GMAP of DoLa (Ministry of Interior)

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Gender Mainstreaming StrategyofDepartment ofLocal Administration I DoLA(Ministry of Interior)

2007- 2010


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Table of contents:

1. Introduction

2. Strategic Vision, Objectives and Indicators:2.1 DoLA Gender Mainstreaming Strategy, Strategic vision2.2 DoLA Gender Mainstreaming Strategy, Objectives2.3 DoLA Gender Mainstreaming Strategy, Indicators

3. Implementation Framework:3.1 Stakeholders3.2 Activities Plan 2007-2010

Annex: Glossary

Page:

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5-7557

7-87

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1. IntroductionIn 2001 with the enactment of the Law on Commune/Sangkat Management andAdministration, the Royal Government of Cambodia initiated the first steps to reform thesystem of sub-national governance. The first elections for Commune Councils took place inearly 2002. In 2005 the Cambodian government adopted a comprehensive StrategicFramework 1 for decentralization and deconcentration Reform based on eKperiences made todate.The objectives of provincial/municipal, district/khan, and oommune/sangkat's managementsystems in the conteKt of decentralization and deconcentration reform are to builddemocratic representation, people participation, public sector accountability and to contributeto poverty reduction. A key prerequisite to achieve these objectives is the equal chance ofrepresentation and participation of both women and men in the reform process. This processof democratization and social equality will mark a positive move towards promoting genderequality. In turn, this can have a positive impact on economic growth and poverty reduction.Commune Councils and other sub-national units are closer to the citizens than national levelgovernment and therefore in the best position to involve women and men equally indecision-making processes which affect their lives and to make use of their knowledge andcapabilities for local development management and governance. Equally the considerationof gender issues by provincial/ municipal, district/khan and commune/sangkat levelstakeholders positively influences the effectiveness and quality of their services.lt is recognized, however that this is a work in progress. There are barriers for women andmen to participate in and benefit equally from the decentralization and deconcentrationprocess. Following the first Commune/Sang kat elections women. constitute only 8.5 percentof Commune/Sangkat Councillors. About 50% of the Commune Councils are without femalerepresentation. In addition the majority of appointed and administrative staff is male. A rangeof socio-cultural factors including stereotypes about women's and men's role in the society,lower level of education, difficulties of combining household and child care role with publicand community roles are a constraint to women's and men's equal representation andparticipation. In addition women and men play different roles in society and therefore havedifferent needs and interests which need to be taken into account. Due to their different roleswomen and men also have different starting points to participate effectively in the process.These gender issues must be addressed i.f women. and men are.to equally participate in andbenefit from the reform and if the potential of both women and men is to be tapped in theefforts to achieve the objectives of decentralization and deconcentration reform.Cambodia is a signatory to the C o n v e n t ~ o n to Eliminate All Forms of Discrimination againstWomen (CEDAW)2 and the Beijing Platform for Action. Gender is one of the crosscuttingissues integrated by the Royal Government of Cambodia in its key strategic policies,including the Governance Action Plan, the National Strategic Development Plan 2006-2010and the Rectangular Strategy which integrates gender issues and focuses on the importanceof the Neary Ratanak strategic plan. of the Ministry of Women's Affairs. The CambodianMillennium Development Goals in particular strive for an elimination of gender disparities inpublic institutions and an increase of the proportion of seats held by women in sub-nationalcouncils. The Cambodian Millennium Development Goals have set targets of increasing theproportion of seats held by women in the commune counciJs from 8% in 2003 to 25% by2015. In June 2005, the Royal Government of Cambodia approved a Strategic Frameworkfor decentralization and deconcentration that specifically provides for the introduction of1 Strategic Framework for Decentralization and Decncentration Reform , Royal Government of Cambodia , June20052 The Kingdom of Cambodia accepted and ratified the Convention on Elimination of All Forms of DiscriminationAgainst Women (CEDAW) on 15 October 1992


