  PNPM  staff  and  were  mostly  SPP  members   -­‐ The  BKAD  or  inter-­‐village  board  is  a  male-­‐dominated  institution  as  most  members  are  village   or  nagari  heads,  traditionally  men.   Appendix  3  –  Gender  Affirmative  Actions     Gender  Affirmative  Actions     Targeting  Specific  Women’s  Groups   Beneficiaries   Quota  attendance  in  meetings  (  min  40  %  )   Mandatory  Proposals  from  women’s  groups     3/6  (  min  50  %  )  of  village  representatives  in  decision  making  process   Decision  Makers   of  inter-­‐village  forums  are  women   30%  of  public  consultations  are  with  women:  village  forum,  hamlet   forum,  bidding  meeting     Minimum  one  woman  as  member  of  village  Implementation  Team     Implementers   Minimum  one  woman  as  member  of  village  procurement  team       Minimum  one  women  staff  in  financial  management  unit  (UPK)  at  sub-­‐ Monitoring  and  Controlling   district  level   1/3  (  minimum  30  %  )  women  in  village  monitoring  team,  verification   team  and  in  team  preparation  of  village  mid-­‐term  planning  (RPJMDes)   Bidding  meeting  -­‐  O  &M  team     50%  village  facilitators  are  woman     Facilitators   50%  sub-­‐district  assistant  facilitators  are  woman   Appendix  4  -­‐  Responses  to  Questionnaires 1. Interviewees who stated that gender or women’s issues affect their work were asked to explain how. The answers are listed under generic categories the table below: Category Number MUST  BE  ENCOURAGED  TO  PARTICIPATE  IN  PNPM  PROGRAM  OR   42 SECTION  OF  IT   GENDER  EQUALITY  NEEDED  FOR  CDD  PROGRAMS  (Women  and  men   21 work  together,  women  can  work  like  men,  we  need  to  involve  the   whole  community,  women  have  the  same  rights)   GENDER TRIPLE ROLE INTERFERING WITH PARTICIPATION IN 11 PNPM (women prioritize family, women have to work on the farm, etc.) WOMEN  MUST  PERFORM  GENDER  ROLES/OVER  COME  GENDER   7 STEREOTYPES  (Some  jobs  must  be  done  by  women,  if  women  do  not   participate  nobody  cooks  food,  women  are  timid,  women  are  weak,   etc.)   REPRESENTATION  OF  WOMEN’S  GENDER  ISSUES  (There  are  more   5 women  than  men,  women  more  affected  by  poverty,  only  women  can   understand  their  own  problems,  etc.)   WOMEN HAVE GOOD QUALITIES (Women  consider  everything  in   3 more  detail,  provide  motivation,  organizers,  etc.)   UNCLEAR  RESPONSES  (e.g.  “In  one  case  women  chose  a  beauty  salon   3 33   Consultancy  conducted  for  World  Bank  Programme  Support  Facility   S.Azarbaijani-­‐Moghaddam,  May  14   Gender  Inclusion  Strategies  in  PNPM   over  a  kindergarten”) 2. Additional PNPM activities recommended by women Type of Assistance   Number   Give  us  business/skills  training   18   Give  us  bigger  loans   16   Help  with  farming  inputs   4   Build  a  public  toilet   1   Work  on  children's  health   1   Help  with  marketing   1   Help  with  women's  issues   1     3. Answers to why women manage rather than control money ended up being more about why women were allowed to manage money. It demonstrated that women treasurers have become role models. Reasons  Why  Women  Can  Manage  Money   Number Women  are  good  at  managing/organising/admin/treasurer  in  the   18 program Women  are   20 focused/disciplined/diligent/careful/responsible/honest/accountable Women are part of SPP 12 Many  women  in  council/project/implementation  team   9 Community  trusts  women  more  than  men 3 Women  manage  family   2 Women  have  same  ability/rights  as  men   3 Women  need  the  opportunity  to  control  money   1 4. Asked why interviewees unanimously agreed that women should be part of decision-making the answers ranged as follows. The answers are listed under generic categories the table below: Category   Number   GENDER  EQUALITY  -­‐as  explained  in  the  operations  manual  –  (e.g.  activities   should  benefit  men  and  women,  men  and  women  should  be  involved,  etc.)   41   KNOWLEDGE  OF  GENDER  NEEDS  -­‐Women  understand  their  own/  their   family  needs  and  problems/  Women  have  more  needs  and  problems  than   men   29   WOMEN  AS  ACTORS  IN  FAMILY  AND  COMMUNITY  -­‐Women  understand   community  needs  and  problems/  Women  have  a  role  in/are  part  of  the   community/family   21   EMPOWERMENT  -­‐  Women  need  information/Women  should  know  how  to   make  a  