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Making Gender Matter in Humanitarian Operations
Photo: Kristin Sørung Scharffscher
Norwegian Agency for Development Cooperation P.O. Box 8034 Dep, NO-0030 OSLO Ruseløkkveien 26, Oslo, Norway Phone: +47 23 98 00 00 Fax: +47 23 98 00 99 ISBN 978-82-7548-619-4 ISSN 1502-2528
Responsibility for the contents and presentation of findings and recommendations rests with the study team.
The views and opinions expressed in the report do not necessarily correspond with those of Norad.
Making Gender Matter in Humanitarian Operations:
A review of selected UN organisations' awareness and practical implementation of the Inter-Agency Standing Committee's Gender Handbook in Humanitarian Action
Kristin Sørung Scharffscher Tromsø, January 2012
Contents .............................................................................................................................. 2 Executive summary ............................................................................................................. 4 Acronyms and abbreviations ............................................................................................... 6 1. 2. 2.1. 1.1 2.2. 3. 3.1. 3.2. 3.3. 3.4. 3.5. 4. 4.1. 4.1.1. 4.1.2. 4.1.3. 4.1.4. 4.1.5. 4.1.6. 4.2. 4.2.1. 4.2.2. 4.2.3. 4.2.4. 4.2.5. Introduction ........................................................................................................... 7 Coordination and gender in humanitarian action ............................................. 9 The cluster approach ............................................................................................... 9 The IASC Gender Handbook ................................................................................ 10 The GenCap project .............................................................................................. 11 Methodology ........................................................................................................ 12 Implementation indicators ..................................................................................... 13 Kenya .................................................................................................................... 14 Haiti....................................................................................................................... 14 The cluster approach ............................................................................................. 15 GenCap questionnaire ........................................................................................... 15 Findings ................................................................................................................ 16 UNHCR ................................................................................................................. 16 UNHCR's gender tools ..................................................................................... 16 Competence ....................................................................................................... 16 Communication ................................................................................................. 17 Awareness ......................................................................................................... 17 Practices............................................................................................................ 18 Summary............................................................................................................ 19 World Food Programme ........................................................................................ 19 WFP's gender tools ........................................................................................... 20 Competence ....................................................................................................... 20 Communication ................................................................................................. 21 Awareness ......................................................................................................... 21 Practices............................................................................................................ 22
........................................................................... 4.................... 25 Awareness ..............2................. 32 Discussion .. 4......................6.......... 23 Unicef ................................................................................................ 29 Practices...........4........3..............................3........ 37 3 ................................. 30 The cluster approach ....... 28 Competence ......................................................4. 4.................... 4.... 4............................... 4..........3..................................... 26 Summary...........2................................................ 30 Summary...4......................6....................................................................................4..... 24 Competence ........................4........................................................6.......................................................................................................3. 4........ 4................. 33 Recommendations ................................ 4....5. 4............................ 36 References ..... 4........4.....................................................................................6...................................................... 28 Communication .......3............................................................................................... 26 Practices..........................................................................................................5............................................................................... 28 OCHA's gender tools ....3.................................... 5..............2.................1............... 31 GenCap.....4.......... 27 UN-OCHA ..........................1... 29 Awareness ................... 4.. 4.......3.........................................4........ 4...............................................................................................................................................................................................3..................................... 7..... 4..................................................... Summary.... 23 Unicef's gender tools ...4.............................. 4... 6.............................................................................................................................5.............. 25 Communication .............3..........4.............................
with different agencies. in which all participating agencies – through the IASC and the cluster-based coordination structure – are active stakeholders. WFP. I have studied relevant documents. I have observed field officers in their daily work. however. handbooks and guidelines for capacity building. that most of the identified 4 . to obtain some understanding of the contextual challenges that affect the way humanitarian assistance is delivered. rather than how the UN organisations or their staff wish to be perceived. The clusters represent a systematic approach to ensure a more coherent delivery of gender sensitive emergency support by UN agencies. and to what extent this Handbook is being used and implemented as a guiding tool in humanitarian operations. The main body of the data was collected between July and October 2010. progress reports. including programme and project proposals. all are in the process of implementing standards and principles of similar or comparable quality. I visited Kenya and Haiti to study the operations related to the Somalian refugee camps in Dadaab and post-earthquake Port-au-Prince. programme planning and field-level practices. training material. with regard to the practical implementation of gender mainstreaming and targeted actions in humanitarian operations. The review also briefly assesses the GenCap system and the cluster approach with regard to the implementation processes. and much of it in narrative style. The Handbook and its standards can as such be seen to represent a common effort to put GMTA on UN's humanitarian agenda. GenCap advisers have been invited to fill out a questionnaire about their work in different humanitarian operations. The data are solely qualitative. which means they are challenging to process into 'quick reference' sets of results. respectively. Unicef. Staff relate almost exclusively to their own organisation's gender policies. and/or ownership to the Handbook as a common reference. Findings suggest. Findings indicate that while none of the reviewed organisations have fully integrated the Handbook in their humanitarian work and responses. In addition. I have conducted telephone interviews with selected members of staff and management representatives at headquarters. newsletters and email correspondence. and UNOCHA are aware of and integrate the standards of the Inter-Agency Standing Committee Gender Handbook in Humanitarian Action in its programming. In addition to personal interviews in the field. with the Handbook e-learning course and the IASC Guidelines for Gender-based Violence Interventions in Humanitarian Settings as notable exceptions. What seem to be missing are functioning systems to ensure coherence and predictability in Gender mainstreaming and targeted actions (GMTA) at all organisational levels.Executive summary The purpose of this review is to assess to what extent UNHCR. My aim has been to capture what is actually taking place.
GenCap advisers also appear able to function as 'agents' who understand and know how to bridge IASC material and the agencies' on-going activities in a given emergency operation. planning.gender mainstreaming and targeted actions originate within the agencies rather than through cluster cooperation and contact. a possible expansion of the GenCap capacity. further roll-out of the Handbook e-learning course. Recommendations include a strengthened focus on 'calibrating' the individual agencies' own policies and guidelines on GMTA – with the Handbook as a common reference. and a new common training capacity on gender that provides career-meriting certification on gender-related competence. and practices. fairly limited in relation to the scale of humanitarian operations worldwide. intensified encouragement of inter-agency and agency-partner communication on genderrelated issues. 5 . however. The GenCap initiative comes across as an effective support in bringing IASC's gender material more actively into the agencies' humanitarian training. The number of GenCap advisers deployed is.
Acronyms and abbreviations AGDM CAP CCC CEDAW CTW GBV GIS GMTA IASC IDP MDGs MFA NGO OCHA PA SOP UNHCR WFP Age Gender and Diversity Mainstreaming (UNHCR) Consolidated Appeals Process (OCHA) Core Commitments to Children (Unicef) Convention on the Elimination of Discrimination against Women Commitment to Women (WFP) Gender-based violence Geographic Information System Gender mainstreaming and targeted actions Inter-Agency Standing Committee Internally displaced person Millennium Development Goals Ministry of Foreign Affairs Non-governmental organisation Office for the Coordination of Humanitarian Affairs Participatory assessment (UNHCR) Standard operational procedure UN High Commissioner for Refugees World Food Programme 6 .
namely UNHCR. In 2006. researchers still report unsystematic and inconsistent UN practices in addressing the different needs and capacities of crisisaffected women. both within and affiliated to the UN family. have knowledge of and integrate the standards of the Handbook in its programming. however. to some extent look at handbooks and guidelines of a similar format that have been developed by the agencies themselves. However. cultural and geographical differences between the various organisational layers in UN agencies. Since 2000. The purpose of this review is to assess to what extent the UN agencies which are the main receivers of Norwegian Humanitarian funds. That would be unfair as well as unfruitful with regard to the purpose of the review. One consequence of such differences is that the information flows between the various levels sometimes fail to carry the relevant types of data with regard to effective implementation 1 http://www. girls and boys. have contributed to the development of the IASC Gender Handbook in Humanitarian Action – Women.humanitarianinfo. This review does not discuss the quality or applicability of the Handbook. Boys and Men. the United Nations Inter-Agency Standing Committee (IASC) launched a comprehensive handbook which outlines some key principles and methods on how to apply a gender perspective in humanitarian work. I have found that the implementation of gender-based protection in UN's humanitarian activities can be hampered by the operational. nor what impact humanitarian practices in accordance with its principles may have on the lives of crisis-affected communities. agency-specific handbooks and guidelines appear to play a role in how and why the Handbook could have fallen to the side. the review will not directly compare their awareness and implementation. Unicef. WFP. there has been growing attention to the issue among UN agencies.org/iasc/pageloader. and whether Handbook standards are implemented independently of the actual Handbook itself. while there is still awareness of its principles and standards. peace and security. scope. activities and field presence. Introduction A fully integrated gender perspective is essential to the effectiveness of humanitarian action. Girls. As the four agencies studied in this review are quite different in terms of mandate. A wide range of agencies. Different Needs – Equal Opportunities1 (hereafter referred to as the Handbook).1. men. The review will assess to what extent the Handbook is used and implemented as a guiding tool. As a donor.aspx?page=content-subsidi-tf_gender-genderH 7 . when the United Nations Security Council (UNSC) adopted Resolution 1325 on women. As I will discuss in chapter 4 and 5. In previous research. Norway assumes that all UN agencies involved in humanitarian operations make active use of the Handbook and implement its main principles. and UNOCHA. It will.
