Gender

United Nations Development Programme

Mainstreaming Gender into the PGDP ID Development Consultancy/The Institute of Women’s and Gender Studies

1

FINAL


Special service Agreement No: 461/2003

Mainstreaming Gender into the

Provincial Growth and Development Plan (PGDP) 2004-2014

Eastern Cape Province Compiled by:

Imelda Diouf

Development Consultant and Gender Specialist

ID Development Consultancy

Associate: Institute of Women’s and Gender Studies

University of Pretoria



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CONTENT PAGE

I. Abbreviations and acronyms 4

II. Acknowledgements 5

III. Executive Summary 6

CHAPTER ONE: BACKGROUND 8

1.1 Provincial Growth and Development Plan (PGDP) 2004-2014 8

1.2 Gender and the Provincial Growth and Development Plan 13

CHAPTER TWO: METHODOLOGY 16

2.1 The Gender Practitioners Support Model 17

CHAPTER THREE: MAINSTREAMING GENDER INTO THE PROVINCIAL

GROWTH AND DEVELOPMENT PLAN 18

3.1 Support Initiative 1 Developing Gender Sensitive Departmental Plans 21

3.2 Support Initiative 2 Gender Advocacy to Institutions 25

3.3 Support Initiative 3 Awareness Raising of PGDP with GFPs 28

3.4 Support Initiative 4 Gender Training Programmes 31

3.5 Support Initiative 5 Gender Support to the PGDP PMU 34

3.6 Support Initiative 6 Gender Advocacy Mainstreamed into PGDP Advocacy 36

3.7 Support Initiative 7 Formation of a Think-Tank on Gender 38

CHAPTER 4: KEY RECOMMENDATIONS AND CONCLUSION 40

Diagrams Page

Diagram 1 Strategy Framework for Growth and Development 2004-2014 8

Appendices Page

Appendix 1 Gender Practitioner Support Model (GPSM) 47

Appendix 2 DOH Gender Analysis 48

Appendix 3 Treasury Gender Analysis 49

Appendix 4 DEAET Gender Recommendations 50

Appendix 5 DOH Gender Recommendations 51

Appendix 6 DRPW Gender Recommendations 52

Appendix 7 PGDP Workshop Programme 53

Appendix 8 PGDP Workshop Programme 55

Appendix 9 PGDP Workshop Notes 56



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Appendix 10 Workshop Notes (extract - Training Needs) 58

Appendix 11 Terms of Reference of Think-Tank 59

Appendix 12 Terms of Reference Gender Consultant 60



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I. Abbreviations and Acronyms

CGE Commission for Gender Equality

DEEAT Department of Environment, Economic Affairs and Tourism

DOE Department of Education

DOH Department of Health

DRPW Department of Roads and Public Works

DSRAC Department of Sports, Recreation, Arts and Culture

GAD Gender and Development

GFP Gender Focal Point

HOD Head of Department

MDGs Millennium Development Goals

OSW Office on the Status of Women

PGDP Provincial Growth and Development Plan

PMU Project Management Unit

SAPS South African Police Services

SPO Special Programmes Officer

SPU Special Programmes Unit

SURF Southern Africa Sub-regional Facility

UNDP United Nations Development Programme

WID Women in Development



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II. Acknowledgements

Mainstreaming gender into the Provincial Growth and Development Strategy (PGDP) 2004-2014 has

been and will continue to be a multi-faceted and complex process that will require energy, knowledge,

skill, innovation and the constant formation of development partners. Despite the time constraints,

limited human capacity and the enormity of the task; the support received over the last few months in

for the gender mainstreaming process has been tremendous.

At the start of a gender journey to mainstream gender into the PGDP, special thanks go to the

following institutions and people for their time, commitment and support:

Office of the Premier of Eastern Cape Province, the Programme Management Unit; Office of the

Status of Women - Eastern Cape; the entire staff of the PGDP Project Management Unit; Departments

of Agriculture; Safety, Security and Liaison; Social Development; Health; SAPS; Roads & Public

Works; Correctional Services; Economic Affairs, Environment and Tourism; Education; Treasury;

Sport, Recreation, Arts & Culture; Housing, Local Government & Traditional Affairs. All the Gender

Focal Points in the respective departments; members of the Gender Think Tank – Ms Bea Hackula, Dr

Sibongile Muthwa; Dr C. Macleod, Ms T. Mpumlwana, Ms P. Badi and Ms Zukelwa Mkalaka.

UNDP also wishes to acknowledge the support from the head of the OSW Ms Zukelwa Mkalaka, Ms

Imelda Diouf , Gender Specialist who worked tirelessly with the departments and Gender Focal Points

in gendering the PGDP process and Ms Janet Kabeberi Macharia, Gender and Development Policy

Advisor, Southern Africa SURF for spearheading the process of gendering the PGDP.



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III. Executive Summary

The document has been structured in such a way as to afford the reader both a sense of the

background to the Provincial Growth and Development Plan (PGDP) 2004-2014 of the Eastern Cape

Province, as well as an understanding of the initiatives that have been undertaken to mainstream

gender into the PGDP process. Within the context of the Millennium Development Goals (MDGs) and

the National Gender Policy Framework of South Africa; gender mainstreaming and social

development find a fertile ground for discussion and debate, advocacy and lobbying, as well as action.

As with so many marginalised development initiatives though, there is often the cry of "why didn't

this process start much sooner?" and "shouldn't these initiatives should have been undertaken during

an earlier phase?" Pragmatically we can reflect and concur that the very nature of marginalised issues

is that they are placed at the periphery of strategic objectives and goals; and are thus afforded less

time, space, personnel, budget and commitment. Marginalised issues often experience a number of

starts before they gain critical status and are then afforded a space on the agenda.

Despite the above mentioned challenges the United Nations Development Programme (UNDP)

undertook to support the process of mainstreaming gender into the Provincial Growth and

Development Plan (PGDP) of the Eastern Cape provincial government. This support was carried out

in two phases. The first phase, January to August 2003, focussed on ensuring that gender was fully

integrated into the Strategy Framework of the PGDP and that the ensuing programme priorities of the

PGDP were engendered. In the initial stages a detailed gender analysis of the strategy framework was

undertaken and recommendations were made as to what needed to be done to ensure that gender

concerns were fully mainstreamed. Initial discussions were held with the PMU as well as technical

stakeholders all of whom gave their views as to how best to engender the PGDP. Activities in the

phase were undertaken jointly by the UNDP Gender and Development {Policy Advisor) and the Head

of the Provincial Office of the Status of Women. The second phase, September to December 2003,

involved contracting the services of a Gender Specialist to work closely with the various departments

on ensuring that the departmental plans were fully engendered as well as building the capacity of the

respective Gender Focal points to enable them to analyse departmental plans through a gender lens

and make the necessary recommendations. The consultant worked closely with the Head of the Office

of the Status of Women as well as the UNDP Gender and Development (Policy Advisor).

Between September to December 2003 a number of support initiatives were considered, discussed and

undertaken to mainstream gender into the PGDP. These multi-disciplinary support initiatives are

detailed in this report and include aspects of challenges experienced, support received, progress to

date and specific recommendations. Over the three-month period stakeholders were constantly putting



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forward ideas and making suggestions about the gender mainstreaming process; these have also been

consolidated and are detailed as key recommendations and should add to both strategic and

operational future planning of the PGDP.

The twenty-four key recommendations have been categorised into focus areas; namely strategic

planning, institutional arrangements, monitoring and evaluation, stakeholder base, training needs and

communications. They have short, medium and long-term implications for mainstreaming gender into

the PGDP and require further appraisal of methodology and timing. Because the recommendations

have both strategic and operational components; it is vital that both managers and implementers

support an approach that is holistic and integrated into every phase of the PGDP; this includes,

contextualisation, programming, identification, assessment, formulation, financing, implementation

and evaluation. The recommendations have equal importance for planning and budgeting processes,

as for programming and activities; and come together in strategic, operational and business plans.

While the detailed key recommendations may be considered vital for gendering of the PGDP; they are

by no means comprehensive and should be understood in the context of the three-month consultancy

period of developing this report on how to engender the PGDP. Gendering is a transformation process

that often requires a mental shift, changing of attitudes and ways of operating within communities and

the broader society; any one initiative can therefor never bring about the desired vision of gender

equality. By the same token gender transformation requires action and interaction at every level of the

society, many initiatives that will ultimately lead to building a critical mass of action. The work of the

last few months in "gendering" the PGDP has been part of building the critical mass of action.



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CHAPTER ONE: BACKGROUND

1.1 Provincial Growth and Development Plan (PGDP) 2004-2014

The Provincial Growth and Development Plan (PGDP) 2004-2014, of the Eastern Cape Provincial

Government sets out the provincial vision, targets and programmes aimed at economic growth,

employment creation, poverty eradication and income redistribution; with a focus on achieving

improvement in the quality of life for the poorest people in the province. This ten-year plan is

currently being further revised and developed by the Eastern Cape Provincial Government and its

social partners, as it takes cognisance of the socio-economic realities of the province, the needs of

stakeholders, the methodological considerations of clustering approaches, as well as the broad growth

and development criteria of the South African government.

The Strategy Framework for Growth and Development 2004-2014, the product of phase 1 of the

PGDP process, was adopted by the Executive Council, Province of the Eastern Cape, on 4 June 2003.

Currently, the focus is on the development of programmes and projects to give the Strategy

Framework concrete form. Six PGDP Strategic Objectives are identified in the framework; these can

be represented in terms of Diagram 1:

Diagram 1: Strategy Framework for Growth and Development, 2004-2014

Systematic poverty eradication through a holistic,integrated and multi-dimensional approach to pro-poor planning

Transformation of the agrarian economy

and strengthening of food security

Consolidation, development and diversifica

tion

of manufacturing base & tourism

potential

Public Sector& InstitutionalTransformation

Human

Resource

Development

Infrastructure

Development



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The PGDP Strategic Objectives that form the sides of the triangle have been referred to as the “key

objectives”, with the objectives in the centre of the triangle referred to as the “foundation objectives”.

These PGDP Strategic Objectives are clearly related, with work towards one necessarily impacting on

the others. Although the “super goal” of the PGDP is poverty eradication, poverty eradication has also

been identified as one of the six PGDP Strategic Objectives to emphasise that poverty eradication is

not merely a by-product of growth, but requires particular developmental interventions.

The PGDP programmes and projects that are being developed in support of these PGDP Strategic

Objectives have been categorised as follows:

• Short-term, “flagship” projects.

• Medium-term programmes and projects (2004/05 to 2006/07).

• Long-term programmes and projects (2006/07 to 2013/14).

These categories are clearly not independent of each other, as the short- and medium-term

programmes and projects will lay the foundations for the long-term programmes and projects. They all

derive their logic and justification from the PGDP Strategic Objectives themselves. Clearly,

knowledge of the PGDP Strategic Objectives and the three categories of programmes and projects is

not sufficient. What is also required is an understanding of what, in measurable terms, these are aimed

at achieving. At a broad level, the PGDP is aimed at achieving the quantified vision contained in the

Strategy Framework for Growth and Development 2004-2014.

Section 5 of the Strategy Framework for Growth and Development 2004-2014, contains a section

entitled “Principles underlying the PGDP” and, as its name implies, highlights key principles that

should inform planning and implementation. These principles relate to gender, youth, disability,

socio-economic rights and environmental management, amongst others. In terms of a gender

responsive PGDP, the following statement lays the foundation for a gendered PGDP process:

We commit ourselves to ensure that at all stages of planning, designing, implementation,

monitoring and evaluation of the PGDP, gender perspectives will be mainstreamed so as to

ensure the development of gender responsive programmes."

This quantified vision consists of the following 14 broad targets, which, collectively, will constitute

the measure of success in achieving growth and development in the province:



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1. To maintain an economic growth rate of between 5% and 8% per annum.

2. To halve the unemployment rate by 2014.

3. To reduce by between 60% and 80% the number of households living below the

poverty line by 2014.

4. To reduce by between 60% and 80% the proportion of people suffering from hunger

by 2014.

5. To establish food self-sufficiency in the Province by 2014.

6. To ensure universal primary education (UPE) by 2014, with all children proceeding

to the first exit point in a secondary education.