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systems and procedures which will ensure the participation of women in decision making atprovincil/muncipal,distric/khan and commune/sangkat level3.Considerable efforts 14ave already been made by different stakeholders including DoLA topromote women's representation and participation in local governance affairs and significantresults have alsobeen achieved- such as the integration of gender issues in CommuneCouncil planning guidelines and training programmes, holding of special courses for femalecandidates and support to the establishment of provincial-based Fema1e Councilor Forums.In addition it has been assured that gender issues are integrated in Commune Councilaffairs via the provision of seats for women on the Planning and Budgeting Committee ,theestablishment of Women and Children's Focal Points and the arrangement that, womenconstitute, at least one-third of the total of village leaders in the country.The Ministry of Interior (Mol) and its Department of Local Administration (DolA) have a rolein integrating gender into policy, strategies and activities in accordance with theirresponsibilities as set out in the Prakas on Roles, Duties and Structures of the Departmentof Local Administration. DoLA acts as an assistant to the Department General ofAdministration of the Ministry of Interior on decentralization and Commune/Sangkat affairs.DoLA's current responsibilities include monitoring, controlling and evaluating theimplementation of the decentralization policy and thE! development of Communes/Sangkatsand to establish appropriate mechanisms for education, training and capacity building thatwill support Commune/Sangkat Councils to work more effectively. DoLA consists of sixoffices: Office of Administration; Office for Monitoring, Control and Support ofCommune/Sangkat; Office for Education and Capacity Building; Office for Planning,Statistics and Information; Office of Finance; and Office for Technical Research.A DoLA gender working group was established in 2005 and received a series of training ongender in the context of decentralization and deconcentration reform .This process then ledto the development of DolA gender mainstreaming strategy. Based on the principles of the gender concept, gender issues are not added as a separatecomponent but integrated in: DolA's organizational structures , activities and processes Preparing legal documents Providing public awareness Providing capacity building for decentralization and deconcentration stakeholders Undertaking research Monitoring and evaluating the progress of the decentraiization reform.2. Strategic Vision, Objectives and Indicators:2.1 DoLA Gender Mainstreaming Strategy, Strategic visionAll objectives, interventions and indicators outlined in this strategy seek to contribute to thefollowing overall strategic vision:

"There is equal participation in the decentralization and deconcentration reform bymale and female citizens and by male and female elected and appointed officials.Women and men equally benefit from sub-national policies, decisions,programmes and service delivery."

3 St1ategic Framework for Decentralization and Decncentration Reform , Royal Government of Cambodia , June2005

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2.2 OoLA Gender Mainstreaming Strategy, Objectives:DoLA commits to achieving the roHowing objectives in contribution to the realization of the

s t r ~ t e g i c vision:1. DoLA officials are committed to and capable of taking into account gender issues andperspectives in DolA's organizational structures, processes and activities.2. The legal framework for decentralization and deconcentration reform institutionalizes.systems, structures and processes to ensure equal representation, participation of andequal benefit to women and men.3. Education and capacity development activities in the conte>d: of decentralization anddeconcentration reform promote gender equality.4. Research, monitoring & evaluation, planning, statistics & information systems areestablished in a gender differentiated manner that reflects the situation of both womenand men.

2.3 OoLA Gender Mainstreaming Strategy, IndicatorsObjective One: DoLA officials are committed to and capable of taking into accountgender issues and perspectives in CoLA's organizational structures, processes andactivities.Achievement of the objective is measured by the following six indicators:1. By 2007 a DolA gender working group is established that oversees implementation andmonitoring of the DoLA gender mainstreaming strategy and strategic plan under theguidance of the DOLA director.2. By 2007 DolA develops a gender mainstreaming strategic plan that is integrated intoDoLA's overall strategic plan and, by 2010 DoLA develops a single integrated gendersensitive strategic plan. 'I,3. By 2007 DoLA core management and operational staff have undergone basic training ongender concepts and issues.4. By 2008 all OolA officials have knowledge about gender issues and capacity andcommitment to exercise their roles .and responsibilities in a way that integrates genderissues and perspectives.5. By 2010 the six DoLA offices have in place mechanisms to integrate gender issues andperspectives in their roles and responsibilities and the annual activities plan.6. From 2007 onwards, OoLA proposes and lobbies to increase the number of femaleofficials in DoLA and sub-national levels

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Objective Two: The legal framework for decentralization and deconcentration reforminstitutionalizes systems, structures and processes to promote equal representation,participation of and equal benefit to women and men. Achievement of the objective is measured by the following one indicator:1. Drafts of new laws, regulations and legal instruments related to decentralization anddeconcentration reform promote the equal participation and representation of and the equalbenefit to women and men in the context of decentralization and deconcentration reform.