gender scorecards. And I have focused on how members of staff describe their competence. Kenya and Haiti do. In addition to personal interviews in the field.. these two operations may therefore represent some of the diversity and complexity that hallmark humanitarian assistance. and performance statistics.). As such. and Boin. Boin. awareness and practices in personal interviews. progress reports. The aim of the analysis is to generate a set of recommendations which can be easily applied in communication and decisionmaking processes at donor/inter-agency level. the data are impressionistic rather than systematic.of gender-sensitive protection. Thomas. all data are qualitative. K. my main perspective is that of a researcher. Theoretical discussions on humanitarian practice and crisis management will thus influence my perceptions and my analysis. rather than in written material produced for inter-level purposes. such as output reports. and with different agencies. I have conducted telephone interviews with selected members of staff and management representatives at headquarters. however. Managing Crises: Threats.. The Dadaab refugee camps have existed since 1996 and are in many respects what Rosenthal would refer to as a slow-burning crisis. whereas post-earthquake Port-au-Prince represents continued myriad emergencies requiring imminent and large-scale action – a so-called sudden onset/long shadow crisis. The main body of the data was collected between July and October 2010. (2001): "Between Crisis and normalcy: The long shadow and post-crisis politics". I have studied relevant documents. R. (eds. Limited to two country visits. including programme and project proposals. GenCap advisers have been invited to fill out a questionnaire about their work in different humanitarian operations. I visited Kenya and Haiti to study the operations related to the Somalian refugee camps in Dadaab and post-earthquake Port-au-Prince.2 Combined. In addition. U. 2 8 . Springfield: Charles C. Opportunities. to obtain some understanding of the contextual challenges that affect the way humanitarian assistance is delivered. rather than headquarters. in Rosenthal. communication. Dilemmas. A.and sub-field offices. L. In my data collection for this review. & Comfort. respectively. My hope is that the qualitative approach of a social scientist will be helpful in this respect. P. training material. newsletters and email correspondence.A. represent humanitarian operations at opposite ends of 't Hart and Boin's crisis typology scale. and in chapter 3 I will discuss the rationale behind my choice and application of qualitative indicators. 't Hart. Although I have a limited amount of field experience. I have observed field officers in their daily work. I have therefore chosen to visit field. R.
pdf 9 . Logistics (WFP). Protection (UNHCR). coordinated by Focal 3 4 http://oneresponse. Education (Unicef/Save the Children). this means that UN's humanitarian activities are now organised in accordance with pre-defined clusters. This review partly coincided with the report "Delivering as One". The protection cluster includes a set of sub-clusters. in order to ensure a more effective and coherent delivery of UN assistance. Emergency Shelter (UNHCR/IFRC). "Delivering as one" also recommends some fundamental changes in how UN activities are organised and coordinated. In essence. Early Recovery (UNDP).info/Coordination/ClusterApproach/Documents/Humanitarian%20Response%20Review. It is headed by the Under-Secretary-General and Emergency Relief Coordinator. Environment. The cluster approach Since 2006. and Water Sanitation and Hygiene (Unicef).2.1. Additionally. one of these being Genderbased Violence. which reviews the entire UN system. The main task of the Gender SWG is to ensure attention to gender issues throughout and beyond the reorganisation of UN's humanitarian activities. Coordination and gender in humanitarian action The Inter-Agency Standing Committee (IASC). is a coordinating and policy-making forum for humanitarian actors in the UN system. the IASC Task Force that dealt with gender issues was converted into the more permanent IASC Sub-working Group on Gender and Humanitarian Action (hereafter referred to as the Gender SWG). Nutrition (Unicef). UN activities are organised in accordance with these eleven clusters and. Health (WHO). the protection sub-clusters. with each cluster normally being managed by one designated agency. established in 1992. the IASC also cooperates with non-humanitarian actors within the UN system and non-UN humanitarian actors. Emergency Telecommunications (WFP). In 2005. when relevant. commissioned by the Secretary-General. In its work.org/events/panel/resources/pdfs/HLP-SWC-FinalReport. UN's humanitarian operations have gradually moved from a sector-oriented to a cluster-based coordination structure.un. 2. The eleven standard clusters are: Food Security (FAO). In each humanitarian operation. including the Red Cross and Red Crescent movement. referred to as the UN reform.pdf http://www. Camp Coordination/Camp Management (UNHCR/IOM). who is also head of UN's Office for the Coordination of Humanitarian Affairs (UN-OCHA). Age. HIV/AIDS and Mental Health and Psychosocial upport are designated 'Global Cross-Cutting Issues'.3 One of the recommendations in the review was to reorganise the coordination of humanitarian operations. the Under-Secretary-General and Emergency Relief Coordinator commissioned a review of the global humanitarian system.4 In 2006. Gender.
Logistics. Global cluster leads.6 The handbook is comprehensive in that it speaks both to administrative staff at headquarter level and practitioners in the field. many of which are IASC products. focus on avoiding gaps and ensuring quality and effectiveness in assistance delivery within the operational scope of 'their' particular cluster. and handbooks. Protection.org/iasc/documents/subsidi/tf_gender/IASC%20Gender%20Handbook%20(Feb%202007). Rather. Different Needs – Equal Opportunities'. who also particpate in the Gender SWG.humanitarianinfo. The practical focus of the clusters will of course vary.5 Section A of the handbook offers a clarification of different terms and concepts related to gender in humanitarian action. boys and men in humanitarian action and advancing the goal of gender equality". 1.7 5 6 7 http://www. The objective of the cluster approach is nonetheless to ensure assistance delivery that is predictable and in accordance with certain humanitarian principles and quality thresholds. Boys and Men. With contributions from all UN agencies involved in humanitarian activities as well as several non-UN humanitarian actors. just as every emergency situation represents a new and often unprecedented combination of operational challenges. and outlines the practical approaches to and implications of gender equality in humanitarian activities. as well as communication and cooperation with other clusters. Section B of the handbook suggests tools to mainstream gender equality within many of the IASC-organised coordination clusters. based at the headquarters of the lead agency. http://www. the term gender encompasses the different needs and capacities of women. entitled 'Women. lists which parts of the international legal framework are relevant to gender and protection.org/iasc/documents/subsidi/tf_gender/IASC%20Gender%20Handbook%20(Feb%202007). power and resources" of males and females in the culture(s) of that area.1 The IASC Gender Handbook In late 2006. For this work. Gender-sensitive humanitarian assistance in a particular context will therefore be adapted to the "roles.humanitarianinfo. and Early recovery. as well as agency representatives coordinating the clusters in the field. they are equipped with various policies. guidelines. Girls. boys and men affected by a humanitarian crisis. the IASC launched a Handbook on gender in humanitarian action. the Handbook is designed to help "promote the ultimate goal of protecting and promoting the human rights of women.pdf There are not separate chapters on Emergency telecommunications. girls. girls. It stresses that 'gender' is not only about ensuring the protection of women as victims of violence.points seated at various agency headquarters. Gender has five Focal points.pdf 10 .
and recruitment of more gender advisers to the NRC pool is underway. GenCap constitutes a pool of senior gender advisers who are deployed to humanitarian operations for periods of six to twelve months.9 At the time of this review.org/iasc-gender-elearning http://oneresponse. takes about three hours to complete and is offered free of charge.info/crosscutting/GenCap/publicdocuments/GenCap%20Fact%20sheet_2009%20April. programme planning.info/crosscutting/GenCap/publicdocuments/GenCapUpdate%20April%202011%20final.In the spring of 2010.interaction. capacity building. as well as assist relevant actors in applying the IASC Handbook on Gender in Humanitarian Action.8 2. Administered by the Norwegian Refugee Council (NRC). and it "provides the basic steps a humanitarian worker must take to ensure gender equality in programming". It is in English. The GenCap system is still developing. the Gender SWG on Gender in Humanitarian Action has established the IASC Gender Standby Capacity Project (GenCap). the so-called Gender Marker (GM) was introduced as a tool to assess the gender sensitivity of all types of humanitarian projects run by UN agencies in relation to some common standards and indicators.10 8 9 http://www.2.pdf 10 11 . 11 GenCap advisers were deployed in various humanitarian operations around the world. The GenCap project In order to support UN agencies and the various clusters in implementing the principles of the Handbook. both in terms of scope and activities. In 2010. Their primary tasks are to "provide support to information collection and analysis. coordination and advocacy on gender equality programming". The e-learning course is primarily aimed at humanitarian practitioners stationed at sub-field office level.pdf http://oneresponse. an e-learning course based on the Handbook was launched.