7. To improve the literacy rate in the Province by 50% by 2014.

8. To eliminate gender disparity in education and employment by 2014.

9. To reduce by two-thirds the under-five mortality rate by 2014.

10. To reduce by three-quarters the maternal mortality rate by 2014.

11. To halt and begin to reverse the spread of HIV/AIDS by 2014.

12. To halt and begin to reverse the spread of tuberculosis by 2014.

13. To provide clean water to all in the Province by 2014.

14. To eliminate sanitation problems by 2014.

While some of these targets are "woman and gender focussed", and so clearly meet the requirement of

gendering the PGDP; within a broader context they need to be understood and evaluated in terms of

whether they meet the practical or strategic gender needs of gendering processes. Poverty alleviation

programmes can meet immediate, practical needs of women by providing short-term work and

welfare, but if they do not focus on changing gender inequality within the society, women could

remain at risk of fluctuating in and out of chronic poverty.

While it is envisaged that the 14 broad targets will maintain an economic growth rate of between 5%

and 8% per annum; it does not necessarily follow that this will impact positively on the lives of

women, especially on the lives of poor, rural women. Mainstreaming gender requires that these 14

broad targets need to be interrogated at another level, a level that takes cognisance of the fact that

women experience poverty differently to men. Put on a gender lens, and then ask the following

questions:



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The National Gender Policy Framework clearly details the many challenges faced by women in South

Africa, and suggests that in order to achieve a society that is free of gender oppression, a paradigm

shift is required in terms of resource allocations and gender relations. The challenges that women face

impact on every aspect of their lives; namely lack of access to basic resources, lack of access to

employment, lack of access to land, lack of access to science and technology, violence, HIV/AIDS,

lack of access to the economy, poverty and oppressive gender relations.

1. Will an economic growth rate of between 5% and 8% per annum impact positively on

the lives of poor, rural women?

2. Taking cognisance of women's triple role, what are the considerations for halving the

unemployment rate by 2014?

3. What is the impact of poverty on female-headed households?

4. What are the gender indicators that will measure a reduction in people suffering from

hunger by 60% to 80% by 2014?

5. To what extent and at what level do women participate in the policy, planning and

budgeting of food security programmes?

6. To what extent does school infrastructure and curriculum impact on girl-child retention

rates?

7. Taking cognisance of women's triple role, what are the considerations for improving the

literacy rate by 2014?

8. What are the qualitative, as well as the quantitative considerations for eliminating

gender disparity in education and unemployment?

9. What is the impact of maternal poverty on under-five mortality rate?

10. How will economic empowerment impact in a three-quarters reduction of maternal

mortality by 2014?

11. What are the gender implications for reducing the spread of HIV/AIDS by 2014?

12. How will women's education reverse the spread of tuberculosis by 2014?

13. What is the impact of clean water on women's health and welfare?

14. What is the extent of women's participation in the policy and planning processes to

eliminate sanitation problems by 2014?



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In a section on Women and Poverty1 in South Africa's National Policy Framework for Women's

Empowerment and Gender Equality, reference is made to the phenomenon called the feminisation of

poverty. A number of factors contribute towards the poverty of women in South Africa. The following

statistics are quoted:

• over a third (37%) of rural women-headed households are among the poorest fifth of

households

• 35% of economically African women are unemployed

• 49% of employed African women are working in elementary unskilled occupations such as

cleaning, garbage collection and farm work

• 30% of all non-urban households collect wood for cooking and heating; usually women

perform these tasks

• women comprise 58% of illiterate people

• 22% of all pregnant women attending antenatal clinics tested HIV positive

The PGDP in the Strategy Framework for Growth and Development recognises that women bear a

greater burden of poverty2 and commits itself to an approach that is gender responsive;

"The strategic approach to poverty eradication is aimed at not only addressing income poverty,

but also at increasing the asset base of the poor. It is based on a determination to address the

human dimensions of poverty, especially gender, and on the recognition of the need to mobilise

social partnerships to ensure that resources are well targeted and to increase the power of the

poor in the fight against poverty."

In support of this approach, gender mainstreaming is an integral part of the transformation processes

that needs to operate at the levels of contextualisation, programming, identification, assessment,

formulation, financing, implementation and evaluation, if the goal of poverty eradication is to be

realised. Continuous gender analysis of PGDP documents and processes, structures and advocacy can

only support the mainstreaming of gender that will lead to the vision of gender equality in the Eastern

Cape Province and South Africa.

1 South Africa's National Policy Framework for Women's Empowerment and Gender Equality

2 Strategy Framework for Growth and Development 2004-2014, Eastern Cape Province; Pg 28



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1.2 Gender and the PGDP

Although the initial drafts of the Strategic Framework for the PGDP revealed a clear intention to have

a gender responsive PGDP, gender was fleetingly referred to. Accordingly a main focus of phase one

of the engendering process was to ensure that the Strategy Framework made a commitment to ensure

that gender was fully mainstreamed into all processes and programme priorities of the PGDP.

The Technical Stakeholders (from the Departments and municipalities) meeting held on May 14 in

Bisho set the pace for the key concerns that needed to be addressed in gendering the PGDP

programmes;

• The inaction regarding gender issues in the Province’s institutional structure was a concern.

Although departments are aware of the policies, the practical application is severely lacking

both at the provincial and local spheres of government especially with respect to planning,

budgeting, implementation and monitoring and evaluation.

• One of the problems relating to departmental inaction is the lack of capacity to implement

gender policies especially within top management.

• Lack of sex disaggregated data meant that attempts to improve the quality of lives of the

poorest sections of the population (dominated by women) would be difficult.

In addition some of the gendering processes initially considered in the Strategy Development phase

included the following:

• a gender analysis of the PGDP thematic areas as stated in the framework

• a gender impact assessment of the PGDP to highlight the potential negative consequences that

could be balanced against any potential positive gains in support of a correct course of action

• a gender analysis of the provincial departmental policies on gender issues with a view to

making recommendations on how to best engender the policies

• a survey to assess the actual status of women and men in Eastern Cape to assist in targeted

planning

• strategies on how to mainstream gender into the PGDP including assist in budgeting for

mainstreaming

• develop monitoring and evaluation programmes to enable the OSW to assess the extent of

gender responsiveness of the province’s programmes

• develop a strategy for building gender competence within the provincial departments



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An analysis of the adopted Strategy Framework for Growth and Development 2004-2014 however

continued to raise concerns regarding whether gender would be carried through to the implementation

phase of the PGDP. The Commitment outlined in the Principles in Section 5 laid the foundation for a

deeper and specific process of ensuring the PGDP was gendered. Likewise the Premier at the launch

of the PGDP reiterated the importance of ensuring that gender was fully mainstreamed into all the

PGDP process and programmes. The overall objective of gendering the PGDP is therefore to ensure

that the PGDP is not only gender sensitive, but also to ensure that it will form the basis for the

development of gender responsive programmes. Despite these commitments, there was still a need to

specifically focus on gendering processes and gender criteria, to ensure that during the

implementation phase, gender would not be viewed as merely a project within its broad strategy; but

rather as a transformation process.

A gender analysis of the Draft Programme Priorities prepared after the launch of the Strategic

Framework was carried out in August, which showed that unless the departments were supported in

understanding and mainstreaming gender into the departmental plans, the overall PGDP programmes

would in the long term fail to be gender responsive. Accordingly, there was a need to assist the

various provincial departments in identifying their gender-related priorities and interventions to

address gender inequities. There was also the need to assist with the development of strategies that

would ensure that objectives, outputs, and activities were sensitive to gender equality and would meet

the needs and priorities of both women and men and, minimise constraints to women’s participation.

The above concerns were addressed in a second phase which necessitated engaging a consultant to

work closely with the departments for a period of three months. Within the limited three-month period

and, the constant deadlines of the provincial budgeting cycle and PGDP deliverables, the following

outputs and results could reasonably be expected:

• gender relevant information and analyses fully incorporated into relevant sections of the

PGDP and the different departmental plans

• a fully gender responsive PGDP for the Eastern Cape Province

• gender responsive programmes with gender sensitive monitoring indicators developed

• a fully developed strategy and training plan for building gender competence within the

provincial departments to input into PGDP programming and implementation phase.

• collected and presented data should be sex disaggregated; in case this is not possible, adequate

justification should be provided

Some of the immediate challenges experienced were the following:



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• time constraints imposed by both project management unit (PMU) time schedules, as well as

government deadlines in terms of budgeting processes

• recognition of the relevant stakeholders and whom to approach for relevant information

• lack of access to relevant persons in government departments; often not based on an

unwillingness, but rather time constraints and the adhoc nature of conducting business

• limited skills capacity generally within the province, for example gender analysis, gender

disaggregated data, gendered policies and planning

• inability to attend all relevant meetings and workshops where invitations were received

because of clashing dates and times

While these and a range of other challenges persisted over the three months; the work was made

exciting, innovative and sometimes even easy by the abundant willingness and support for gender

issues. These challenges and strengths are further detailed in the narrative of the specified support

initiatives of this document.



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CHAPTER TWO: METHODOLOGY

The National Gender Policy Framework outlines South Africa's vision for gender equality and for

how it intends to realise this ideal. It details overarching principles, which are to be integrated by all

sectors into their own sectoral policies, practices and programmes, and provides for a vision of human

rights which incorporates acceptance of equal and inalienable rights of all women and men. This ideal

is a fundamental tenet under the Bill of Rights of The Constitution of the Republic of South Africa,

1996 (Act 108 of 1996). The National Gender Policy Framework attempts to ensure that the process

of achieving gender equality is at the very centre of the transformation process in South Africa within

all the structures, institutions, policies, procedures, practices and programmes of government, its

agencies and parastatals, civil society and the private sector.

The National Gender Policy Framework has adopted and prioritises the "basic needs" approach which

requires intersectoral programme implementation. To deliver programmes, those involved will have to

mobilise across a number of sectors to address the multiple needs assumed within this model. The

Gender Policy Framework sees the 'women's empowerment' approach as focusing more on practical

needs which in themselves are complementary to the 'basic needs' approach, as described in the

Gender and Development (GAD) approach. Given the high levels of inequalities that pertain in the

South African context, the focus on women's empowerment in the policy framework affirms the

satisfaction of basic needs (practical gender needs) as a necessary precondition towards the

identification and attainment of strategic gender needs.

In the process of mainstreaming gender into the PGDP, there is a need to consider that the

mainstreaming process needs to operate on three levels:

• the macro level (country or community level) - this would include provincial, regional and

local levels

• the intermediate level (institutional or organisational level) - this would include departmental,

parastatal, civil society and business levels

• the micro level (project level) - this would include programmes, projects and activities

Gender analysis frameworks have been developed for each of these levels. Well-known gender

analysis frameworks to integrate the gender perspective in the project cycle includes the Harvard

Analytical Framework, the Moser Framework, the Gender Analysis Matrix, Women's Empowerment

(Longwe) Framework and the Social Relations Approach. Checklists for the integration of the gender

perspective in the project cycle are also available from the World Bank, the Food and Agriculture

Organisation (FAO) of the United Nations and the United Nations Development Programme (UNDP).



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Within the context of the PGDP, it was critical to use gender analysis as a means of acquiring an

understanding of skills level available in the province, arrive at a common understanding of the

gender concerns and to start growing a critical mass of people who could engage with and interlink

gender mainstreaming processes and the PGDP.

Gender analysis needs to be integrated into every phase of the PGDP, this could for example include,

contextualisation, programming, identification, assessment, formulation, financing, implementation

and evaluation. Where a particular phase had already been accomplished, it was important to reflect

on gendering processes or indeed the lack of gendering processes and draw lessons that could lead to

clearly defined actions at a later stage.

2.1 The Gender Practitioner's Support Model

In support of gender analysis processes, the Diouf/DeWaal Gender Practitioner Support Model

(GPSM) has been used as a means of capacity building for gender mainstreaming. This model builds

on gender practitioner understanding of gender theory and gender analysis, assists with

implementation and review/evaluation processes, within a supported and mentored environment.

Because many gender development practitioners find themselves having to engage with

implementation strategies with limited gender knowledge, inadequate support mechanisms and

inappropriate gender instruments, focus tends to be on single action gender-tasking in an attempt to

deliver gender responsive outcomes. This approach leads to gender dilution, where in the interest of

limited time, limited personnel and limited budget, the cross cutting issues of women, youth, children,

disability and HIV/AIDS are bundled together at the strategic level; leading to limited impact at the

level of implementation. This is certainly true of gendering processes in government departments and

generally within the PGDP. A more holistic approach is required if sustainable gender development is

to be achieved.