Objective Three: Education and capaci ty development activities in the context ofdecentralization and deconcentration reform promote gender equality.Achievement of the objective is measured by the following four :indicators:1. By 2008 gender issues and perspectives are integrated in all education, public awarenessand capacity building strategies and activities of DolA.2. By 2008 core stakeholders at national and sub"'"national levels have undergone basicgender training. 3. By 2008 DoLA implements specific capacity building interventions for female councilors.4. By 2009DoLA implements specific capacity building interventions to promote an increaseof the number of women in RGC's institutions related to decentralization anddeconcentration reform , including female councilors, male councilors , clerks, PFT, OFT,etc.

Objective Four: Research, monitoring & evaluation, planning, statistics & informationsystems are established in a gender differentiated manner that reflects the situationof both women and men.Achievement of the objective is measured by the following four indicators:1. By 2009 DoLA's research, monitoring and evaluation systems and those of sub-nationalinstitutions within the context of decentralization and deconcentration are genderdifferentiated. 2. By 2009 DoLA promotes systems and procedures for sub-national development andinvestment planning that take into account the different needs of women and men.3. By 2010 DoLA offices conduct research, data collection, planning and reporting in agender differentiated and gender sensitive manner.4. By 2010 PLAU conducts research, data collection, planning and reporting in a genderdifferentiated and gender sensitive manner.

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3. Implementation Framework3.1 Stakeholders

The gender mainstreaming strategy is a guiding policy for the operations of DoLA. Allstaff members comply with the objectives and principles as set out in this document.Each DoLA office is responsible for ensuring that gender issues and perspectives areintegrated into all its programmes and activities. Each DoLA office is responsible forensuring that gender issues and perspectives are integrated into all its programmesand activities.

A DolA Gender Working Group (DGWG) will facilitate the implementation of thegender mainstreaming strategy and will monitor closely the progress of the strategyin achieving its objectives and make recommendations for adjustment andadvancement. The DoLA Gender Working Group will coordinate all efforts andprojects amongst the various offices under the guidance of the DolA director. The implementation of the gender mainstreaming strategy includes stakeholders at

the national, provincial, district and commune levels. A major stakeholder at theprovincial level is the Provincial/Municipal Local Administration Unit (P/MLAU) whichis under the direct supervision of the provincial/municipal governor. The P/MLAU willsupport gender mainstreaming by ensuring the integration of gender perspectivesand issues into all its procedures and activities with administrative technical andfinancial assistance from DoLA. In addition Provincial and District Facilitation Teams(PFT/DFT) and Commune Councillors are pivotal in the implementation of themainstreaming strategy. DoLA will continue to support the "Commune Committee forWomen and Children" in promoting gender equality and equity at the commune level.With the co-operation of all these stakeholders a real change in gender roles andattitudes can be brought about. The gender mainstreaming strategy and action plan will be supported by DoLA andrelevant stakeholders through allocation of appropriate financial and technicalresources. Monitoring results will be published in an annual gender report which iscoordinated and supervised by the DGWG. Mechanisms will be established for co-ordination and co-operation with other relevantorganizations, including the' Ministry of Women's Affair, the Gender TechnicalWorking Group (GTWG) and Non-Governmental Organizations. This cooperation willfacilitate information sharing, best practice dissemination and joint projectimplementation in the context of decentralization and deconcentration reform.

3.2 Activities Plan 2007- 2010During the implementation period 2007 - 2010 DoLA will undertake the following activities:

Examine the Prakas on the Roles and Responsibilities of DoLA to identify howgender perspectives can be integrated into the roles and responsibilities of eachoffice and DoLA as an institution Prepare a plan of action to mainstream gender in the roles and responsibilities ofDoLA offices including the identification of a pilot office for gender mainstreaming Integrate gender mainstreaming master plan into DoLA's annual action pian Develop and implement capacity building interventions for OoLA officials onessentials of the gender concept and gender and decentralization related issues Assess DoLA offices in terms of systems, skills and approaches needed toimplement the gender mainstreaming strategy