Document studies are also important sources of data for this review. all four organisations include developmental ideas and approaches in much of their work. training material. programme and project proposals. Although they represent a cross section of the organisational levels in each of the four agencies.3 for a list of interviewees). and UNOCHA are aware of and integrate the standards of the Handbook in its programming. WFP. not excluded data that are not solely emergency-oriented. Although this review focuses on humanitarian practice. Unicef. newsletters and email correspondence. In total. Each of the studied organisations has provided me with different types of written material. Spending time at a particular location. Interviews form the primary source of data. often together with informants. as I will discuss further in Chapter 4 and 5. WFP and Unicef mandates/mission statements encompass much more than humanitarian emergencies. interviews at sub-field level carry the most substantial data. In my data collection. with regard to number and the time spent with each interviewee (see Annex 7. also 12 . Gold in 1958. I also spent time with many of the interviewees outside of the actual interview situation. this reflects an on-going discussion among researchers and practitioners. This approach to data collection was first described by Raymond L. and is often seen as part and parcel of all social research. Such material include gender policies and guidelines. I have studied approximately 2000 pages of written documentation that I have deemed relevant to this review. and to what extent these practices can be linked to the Handbook or rather to other documents. The organisations' own gender policies and guidelines proved important to my analysis. and to what extent the Handbook is being used and implemented as a guiding tool in humanitarian operations. Sitting in on meetings or just spending time in an office with people working around me. allowed me to observe and gain some understanding of the contextual circumstances in which they conduct their work. in my data collection. I have therefore concentrated on generating documentation that can shed light on the ways in which gender awareness and competence influence on the daily practices in these four organisations. Apart from the fact that the UNHCR.3. I have therefore. Methodology The purpose of this review is to assess to what extent UNHCR. My visits to the sub-field offices included some degree of complete and participant observation. At sub-field level. where increasing attention is given to the developmental aspects of humanitarian assistance. progress reports. A total of 75 persons have been interviewed either in person or by telephone.
My assumption is that regular and adequate gender analysis depends on the competence. such as possible workshops. daily tasks. implementation and evaluation". seminars. between agency staff/managers and GenCap advisers. cluster partners. the proposed way to ensure implementation and targeted actions is through gender analysis that "informs planning. problem-solving and informal conversations. for instance what they mean by the term gender. awareness and practices of members of staff. when and where food rations are being distributed? Further. WFP. I have also asked specifically about any gender-training connected to the Handbook. or is attention paid also to the needs of men and boys? Is gender awareness only about sexual violence. and between agency staff and crisis-affected communities.provided important information. Such qualifications include previous work experience and educational backgrounds. I could observe various cultural and organisational dynamics at play.1. Unicef. I have therefore applied four indicators that will function as reference points in assessing to what degree the principles of the Handbook are present in the emergency operations of UNHCR. They have also been invited to reflect on the opportunities and challenges involved in conducting their daily tasks in a more gender- 13 . Communication I have collected data on how and when gender is discussed in written reports and evaluations. email correspondence. communication. Competence I have asked about the formal and informal gender qualifications of interviewees and staff in general. and UN-OCHA. or does it involve everything from the location of latrines to how. 3. Is the term linked solely to women. In my data collection and analysis. meetings. and implementing partners. between different agencies. Implementation indicators In the Handbook. as well as the training they have been offered by the agency for which they work. or the e-learning course. Awareness I have asked interviewees about their understanding of various terms and concepts that are included in the Handbook. I have asked about the interviewees' familiarity with the Handbook and sought their opinions on its relevance and applicability in their line of work. Relevant communication lines are those that exist between agency colleagues (at the same organisational level and between different organisational levels). Practices The interviewees have been asked about the ways in which they can make or already are making their own work gender sensitive. and relate this to what interviewees told me about their work situation.
WFP. In Dadaab.3. including one with the GBV sub-cluster. and UN's Humanitarian Coordinator/Resident Coordinator for the Haiti operation. I also participated at meetings. In addition to interviews. I met with UN interviewees at their offices. inter-cluster coordinators. but with inadequate systems or coherence. I also spoke to staff at UNFPA and MINUSTAH. evaluations. 2a = Handbook principles and standards appear to have been implemented. where I conducted interviews with field office staff at Unicef. I also interviewed staff and managers working for Care and NRC. 3 = Handbook principles and standards implemented. To summarise findings. planning. where I spoke to staff and managers at UNHCR. WFP and UNHCR. practices. I also met with the Global GenCap adviser.2. 2b = The Handbook is used and its principles and standards appear to have been implemented. The majority of interviews took place at UN's so-called Log-base. Unicef and UN-OCHA. 14 . 3. the GenCap adviser who had just completed her deployment to Haiti. although with lacking or inconsistent references to the Handbook itself. with Handbook material integrated in training. In addition to talking to UN staff. which took place at the Ministére des femmes et aux droits feminins. Haiti I visited Haiti between September 16th and 23rd. who held a workshop there at the time. I visited different earthquake camps around Port-au-Prince and spoke with young girls and women in two of these camps. I have applied a score that is an adjusted version of the Gender Marker and GenCap's Monitoring and Evaluation system: 0 = No use of the Handbook and few signs of its principles and standards being implemented. 1 = Signs of Handbook principles and standards being implemented. and responses from other interviewees. although with inadequate systems or coherence.sensitive manner. I visited two out the three refugee camps. and stayed in Port au Prince for most of that time. 3. namely Dagahaley and Ifo. and reporting. Kenya I visited Kenya from August 30th to September 6th 2010. Two days were first spent in Nairobi. NGO staff and resident representatives in these two camps. This information has been compared with programme and project proposals.
I have studied information and training documents as well as evaluations of the cluster implementation process.3. 15 . Questions focused on their experiences with GMTA during their deployment. I distributed a questionnaire to all reachable GenCap advisers currently or recently deployed. 3. GenCap questionnaire In addition to interviewing two GenCap advisers.4. and the quality of this contact. about their experiences with the cluster approach and GMTA. I have asked interviewees. The cluster approach In order to assess the relevance of the cluster approach in relation to gender mainstreaming and targeted actions (GMTA).5. who they communicated and cooperated with. I have attended cluster meetings to observe the dynamics between the participants and the issues raised. And I have included questions in the GenCap questionnaire (see section 3. Nine GenCap advisers returned a filled-in questionnaire. when appropriate.5) about the suitability of this coordination structure in relation to their tasks.
With the AGDM strategy. Gender and Diversity Mainstreaming (AGDM) strategy between 2004 and 2007.1. I present the key results of my data collection. 4. 31st May 2010. coined the 'blue book'. and activities". Age. girls.12 Linked up to the AGDM Action Plan (2007-2009) and the AGDM Accountability Framework.org/pages/49c3646c2. using a participatory.unhcr. and they see it as the most useful gender tool currently available within the UN system. It employs close to 8. 12 16 .11 The agency is global cluster lead for Camp Coordination and Camp Management (conflict-induced IDPs). rights and community-based approach. the strategy is today regarded as the main tool for ensuring gender sensitivity in UNHCR's programme activities. and Protection. Findings In this section. Emergency Shelter. Competence All of UNHCR's interviewed staff at field and sub-field office level who work on protection issues. and boys of all ages and backgrounds. UNHCR strives to ensure "meaningful participation of women. Based on three evaluations on the effectiveness of UNHCR's programme activities. men. gender and diversity mainstreaming.1. in the design. programmes. All UNHCR staff interviewed for this review see gender as a nuanced and 11 http://www. UNHCR's gender tools In 1991.1. implementation.1. Many of the interviewed UNHCR staff consider themselves quite competent on gender thanks to the AGDM. UNHCR launched its first handbook on the prevention of sexual violence in refugee and IDP camps.4. no identities are disclosed. the agency introduced the so-called Age. 4. In accordance with the wishes of several interviewees. UNHCR UNHCR is mandated to "lead and co-ordinate international action to protect refugees and resolve refugee problems worldwide". monitoring and evaluation of UNHCR's policies. Standing Committee 48th meeting.000 persons and have programme activities in well over 120 countries. this handbook was replaced by the updated and more comprehensive UNHCR Handbook for the Protection of Women and Girls. In 2008. 4. such as the e-learning course.2. have undertaken Handbook-related training.html UNHCR Executive Committee of the High Commissioner's Programme.