The three-phased approach (see Appendix 1) of the Gender Practitioners Support Model (GPSM)

provides access to theory, implementation and review mechanisms to both desk-based and field-based

gender practitioners; supports entry at any stage and supports an holistic approach to gendered

development. The D/D GPSM was in fact arose through support to personnel who without any formal

gender training, were given gender as a core responsibility and were expected to deliver gender

responsive programmes.

Using the recognised Gender Analysis Frameworks (Harvard, Moser and Longwe) and the D/D

GPSM, within the very limited time frame of three months, the methodology provided direction and

support to a number of people who engaged with mainstreaming gender into the PGDP.



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Phase 1 - Theoretical Support

This phase facilitates and supports the practitioners understanding of gender theory and gender

analysis through:

• Gender theory

• Gender language

• Gender tools/instruments

• Gender analysis

• Development strategy

• Group strategy

• Personal contract/commitment

Phase 2 - Mentored Implementation

This 10 Point Plan can be utilised by both desk-based and field-based gender practitioners for

checking gendered implementation; the phase supports the following:

• Gendered policies and guidelines

• Gendered strategic frameworks

• Gendered budgets

• Gendered planning

• Gender sensitive community support

• Gendered project support

• Gender disaggregated data

• Gendered reporting mechanisms

• Gendered monitoring and evaluation

• Gendered review mechanisms

Phase 3 - Review Support

This phase supports evaluation as a process and relies on review mechanisms that are supported by

further gender theoretical and analysis frameworks:

• Gender theory

• Gender language

• Gender tools/instruments

• Gender analysis

• Review development strategy

• Review group strategy

• Review personal contract/commitment

• Redefine strategy

The methodology is dependent on a participatory approach, self-learning, support and mentoring

techniques, analysis and strategic planning. It requires practitioners to engage with current content and

context, apply manageable tools/instruments and focus on the desirable outcomes.



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CHAPTER THREE: MAINSTREAMING GENDER INTO THE PGDP

The process of mainstreaming gender into the PGDP encountered immediate time constraints because

discussions regarding the "way forward" coincided with the Medium Term Economic Framework

(MTEF) budget hearings, draft proposals for the short and medium term PGDP programmes/projects,

the monitoring and evaluation (M&E) proposed strategy, evolving capacity building and

communications strategies, institutional arrangements for the PGDP, Sixteen Days of Activism and

reporting on the SADC Gender Commitments. This all while the most important stakeholders; namely

the OSW and the Gender Focal Points (GFPs) of each government department were engaging with the

broader context of the PGDP and ways that it could impact on the gender work that was unfolding in

the province.

The workplan therefor focussed on key initiatives and interventions that supported a number of entry

points into the PGDP process. Table 1 details the eight initiatives that would be the focus of gender

mainstreaming from the period September to December 2003.

Table 1: Initiatives to Support Mainstreaming Gender into the

PGDP

Time Frame

Support Initiative 1: Develop gender sensitive departmental plans

• Departmental plans read and evaluated regarding level of gender

sensitivity; recommendations made

• Present a ten point plan that would assist managers responsible for

developing plans to gender programmes

• Recommendations fed back to departmental Head of Department (HOD)

and senior mangers with key responsibilities for generating strategic plans

• Hold contact meetings with HODs and senior managers to offer further

support

October 2003, ongoing

Support Initiative 2: Gender advocacy to institutions

• Attend extended reference group meeting to advocate and raise awareness

of gender mainstreaming and support initiatives

• Meet with chairpersons of cluster groups to garner support

13 October 2003, ongoing

Support Initiative 3: Capacity building of GFPs regarding the PGDP

• 2-day workshop with GFPs to raise awareness of PGDP process and ways

of mainstreaming gender into the process

• Engage with PGDP framework document at strategic and operational levels

• Share instruments of gender budgeting; gender policy, gender programmes

and projects

Gendering Workshop 28&29

October , ongoing

Support Initiative 4: Gender Training Programmes

• Meet with departmental personnel regarding gender training availability to

departmental staff and associates, both internally and externally

• Assess gender training programmes offered by departmental training and

human resource departments

• Assess Eastern Cape Provincial Training Strategy




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• Develop a training strategy

Support Initiative 5: PMU Gender Training

• Gender training for members of the PGDP PMU to increase gender support

training and awareness to the PGDP process


Support Initiative 6: Gender advocacy mainstreamed into PGDP advocacy

• Ensure that the PGDP communications strategy has a clear gender focus on

a range of levels eg. Materials, consultations, participatory meetings

• Liaise with and provide support to PMU managers in ensuring that gender

sensitive policies and strategies are evident in M&E; as well as in final

departmental operational plans


Support Initiative 7: Formation of a Think-Tank

• Create a working group on gender to develop and/or extend policy on

gender

• Provide support to structures already engaging with mainstreaming gender

issues

• To create a platform for debate and discussion

• To provide further support to the OSW

Think -Tank meeting to be

held 30 October 2003,

ongoing

Support Initiative 8: UNDP/OSW Recommendations document on Gender

• Produce a paper on recommendations for gender mainstreaming in the

PGDP implementation phase

October, ongoing

December 2003 for

recommendations

Each of these initiatives posed significant challenges that required strategic thinking, innovation and

energy; there was however incredible support and enthusiasm of many stakeholders. Progress to date

and specific recommendations are detailed in the next section of this document.

3.1



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3.1 Support Initiative 1: Developing Gender Sensitive Departmental Plans

By actively engaging with the content and modus operandi of departmental strategic plans, a

movement away from operational and activity-based inputs was envisaged where senior management

of relevant departments would engage with gender strategy. This would however require the

participation of senior management in gender discussion and debate at the strategic level, they would

need to be consulted on gender planning, gender budgets and time frames, gender monitoring; as well

as inter-departmental gender strategy.

To support this initiative, three actions were undertaken:

• Departmental strategic plans were read and analysed; this analysis focussed on both the

quantitative and qualitative aspects of gender

• Recommendations that would increase the level of gender awareness, impacting on operations,

were made to relevant personnel

• Follow up meetings with senior management of the relevant departments assisted in

developing a common understanding of the process of gendering strategic plans

As can be expected, the level of interaction and engagement with departments varied considerably

with some departments being quite welcoming of gender recommendations and others not quite ready

to engage at the level of recommendations. The willingness to engage with gender recommendations

at the level of the strategic plan must also be understood against the background of Gender Focal

Points (GFPs) who are not part of senior management3, as well as the time constraints experienced in

terms of departments preparations of plans and budgets in accordance with the Medium Term

Economic Framework (MTEF) budget hearings. Table 2.1 details challenges and strengths

experienced during the process of developing gender sensitive department plans.

Table 2.1 Developing Gender Sensitive Departmental Plans - Challenges and Strengths

Initiative Actions Challenges Strengths Develop gender

sensitive departmental

strategic plans

Plans read and

analysed • Plans difficult to access

from relevant departments

• Plans accessed were often

outdated versions; latest

electronic version not

generally known

• Gender concepts linked

with youth, disabled,

children, HIV/AIDS

• Gender not mainstreamed;

• Plans made mention of

gender and women's issues;

this showed a reasonable

level of gender sensitivity

and awareness

• Where senior management

knew that plans were being

analysed, feedback was

requested and even

welcomed

3 Most GFPs are low ranking officials who have never been part of strategic planning and are themselves not skilled enough to provide

adequate guidance on gendering strategic plans



22

incorporated mainly into

sub-goal Human Resources

• Gender often the last

activity and an add-on

rather than a transformation

process

Recommendations

made • Limited recommendations

made because of lateness in

the budget cycle (not more

than 15)

• Non-controversial

recommendations made

because of lateness in the

budget cycle

• Involvement of GFPs in the

process of writing

recommendations caused

delays and sometimes

stopped the process

• Enthusiasm and

willingness of GFPs to

engage with the process,

learn skills which

supported other aspects of

work

• Gender analysis instrument

well, received

Meetings with relevant

department • Difficulty (sometimes

impossible) in securing a

meeting with senior

management

• Time constraints;

sometimes as little as 15

minutes available

• HODs not available for

gender related meetings

• Gender issues not

understood as part of senior

management deliverables

and performance

• Gender mainstreaming

ideas and discussions well

receieved

In the reading and analysing departmental plans, the GFPs were key stakeholders in assisting with the

process. Once they had been trained in gender analysis and fully understood the strategic objectives of

the PGDP; they could make the connection between gender mainstreaming and the broader PGDP,

and were able to analyse their own departmental strategic plans. Table 2.2 details progress to date

regarding gender analysis of departmental plans. Appendices 2 and 3 are examples of Quantitative

and Qualitative Analysis of DOH and Treasury prepared by GFPs of the specified departments.

Emerging from the gender analysis process, recommendations that support a raised level of gender

awareness and sensitivity can be developed. Appendices 4, 5 and 6 are examples of gender

recommendations that were developed for DEAET, DOH and DRPW.

It is important to note that while many departmental strategic plans have been read and analysed, and

recommendations developed; many of these have not been fed back to senior management of relevant

departments. Once again this must be understood in the context of the time constraints of the MTEF

and the GFPs who are not part of senior management and therefor have difficulty in engaging with the

process of developing a strategic plan.



23

Table 2.2 Developing Gender Sensitive Departmental Plans - Progress to Date

Initiative Actions Progress to date Develop gender

sensitive departmental

strategic plans

Plans read and

analysed

Following departmental plans read and analysed by departmental

consultant and/or departmental GFP:

• Agriculture

• Economic Affairs, Environment and Tourism

• Education

• Health

• Housing, Local government and Traditional Affairs

• Land Affairs

• Land Claims Commission

• Roads and Public Works

• Safety and Liaison

• Social Development

• South African Police Service

• Sports, Recreation, Arts and Culture

• Transport

• Treasury

• Water Affairs and Forestry

Recommendations

made to relevant

department

Gender recommendations available:

• Agriculture


• Education

• Health

• Housing, Local government and Traditional Affairs

• Land Affairs







• Transport

• Treasury

• Water Affairs and Forestry


department

Recommendations have been shared with senior management of

the following departments:

• Agriculture

• Health

• Housing, Local Government and Traditional Affairs




• Treasury

Time constraints allowed the reading, analysis and recommendations of only fifteen departmental

plans; many of the departments that have national competency require a different level of analysis and

recommendations. These will need to be followed up over the next few months.

The value of meetings with senior management of relevant departments to discuss the gendering

process cannot be overemphasised, as this assists with narrowing the gap between policy and strategic

frameworks and implementation processes. Where the GFP requested additional support, the



24

consultant also attended senior management meetings to do a presentation on gender mainstreaming

processes. Table 2.3 details recommendations that need to be undertaken over the next few months.

Table 2.3 Developing Gender Sensitive Departmental Plans - Recommendations for the way forward

Initiative Actions Recommendations for the way forward Gender sensitive

departmental strategic

plans

Plans read and

analysed

The following departmental plans should be read and analysed

using the quantitative and qualitative instrument:

• ICD

• Correctional Services

• Office of the Premier

• Justice

• GCIS

• Labour

Recommendations

made to relevant

department

Recommendations should be made available to relevant

departments, always supporting the SPU and GFP:



• Education

• GCIS

• ICD

• Justice

• Labour

• Land Affairs





• Transport


department

Meeting should be held with senior managers of the following

departments to discuss both the analysis and recommendations:



• Education

• GCIS

• ICD

• Justice

• Labour

• Land Affairs





• Transport



25

3.2 Support Initiative 2: Gender Advocacy to Institutions

While institutions often call for the participation of women and advocates of gender, it is important

that gendering processes guard against simply "making up the numbers" or "ticking the stakeholder

checklist". Too often marginalised groups participate with no voice. Gendering the PGDP process

requires that both participation and a gender voice are available at institutional gatherings. Where

there is participation, there is greater certainty that gender would be placed on the agenda. Over the

time period September to December 2003, the PGDP reference group meetings, budget hearings and

PGDP working groups were targeted as strategic institutional processes to support gender advocacy.

It should be noted that these institutional processes were open to participation of those that would

advocate for the women's and gender issues; along with youth, the disabled and HIV/AIDS, the

crosscutting issues always find space on agenda. There is undoubtedly a political willingness to ensure

that marginalised groups are accommodated and supported within the broad activities of the PGDP.