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Develop strategic partnerships with relevant stakeholders for implementation of thegender mainstreaming strategy Examine the draft of organic laws, the Law on the Administration and Management

of Communes/Sangkats and complementing regulations to ensure that genderissues are integrated Prepare complementing guidelines and legal instruments to promote gender equityand equality in the context of D&D and lobby for their approval Mainstream gender in all capacity building interventions developed by DoLA Develop and implement capacity development interventions on the gender conceptand gender and decentralization related issues to core stakeholders at the subnational levels, such as e.g. PLAU in cooperation with other relevant organizationsand institutions Support the implementation of Female Councilors Forums and participate in theforums as resource persons Adapt systems and software to enable gender differentiated research, M&E, andassessment of planning, statistics and information at national and sub-nationallevels Develop skills of DoLA officials to conduct gender differentiated/sensitive research,planning, M&E and reporting Develop skills of PLAU to conduct gender differentiated/sensitive research,planning, M&E and reporting Prepare annual reports with an analysis of gender differentiated data andrecommendations for change Coordinate gender sensitive conflict resolution processes at the commune/sangkatlevel.

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Annex IReference: GenderTermino1ogy, Minis try of Women Affairs, Cambodia, August 2006 Glossary of Gender TermsGender and SexThe term gender refers to the roles of women and men as defined within a specific socialcontext. These roles, attitudes and values define the behaviors of women and men and therelationship between them. Gender roles are further affected by factors such as class, age,economic status, religion, ethnicity etc. They are created and maintained by socialinstitutions such as famities; governments, communities, schools, chur.ches and the media.Since gender roles are socially determined they are subject to constant change. In contrastthe biological sex is determined at birth and essentially unchangeable. lt refers to thebiological characteristics of being a woman or a man.Gender analysisIs the analysis of the different roles, functions etc. played by men and women, including keyissues such as gender-based division of labor, productive and reproductive activities, accessand control over resources and benefits, and socio-economic factors that influence men andwomen. A gender analysis should be conducted at every step of any intervention, policies orprograms starting from the setting of priorities and data collection, to the design,implementation and evaluation.Gender discriminationGender discrimination refers to differences in treatment based on a person's sex; thisinvolves systematic and structural discrimination against women in the distribution ofincome, access and control over resources, and participation in decision-making.Gender equalityWhen there is no discrimination based on a person's sex in the allocation of resources orbenefits, in the access to services or decision-making processes. Gender equality may bemeasured in terms of whether there is equality of opportunity and/or results of projectinterventions.Gender equityGender equity means fair treatment of women and men. To ensure fairness, there must bemeasures to address the historical and social disadvantages that prevent women and menfrom sharing equally in the results and benefits. Equity is the means (process) and equalityis the result. One example of such a measure of equity is the provision of leadership trainingfor women, which addresses the problem of gender inequality in structures of governance.Gender rolesGender roles are the roles both sexes perform due to being female or male in a specificsociety. Both sets of roles are associated with sets of behaviors and social values, such as aman participating in politics and a woman taking care of household chores. If individuals donot fulfil! their gender roles according to the expectations of society, they might face serioussocial exclusion and censure.

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. - .... ' ~ : f ~Gender sensitivityThe ability to recognize gender issues and to recognize women's and men's differentperceptions and interests arising from their different social position and gender roles.

Gender mainstreaming/Gender integrationGender mainstreaming is the integration of. genden::oncerns into the anatyses, formulationand monitoring of policies, programs and projects, with the objective to reduce inequalitiesbetween women and men.Sex-disaggregated dataThis refers to the differentiation by sex of statistical and other data. This is a basicrequirement of good practice in development programming. Without this, it is difficult orimpossible to determine the gender impacts of development activities.Practical gender needsPractical gender needs are derived from the practical living and working conditions of bothwomen and men. They refer to the fulfillment of such basic needs as improving nutrition orhousing conditions, access to clean water and health services etc. Addressing practicalgender needs alone would not address the underlying reasons for gender discrimination.Strategic gender needsUnlike practical needs, strategic gender needs arise out of an understanding and analysis ofwomen's subordinate situation in society. Strategic gender needs aim at a balance of powerbetween women and men and an improvement in the social status of women. They includee.g. the right to own land, equal right to stand as candidates for election or the abolition ofviolence against women.

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