that requires systematic and constant attention. monitoring and evaluation phases of programmes and projects." comments a programme officer at sub-field level. now I see how empowerment activities that are not adjusted to the culture can sometimes actually make women more vulnerable. and we left the men out. to ensure that women can collect water and go to the toilet in relative safety. That said." Interviewees point to how the Handbook and the AGDM together encourage continued interaction with crisis-affected communities.1. and that this also can improve the 13 The cover of the IASC Guidelines for Gender-based Violence Interventions in Humanitarian Settings is purple. "When we use a shaved version of it in training. and solely with reference to each organisation's own gender tools. the purple one is useful. inter-organisational discussions. this is a long-term challenge with regard to the culture and traditions here. both with regard to boys and girls." 13 4. appear somewhat established as an inter-organisational reference tool. "Also. We want to provide fencing so that the girls can enter the school latrines with a great deal of discretion. Interviewees claim a considerable focus on the AGDM both during the planning. Awareness Extensive reporting routines linked to the AGDM are quoted as the reason why all interviewees display a high degree of attention to gender in their daily work. Specific attention is for instance given to the location of wells and latrines.complex issue concerning men and boys as much as women and men. The IASC Guidelines for Gender-based Violence Interventions in Humanitarian Settings. One example is the planning and construction of a new Ifo camp in Dadaab. But meanwhile. staff having undertaken the Handbook e-learning course report that they are now more aware of how GMTA is also about paying attention to the needs and vulnerabilities of men. I have not found any instances where the Handbook has been the object of or reference for common. implementation." says a protection adviser at field office level.1." comments one interviewee. and that this focus helps ensure gender mainstreaming. we get in the very basic awareness on GBV at least. "Girls and women here feel ashamed to be seen entering or leaving the latrine area.4. 17 . and that activities must be implemented with a great deal of cultural sensitivity. Communication Although there appears to be regular communication among UNHCR staff and between UNHCR and other agencies/implementing partners. we must make sure girls don't stay at home or refrain from drinking anything during the day. "Of course. and to pupils with disabilities. and used as such also by some UNHCR staff. gender is predominantly addressed in the context of solving practical issues.3. The layout of school buildings has also been the subject of gender-sensitive planning. on the other hand. "When there is no SOP (Standing Operational Procedure) in place." 4. "We've focused so much on the women.
18 . I also found that staff were aware of how women and men were able to look after their own needs and made sure they provided support rather than 'impose new rules'. "To make it work." comments the protection officer. UNHCR staff were also active in trying to curb female genital mutilation (FGM). the desk is staffed with female police officers. With support from UNHCR. and what actually takes place at sub-field office level. "The initiative called Youth Against FGM is now self-driven." 4. where also young boys are encouraged to get involved. it will not work that way. Practices In UNHCR. Staff appear committed to the principles in the AGDM action plan in that they pay attention to how women and men. "We realised that it was insufficient to only talk to the women. In Dadaab. we need the full participation of field partners and the local communities. oh no. Also. but we make sure they have access to a safe and shaded area during the waiting period. in the actual registration process. and then. One example is the re-registration of residents in the Ifo camp near Dadaab." That said.5. I have found a good correlation between what headquarters and field office level staff report as being done on gender. we make a decision about how to do something. and in particular the male religious leaders. The men have a strong role in the upholding of these practices." Another UNHCR-supported initiative in Dadaab is the establishment of a gender-desk at the local police office. they do themselves. and their work targets men and women equally. and the actual registration area was organised in a way that provided a certain amount of privacy for those being registered. and cater for particular needs that may be related to gender. so we don't interfere with that. there is also a tendency among UNHCR staff at field and sub-field level to link implementation problems to factors outside the agency. female clerks would tend to female individuals or female-headed households. UNHCR staff explain how they monitor the wellbeing of women and men during that time. girls and boys may have different requirements in various situations. "Many times. "We give them information material and the rest. During that process. "Women organise childcare between them." commented one UNHCR registration clerk. such as sheltering of lactating mothers. Although interviewees say that recruiting has been a challenge. a men's support group has been established in the Dadaab camps. who are involved in ensuring security both in the camps and among newly arrived refugees waiting for camp access. when we get to the field we realise.effectiveness of programme activities. residents spend considerable time in waiting areas near the registration tents. They are quite eager to campaign for an end to all FGM practices." explains a UNHCR protection officer.1.
"It's one step forward on sensitisation. WFP is the largest organisation reviewed.1. http://www. this issue is addressed through training in confidence building and role model programmes. Several interviewees at sub-field office level refer to cultural traditions as the main challenge in their efforts to implement gender. While some staff has received Handbook-related training. and interviewees stress that it's not the number of women that counts. either within the same geographical area or the same cluster. 4. and whether or not their opinions are heard and respected. but whether or not the female representatives are able to speak.6 million metric tonnes of food yearly.wfp. In 2008.2. "Everything is improvisation and they are just inventing!" 4.org/about 19 . WFP works primarily to provide food to crisisaffected people. the implementation of GMTA in field practice is.16 WFP is global cluster lead for 14 15 16 Of which over 12.15 Based on a mission statement instead of a mandate. This may be a weakness. although with lacking or inconsistent references to the Handbook itself.6. Limited attention is given to the importance of common gender reference materials for agencies working together. Score: 2a = Handbook principles and standards appear to have been implemented. predominantly due to the welldeveloped and well-functioning gender tools developed by UNHCR itself. World Food Programme With nearly 15. thereby aiming "to reduce dependency and to support governmental and global efforts to ensure long term solutions to the hunger challenge".org/about/mission-statement http://www. and then a new group of refugees arrive and we're two steps back". however. Although most of the activities are emergency-related. WFP launched a new five-year strategy in which it changed focus from food aid to food assistance.UNHCR also addresses the empowerment of women in community committees. At sub-field office level. Summary UNHCR appears to make excellent progress in terms of implementing the principles of the Handbook. considering UNHCR has such a strong role in cluster management and coordination.000 employees14 assisting more than 100 million persons in 75 countries with 4.000 are locally recruited. Challenges on implementation are sometimes also related to the lack of gender awareness among other agencies and NGOs. WFP also provides food support in connection with development projects or activities which cover development aspects of humanitarian operations.wfp.
conducted in 2007. "WFP has been at the forefront of developing handbooks and tools that pay attention to gender." comments a manager at field office level.2.org/eb/docs/2009/wfp194044~2.2.org/sites/default/files/Gender%20Policy%20(20032007)%20Enhanced%20Commitments%20to%20Women%20to%20Ensure%20Food%20Security.1. and the majority of these have been recruited regionally.pdf. "We don't feel the need to add to the complexity of administering a programme by adhering to two guidelines. WFP's gender tools WFP is currently applying its third five-year gender policy document – the first one effective from 1996 with contents reportedly inspired by issues raised at the 1995 World Conference on Women in Beijing.wfp. nationally or locally.19 This reflects a nuanced and qualitative approach to GMTA. 4. http://one. and I have found practices at sub-field level of the agency that correspond with the written notion. "I think we turn to our own guidance. in which it states that "issuing ration cards in women's names does not necessarily give them control over household rations because control is determined by the capacity to negotiate and decide the use of food"." 4.wfp. responses also make it evident that the Handbook does not form part of WFP staff's attention to gender. In addition.2. many WFP interviewees refer to the WFP Gender Policy which ran from 2003 to 2007: Enhanced Commitments to Women (ECW).wfp. 20 . Prior to that. Most of the interviewees 17 http://www. page 7. strategic actions at the operational level". and assists FAO in coordinating the Food Security cluster." comments a senior member of staff at field office level. This policy is by many regarded as groundbreaking in that it pushed gender mainstreaming "beyond rhetoric to require specific. Competence WFP has a high percentage of staff operating at field and sub-field level.17 When asked about their main guiding document on gender in humanitarian emergencies.pdf .pdf 18 19 http://one. their contents appear to be in line with the Handbook's principles and standards.org/eb/docs/2009/wfp194044~2.Emergency Telecommunications and Logistics. Interviewed members of staff appear proud of their efforts to mainstream gender in their activities. and relate this to WFP's gender policies. the current gender policy document contains references to and learning points from an evaluation of WFP's work on gender mainstreaming. page 5. which "called for taking into account women's and men's different roles in the division of labour and their different access to and control over resources". That said. One example is a list of achievements and challenges. WFP had already in 1987 established gender policy principles for its staff.18 Although neither the policy documents nor their global and country level target lists make any specific mention of the Handbook.