Participation, reports and recommendations are welcomed; and though this does not necessarily

support mainstreaming processes, it is certainly an important step in ensuring that gender issues and

concerns become part of the agenda4.

Table 3.1 details some of the challenges experienced in ensuring that both gender participation and

gender voice was possible within the context of institutional processes. Here a key concern is the lack

of capacity experienced; the OSW can only be in a limited amount of places at any given moment, so

while they often receive invitations to participate, participation is ultimately not possible.

Table 3.1 Gender Advocacy to Institutions - Challenges and Strengths

Initiative Actions Challenges Strengths Gender advocacy to

institutions

Raise awareness of

gender at PGDP

reference group

meetings

• Lack of participation in all

reference group meetings;

unable to table any issues

or concerns

• Limited time available to

report back or raise

concerns at extended

reverence group meetings

• Getting a time slot at the

end of a meeting that has

already gone into overtime

• Lack of capacity in terms

of human resources

• Political will and support

from provincial

government senior

management for women's

and gender issues

• Ensuring that gender gets a

slot on the agenda - if

requested

Attend Budget

Hearings • Getting a time slot at the

end of a meeting that has

already gone into overtime

• Senior management of

departments not clear

• The support of parliament

and Treasury for the

participation of the

women's sector


4 The recommendations at the end of this document will provide possible solutions to the dilemma of participation and a voice.



26

regarding the role of the

women's sector at the

hearing

• Engaging with the financial

technicalities and the social

impacts


of human resources

from provincial

government senior


and gender issues

Attend working group

meetings • Lack of capacity, no-one

available to attend working

group meetings


of human resources

• Invitations to be part of

working groups

Despite the lack of human resource capacity and the inability to attend any of the working group

meetings; participation in the extended reference group meeting and budget hearings was undertaken.

Table 3.2 details progress to date regarding gender advocacy to institutions. The presence of a gender

voice certainly lead to even greater awareness of the need to engage more at the level of strategy,

planning and budgeting. As a result of gender participation in the budget hearings, certain departments

received letters from Treasury noting the recommendations to the departments for gendering

department strategic plans.

Table 3.2 Gender Advocacy to Institutions - Progress to Date

Initiative Actions Progress to date Gender advocacy to

institutions

Raise awareness of

gender at PGDP

reference group

meetings

• Attended extended reference group meeting 13 October;

reported on gender initiatives to mainstream gender into

PGDP

• Methodology and 10 point plan for implementation presented

• Report available for next extended reference group meeting to

be held in January 2004

• Informal discussions have taken place with chairpersons of

working groups

• Liaised with relevant managers of the PGDP PMU who acted

as the gender voice in gatherings

Attend Budget

Hearings • Attended the following budget hearings and made

presentations on gendering of departmental budgets:

Agriculture

Education

Health

Housing, Local Government and Traditional Affairs

Roads and Public Works

Social Development

• Relevant departments have received information from

Treasury requesting their responses to gender

recommendations made at the budget hearings


meetings • None attended

The key to growing the critical mass of action for gender transformation is to ensure that gender is so

effectively mainstreamed into any gathering, programme or activity that it's absence from an agenda

will be considered a shortcoming of the agenda. Table 3.3 details recommendations regarding gender

advocacy to institutions if both gender participation and a gender voice is to be a tangible presence at

PGDP institutional gatherings.



27

Table 3.3 Gender Advocacy to Institutions - Recommendations for the way forward

Initiative Actions Recommendations Gender advocacy to

institutions

Raise awareness of

gender at PGDP

reference group

meetings

• The extended reference group meetings is an important

platform for engaging with other provincial stakeholders;

attendance by the women's lobby at meetings is imperative

• A written, tabled report on gender and the PGDP is desirable

at each extended reference group meeting

• Formal meetings should be held with chairpersons of each of

the working groups as a means of increasing the support base

to gendering processes

• Key partnerships need to be forged with a range of institutions

and individuals that form part of the reference group, ensuring

effective participation and an increased voice

Attend Budget

Hearings • Attendance at all budget hearings is critical as a means of

ensuring that gender is considered at the strategic planning

and budgeting level

• Reports detailing the level of gender responsiveness of the

strategic plans should be made available to both departments

and the chairperson of the hearings

• Key partnerships need to be forged with a range of gender

based organisations who are able to engage with gender

issues, ensuring participation and voice


meetings • Participation in all working groups is vital in ensuring that

gender is considered at every level of implementation

• A written, tabled report on gender and the PGDP is desirable

at each working group meeting

• Key partnerships need to be forged with a range of institutions

who are able to engage with gender issues, ensuring

participation and voice



28

3.3 Support Initiative 3: Awareness raising of the PGDP with GFPs

The OSW and Special Programme Units (SPUs) are key stakeholders in the process of mainstreaming

gender; as a group, they are constantly engaging with gender theoretical and implementation issues.

Within the context of the PGDP, it was therefor imperative that they engage with the PGDP

framework on both strategic and operational levels as a way of ensuring that gendered departmental

strategic plans are developed. A gendered departmental strategic plan in turn creates the basis for

gendered programming, identification, assessment, formulation, financing, implementation and

evaluation.

A two-day workshop for Gender Focal Points (GFPs) was held on 28 -29 October to discuss ways of

mainstreaming gender into the PGDP. The workshop programme (see Appendix 7) gave GFPs the

opportunity to understand the strategic objectives of the PGDP, the role of a departmental strategic

plan in the policy and project cycles, gender analysis frameworks, and mainstreaming gender into the

PGDP. A second review workshop was held late November to evaluate progress and to discuss the

way forward (see Appendices 8 and 9) for gendering the PGDP.

Table 4.1 details the challenges and strengths encountered in raising awareness of the PGDP process.

It is important to note that most of the GFPs had not been part of departmental strategic planning

sessions, and therefor had limited knowledge of the policy, planning and budgetary processes. As

lower ranking officials they engage at the level of operations rather than strategic planning - ironically

they sometimes use the term "gender events managers" to describe their work. There is a significant

challenge facing senior management regarding the role of GFPs if departments are going to able to

access the gender knowledge and skills available, and close the gap between policy and

implementation.

Table 4.1 Awareness raising of the PGDP with GFPs - Challenges and Strengths

Initiative Actions Challenges Strengths PGDP awareness

raising with GFPs

Hold capacity building

workshops • Lack of participation of

personnel not authorised to

attend the PGDP workshop

• Lack of participation of

certain departments who

did not respond to the

invitation

• Variation in ability of

GFPs to access

departmental strategic

plans, and therefor to

engage with the process

• Lack of clarity regarding

roles and responsibilities

affected ability of the OSW

• Enthusiasm and

willingness of GFPs and

SPUs to engage with

PGDP process

• Support provided from

PGDP PMU in the form of

logistics and content

• Successes in analysis and

recommendations of

strategic plans



29

and GFPs to engage with

the process

Support meetings for

GFPs and SPUs • Poor communication with

some GFPs; no response to

offers of support and

mentorship

• Adhoc nature of meetings

in the province, inevitably

leading to cancellations

• Time constraints,

especially for those persons

who have multiple

responsibilities of gender,

youth and HIV/AIDS

• Limited knowledge of

some GFPs of policy,

strategic planning and

budgeting process

• Enthusiasm and

willingness of GFPs and

SPUs to engage with

PGDP process

• Support provided from

PGDP PMU in the form of

logistics and content

• Empowerment processes

for those who leaned new

tools and instruments

Table 4.2 details progress to date in raising awareness of the PGDP process with the GFPs, and the

associated actions to mainstream gender. In support of the GPSM and its methodology, a mentorship

process followed the PGDP workshop and focussed in particular on providing support to analyse the

departmental strategic plan, prepare recommendations on gendering the strategic plan; as well as

preparation for presentations of these to senior management. Where GFPs made use of the support

process, they were significantly more successful than those GFPs who liased with senior management

without the relevant, supporting documentation. It is important to note that where GFPs presented

written recommendations, they were then invited to do a more formal presentation to senior

management teams. The time constraints experienced were limiting for both GFPs and senior

managers in budget preparations for the MTEF hearings; there have however been significant

successes in getting senior managers and GFPs to engage with each other in the gendering of strategic

processes within their departments. Quite a few GFPs have reported that they have been requested to

participate in strategic planning sessions.

Table 4.2 Awareness raising of the PGDP with GFPs - Progress to Date

Initiative Actions Progress to date PGDP awareness

raising with GFPs


workshops • successful 2 day workshop held to share ways of

mainstreaming gender into the PGDP and to discuss training

needs as a part of training strategies; 12 departments

represented at the workshop

• a review workshop held to update and evaluate gendering

processes; 10 departments represented at workshop


GFPs and SPUs

Support meetings have been held with a number of departments

with a particular focus on:

• preparation of gender analysis and gender recommendations

documentation

• preparations for meetings with senior management to discuss

gendering the PGDP and departmental strategic plans

• dealing with specific challenges regarding the role and

responsibility of a SPU



30

There are significant challenges experienced by GFPs; including the manner in which their role is

understood by senior management, the OSW and other stakeholders. Many GFPs do not come to the

job by choice, but as a result of transformation processes and restructuring, or as a means of getting to

a more senior level in government. The turnover of GFPs is high, they are overworked and

undervalued; they are expected to engage with processes, like equity plans, over which they ultimately

have very little control and often experience gender insensitivity first hand.

Despite these challenges, the role and responsibility of the GFP is key in linking the objectives of the

provincial government with local government and local communities. The role of the GFP is key in

closing the gap between policy and implementation, theory and practice; the PGDP process will be

increasingly gender responsive if the OSW and GFPs are able to operate at a more strategic level.

Table 4.3 details recommendations for continuous awareness raising and capacity building of GFPs in

support of the PGDP. Some of the recommendations made by GFPs in support of gender

mainstreaming include team building with the OSW, joint strategic planning sessions with key

stakeholders, training in gender budgeting processes and gender responsive monitoring and

evaluation.

Table 4.3 Awareness raising of the PGDP with GFPs - Recommendations

Initiative Actions Recommendations PGDP awareness

raising with GFPs


workshops • Contacts need to be made with those departmental GFPs that

not yet engaged with the PGDP process

• Being able to engage with the PDGP process will require

capacity building in certain areas that includes strategic

planning, business planning, budgeting, M&E

• A team building workshop should take place to explore the

working relationship between GFPs and OSW; look at roles

and responsibilities; build mutual support

• A joint strategic planning workshop to between OSW, GFPs,

CGE and selected gender NGOs to develop a joint operational

plan


GFPs and SPUs • Contacts need to be made with those departmental GFPs that

not yet engaged with the PGDP process

• Continued support to GFPs who have initiated gendering

processes of strategic documents in their departments

• Training strategy recommendations need to be followed up on

and supported



31

3.4 Support Initiative 4: Gender Training Programmes

Gender programmes face a number of challenges in terms of design, target audience, content,

implementation and evaluation. While some of the challenges are related to the WID or GAD

approach of the trainer and course programme, a notable challenge is the way in which the target

audience perceives gender programmes. For many people, a gender programme is "something for

women, facilitated by women". It is therefor not unusual for women to be nominated to attend gender

training; or for women to be appointed as GFPs (unless the sector has a greater perceived male focus,

for example finance and the police); or for women to provide inputs for women's celebrations (for

example Women's Day and Women Farmer of the Year). Often a women's event or project becomes

the only intervention that a government department engages with, citing "this will be very good for the

women to know their rights". Those rights are however perceived as rights well outside the lives of the

women within the work place.

All of the above impact on the design and facilitation of gender training programmes, as well as the

ability to mainstream gender within both public and private sector organisations. Because men

dominate senior management, and gender training programmes is "something for women, facilitated

by women", it is not given priority in terms of departmental strategy. Subsequently gender training is

accorded limited budget and human resources. Table 5.1 details the challenges experienced in the

assessment and development of gender training programmes within the province.