proposal/It  is  time  for  women  to  act/So  many  activities  related  to   women's  issues  are  not  a  priority  at  village  level/  Women  have   knowledge/skills/ideas   9   WOMEN’S  ASSUMED  INNATE  GOOD  QUALITIES  -­‐  no  ulterior   motives/transparent/more  careful/more  diligent/smarter   8   REPRESENTATION  -­‐  There  are  more  women  than  men/  Women  are  more   dominant  in  the  community   3   RIGHTS  BASED  -­‐  Women  want  the  same  opportunities  as  men   1   5. Asked how program staff, village cadres and officials motivated women, responses were as follows: 34   Consultancy  conducted  for  World  Bank  Programme  Support  Facility   S.Azarbaijani-­‐Moghaddam,  May  14   Gender  Inclusion  Strategies  in  PNPM   Method  Used  to  Encourage  Women   Number   Always  invite/involve/encourage  (more)  women  to  join  program  activities   51   Encourage  women  to  speak/participate  actively  (provide   time/opportunity/space)  in  every  meeting  and  listen  to  them 23   Provide  information  on  women's  benefits  and  rights  through  participating  in   program/importance  of  meetings/importance  of  SPP   16   Approach  women  through  PKK/existing  groups/local  leaders 3   Improve  women's  confidence  and  motivate  them   3   Explain  how  important  women's  involvement  in  program  is   2   Get  village  head/local  government  to  invite  and  encourage  women 2   Involve  women  in  local  institutions  such  as  PKK   2   Give  advice,  assistance  and  examples   2   Understand  women's  time  constraints   1   Approach  women  through  activities  which  allow  women  to  expand   businesses   1   Give  women  space  to  provide  food   1     6. Interviewees at village level were asked to provide examples of when they had listened to women about their concerns and made changes as a result. The statement presented below are the few responses given: Example  of  Men  Making  changes  after  Listening  to  Women   Encourage  women  to  be  active  in  SPP   Explain  the  rules  of  PNPM/SPP   Help  women  write  proposals  for  SPP   Invite  them  to  a  meeting   Provide  sewing  training   Women's  have  ideas  for  community  issues   Women  should  be  involved   Women's  problems  and  ideas  are  important     7. Women’s involvement with other programs and institutions Institution  or  activity   Number   Majlis  talim   17   PKK   16   Cooperative  group   7   Posyandu   4   Church  group   3   Farming  group   3   OXFAM   3   Youth  activities   2   Other   2             8. Women describe the benefits they have received from involvement with PNPM Benefit   Number   35   Consultancy  conducted  for  World  Bank  Programme  Support  Facility   S.Azarbaijani-­‐Moghaddam,  May  14   Gender  Inclusion  Strategies  in  PNPM   Loan  for  business  or  other  purpose   18   I  have  more  information   13   I  can  generate  a  (better)  income  for  the  family   11   I  can  develop  my  business   10   I  have  skills   5   I  have  gained  experience   4   I  learnt  how  to  manage  the  program   2   I  met  other  women   2   I  can  understand  the  program   1   I  know  how  to  cook   1   There  are  regular  meetings   1     9. Female interviewees at village level were asked to provide examples of when men had listened to them about their concerns and made changes as a result. The statement presented below are the few responses given: Example  Given  by  Women  of  Men  Making  changes  after  Listening  to  Women   During  family  decision  making   During  meetings   In  meetings,  on  timings  preferred  by  women  for  next  meetings/activities   Men  agreed  with  women's  proposal   During  ranking  proposals  in  a  meeting   Since  PNPM  started   Since  PNPM  started  and  my  business  got  better   The  men  planned  to  build  a  posyandu  but  we  preferred  a  kindergarten     Appendix  5  –  Resources   • Akatiga  Center  For  Social  Analysis,  June  2010,  Marginalized  Groups  in  PNPM-­‐Rural   • Increasing  Women’s  Participation  in  PNPM  RURAL  Powerpoint  Presentation   • Joint  Donor  and  Government  Mission,  2009  Gender  in  Community  Driven  Development   Project:  Implications  for  PNPM  Strategy  Working  Paper  on  the  Findings  of  Joint  Donor  and   Government  Mission     • McGlynn  Scanlon,  Megan  et  al.  (2012)  PNPM  Gender  Study  2012:  Increasing  the  Quality  of   Women’s  Participation  Final  Report  PNPM  Support  Facility,  The  World  Bank  Jakarta     • Ministry  Of  Home  Affairs,  Republic  Of  Indonesia  P  T  O  (Technical  Operational  Guidelines)   National  Community  Empowerment  Program  Directorate  General  Of  Community  And  Village   Empowerment,  Jakarta, 5 November 2008   • Panda,  Pradeep  and  Bina  Agarwal,  2005  Marital  violence,  human  development  and  women’s   property  status  in  India  World  Development  33(5):  823-­‐850.     • PNPM  Rural  Implementation  Support  Mission,  12-­‐15  February  2014:  Kabupaten  Sumenep,   Java  Timur     • PTO  -­‐  PNPM  Support  Facility  Operations  Manual  National  Program  For  Community   Empowerment   • Shatifan,  July  2011,  Gender  equality  as  a  key  dimension  for  improved  maternal  and  child   nutrition  to  reduce  stunting     • UN  Millennium  Project  2005  Taking  Action:  Achieving  Gender  Equality  and  Empowering   Women  Task  Force  on  Education  and  Gender  Equality   • World  Bank,  2000  Engendering  Development   36   Consultancy  conducted  for  World  Bank  Programme  Support  Facility   S.Azarbaijani-­‐Moghaddam,  May  14   Gender  Inclusion  Strategies  in  PNPM   • World  Bank,  2007  Global  Monitoring  Report  2007:  Confronting  Challenges  of  Gender   • World  Bank,  November  8,  2012,  The  World  Bank  Report  No:  71180-­‐ID  Project  Appraisal   Document  On  A  Proposed  Loan  In  The  Amount  Of  Us$650  Million  To  The  Republic  Of   Indonesia  For  The  National  Program  For  Community  Empowerment    In  Rural  Areas  2012-­‐ 2015   Appendix  6  –  Terms  of  Reference  for  Gender  Mission   On  gender  inclusion  strategies  in  PNPM  Rural  January  2014   Background   Indonesia’s   National   Program   for   Community   Empowerment,   known   by   its   Indonesian   acronym   “PNPM”   is   the   world’s   largest   community   development   program.   PNPM’s   long   term   goals   are   to   reduce  poverty  by  making  development  planning  more  inclusive,  accountable,  and  reflective  of  local   needs.   PNPM   currently   covers   about   70,000   rural   and   urban   communities   across   all   of   Indonesia.   PNPM   works   by   giving   communities   block   grants   that   they   can   spend   to   carry   out   plans   that   they   have   developed   through   a   participatory,   bottom-­‐up   planning   process   that   is   facilitated   by   social   and   technical   specialists   who   provide   advice   to   communities   but   do   not   control   the   funds.     PNPM   is   supported   by   a   multi-­‐donor   trust   fund   called   the   PNPM   Support   Facility   (“PSF”),   which   helps   the   government   oversee   PNPM,   improve   its   policies,   and   experiment   with   improvements   that   will   make   PNPM  more  inclusive,  participatory,  and  transparent.       Increasing  women’s  voice  in  community  planning  and  decision-­‐making  has   been  an  explicit  goal  of   PNPM  since  its  founding,  and  since  2007  PNPM  Rural  has  had  an  overarching  gender  action  plan  to   guide  actions  to  involve  women  throughout  PNPM’s  procedures.  Maximum  25  per  cent  of  all  PNPM   funds   are   reserved   to   support   proposals   from   village   women’s   groups   for   RLF   groups,   and   women   play  increasingly  central  roles  in  PNPM’s  kecamatan  and  village  administration.  However,  there  are   still   in   many   places,   where   gender   inclusion   is   not   entirely   the   case   with   such   good   women’s   participation   in   PNPM   Rural.   Technical   advice,   technical   assistance,   and   a   control   system   to   track   whether   gender   sensitive   approaches   are   actually   assisting   women   and   men,   are   needed   to   be   revisited,   through   monitoring   and   supervision   in   many   levels   and   in   a   level   of   communities   and   activities  where  the  programs  operating.           It   is   a   part   of   the   role   of   PSF   to   provide   more   effective   strategic   support   to   the   government’s   objectives,  especially  by  improving  the  effectiveness  of  PNPM’s  own  gender  action  plan  and  assisting   the   PSF   to   provide   more   strategic   gender   assistance.     The   mission   will   be   engaged   a   lead   gender   expert,   to   review   the   system   and   provide   a   short   critical   report   and   practical   recommendation   on   gender  sensitive  approaches  in  the  overall  implementation  of  PNPM  Rural.     