especially not those on local and/or short-term contracts. that was conveyed by many of the interviewees and observed in the camps. however. or within the WFP sub-field group as ad-hoc information.4. 4. written reports. Discussions in meetings that I attended were practical rather than general or theoretical. WFP employees seem to focus their attention on technical and logistical tasks. Competence seems. good on gender issues and how to mainstream gender in practice at field and sub-field level.2. This may reflect that the good quality training material does not necessarily reach all staff. which includes checking the way different initiatives affect gender dynamics both short and long term. Furthermore. saying that it offers a deeper reflection on GBV than other documents and thereby "is the best one around" on this issue. Some staff report knowledge of the IASC Guidelines for Gender-based Violence Interventions in Humanitarian Settings (hereafter referred to as the IASC GBV Guidelines). A separate headline called 'Gender issues' is mostly a numeric exercise – far from the qualitative approach to. Awareness Interviewees sometimes display profound knowledge on how to implement GMTA in their daily tasks. My impression is that communication seems directed towards the crisis-affected communities or between individual members of staff on a one-to-one basis rather than organisational and systematic. organisational and systematic communication lines at subfield office level means that some of the most detailed information remains with individuals. Very few are aware of the Handbook and none of the interviewees has undertaken the e-learning course. mostly local staff recruited for particular projects carried out at sub-field level. such as the Situation Report prepared monthly by the Dadaab sub-office. The apparent lack of formal. 4.have undertaken gender-related training.2. leaving communication slightly side-lined. for instance.3. refer to GBV when asked about gender. "The extra sugar ration that we give to girls who 21 . often at an early stage of their employment with WFP. food distributions. Despite what a senior member of staff at sub-field level describes as "good checklists for induction of new staff". Communication Even in contexts where a crisis is evolving slowly. do not adequately reflect the activity level related to GMTA in the camps. Knowledge and experience which could have informed analytic processes at organisational levels further up in the system or which could feed into inter-agency discourse at field and sub-field level may therefore go amiss. The training material is reported to be mostly of WFP origin. a certain number of interviewees.
Feeding into WFP staff's awareness is the practice of so-called post-distribution monitoring. The reason is that parts of the food rations tend to be sold at the market. or someone complaining about unfair treatment. means that WFP's practices appear to be conducted with a high degree of gender sensitivity. "We try to ensure that the food goes to the women. In order to curb attempts to trade food for sexual favours. "We then have to make sure these boys understand that they also count. WFP had ensured only women measured rations. To many of the interviewees. combined with good competence on how to mainstream gender in their daily tasks. gender mainstreaming is a very hands-on. limited to practical issues and staff at sub-field level rarely talk about gender in abstract. as there was regularly someone claiming rations they were not entitled to. however.5. we contact the NGOs 22 . and a constant and sometimes quite technical dialogue with those receiving assistance. WFP staff also report that they conduct post-distribution follow-up of food recipients. Attention to men's as well as women's needs and capacities. I was told that the women would speak out on issues that concerned them. to make sure rations were handed out correctly. When meeting with the committee. and that they are not forgotten about. These abilities. Practices Many members of staff observed at sub-field level appear accustomed to practical problem-solving." These reflections are. theoretical terms. Examples of how this came across in practices include the organisation of food distribution in the Ifo camp. Continuous negotiations between WFP staff and food recipients appeared necessary to make the distribution process run somewhat smoothly." explains a programme officer at subfield office level. The food advisory committee in the Ifo camp included both men and women. WFP staff linked this to the on-going efforts to empower women through workshops and information campaigns organised in cooperation with other agencies and NGOs. and that they were listened to by the male committee members. means that WFP's efforts to mainstream gender appear systemic and well embedded in daily programme activities. daily exercise that is constantly evolving. such as firewood or school books. flexibility and direct interaction with crisis-affected communities.attend schools make some boys feeling left out. only WFP staff mention how "going back to check" has often changed their ideas and approaches to how humanitarian support is delivered. "And with the postdistribution follow-up we can find out how much of it does." One interviewee explains that food rations are often sold so that families can afford other commodities. Further. "When we uncover such instances.2. all foodstuffs were weighed again at a separate control station and checked against ration cards and measurement charts. 4. Although other agencies including UNHCR take part as well." says a WFP programme officer.
Although WFP may be the organisation out of the four that does the most 'counting'. its staff seems to have a genuine interest in "what happens beyond the numbers". interviewees in both Dadaab and Haiti mention using the school feeding programme to encourage girls to attend school. where women are trained as cooks so that they can provide catering services to schools.3. "Most teachers are men. WFP also runs a programme in cooperation with Oxfam. In connection with school feeding. to help meet their basic needs and to expand their opportunities to reach their full potential"." Another WFP officer refers to the same programme when stating the 85 per cent of the catering and cleaning staff in UN-assisted schools are women. girls are given extra food rations to take home to their families.org/about/who/index_mission. "In Haiti. their gender competence is generally high.2. 4. This could be linked to a fairly established tradition of paying attention to the gendered aspects of their programme activities and well-developed gender tools that are adapted to problemsolving at field and sub-field level.unicef. Unicef Unicef is mandated to "to advocate for the protection of children's rights." he adds. "We know this has a big effect on whether girls are allowed to go to school or whether they are kept at home to help with house chores." explains the policy officer. there are very few opportunities for women to find work. That is a way of preventing malnutrition. Summary WFP seems to be able to combine a highly technical and logistical focus in their humanitarian activities with a nuanced and qualitatively oriented approach to GMTA." When asked about gender-sensitive food-distribution. In Haiti. While very few WFP staff interviewed for this review are familiar with the Handbook or have undertaken any Handbook-related training.20 The 20 http://www." 4. What appear to be inadequate reporting routines in terms of relaying this competence further up through the system or across to other organisation could be a weak point. "So in the long run we need to focus on making sure the girls receive proper education. which is already at a high rate here. although without references to the Handbook itself." says a WFP policy officer.responsible for the distributions of these commodities. Score: 2a = Handbook principles and standards appear to have been implemented. "So we see this as an income-generating activity that benefits women. and the Handbook standards and principles appear to be in place. to see if we can increase supplies.6. while in Dadaab girls are given a pack of sugar for each month of school attendance.html 23 . though.
co-leads the Education cluster with Save the Children.21 The agency has an extensive network of partners that operate on its behalf at field and sub-field office level. It is accompanied by a Strategic Action Plan for Gender 20102012. Gender is thematically treated on a fairly general level. with reference to CEDAW." with a reference to 'Gender Equality. and data collection and analysis. surveillance. While the Handbook is not mentioned anywhere in the document. the CCC appears to promote principles and standards on gender that are similar to those of the Handbook. 4. While Unicef's participation in the Gender SWG is mentioned in the policy. neither of the two documents contain any references to the Handbook. with one exception which is described below.3. Unicef administered the delivery of humanitarian assistance in 98 countries.unicef. monitoring and evaluation of humanitarian activities is the Core Commitments for Children in Emergencies (CCC). The CCC is quoted by humanitarian staff as being the primary reference in their daily work on gender-related issues. developed by Unicef in 21 22 Unicef Annual Report 2010 http://www. It has a staff of about 1.agency is global cluster lead for Nutrition and Water. The guidance section primarily covers tasks linked to strategic planning. Following an evaluation in 2008. Unicef drew up the Policy on Gender Equality and the Empowerment of Girls and Women – Working for an Equal Future. boys and women' and there is very limited guidance on how to involve men or address men's particular needs and capacities. UN coherence and you'. One benchmark in this 'change area' is the "proportion of professional staff who have completed the interagency e-learning. Sanitation and Hygiene. whereof one is labelled "Capacity knowledge and management". Unicef's gender tools The main guiding document for Unicef staff in all planning. During 2010. non-discrimination principles and the equal rights of girls and boys.200 persons and is represented in almost all countries of the World. which was launched in the spring of 2010. the MDGs. the agency's commitments and benchmarks in each of the relevant cluster areas. response and early recovery stages of a humanitarian emergency operation.org/gender/files/Working_for_an_Equal_Future_UNICEF_Gender_Policy_2010. and leads the Child Protection and Genderbased Violence sub-clusters. practice. although with one major exception: All of the listed 'commitments' refer to 'girls. coordination.pdf 24 .22 The Strategic Action Plan outlines eight 'change areas' concerning organisational processes.1. The CCC outlines the general norms and principles of Unicef's humanitarian activities. women and men "as defined in the UN Charter". and replaces the 1994 Policy on Gender Equality and Women's Empowerment. The policy addresses gender equality in all of Unicef's programme areas (not only humanitarian). as well as the Medium Term Strategic Plan (MTSP) reporting framework. and guidance on how to achieve these during the preparedness.