Table 5.1 Gender Training Programmes - Challenges and Strengths

Initiative Actions Challenges Strengths Gender training

programmes

Assess departmental

and institutional gender

training available

• Time constraints; unable to

access human resource

directors to discuss

departmental training

strategies

• Gender not perceived as

core departmental training

needs

• Gender training not

perceived as a requirement

of senior management

• Lack of support and

resources to GFPs in the

implementation of internal

gender training

programmes

• Gender training is perceived as "something

for women"

• Suggestions by many

departments that gender

training programmes

should be integrated into

broader training strategies

• Human resource

development is one of the

foundation objectives of

the PGDP

Develop a training

strategy focussing on

the PGDP

• Time constraints did not

allow consultations with all

the relevant stakeholders,

especially tertiary

• GFPs participation in

developing a gender

training strategy

• Willingness of GFPs to



32

institutions And NGOs

• General departmental and

provincial training

strategies not easily

accessible

• Limited human resource

capacity within OSW to

support departmental

training needs

• GFPs are not part of the

strategic planning and

development of broad

training needs in

departments

engage with human

resource directorates to

develop a PGDP gender

training strategy

GFPs have participated in two exercises focussing on training needs relating to gender mainstreaming.

It is important to note that recommendations focussed not only on their training needs, but also the

gender training needs of senior and middle management with particular focus on mainstreaming

processes in support of the PGDP. Training needs include gender planning and budgeting, fiscal

management skills, as well as gender analysis with a specific focus on the use of disaggregated data.

Appendix 9, is an extract from the minutes of the PGDP workshop and details recommendations that

need to be considered when developing a gender training strategy.

A time constraint was a key factor in the lack of progress relating to this support initiative; still a

number of objectives have either been achieved or are in progress as detailed in Table 5.2.

Table 5.2 Gender Training Programmes - Progress to Date

Initiative Actions Progress to date Gender training

programmes

Assess departmental


training available

• Informal discussions held with a number of departments

regarding the need to engage with human resource directorates

and departmental training strategies

• Discussions held with SPUs regarding the training needs of

both senior and middle management

• GFP stated commitment to liaising with relevant directors to

mainstream gender training into departmental training

• Discussions with capacity building process of the PGDP

regarding inter-departmental training strategies and clustering

methods

Develop a training


the PGDP

• GFPs participated in two sessions to discuss their specific

gender training needs, as well as broader departmental gender

training needs

• GFP training needs include gender budgeting, fiscal

management, gender analysis using disaggregated data, gender

planning, gender strategy within the workplace

• GFP stated training needs for senior management includes

gender mainstreaming to impact on policies and decision

making processes

• GFP stated commitment to liaising with relevant directors to

mainstream gender training into departmental training

• Interviews held with a range of people to discuss an

appropriate training strategy



33

Mainstreaming gender into the PGDP has a distinct training component, where the specific content of

the PGDP is linked to specific content of gender analysis and gender empowerment strategies. It will

become increasingly important that training needs provincially become more integrated across sectors

so that the core objectives of the PGDP lead to integrated strategic planning and joint operational

activities. Gender theory and analysis is an integral aspect of such training if the goals of the PGDP

are to be realised. Table 5.3 detail recommendations that will support gender mainstreaming processes

into the general training needs of the province.

Table 5.3 Gender Training Programmes - Recommendations

Initiative Actions Recommendations Gender training

programmes

Assess departmental


training available

• Undertake a qualitative and quantitative gender analysis of

departmental training programmes; include GFPs in such an

exercise

• Meet with HODs and senior management to report back on

findings; link to further gender development of departmental

strategic plans

• Meet with tertiary institutions to assess the availability and

quality of gender training programmes

• Meet with local government officials, including GFPs to

assess the availability and quality of gender training

programmes

• Assess gender training programmes available from civil

society organisations across the province; include the

provincial NGO coalition in such an exercise

Develop a training


the PGDP

• Meet with beneficiary communities to evaluate gender needs

of communities; this would be best facilitated through local

government structures and civil society organisations

• Hold a training strategy workshop of key stakeholders to

develop core generic programmes that support gendering the

PGDP process

• Develop effective partnerships in the province (and if required

outside of the province) to support gender mainstreaming

training programmes

• Develop a strategy to build capacity of persons in the province

who could provide for the training needs of government

departments and local communities



34

3.5 Support Initiative 5: Gender Support to the PGDP PMU

The ideal case scenario for mainstreaming gender into the PGDP would have been to ensure that one

of the management positions in the PMU was a gender development position. This would have

supported the internal and eternal processes at every level from policy to implementation; as well as

strategic planning. The institutional arrangements of the PMU were a male director, four male

managers and one male finance manager, while the two office administrators and office assistant were

female. Most of the consultants and service providers engaged to date have also been male. While the

male colleagues were open and even welcoming of the gender issue, this situation itself was not going

to be conducive to gender being mainstreamed into the PGDP.

This initiative was therefor focussed on getting the PMU more acquainted with gender theory and

analysis, so that in the event of the OSW not being present and participating in PGDP processes the

male colleagues would be the gender eye/gender lens. Table 6.1 detail challenges and strengths

encountered in providing gender support and training to members of the PMU. Once again time

constraints resulted in not being able to get the entire PMU together at any one time for a joint gender

training session, individual managers however engaged with gender processes and the feedback is that

the increased presence of women through meetings with GFPs at the PMU office has assisted with the

gender mainstreaming process.

Table 6.1 Gender Support and Training to the PGDP PMU - Challenges and Strengths

Initiative Actions Challenges Strengths Gender support and

training to the PGDP

PMU

Gender support and

training to managers

and consultants

• Difficulty in tracking

PGDP processes and draft

versions because of rapid

changes to documentation

• Constant liaising with key

managers of programmes,

M&E, communications,

logistics; as well as

consultants

• Time constraints that

limited participation at

each stage of a process;

inevitably gender drops off

the agenda

• Working within the tight

budget cycle time frames

• Lack of human resource

capacity and therefore

inability to participate in all

consultative activities


from provincial

government senior


and gender issues

• Willingness of PGDP PMU

managers to engage with

the gender issues

Progress to date as detailed in Table 6.2, has focussed on support to individual managers in the areas

of designing future programmes and projects, the monitoring and evaluation strategy and the



35

communications strategy. Discussions have also taken place with the range of consultants who have

engaged with PGDP development initiatives over the reported period. A series of meetings with GFPs

have taken place at the PMU offices that created a sense of connection between the PMU and

departments.

Table 6.2 Gender Support and Training to the PGDP PMU - Progress to Date

Initiative Actions Progress to date Gender support and


PMU

Gender support and


and consultants

• Support and advice to manager working with the development

of Flagship Programme/Projects

• Support and advice to manager working with the development

of medium term programmes/projects

• Participation in M&E workshop and working group; advice

regarding strategy

• Participation in communications strategy; gender analysis of

communications and recommendations to gender future

strategies

• Participation in capacity building research and process

Continued support to managers and consultants who engage with the PGDP processes is vital in the

effort to ensure that gender remains on the agenda. Further recommendations detailed in Table 6.3

will ensure that the strategic developments facilitated by the PMU will link more directly to the

gendering processes that will take place in departments, local government and beneficiary

communities of the PGDP.

Table 6.3 Gender Support and Training to the PGDP PMU - Recommendations

Initiative Actions Recommendations Gender support and


PMU

Gender support and


and consultants

• Continued support to managers and consultants to ensure that

gender remains part of the agenda at both strategic and

operational levels

• The inclusion of a gender position into the PMU over the next

few months

• Encouragement to PMU members to increasingly act as the

gender eye/gender lens through all PGDP processes



36

3.6 Support Initiative 6: Gender Advocacy Mainstreamed into PGDP

Advocacy

Since the launch of the PGDP Strategy Framework for Growth and Development in June 2003,

extensive consultations have continued between the provincial government, public entities, business,

labour and civil society in preparation for the implementation of flagship, medium and long term

programmes and projects. This in itself necessitates a high level of advocacy and awareness raising

around the strategic objectives of the PGDP.

Part of the gender mainstreaming process is ensuring that all processes adopt gender responsive

mechanisms, as well as usage of the necessary tools and instruments to check progress. By

mainstreaming gender advocacy into PGDP advocacy, it is envisaged that gender will become less of

an activity and more part of the transformation process that the PGDP will support in terms of gender

equality within the province. Any transformation process creates a series of tensions within personal

and working relationships; this is to be expected in mainstreaming gender and PGDP advocacy. Table

7.1 details some of the challenges, as well as strengths experienced in the process of mainstreaming

gender advocacy into PGDP advocacy.

Table 7.1 Gender advocacy mainstreamed into PGDP advocacy - Challenges and Strengths

Initiative Actions Challenges Strengths Gender advocacy

mainstreamed into

PGDP advocacy

Link gender advocacy

to PGDP strategies and

advocacy

• Difficulty in tracking

PGDP processes and draft

versions because of rapid

changes to documentation

• Constant liaising with key

managers of programmes,

M&E, communications,

logistics; as well as

consultants

• Time constraints that

limited participation at

each stage of a process;

inevitably gender drops off

the agenda

• Working within the tight

budget cycle time frames

• Lack of human resource

capacity and therefore

inability to participate in all

consultative activities


from provincial

government senior


and gender issues

• Willingness of PGDP PMU

managers to engage with

the gender issues

• Support provided to

women who have become

associated with the team

It should be noted that there was never really a problem in getting a gender voice heard, inputs were

always sought and welcomed. Table 7.2 details progress to date. What will however remain more

problematic is what happens to gender information, recommendations and the resulting actions - these

are far more difficult for institutions and individual people to work with. What often happens is that

gender is the either diluted, for example merely seen as one of the cross cutting issues together with



37

youth, children, the disabled and HIV/AIDS; or gender is given the status of a task that needs to be

accomplished, for example a women's focus project.

Table 7.2 Gender advocacy mainstreamed into PGDP advocacy - Progress to Date

Initiative Actions Progress to date Gender advocacy

mainstreamed into

PGDP advocacy



advocacy

• Support and advice provided to the Flagship

Programme/Projects

• Support and advice to development of medium term

programmes/projects

• Participation in M&E workshop and working group; advice

regarding strategy

• Participation in communications strategy

• Participation in capacity building research and process

The recommendations that will support gender mainstreaming into PGDP mainstreaming, as detailed

in Table 7.3, include a focus on the M&E, communication and capacity building strategies, where it is

critical that the participation of women is not the end point, but rather participation with a voice that is

heard, as well as support for gender action during the implementation phase.

Table 7.3 Gender advocacy mainstreamed into PGDP advocacy - Recommendations

Initiative Actions Recommendations Gender advocacy

mainstreamed into

PGDP advocacy



advocacy

• Continued support to M&E, communication and capacity

building strategies

• Analysis of documents and materials that are placed into the

public domain, and recommendations for improved gender

responsive advocacy

• Participation in strategic planning processes

• Contributions to consultative meetings and workshops

• Participation in evaluation processes that will ensure gender

responsive strategies



38

3.7 Support Initiative 7: Formation of a Think-Tank on Gender

The original idea of forming a working group that could actively engage with the processes of

developing and extending gender policies in the Eastern Cape Province, arose from informal

discussions between the OSW and UNDP. It was envisaged that such a structure could also advise and

support existing structures like the OSW and other gender based organisations in achieving the South

African vision of gender equality. Within the context of the PGDP, this advisory, support structure

would play an essential in the gender mainstreaming process. Table 8.1 details some of the challenges

and strengths encountered in the formation of a gender Think-Tank.

Table 8.1 Formation of a Think-Tank on Gender: Challenges and Strengths

Initiative Actions Challenges Strengths Form a Think-Tank on

gender

Formation of group • Group members are

extremely busy individuals

who will not always be

available at the same time

• Logistical arrangements,

keeping group members

updated and facilitating

communication to PGDP

stakeholders

• Ensuring a transparent

process that will meet the

gendering objectives of the

PGDP and unify the

relevant stakeholders

• Clear commitment of group

to supporting the PGDP

process

• Willingness to act as an

advisory and support group

to the OSW

• Presence of the chairperson

of the Governance working

group

At the first meeting of the Think-Tank, (refer to Table 8.2) which included representation from the

OSW, UNDP, government, private sector, tertiary institutions and civil society; the institutional

arrangements and Terms of Reference was discussed, specifically because the constitution of such a

group is always open to criticism regarding its objectives, mandate, duration, participation and

purpose. Additionally, because time, logistical and geographical constraints place enormous pressure

on the ability of the group to function well, the objectives of the group needed to be clear and

transparent. Appendix 11 details revised Terms of Reference for the group.