Objectives  are  following:   Rural  in  CDD  design  and  implementation:   1. Review  the  gender  affirmative  actions  in  the  program  (in  the  document/PTO)  to  assess   whether  the  design  of  the  approaches  is  actually  assisting  women  and  men  equitably.   Identify  where  and  how  such  measures  work  best;  focusing  on  understanding  on  several   levels  why  gender  is/not  practically  being  mainstreamed  into  programming.     2. Review  the  quality  of  gender  technical  advice  availability  at  different  levels   3. Review   the   monitoring/supervision/oversight   system   on   gender,   whether   program   has   a   system  to  track  gender  sensitive  approaches  and  impact?   4. Quick  review  related  to  gender  issues  of  the  RLF/SPP  sub  project/activity  for  women   37   Consultancy  conducted  for  World  Bank  Programme  Support  Facility   S.Azarbaijani-­‐Moghaddam,  May  14   Gender  Inclusion  Strategies  in  PNPM   Outputs:   1. Identification   on   where   and   how   affirmative   gender   actions   are   currently   implemented;   analysis   on   the   understanding   of   consultants/facilitators   and   local   government   on   gender   sensitive   approaches;   analysis   on   why   this   approach   can   or   cannot   be   practically   mainstreamed  in  the  program.  Collection  of  cultural  attitudes,  local  initiatives,  and/or  good   practice  stories  which  highlight  issues  related  to  gender  sensitive  approaches.       2. Identification  on  the  availability  of  gender  technical  advice  -­‐  internal  (from  the  program)  or   external  (e.g.  from  interactions  with  other  programs).  Collection  of  good  practice  stories.   3. Identification  on  the  availability  and  method  of  monitoring  and  supervising  gender  sensitive   approaches   (how   it   is   being   discussed,   monitored,   supervised,   and   reported   as   well   as   the   connection  with  the  MIS)   4. Review   on   gender   issues   in   SPP/RLF   activities   as   the   main   project   on   women.   Identify   possibilities  for  cooperation  between  RLF/SPP  sub  project  and  other  programs  working  with   women  (Pekka,  Peduli,  other  initiatives/interventions).     Deliverables   The   report   will   be   based   on   qualitative   research,   providing   gender   analysis   on   the   PNPM   Rural   implementation   covering   the   four   areas   mentioned   in   the   objectives   and   outputs.   The   document   should  include  recommendations  on  improving  gender  inclusion  through  practical  recommendations   on   the   implementation   of   gender   affirmative   action   already   existing   within   the   project   procedures/guidelines;   improvement   of   the   monitoring   and   supervision   system   to   track   gender   sensitive   approaches   that   can   be   used   by   PNPM   Rural,   as   well   as   PSF   tracking   and   supporting   technical  advice  on  gender  issues.  The  report  should  be  completed  with  a  set  of  good  practices  on   gender   mainstreaming   including   local   initiatives   and   cultural   activities   contributing   to   improved   gender  mainstreaming  during  the  implementation.     Timeframe  and  Operationalization   This   work   is   planned   for   30   working   days.   It   will   engage   a   gender   specialist   and   one   operation   analyst:  Sepideh  Azarbaijani  Moghaddam  and  Ani  Himawati   1. Starting   with   2   –   3   days   series   of   meetings   to   discuss   the   TOR   and   to   translate   into   the   instrument:   interview   guidance.   Discussion   with   PMD   &   NMC   is   planned   on   the   10th   January   2014   2. Field   mission   will   be   conducted   within   15   -­‐   20   days   in   three   provinces/kabupaten/kecamatan:   Sumatera   Barat   (Agam/IV   Koto),   Sulawesi   Selatan   (Wajo/Tana   Sitolo),   and   Nusa   Tenggara   Timur   (Sumba   Timur/Karera),   on   the   13rd   –   28th   Jebruary  2014   3. Discussion  on  findings  and  preliminary  analysis  with  teams,  Gov,  partners   4. Draft  report  will  be  done  within  the  working  days,  and  finalization  will  be  done  remotely.         