pdf 25 . This is despite the fact that the policy at headquarters level is to not make mandatory any training material on gender. Communication Unicef staff report positive and constructive experience with an internal gender-adviser initiative which resembles GenCap. This can probably be linked to the fact that Unicef delegates operational responsibilities to its implementing partners." says one interviewee at headquarters level. 4.cooperation with UNFPA.3. Competence Interviewees at all levels refer to gender as an issue that forms a natural part of their programme activities.2. since Unicef's programme activities "are aimed at boys and girls and women". people don't want to do it.3." says an interviewee at field office level. In the 'planned activities' section under the same benchmark.unicef. "The argument here is that if it's mandatory. 4." Some Unicef staff report having undertaken the Handbook e-learning course and some have read sections of the printed version. and did not pay particular attention to the other sections. "We have no choice but to look beyond the mother. where the gender adviser initiative was piloted some time ago. it says that the IASC e-learning course on gender in humanitarian action will be rolled out to all emergency field staff. for instance through mother-and-child and education activities. "He or she can sit with them [field office level staff] and show them what this means in practice"." comment several interviewees. And some describe the Handbook as "far too comprehensive" for their line of work. They say that they focused on the sections in the Handbook which are directly relevant to Unicef's programme activities.org/gender/files/Strategic_Priority_Action_Plan_2010_to_2012.23 Unicef has also started the process of applying a Gender Marker system. That said. UNDP and UN Women. many interviewees remained at an alarmingly 'administrative' and 'general' level in many of their answers and comments. One example is 23 http://www. refer to several gender activities that have been maintained by staff well beyond the departure of the gender adviser. "Our activities are naturally gendered. Competence on gender among staff appears to be in a process of radical improvement. which is identical to that of IASC/GenCap.3. "There are stories of managers getting their secretaries to complete the mandatory courses and sign on their behalf. Several of the interviewees reveal a lack of knowledge about the practical aspects of how to implement GMTA at sub-field office level. Interviewees in Nairobi. where a member of staff is deployed to a country office for a period of six months.
"That is why the organisation knows and appreciates the Handbook. and there appears to be an on-going shift in gender awareness within the agency. where the building that housed the Ministere a la Condition Feminine et aux droits des Femmes was destroyed in the earthquake. Many interviewees report that they would pay better attention to gender with a less demanding workload and more time. and sending out a policy by email is not going to change anything. 24 http://www. for instance." comments one interviewee at headquarters level. We work through these kinds of channels. "We are in dialogue with some of the ministries. Also.3. to get help in seeing where and how to gender Unicef's work at a more profound level. for instance." One example of Unicef's support to local authorities is physically evident in Haiti.4. Unicef sponsored two tents where the ministry's most basic services could be resumed and where meetings could be held." says a Unicef consultant." 4. Awareness Interviews reveal significant discrepancies in the way Unicef staff perceive and relate to gender.unicef. some of the GenCap advisers refer to Unicef as an agency that has been easy to work with and willing to adopt the Handbook principles in their work at field level. "And we provide support and competence in areas such as GBV.the Gender Task Force in Nairobi. "Gender happens in the details of programming. the gender adviser initiative is seen as an extremely effective tool in mainstreaming gender." 4. Practices At field office level. which convenes once a month. some interviewees also appear to think of gender as an issue that primarily concerns gender-based violence and/or women. Interviewees refer to the Convention of the Rights of the Child24 as their guiding tool in terms of operational focus. a monthly 'Gender Work Plan'.5. The Task Force sets up.org/crc/ 26 . Unicef staff appear to focus on capacity development in the local government structures and civil society. Several interviewees are keen to get a [Unicef] gender adviser deployed in their mission. While several interviewees report that they are familiar with the Handbook and that they have undertaken the e-learning course. At headquarters level. GMTA encompasses ensuring women and girls have access to services such as healthcare and education.3. to ensure national ownership and sustainability. "We are still missing a systematic approach to capacity building on gender." writes a GendCap adviser in her questionnaire. but also "resource intensive" and therefore "unrealistic as a permanent thing". "I have been collaborating with Unicef for two years now. while others say that "we must be careful not to mainstream gender into oblivion". which is distributed to staff at the Nairobi office.
One interviewee explains such comments by saying that Unicef works out the policies." Another interviewee says that sex-disaggregated data only have marginal significance in relation to projects anyway. while its partners work on the ground. prove difficult to assess. Initiatives for transferring GMTA from policy documents through to improved practice in the field are still fragmented." comments a senior recovery adviser. It may well be that partner activities are well adapted to gender concerns within the cultural context of operations. it is difficult to obtain a good picture of the gender competence and practices among staff beyond an abstract. "you just assume they keep an eye on the gender issues. Summary Since Unicef has a limited degree of operational responsibility at sub-field level.Unicef's practices with regard to GMTA at sub-field level did. interviewees say that the "focus is on the provision of services". theoretical and/or administrative perspective. There are also comments about a disconnection between policies and strategies. There also appears to be significant differences among the interviewees concerning competence and awareness." In Haiti. gain priority. however. While some staff report that they have undertaken the Handbook e-learning course. we're not yet at a point where we talk about gender sensitivity. as it is "limited to counting how many boys and how many girls". to keep control of who gets access to the water. but there do not appear to be any good routines in place for qualitative monitoring of these activities." says a member of staff at field office level. like after the earthquake. When asking Unicef staff at field office level about the extent to which partner activities are gendered. however. including an e-learning course on gender equality. "We asked for sex disaggregated data from our partners." 4.6. "That said. and they seem somewhat strained by the 25 Bladder watching means guarding soft-skinned water tanks. and that "we haven't seen people [in partner organisations] go back to check". Despite reassurances that "there is a chain of accountability" between Unicef and its implementing partners. as most activities at this level both in Haiti and Dadaab had been delegated to partner NGOs. but they didn't always have it. "We funded bladder watching25 as an income-generating activity run by a partner NGO. I have not identified any systematic communication on genderrelated issues. when we have 200 people using the same latrine. apart from reports linked to initiatives that are described as "naturally gendered" since they target children and their mothers. So now we address this with the NGO. 27 . Interviewees do. Unicef's own policies and handbooks. She adds that when things have to happen quickly. "But then we found that only men were employed. which may be linked to the on-going efforts to improve GMTA within Unicef. interviewees report that access to reliable information has been the biggest practical challenge in the wake of the earthquake.3. report shortcomings which reveal individual attention and communication. and "the hands in the field".
At sub-field level.4.4. 4. UN-OCHA The United Nations Office for the Coordination of Humanitarian Affairs is not a regular agency but a part of the UN secretariat.2. 4. Score: 2a / 1 = At headquarters and field office level there are good indications that Handbook principles and standards are in the process of being implemented. it has been difficult to identify any systematic or coherent implementation of Handbook principles and standards. OCHA's gender tools Since OCHA's establishment is based on the same UN resolution as the Inter-Agency Standing Committee.800 employees. but forms part of UN's humanitarian coordination structure alongside IASC." the organisation's tools on gender mainstreaming are also closely linked to those of IASC.1. for instance by assisting the other organisations in coordination and information management tasks. OCHA does not lead any of the clusters. Assessing to what extent the principles and standards of the Handbook are present in OCHA's programme activities is therefore a somewhat different exercise. while others – mostly at sub-field level – wish for better access to training. With over 1. the GenCap system is managed by OCHA and OCHA organises much of the implementation of the cluster approach. OCHA is the UN entity "responsible for bringing together humanitarian actors to ensure a coherent response to emergencies". OCHA during 2010 responded to 19 humanitarian crises in 32 countries. First established as the Department of Humanitarian Affairs (DHA) in 1991 and then in 1998 reorganised and renamed.4.26 In fact.apparent lack of adequate reporting on gender between Unicef and its implementing partners.unocha. Many quote workshops and seminars they have attended. although with very few references to the Handbook itself.org/about-us/who-we-are/history 28 . the production of the Handbook was headed by OCHA staff. the production of the e-learning course was overseen by OCHA staff. Competence All OCHA staff at field and sub-field level interviewed for this review appear to have good knowledge of the Handbook. compared to the other three agencies in this review. 4. with its core mission being to "mobilise and coordinate effective and principled humanitarian action. the Gender SWG is currently led by OCHA's senior gender adviser. Some refer to the e-learning course but several say they haven't had the time to look at it 26 http://www.