39

Table 8.2 Formation of a Think-Tank on Gender - Progress to Date

Initiative Actions Progress to date Form a Think-Tank on

gender

Formation of group • First meeting hosted by OSW took place on 31 October 2003

in East London

• Current members include Ms Z Mlakalaka (OSW), Ms B

Hackula, Ms T Mpumlwana , Ms C MaCloed, Ms P Badi , Dr

S Muthwa

• Both Ms J Macharia (UNDP) and Ms I Diouf (UNDP

consultant) will play a role in the formation of the Think-

Tank, but are not long-term members

• Institutional arrangements discussed and agreed

• Terms of Reference developed and circulated among group

members

In it's infancy stage the Think-Tank needs to be nurtured and supported so that it becomes a structure

that is able to advise and support mainstreaming of gender into the PGDP. Table 8.3 details

recommendations that the group might wish to consider as it works towards the achievement of it's

Terms of Reference.

Table 8.3 Formation of a Think-Tank on Gender - Recommendations

Initiative Actions Recommendations Form a Think-Tank on

gender

Formation of group • The group needs to expanded as soon as possible; additional

members could include representatives of municipalities, the

CGE and the youth sector; as well as civil society

organisations that have a clear gender mandate

• The institutional arrangements and Terms of Reference need

to be transparent to ensure the support of the broader PGDP

stakeholders

• The members should provide clarity in terms of reporting

mechanisms and circulation of minutes of meetings

• The members of the group should represent diversity in terms

of age, gender and race


Mainstreaming Gender into the PGDP

ID Development Consultancy/The Institute of Women’s and Gender Studies 40

CHAPTER 4: KEY RECOMMENDATIONS - GENDER

MAINSTREAMING INTO THE IMPLEMENTATION

PHASE OF THE PGDP

Through the months September to December 2003, and in a final round of interviews in December,

a range of persons were asked to share their thoughts on mainstreaming gender into the PGDP,

focussing specifically on medium and long term requirements. Time and geographical constraints

meant that interactions were focussed on the following groups of people:

• Discussions with senior and middle management of government departments

• Consultation with OSW

• Consultation with UNDP

• Consultations with GFPs of government departments

• Discussions with GFPs of local government

• Discussions with the CGE

• Consultations with PGDP PMU

• Discussions with the Youth Commission

• Discussions with representatives of tertiary institutions

A multitude of ideas have been generated, and these would need greater consideration as in-depth

preparations are undertaken for launching the Flagship Projects, and as the medium and long terms

programmes and projects are put in place. These suggestions have been categorised into six main

areas:

• Strategic Planning

• Institutional Arrangements

• Monitoring and Evaluation

• Stakeholder Base

• Training Needs

• Communications

As with the specific recommendations relating to the Support Initiatives, these should form the

basis of further discussion to mainstream gender into the implementation phase of the PGDP.

Please note that neither the categories nor individual recommendations are listed in any order of

priority. Some of these recommendations are repetitions of earlier specific recommendation that

relate to the Support Initiatives; however as they arose from interviews and final discussions with

the stakeholders, for the sake of clarity they have been recorded again.




4.1 Strategic Planning

Recommendation 1: Gender machinery participation in PGDP planning

Representatives of the gender machinery should participate in PGDP planning by working closely

with the present PMU (or future Central Planning Unit); this includes participation in development

of programmes and projects, communication strategy, M&E strategy, capacity building strategy,

research and training strategy.

Recommendation 2: Gendered Strategic Plans

The provincial cabinet and budget hearings should be supportive of gender mainstreaming by

supporting gendered strategic plans. During the budget cycle, Treasury should approve

departmental strategic plans on the basis that they explicitly show gender planning and gender

budgeting.

Recommendation 3: Analysis of strategic documents

PGDP strategic documents should be quantitatively and qualitatively analysed to determine the

gender responsive planning and budgeting; as well as the level to which the strategic plans support

gender mainstreaming into the implementation phase.

Recommendation 4: Gender machinery joint planning

A joint annual planning session between key stakeholders to facilitate joint PGDP strategy and

focussed activity. The key stakeholders are OSW, CGE, GFPs of government departments, GFPs

of local government, provincial NGOs that have a clear gender mandate. The province should

endorse such a strategic plan.

Recommendation 5: GFP participation in strategic planning

GFPs should participate in annual departmental strategic planning and cyclical MTEF strategic

planning. Gender analysis, gender quantitative and qualitative analysis, and gender

recommendations of strategic plans would strengthen the participation of GFPs.

4.2 Institutional Arrangements

Recommendation 1: OSW supported to operate strategically

The OSW is a key role player in gendering the PGDP and mainstreaming gender in the province;

the unit though experiences limited human resources and limited strategic management skills to act

strategically. OSW needs to be supported in acquiring skilled staff to meet it's provincial and




national mandate, and needs to be supported in forming effective partnerships to align itself more

strategically to the PGDP.

Recommendation 2: Gender person in the PMU

The inclusion of a GFP in the PMU (or future Central Planning Unit) to support the design and

strategic development of programmes and projects, to link with provincial gender machinery,

departments, regions and local municipalities. A current GFP could be seconded from one of the

departments.

Recommendation 3: Participation in hearings

Participation of gender machinery in all cabinet and budget hearings, with a specific focus on the

level of gender sensitivity of departmental strategic plans. Not only a presence, but also a gender

voice that should guide the participation. Gender analysis, gender quantitative and qualitative

analysis, and gender recommendations of strategic plans would strengthen the participation.

Recommendation 4: Inclusion in PGDP reference group

Inclusion of the gender machinery in the PGDP reference group meetings (not only extended group

meetings), with a specific focus of ensuring that programmes remain gender responsive. Not only a

presence, but also a gender voice that should guide the participation. Gender analysis, gender

quantitative and qualitative analysis, and gender recommendations of strategic plans would

strengthen the participation.

Recommendation 5: Representation in cluster working groups

Gender should be represented in each of the cluster working groups; Governance, Economic

Growth and Development, Fiscal and Social Needs. GFPs and other members of the gender

machinery could represent the women's sector alleviating the pressure experienced by the OSW to

represent the sector in this extensive network of working groups.

4.3 Monitoring and Evaluation

Recommendation 1:Gender performance of senior management

Senior management should be appraised on the ability to mainstream gender into departmental

processes; stages which should include planning, designing, implementation, monitoring and

evaluation of the PGDP ensuring the development of gender responsive programmes

Recommendation 2: Gender indicators

Monitoring of all programmes and projects should include gender indicators to determine impact

of the PGDP on the lives of women and girls in the province. Gender indicators should be built




into all areas of strategic, business and operational plans, including planning, budgeting, human

resources and projects.

Recommendation 3: Disaggregated data at impact level

Reporting mechanisms should include the gender disaggregation of all data, in accordance with

gender responsive programmes. Gender disaggregation should focus not only on the numbers of

women and men employed or the numbers of women and men who participate in any particular

event; but should focus more specifically on the impacts of PGDP programmes on improving the

lives of women and men, girls and boys in the province

Recommendation 4: External gender evaluation

An external gender evaluation should be undertaken in April 2005 to assess the impact of PGDP

Flagship projects on the lives of women and girls in the province. The findings of the evaluation

and recommendation for more gendered projects should be made available to the provincial

cabinet.

4.4 Stakeholder Base

Recommendation 1: Expanded Think-Tank

The Think-Tank should be expanded to include better representivity of community structures.

Additional members could include the CGE, local municipalities, civil society organisations,

labour and youth. The meetings should operate a rotational chair to ensure inclusivity and

ownership.

Recommendation 2: PGDP and gender stakeholders

Gender stakeholders meetings and activities should increasingly focus on alignment to the PGDP;

this includes gender based violence programmes, women's empowerment initiatives, celebratory

programmes, advocacy and training programmes. These will greater support at a strategic level and

less duplication of activities.

Recommendation 3: Women's Caucus and PGDP

The provincial Women's Caucus should be invited to play a significant role in political support to

the PGDP process. Their role in focussing on gender transformation both internally in their

specific political parties, and externally in their interaction with local communities supports

gendering the PGDP.




Recommendation 4: Gender and local government

The gender machinery should undertake to look at ways in which gender can most effectively be

mainstreamed into local government. At a local government level many of the gender initiatives

are women's events that respond to practical gender needs, rather than the strategic gender needs of

communities. Possible good practice models that support mainstreaming at a strategic should be

recommended and shared.

4.5 Training Needs

Recommendation 1: Senior management training needs

Senior management of government departments should participate in training that focuses on

mainstreaming gender into the PGDP. Key areas of training should include gendered policy and

project cycles, gender planning, gender budgeting, gender analysis and gender disaggregation.

Recommendation 2: GFP training needs

GFP training needs should include the GPSM ten points to gendered implementation, namely,

gendered policies and guidelines, gendered strategic frameworks, gendered budgets, gendered

planning, gender sensitive community support, gendered project support, gender disaggregated

data, gendered reporting mechanisms, gendered monitoring and evaluation, gendered review

mechanisms

Recommendation 3: OSW training needs

OSW training needs should include strategic planning, leadership and management skills, team

building and group dynamics, gendered policy and project cycles, gender planning and budgeting,

gender analysis and gender disaggregation, gender monitoring and evaluation.

Recommendation 4: Team building

Externally facilitated team building should take place between the OSW and GFPs to improve

working relations, determine roles and responsibilities, line functions and reporting mechanisms.

Relevant senior officials who play a strategic role in deciding the mandates and operational

activities of each group should be consulted on these issues.

4.6 Communications

Recommendation 1: Gender responsive materials

All materials developed by the PMU should be evaluated to determine the level of gender

sensitivity. The PMU (or future central planning unit) should ensure that materials development




meets the requirements of gendered communications. Provincial gender machinery could advise on

both print and electronic materials.

Recommendation 2: Central database

All materials should be located in a central database to allow easy access to the relevant updated

information. Suggestion is that hard copies should also be housed within the PMU (future central

planning unit) to allow easy access for government officials, and stakeholders within the

geographic locality. This would specifically support gender-mainstreaming processes because

many officials feel that they would benefit from being able to read about gender good practice in

the different departments.

Conclusion

The process of mainstreaming gender into the PGDP during the months September to December

2003 was only travelling part of a journey; and for those who engaged with the process of it meant

self-discovery and awareness arising, innovation and sharing, learning and developing ways of

working in support of a strategy that sets out a provincial vision, targets and programmes aimed at

economic growth, employment creation, poverty eradication and income distribution, targeting a

rapid improvement in the quality of life of the poorest people in the province. It was a time to look

back and acknowledge those achievements of the gender pioneers, as well as engage with strategy,

planning and implementation processes. It was also a time to feel the strength and commitment of a

province that is willing to commit itself to a guiding principle for gender equality:

"We commit ourselves to ensure that at all stages of planning, designing, implementation,

monitoring and evaluation of the PGDP, gender perspectives will be mainstreamed so as to

ensure the development of gender responsive programmes.5"

5 PGDP Strategy Framework for Growth and Development 2004-2014, Section 5




Appendix 1: Diouf/DeWaal Gender Practitioner's Support Model (GPSM) (Not For Publishing. Not For Distribution)

Key objective of D/D GPSM: To support and mentor gender practitioners through engendered development processes

PHASE 1

THEORETICAL SUPPORT

_ Gender theory

_ Gender language

_ Gender tools/instruments

_ Gender analysis

_ Development strategy

_ Group strategy

_ Personal contract

PHASE 2

MENTORED IMPLEMENTATION

10 POINT PLAN

_ Gendered policies and guidelines

_ Gendered strategic frameworks

_ Gendered budgets

_ Gendered planning

_ Gender sensitive community support

_ Gendered project support

_ Gender disaggregated data

_ Gendered reporting mechanisms

_ Gendered monitoring and

evaluation

_ Gendered review mechanisms

PHASE 3

REVIEW SUPPORT

_ Gender theory

_ Gender analysis

_ Review development strategy

_ Review group strategy

_ Review personal contract

_ Redefine strategy

GENEDERED DEVELOPMENT

Ms Imelda Diouf

Development Practitioner and Gender Specialist, IDDC

Associate of the Institute of Women's and Gender

Studies, University of Pretoria Phone&Fax: (012) 654 7191

E-mail: [email protected]

Address: PO Box 12388, Clubview, 0014, South

Dr Maretha De Waal

Director

Institute of Women's and Gender Studies, University of

Pretoria Phone: (012) 420 3897 Fax: (012) 420

2873

E-mail: [email protected]