5. Finalization  on  20  Feb   6. Presentation  of  the  final  report     38   Consultancy  conducted  for  World  Bank  Programme  Support  Facility   S.Azarbaijani-­‐Moghaddam,  May  14   Gender  Inclusion  Strategies  in  PNPM     Appendix  7  –  Arnstein’s  Ladder  of  Participation   Non-­‐ Manipulation   Women   are   gathered   by   male   leaders   whenever   staff   arrive.   If   Participation   challenged   they   claim   that   women   are   not   aware   or   educated   enough   to   actually   make   an   input   into   decision   making.   For   the   purposes   of   the   program   women   have   ‘participated’.   Women   are   not  allowed  to  control  funds  or  even  select  their  own  interventions.   Such  an  approach  would  be  common  in  conservative  communities.   Therapy   Women   are   gathered   as   above   but   instead   of   being   allowed   to   voice   and   deal   with   important   issues   such   as   violence   against   women,   women  may  be  given  courses  to  build  capacity  rather  than  their  life   quality   e.g.   hygiene   or   bead   weaving   course.   Those   who   gather   women  together  focus  on  the  therapeutic  benefits  of  gathering  in  a   group   rather   than   what   the   group   actually   achieves.   Such   an   approach   would   be   taken   by   staff   with   weak   understanding   of   and   commitment   to   gender   mainstreaming.   Such   groups   will   exist   in   conservative  areas  where  women  are  held  in  low  esteem.   Tokenism   Informing   Women  are  informed  of  their  responsibility  to  form  a  group  and  are   informed  of  their  rights  to  choose  their  development  priorities  but   men  still  dominate  project  selection  and  control  project  funding   partly  because  women  fail  to  understand  their  role.   Consultation   Women   are   informed   of   their   responsibility   to   form   a   group   and   are   consulted  about  their  choice  of  development  priorities  but  men  still   dominate   project   selection   and   control   project   funding.   Women’s   participation   is   window   dressing   –   they   are   “participating   in   participation”.   This   is   one   of   the   most   common   approaches   seen   during  the  research.   Placation   Selected   women   from   the   group   are   allowed   on   a   face   to   face   regular   basis   with   men   leaders   but   mostly   to   receive   instructions   and  to  report  whether  the  women’s  group  has  done  what  they  were   previously  told.  The  women  selected  do  not  feel  accountable  to  the   group  of  women  but  to  the  men  who  have  allowed  them  to  emerge   as   leaders.   Men   still   have   the   final   word   on   projects   and   activities.   This  is  another  common  approach  seen  during  the  research.   Empowerment   Partnership   Men   and   women’s   groups   negotiate   and   share   planning   and   decision-­‐making   responsibilities   through   such   structures   as   joint   policy   boards,   planning   committees   and   mechanisms   for   resolving   impasses.   After   the   ground   rules   have   been   established   through   some   form   of   give-­‐and-­‐take,   they   are   not   subject   to   unilateral   change.   There   has   to   be   an   organized   powerbase   which   council   leaders  have  to  be  accountable  to.   Delegated   Negotiations   between   women   and   public   officials   can   also   result   in   Power   them   achieving   dominant   decision-­‐making   authority   over   a   particular   plan   or   program.   Women   hold   enough   power   to   ensure   programme  accountability  to  them.  To  resolve  difference,  men  need   to  start  a  bargaining  process.   39   Consultancy  conducted  for  World  Bank  Programme  Support  Facility   S.Azarbaijani-­‐Moghaddam,  May  14   Gender  Inclusion  Strategies  in  PNPM   Citizen  Control   Here  rhetoric  should  not  be  confused  with  intent.  Women  should  be     allowed   to   demand   the   degree   of   power   (or   control)   which   guarantees   that   participants   can   govern   a   programme   or   local   resource,   being   fully   in   charge   of   policy   and   managerial   aspects.   They   should   be   in   a   position   to   choose,   implement   and   manage   a   project  with  full  control  of  decision-­‐making  and  funds.     40   Consultancy  conducted  for  World  Bank  Programme  Support  Facility   S.Azarbaijani-­‐Moghaddam,  May  14