and the e-learning course is just another link"." 4. and then they don't know how to mainstream it in practice. with GIS. some interviewees speak of the Handbook as "too complicated – you have to be a gender expert to understand the terminology" and "to be honest with you." 4. we haven't even started to think about gender". unless you are standing next to the person making the map. while staff at field and sub-field level displays good awareness of gender issues and how to implement the principles and standards of the Handbook in their daily work. Many of the interviewees are concerned about the challenges of implementing GMTA. some of the interviewed staff at headquarters level are less enthusiastic. interviewees refer to "the total chaos here" and "we have so many other problems to deal with. "There are too many actors here and coordination is still a disaster. which makes it more complex as a theoretical exercise.4." comments a manager. "We heard nothing from the HQ for two months. When asked about how gender is discussed in meetings and reports. Some interviewees at headquarters level also convey a negative perception of gender mainstreaming in OCHA. Communication with other organisational levels within OCHA also seems to have some flaws in terms of gender.3.4." says a senior member of staff. It's just too theoretic. where the staff turnover has been exceptionally high and where "there is absolutely no institutional memory right now". and say they have distanced themselves from it because they feel it has been promoted too aggressively. Awareness Again." One interviewee links the discrepancies to the fact that OCHA staff is dependent on the actions of others in their implementation of GMTA. We don't know what people are doing." 29 .yet. "For instance. "I talked to my colleagues about it and then it made sense. however.4. Then they sent me all the guidelines – except the Gender Handbook. I have 250 emails to act on every day. "The whole issue has been twisted. "There is this undercurrent that I don't like. At headquarters level. "People struggle to understand the term gender. it's difficult for him or her to know what to do. and see the lack of attention to gender in other agencies – especially sexdisaggregated data – as the main problem. They don't tell us anything". Communication on gender with other agencies is also described as problematic. "But then later I forgot about it. Communication Most of the field and sub-field level interviews with OCHA staff have been conducted in Haiti." explains an interviewee at headquarters level.
it is not really a primary issue for me". Some interviewees express deep frustration. "While I'm aware of it [the Handbook].4. One interviewee says he does not consider gender part of his work at all. OCHA is completely understaffed and one person is doing everything.5. Haiti is referred to as especially problematic in this sense. Which means that we don't know what people are doing. Summary OCHA is the only reviewed organisation where all interviewees have been familiar with the Handbook. cluster updates and Flash Appeals/CAPs. A so-called dashboard has been designed where various data will be visualised in a user-friendly manner to enable better coordination. OCHA's role as coordinator and information manager means that GMTA in practice will to some extent depend on what is generated by other agencies. everybody is chasing you and there are all these different political agendas. interviewees mostly talk about incorporating gender-relevant data into the various information flows. Gender appears to be perceived much more as a political issue than what I have found in the other agencies. 30 . The most striking finding regarding OCHA is the difference between awareness and competence on gender among staff at field and sub-field level. "The problem is. Another interviewee is keen to implement a stronger gender element in the training that he organises. "We haven't yet found a way to embed gender in our reflexes. and staff at headquarters level. Because in emergencies. and that the lack of data combined with the high staff turnover in OCHA has made gender "really just an issue that is on our list". Practices When describing gender implementation in OCHA's activities at field and sub-field level. and implementation of the Handbook principles and standards is not always seen as something that will invariably lead to improvements.6. "that the agencies and NGOs don't even send us their basic data." At headquarters level." sighs a member of staff at field office level. saying that Haiti is the most challenging mission of their career." 4.4. gender implementation appears inconsistent. such as situation reports." says the senior reporting officer. This argument is often used to explain frustration over inadequate results. Some describe the challenges of obtaining such data from the other agencies. and that's where OCHA staff should have it.4. "Working on the revised Flash Appeal. and then it won't work to come and say 'don't forget about the gender issue'. "Gender? Forget about it!" A senior reporting officer explains how OCHA works to collate information on the various activities of the different agencies and NGOs that are operating in postearthquake Haiti. It is somewhat surprising that the organisation with the strongest links to the IASC and the Handbook is also the one where some interviewees are critical about its applicability.
info 31 . Score: 2b = The Handbook is used and its principles and standards appear to have been implemented. and from visiting the cluster website. In Haiti. where reported problems are addressed while marginal attention is afforded pro-active and systematic inter-agency vulnerability assessments. "People in the field are so busy. Everyone has got their own agenda. practices and reporting of activities appears to derive from within the individual agency structures. or time away from it – not through the cluster cooperation as such. however. OCHA is also where I found the highest level of frustrations about implementation shortcomings.5. as it is practiced at field office level of the UN system. The cluster approach Data collected for this review reveal. has taken place whenever interviewees have had a "quiet" period during an emergency operation. However. Discussions on gender issues in cluster meetings often seem to be linked to particular cases and problem-solving." comments one interviewee. and not through external influence at the field level – especially not at the 'height' of an emergency situation. as well as possibilities for lighting in the latrine areas. This reflects a reactionary rather than a preventive approach to gender-based protection. emails/distributions from gender advisers. because that's what they will be held accountable on. although with inadequate coherence. With regard to cluster-related GMTA. the WASH cluster reportedly discussed the construction and location of latrines in camps.That said. Concerns were also raised in cluster meetings about the safety of women in connection with food distribution.27 Much of the individual 'competence building' on gender. Agencies do take part in cluster meetings. which I interpret as honest expressions of commitment. they will only ever look at their own agency's material. "You have to be pragmatic. following reports of attacks against women on their way home or at home after having received food rations. that the implementation of the Handbook and/or its principles and standards is somewhat disconnected from the cluster structure. and they do discuss needs and gaps." 27 http://oneresponse. interviewees quote gaining knowledge and awareness through workshops and seminars. 4. surprisingly. the attention that is given to gender in planning. The clusters are first and foremost 'active' during the actual period of a humanitarian emergency operation. for instance. after it became known that women were not using the latrines.
however.4. People want to be spoon-fed. "The word 'gender' is really unpopular in the Pacific. and reality is that people who are not gender focal points. and gender focal points)." comments one survey respondent. money allocated and accountability ensured within the agencies. "In complex humanitarian contexts. This could be related to the fact that GenCap officers are not assigned to a particular agency but are working across agencies. or really keen on the subject." One survey respondent calls for the UN to make sure "ALL senior staff members are committed and knowledgeable". gender 'competes' with other priorities. easily digestible techniques for how they can do the job right. and to avoid repeating previous blunders that have occurred as a result of not including women. awareness raised. Although cluster leads are among the primary contact persons for deployed Gen Cap advisers (alongside programme managers. protection officers. quote the Handbook as "somewhat comprehensive" in some contexts. GenCap initiatives prove sustainable. because agencies refer almost exclusively to their own tools and reporting routines. But people are very open to making humanitarian response more effective. with its weakness being that it is only available in English. and their implications for preparedness and actual disaster. they refer to the cluster structure as "a challenging place" to promote the principles and standards of the Handbook. GenCap advisers also report challenges related to "unwillingness" and "lack of knowledge" among senior managers. Checklists and other material that are simple and easy to apply or practical in their approach are welcomed and often quoted as those most successfully adopted." The Handbook e-learning course is referred to as "excellent". Many of the interviewed GenCap advisers refer to how they have distributed the Handbook and arranged information meetings and seminars on it in contexts where it was previously unused or unknown. "applicable". and also with many UN people here and elsewhere: People have had too many negative experiences trying to deal with 'gender'. are not going to sit down and read dense text. GenCap The GenCap system appears to be an effective mechanism with regard to GMTA. like the DRC." They write that once attitudes have been changed. "The Handbook is a BOOK. and interested in only a quick basic understanding of the rationale behind it. Several survey respondents report the most significant progress where they have been able to "link up and help people to do practical analyses of what are the actual differences between women and men in a given place." and "easy to use". Some GenCap advisers do.6. "relevant. They report it is difficult to establish the Handbook as a common reference tool. Some report problems in establishing contact with the different agencies. 32 .