Gendered - to make gender aware




Appendix 2: DOH - Quantitative and Qualitative Gender Analysis

PROVINCIAL GROWTH AND DEVELOPMENT (PGDP)

DEPARTMENT OF HEALTH

GENDER ANALYSIS OF DEPARTMENTAL STRATEGIC PLAN

Page Mention Type of mention Section Quality

8 Female Female population Population analysis good

9 Women …improving health of women Population distribution good

11 Female Female percentage Population characteristics good

12 Maternal Maternal mortality Epidemiological profile good

13 Mother ..age of mother & ..education of mother Child mortality good

16 Women Women's and Maternal Health Women's and Maternal Health good

17 Female ..causes of mortality in females Disease pattern in the ECP good

17 Maternal ..AIDS as most common cause of maternal deaths HIV/AIDS good

18 Females Female ststs in Asthma Disease pattern good

19 Rape Challenges of the province Disease patterns weak

31 Inequity Address inequity in service provisions Priorities weak

41 Gender Gender policy Programme 1 good

46 Maternal &

Women's Health

Maternal & women's Health Performance indicators Good

65 Women Status of women Situational analysis Good

68 Women Pregnant women HIV/AIDS Good

Prepared by:

Ms K. Mjamba

Special Programmes Unit Official

Department of Health

Eastern Cape Province




Appendix 3: Treasury - Quantitative and Qualitative Analysis

Provincial Growth and Development Plan (PGDP)

Treasury Gendering departmental plans: Quantitative and qualitative analysis of gender

Page Mention Type of Mention Section Quality of Mention

15 equity Employment equity Act Legislative and other mandates average 18 disadvantaged historically disadvantaged groups Preferential procurement policy

framework Act weak

18 gender discrimination o the basis of …. Gender

Preferential procurement policy framework Act

good

63 female 3.5 million female Demographic profile of the Province good

127 equity Employment equity Act Mandate in term of departmental program

average

127 equity Employment equity Act Mandate in term of departmental program

average

127 equity Employment equity Act Standard average Compiled by:

Mr Bandile Sijadu Assistant Manager, SPU



50

Appendix 4: DEAET - Gender Recommendations


Department of Economic Affairs, Environment and Tourism

Gendering Departmental plans: Recommendations

Page Mention Section Recommendation 6 women strategic goals … with special focus on women, youth and the disabled

9 gender strategic goals …. integrate youth, disability and gender into all programmes of the department

11 equity Legislative and other mandates Employment Equity Act

equity Legislative and other mandates Labour Relations Act

equity Legislative and other mandates National Gender Policy Framework

equity Legislative and other mandates Skills Development Act

13 women Description of status quo 53.8% of the population comprises women

13 gender Description of status quo … and gender inequality

21 gender Sub-Programme : HR To mainstream gender into all policies, plans and programmes

Sub-Programme : HR no disaggregated data

Sub-Programme : HR all information disaggregated

Sub-Programme : HR Equality achieved at all levels

22 gender Table 4 Gender research undertaken

Disaggregated data received

25 women Table 5 … with a special focus on women, youth and the disabled

increased numbers of women, youth and disabled are computer literate

26 gender Table gender is mainstreamed into all policies, structures, plans and programmes of public entities

increased participation of women in policies, structures, plans and programmes

29 gender ECDC Projected Expenditure To undertake gender budgeting

30 women PGDP Programme Priorities Improve access to health, education and social grants by the poor, with a strong emphasis on women, youth and the

disabled

Prepared by: Ms Bulelwa Tunyiswa SPU, GFP




Appendix 5: DOH - Gender Recommendations

MAINSTREAMING GENDER INTO THE PROVINCIAL GROWTH AND DEVELOPMENT PLAN (PGDP)

DEPARTMENT OF HEALTH

GENDER RECOMMENDATIONS FOR THE DEPARTMENTAL STRATEGIC PLAN

Background Information:

Government has committed itself to promote gender equality. It has established gender machinery in the form of the Office on the Status of Women (OSW) and Gender Focal

Points. These have been established to support and monitor government's efforts to promote gender equality. However, responsibilities for implementation lie not with these units,

but with senior management government. This is in accordance with the principle of `gender mainstreaming`, which is an effective methodology for addressing gender inequality.

As gender inequities have an impact on quality and efficiency of the mainstream of internal and programming activities of the department, it is best to start by mainstreaming gender

into strategic plans, as these guidelines will be translated into programmes and business plans of the department.

The aim of this exercise is to find ways of ensuring that the process of transforming the gender related guidelines of the strategy plans translate into realistic operational plans and

business plans. These recommendations are intended to assist programme managers to be able to mainstream gender into their plans as these plans feed into the PGDP.

Pg Mention Section Recommendations

1 Women Overview of MEC A sentence that focus on women, youth, children and disabled to be built in

16 Gender dimension General comments on

maternal deaths

2nd bullet add the sentence- `could be partly attributed to gender dimensions of reproductive health`

31 Women Priorities for 2004/2005 6th

bullet add- ` with special focus on the most vulnerable such as women, youth , disabled and children

32 Employment Equity Act and

S.A. National Policy

Framework for Women's

Empowerment and Gender

Equality

Legislative Framework Add to legislation's

33 Women Conclusion 3rd

paragraph 1st sentence add `and the vulnerable groups such as women, youth, children and disabled.

37 Disaggregated data in terms of

senior management post – male,

females,race

Table no.8 Posts filled to be captured in terms of females, males and racial group

80 gender Quality improvement

measures HIV/AIDS

Last bullet could read `To develop strategies that are gender responsive`.

96 Gender sensitive Effective efficient

Management structure

Additional bullet could read - `ensuring equal rights and opportunities for both women and men in the

institution`.

96 Gender Strategic goals 2004-7 (d) last bullet …..gender mainstreaming occurs in all policies , structures and programmes

77 Gender Challenges related to

HIV/AIDS Programme

Add another bullet suggested ` Gender dimensions of vulnerability to HIV: The fact that people are called upon to

use condoms or to be faithful without challenging women's lesser power to negotiate sexual behaviour`. Prepared by:

Ms K. Mjamba

Special Programmes Unit Official




Appendix 6: DRPW - Gender Recommendations


Department of Roads and Public Works

Pg Mention Theme/Topic Recommendation

3 women Public Works Projects …. and women

7 women Community Based Public Works Programmes The community based public works programmes are targeted at poverty alleviation activities, with

special focus on women, youth and the disabled.

7 gender Internal challenges …. Including gender responsive mechanisms…..

8 gender Summary of Service Delivery Environment and Challenges ……. Gender inequality ……

11 women Provincial Priorities as identified at Budget Indibano … and women …

11 women's Service Delivery Goals …. And women's empowerment group ….

11 gender Organisational Goals To mainstream gender into all areas of the department's strategic and operational goals

11 gender Training and Learning Goals …. gender sensitive ….

12 gender Information System to Monitor Progress Gender disaggregated targets

12 gender Description of Strategic Planning Process South Africa's national Policy Framework for Women's Empowerment and Gender Equality

14 gender Strategic Goal 1 …. gender sensitive ….

14 gender Strategic Objectives To mainstream gender into all areas of the department's strategic and operational goals

14 gender Strategic Objectives ….. Including gender equitable responses

14 gender Strategic Objective: To develop instruments that support gender budgeting

18 gender Specific Measurable Objectives gender equity policies developed

18 gender Specific Measurable Objectives mainstreaming of gender is a component of all managerial positions

18 gender Specific Measurable Objectives gender equity

18 gender Specific Measurable Objectives gender mainstreaming training

22 gender Specific Measurable Objectives gender responsive investment plan

23 gender Specific Measurable Objectives gender responsive strategies employed





28 women Situation Analysis …. That targets women, youth and the disabled


36 gender Critical Success Factors gender equity plan

39 women Economic environment Economic empowerment programmes should target women, youth and the disabled

41 gender Adjustments to be made To mainstream gender into all areas of the department's strategic and operational goals

Prepared by: Ms Julia Ndaki, GFP




Appendix 7: OSW/ GFP’S PGDP WORKSHOP PROGRAMME: HALYARDS HOTEL: PORT ALFRED – 28 – 29 OCTOBER 2003

DAY I

TIME SESSION DETAIL LEAD PERSON(S)

09h00 Welcome, background, aims and objectives of the workshop Zukelwa Mlakalaka

09h10 Introductions • United Nations Development Programme - Janet Macharia

• Office on the Status of Women - Zukelwa Mlakalaka

• Institute for Women's and Gender Studies/IDDC - Imelda Diouf

• PGDP Project Management Unit - John Reynolds

• Economic Growth and Development Working Group Ms Giwu, Ms Mvusi, Ms Ndaki,

• Governance Working Group - Ms Boqwana, Mr Manyaku, Ms Blaai, Ms Somfongo

• Fiscal Working Group - Ms Tunyiswa, Mr Sijadu,

• Social Needs Working Group - Ms Dunjana, Ms Mjamba, Ms Fanta, Ms Casoojee

09h25 Presentation of PGDP Strategic Framework for Growth and Development

2004-2014 by Project Management Unit (PMU)

John Reynolds

10h00 Questions/Comments All

10h45 Tea Break

11h00

Mainstreaming gender into government programmes and processes

• Legislation and Policy

• Operations and Implementation

Janet Macharia / Imelda Diouf

11h30 Departmental Plans and Programmes

• Agriculture

• Safety, Security and Liaison


• Health

• SAPS

• Public Works


• Economic Affairs

• Education

• Provincial Treasury

• Sport, Recreation & Arts

• Housing, Local Government & Traditional Affairs

Departmental Reports

• Ms Giwu, Ms Mvusi

• Ms Boqwana

• Ms Dunjana

• Ms Mjamba

• Mr Manyaku

• Ms Ndaki

• Ms Blaai

• Ms Tunyiswa

• Ms Fanta

• Mr Sijadu

• Ms Casoojee

• Ms Somfongo

12h30 Gender Analysis Frameworks - Recapping Moser, Harvard and Longwe

Applying gender frameworks when analysing documents:

Case Study - PGDP Strategic Framework for Growth and Development

2004-2014

Janet Macharia/Imelda Diouf

13h00 Lunch

14h00 Analysis of the Work of the Working Groups - Departmental Work Plans as

Case Studies:

• Governance

• Economic Growth and Development

• Fiscal

Cluster working groups

• Economic Growth and Development Working Group - Ms Giwu, Ms Mvusi, Ms Ndaki,







• Social Needs

Gender Analysis Frameworks for:

• Economic development

• Planning

• Empowerment

• Rights based approach

Implementing Gender Analysis Frameworks

All - discussion and sharing

15h30 Tea Break

15h45 Report Back and Discussion

Gendering Working Groups - policies, strategic guidelines, strategic

operations, activities

Diouf/DeWaal Gender Practitioner's Support Model (GPSM)

� Theoretical support

� Mentored Implementation

� Review support

Implementing Support Models

Cluster working group report back


All - discussion and sharing

16h45 Overnight reading - to be allocated

17h00 End of Day

DAY II

TIME ITEM RESPONSIBLE PERSON

08h30 Review of Day 1 All

09h00 Developing personal, departmental and cluster group implementing

strategies - Working Groups:

• Governance

• Economic Growth and Development

• Fiscal

• Social Needs

Cluster working group meetings

• Economic Growth and Development Working Group - Ms Giwu, Ms Mvusi, Ms Ndaki,




11h15 Tea Break

11h30 Cluster Report Back and Discussion

Gendering Departmental PGDP Strategies - policies, strategic guidelines,

strategic operations, activities

PGDP - linking theory and practice, strategic liaisons

Cluster working group report back


13h00 Lunch

14h00 Training Needs of Gender Focal Points All

15h00 Way forward All

15h15 Tea and Departure




Appendix 8: PGDP Workshop Programme UNDP and OSW

Gender Focal Point Meeting Date: 21 November 2003

Venue: PGDP PMU Office

Time: 0900-12h30

Participating Organisations: UNDP

OSW

IDDC/Institute of Women’s and Gender Studies

Department of Agriculture

Department of Correctional Services

Department of Economic Affairs, Environment and Tourism

Department of Education

Department of Health

Department of Housing, Local Government and Traditional Affairs

Department of Land Affairs

Department of Roads and Public Works

Department of Safety, Security and Liaison

Department of Social Development

Department of Sports, Recreation, Arts and Culture

Department of Transport

Department of Treasury

Department of Water Affairs

South African Police Service

Objectives:

◘ To share progress regarding the gendering of the departmental strategic plans

◘ To find ways of ensuring that the process of transforming the gender guidelines of the strategy plans

translate into realistic operational and business plans

◘ To look at the programme/project short and medium term priorities of the PGDP

◘ To review the training needs strategy and discuss a way forward

◘ To provide an update on the Eastern Cape Gender Think-Tank

Meeting Agenda:

09h00 Welcome

Objectives

09h15 Report back from each department regarding gender mainstreaming intervention

(each department will get a 5 minute slot to do a report back)

Departmental strategic plans into business/operational plans – discussion and

recommendations Implications for mainstreaming gender – the way forward

10h45 Tea

11h00 PGDP Short and Medium Term Programme/Project Gender Priorities

Discussion and recommendations

11h30 Report back on training needs – discussion and recommendations

Implications for a gender training strategy – the way forward

12h00 Report back on Eastern Cape Gender Think-Tank

12h15 Evaluation

Conclusion

12h30 Close of day

Lunch




Appendix 9 Workshop Notes

Mainstreaming Gender into the Provincial Growth and Development Plan (PGDP) 2004-2014

GFP/SPU Meeting

Date: 21 November 2003 Venue: State House, Bisho

Time: 09h00-13h00

1. Report back and sharing of experiences regarding gendering of departmental strategic plans

Department Representative Progress as at 21 November 2003

Roads and Public

Works

Ms Julia Ndaki • Meeting held with Head of Strategic Planning; positive

feedback

• Work and liaising with colleague in the SPU

• Recommendations made

• Invitation to make a proposal to all senior managers

• Proposal in circulation

Transport Ms Nontsindiso

Mkobeni • Very little has been accomplished

• GFP to met with gender consultant to plan a way forward

regarding gender analysis and gender recommendations

Economic Affairs,

Environment and

Tourism

Ms Bulelwa Tunyiswa • Gender analysis and recommendation available

• Met with HOD and Directors of Policy, HR, Consumer

Affairs, Environmental Affairs

• Progress slow regarding input of recommendations

Treasury Mr Bandile Sjadu • Meeting with all senior management to get support, positive

feedback

• Accounting Officer and Director HR very supportive

• Gender analysis and recommendations to be made within

the next few weeks

Social Development Ms Nontobeko Dunjana • Meeting with HOD and Head: Strategic Planning; positive

feedback

• Recommendations made and implemented into strategic

plan

• MTEC preparatory meeting open to recommendations

Sports, Recreation,

Arts and Culture

Ms Farieda Casoojee • Meeting with Head: Strategic Planning to discuss gender

analysis

• Recommendations welcomed and inserted into strategic

plan and business plans

• Agreement to input recommendations into all programmes -

including targets and measures

Health Ms Lolo Mjamba • Meeting with Head: Policy and Quality Assurance

(formerly Head of strategic planning)

• Recommendations made; positive feedback

• Chief Director and some senior managers are very receptive

• Recommendations to be taken to next strategic planning

meeting

Housing, Local

Government and

Traditional Affairs

Mr Vukani Ntontela

(representing Ms

Nozizwe Somfongo

• Gender analysis and recommendations prepared

• Met with HOD to make recommendations

• Meeting with senior management to take place 5 December

2003

Education Ms Bukiwe Fanta • Not much progress

• GFP to met with gender consultant to discuss a way forward

regarding gender analysis and gender recommendations

PGDP PMU/OSW Ms Imelda Diouf • A range of initiatives/interventions over the last few months

- this includes the 8 initiatives/interventions that are

currently being supported

• See attachment

Way forward for those departments not represented:




� Send updates to Imelda Diouf

� Update will be included in this table and then circulated to all GFPs and SPUs

2. Report back on Provincial MTEC Hearings

� Discussion took place regarding the value of the hearings and possible role of GFPs

and SPUs

� Recommendations:

1. Gender representation important at all future MTEC hearings, standing committees,

PGDP reference group meetings - could be shared between OSW and GFPs

2. Representatives at these meetings should represent a broad gender perspective, not a

department

3. Representatives should have adequate knowledge of policy, planning and budgeting,

so as to impact on budgeting processes and decision making

4. This training should link with training requirements and training strategy

5. OSW will share information regarding some training initiatives that are currently in

circulation eg. Fort Hare University

3. Way Forward for Gendering Departmental Plans

� Training of all senior management a requirement of gendered strategic plans - this

includes gendered policies, gendered business plans, gendered planning, gendered

operations, gendered budgeting

� GFPs and SPUs should play a key role in ensuring that there is an awareness of the

role of these aspects in gendering strategic plans

� Gender machinery of the province needs to do joint planning so that integrated plans

feed into the integrated/clustering nature of the PGDP

� A joint planning session should include GFPs, SPOs, OSW, CGE, relevant NGOs (a

recommendation was made that NGOs that have a specific gender focus eg victim

empowerment be targeted)

4. Supporting Gender and the PGDP

� Discussion and presentation took place regarding partnerships and allies to support

the processes of gendering departmental strategies and the PGDP

� Focus on the circle of concern and place one's own capacity within a realistic context

� Look towards the circle of influence to bring on board allies and partners both within

and outside of a specific department

� Grow the circle of influence by forming partners with those who exist outside of

government structures eg CBOs, NGOs, churches, etc

5. Update on 16 Days of Activism

� OSW did a report back

� Planning for launch

6. Discussion on SADC Report

� Reporting format discussed

Close of meeting at 13h15




Appendix 10: Training Needs

(Extracted from notes of the GFP PGDP workshop)

What are the training needs of GFPs (check page 29 &45 of gender policy framework) and other

members of government departments?

Gender budgeting? (GFP)

• what is this about?

• tools and techniques

Fiscal management skills (GFP)

• fiscal gender analysis (skills)

Gender policy development and analysis (GFP + policy developers)

Gendered planning (GFP)

Gender mainstreaming for senior managers and sub-programme manager

• statistical analysis

Monitoring and evaluation using gender lens

Developing a common monitoring tool

Gender disaggregated

• how to interpret?

• analyse?

Developing gender workplans

Train the trainer approach

• mentorship

• facilitation

• leadership

Stress management

Gender strategy

• skills, how to deal with diversity management

• how to work with people from diverse cultures and social backgrounds

• change management(include gender perspective)

• IT skills and presentation skills; e-mails, software, MIS

Generic report writing

• format

Gender mainstreaming practice in other countries

Mainstreaming gender into HIV/AIDS

Generic mainstreaming skills into a range of sectors




Appendix 11 TERMS OF REFERENCE OF THE THINK TANK (2nd draft) as per discussions of 6 November 2003)

The Think Tank will serve as an advisory thinking group to give support to the OSW in Eastern

Cape, in its efforts aimed at ensuring that the PGDP processes from design, planning, implementation and monitoring are gender responsive.

.

Membership The team is composed of women and men from the Eastern Cape who have expertise in gender and

development issues. They are drawn from government, private sector, statutory bodies, NGOs,

organised labour, universities and relevant donor agencies.

When the need arises, the Think Tank may call upon certain experts to advise on certain policy

issues.

The membership of the think tank and objectives of the group ought to be reviewed once a year.

General objectives: 1. To provide guidance on the alignment of the OSW provincial gender policy with the

strategic objectives of the PGDP

2. To bring to the PGDP process the extensive resources, knowledge and expertise on gender

generally, and in particular gender and development issues pertaining to the Eastern Cape

3. Exchange and share national, regional and international developments on gender for input

into the PGDP implementation processes

4. To advise on research priorities on gender mainstreaming for the Eastern Cape. 5. To advise on lobbying and advocacy strategies and opportunities for effective and

responsive gender mainstreaming

6. Supporting and Advising the Eastern Cape OSW

7. To advise the OSW on avenues of sharing and networking with stakeholders

8. To advise the OSW on issues of integration and co-operation between the OSW and other

stakeholders.

9. To advise on the repackaging of information in accessible formats 10. To advise the OSW on resource mobilisation

11. To act as a reference group in programme/project evaluation when requested by the OSW

12. To advise on sustainable gender mainstreaming strategies

Duration/Venue The Think Tank will need to meet every month for the first six months. Thereafter the TT will

meet once every three months.

The venue will remain East London unless otherwise agreed upon

Logistics: The OSW will endeavour to cater for the logistics of the Think Tank meetings




Appendix 12

Terms of reference for a Gender Consultant

1. Background On June 26 2003, the Premier of the Eastern Cape launched the Province’s framework for the

development of the Provincial Growth Development Plan for the period 2004-2014. One of the

guiding principles of the framework is to ensures that all stages of the development,

implementation and monitoring of the PGDP’s programmes gender concerns will be cross cutting

for effective gender responsive targeting and planning.

UNDP in support to ensuring that gender is fully mainstreamed into the PGDP, wishes to recruit a

gender expert on a consultancy basis, to work closely with the UNDP SURF Gender Specialist, the

Provincial Office of the Status of Women and the Programme Management Unit based in Bisho,

Eastern Cape. The Consultant will also have continuous liaison with the already formed groups

that are working on the three thematic areas of the PGDP framework, liaison with the different

provincial departments and other stakeholders i.e. NGOs, private sector as will be identified by the

OSW.

2. Objectives The overall objective is to ensure that the PGDP is not only gender sensitive but will form the basis

for the development of gender responsive programmes.

Specific objectives � Under take a thorough gender analysis of the PGDP thematic areas as stated in the

framework - (taking into account the paucity in Sex disaggregated data) – and inter alia

elucidate existing social and gender justice concerns and provide suggested indicators for tracking progress.

� Develop a Gender Impact Assessment of PGDP to highlight the potential negative

consequences of the Plan and how these can be balanced against any potential positive

gains in support of a correct course of action.

� Undertake a critical gender analysis of the provincial departmental policies on gender

issues with a view to making recommendation on how to best engender the policies

� Undertake a quick but representative survey to assess the actual status of women and men

in Eastern Cape to assist in targeted planning.

� Develop strategies on how to mainstream gender into the PGDP including assist in

budgeting for mainstreaming

� Develop monitoring and evaluation programmes to enable the OSW to assess extent of

gender responsiveness of the province’s programmes

� Develop a strategy for building gender competence within the provincial departments

� Based on the information collected, assist the various provincial departments to identify

their gender related priorities and interventions to address gender inequities.

� Develop strategies that will ensure that objectives, outputs, and activities are sensitive to

gender equality and meet the needs and priorities of both women and men and, minimise

constraints to women’s participation.

3. Outputs / results expected � Gender relevant information and analyses fully incorporated into relevant sections of the

PGDP and the different departmental plans

� A fully gender responsive PGDP for the Eastern Cape

� Gender responsive programmes with gender sensitive monitoring indicators developed

� A full developed strategy and training plan for building gender competence within the

provincial departments. � Collected and presented data should be sex disaggregated; in case this is not possible,

adequate justification should be provided. Sufficient data on gender issues should be

gathered for appropriate design.




4. Methods

The consultant will use participatory techniques, including:

� Discussions with female and male representatives of the target groups

� Interviews with female and male staff at all levels in provincial departments and municipal

departments

� Interviews with researchers at research institutes and universities

� Discussions with staff of other provincial departments such as community development, of

women’s affairs / gender, special programmes Human resources etc.

� Discussions with NGOs, including women’s associations, working in the same field and

providing different services.

� Observation of field activities

5. Reporting requirements The consultant will be in constant liaison with the UNDP’s SURF Gender Specialist. A

monthly meeting will be held with the PMU, the SURF Specialist, the consultant and the OSW

to assess the progress made.

6. Required qualifications

� Post graduate degree in any field of the social sciences or an undergraduate degree in the social sciences with proven working experience in the area of gender and development.

� Substantive proven experience in Gender and Development � Experience in working and knowledge about the Eastern Cape on gender related activities an

advantage

� Proven practical experiences in gender mainstreaming, training and development of gender sensitive planning frameworks

� Fluency in English and knowledge of other local South Africa languages an added advantage

7. Time schedule for implementation and reporting The initial contract is for a period of 10 working days per month for a period of three months

starting on 01 September and expiring on 30 November 2003 at a daily rate of R2500.00 per

day.

8. List of background materials (PGDP strategy framework)

Gender

Documents

gender support

gender advocacy

culture gender

development plan pgdp

gender studies page

doh gender analysis

gender training programmes

pgdp pmu support initiative