I have sought to identify the main reasons why. in which all participating agencies – through the IASC and the cluster-based coordination structure – are active stakeholders. while WFP and UNHCR have their own traditions on how to address gender issues and in many aspects feel independent of OCHA. I have identified differences in how the four reviewed organisations perceive GMTA and seek to implement it. The GenCap initiative forms part of this support system. I have in this review not focused on its contents but rather the extent to which the Handbook and/or its principles and standards have been implemented. Findings reveal that while neither UNHCR. the dissemination and implementation of the Handbook principles are anchored in the cluster-based coordination structure and the support system that accompanies the transition from sector-oriented to cluster-based coordination of UN's humanitarian operations. As described in chapter 4. Assuming the quality of the Handbook material meets the standards of the contributing agencies. WFP's distribution of food affords the agency a more logistical character. 33 . as described in chapter 2. WFP and UNHCR have a long history of hands-on sub-field practice and many of their staff members are in daily contact with refugees and crisis-affected people. Unicef is theoretic and general in its approach. This concerns both their mandates/missions as well as in their approach to humanitarian activities. WFP nor Unicef have integrated the Handbook in their humanitarian work and responses. While UNHCR through its work with refugees has a wide range of socially oriented programme activities. the reviewed organisations are quite different from each other. Whenever the Handbook has not proven to be in use. Originating from within IASC. The agency works primarily vis-a-vis local authorities and through partner organisations. The Handbook standards are used as benchmarks because they represent a conceptual framework and programming guidance to which all relevant UN agencies have an ownership. Unicef and UN-OCHA have knowledge of and integrate in their activities the standards of the IASC Gender Handbook in Humanitarian action. all are in the process of implementing standards and principles of similar or comparable quality. Further. OCHA has integrated the Handbook but there seem to be inconsistencies in GMTA implementation. the Handbook is intended and formally acknowledged as a common framework for how UN agencies should work on GMTA. Discussion The purpose of this review has been to assess to what extent UNHCR. Unicef. The Handbook and its standards can as such be seen to represent a common effort to put GMTA on UN's humanitarian agenda. Accordingly. OCHA is a coordinating body and staff members depend on the cooperation of other agencies in order to achieve its purpose in emergency operations. OCHA works to convince and coordinate the others. while also firmly rooted in UN's humanitarian traditions. WFP.5. is generally not operative at sub-field office level.
The level of individual awareness in all four agencies seems closely linked to the gendersensitive practices at field and sub-field office level. Interviewed members of staff who have undergone training on GMTA appear to have a well-informed and practical-oriented approach to GMTA in their work. is as follows: UNHCR: Handbook principles and standards appear to have been implemented. and quote poor access to gender-related data as the main barrier to effective implementation of GMTA. Score: 2a/1 UN-OCHA: The Handbook is used and its principles and standards appear to have been implemented. This is probably linked to the fact that the agency has marginal sub-field office activities. Score: 2a WFP: Handbook principles and standards appear to have been implemented. Some OCHA 34 . Score: 2b. related to an assessment scale described in chapter 3. the GMTA that takes place appears ad-hoc and driven only by the efforts of a few individual members of staff.With regard to competence. Many of the interviewees who seem to have good competence on gender-related issues report that they have recently taken the Handbook e-learning course (launched a few months prior to the data collection for this review). it has been difficult to identify any systematic or coherent implementation of Handbook principles and standards. practice. At sub-field level. whereas interviewees at Unicef refer to gender-related communication at a more theoretical level. UNHCR and WFP staff appear to talk about GMTA in connection with practical issues and problem-solving. and that the Handbook has not been made part of such routines. A summary of the findings. although with very few references to the Handbook itself. although with inadequate coherence. Score: 2a Unicef: At headquarters and field office level there are good indications that Handbook principles and standards are in the process of being implemented. First. reporting and evaluation routines within the agency. although with lacking or inconsistent references to the Handbook itself. although without references to the Handbook itself. Two main factors seem to contribute to these results. handbooks and guidelines for capacity building. programme planning and field-level practices. Whenever GMTA is put high on the agenda. OCHA staff reveal a commitment to gender issues in how they communicate with other agencies. Those with limited training tend to associate GMTA with either mother-and-child activities and/or GBV. gender-related training is normally provided although with some inconsistency. WFP and Unicef refer almost exclusively to their own organisation's gender policies. individual members of staff feel encouraged to apply their gender-related training and knowledge in their daily tasks. as the Handbook material is embedded within the organisation's guiding documents. staff in UNHCR. the situation is slightly different. When not high on the agenda. Reasons are that they relate to the documents relevant to established planning. In OCHA.
In other words. The reasons for this could be linked to political divergences within OCHA. planning. The second factor relates to the perceived user-friendliness of the Handbook itself. are sceptical about GMTA in general as well as reluctant about implementing the Handbook in their daily work. In conclusion. the Handbook may be of good quality but not sufficiently adapted to the learning and working environment of field office and sub-field office humanitarian staff. however. policies and guidelines are rooted within each individual agency. it is also by several seen as "too comprehensive" and "too complex". the Handbook e-learning course – rather than the printed version – may potentially have had some influence on competence and awareness among interviewed members of staff. mostly at headquarter level. 35 . is that the agency-specific material on GMTA in UNHCR. however. IASC has recently commissioned an evaluation of the GenCap capacity. and practices. and the number of staff working on these. appears somewhat low in relation to the scale of current humanitarian operations led by the UN. The reported "complexity" of the printed version of the Handbook is contrasted by the positive responses to the Handbook e-learning course. Further. Also.interviewees. WFP and Unicef probably incorporates principles and standards that reflect those of the Handbook. The recently launched Handbook elearning course. the GenCap initiative represents a resource that is not sufficiently drawn upon by UN agencies. What is missing. however. which due to be completed in early 2012. Evaluation of ProCap and GenCap Project. While some interviewees describe it as "useful" and "practical". which is also more widely applied among staff in all four agencies. Findings also suggest that the GenCap initiative proves to be an effective means in coupling IASC's gender material with the agencies' humanitarian training. GenCap advisers appear able to function as 'agents' that understand and know how to bridge IASC material and the agencies' on-going activities in a given emergency operation. the Handbook does not appear to serve its intended purpose as a common reference for GMTA in UN's humanitarian activities. The number of deployed GenCap advisers. may have had an effect on the individual competence of interviewed members of staff in all four agencies. The principles and standards of the Handbook appear to be adequately implemented even when conceptual frameworks. when it comes to coordinating the agencies' different approaches to gender-sensitive programming. is the guarantee that the UN in its humanitarian operations will 'deliver as one' on gender. The main notion that can be drawn from these findings.
Existing material that may exist in relation to point 6 could form 'modules' within such a system. and result in career-meriting certificates accredited by IASC. 6) UN organisations should be required to implement systems to ensure that staff at all organisational levels receive basic and/or specialised training on gender (including the Handbook e-learning course). Contributions from all organisational levels will prevent the evaluation from becoming a mere 'paper exercise' and may contribute to an enhanced learning process with regard to GMTA. IASC should be encouraged to assess the feasibility of a staff certification system for gender competence in humanitarian operations. 36 . Managers should be particularly targeted. related to their area of work. field and sub-field office levels of the organisations.UN organisations should be required to assess their own gender tools with reference to the principles and standards of the Handbook. 3) UN organisations should be strongly encouraged to proactively and systematically involve their partners in the implementation and integration of GMTA. additional financial support to the GenCap capacity may also be considered by relevant stakeholders. 7) With reference to point 6. UN organisations should be more strongly encouraged to make active use of the GenCap capacity. 4) Awaiting the results of the Evaluation of ProCap and GenCap Projects. 5) With reference to the above-mentioned evaluation.6. administered and financed by the individual agencies. Findings suggest that Unicef should be particularly targeted on this aspect. 8) In a longer term perspective. Recommendations 1) In order to ensure coherence in UN's humanitarian activities with regard to GMTA. 2) This evaluation exercise should involve staff and management both at headquarters. funding should be made available for the production of a French language version of the Handbook e-learning course. UN organisations should be encouraged to actively endorse this certification system at all organisational levels. with expected completion in early 2012. Such training should be developed by IASC.
IASC Gender Standby Capacity Project (2009): GencCap Factsheet. Geneva: United Nations. Geneva: United Nations. No. Girls. P. Inter-Agency Standing Committee (2006): Women. Gender Handbook in Humanitarian Action. New York: United Nations Unicef (2010): Working for an Equal Future. Gold. IASC Gender Standby Capacity Project (2011): GencCap Update. A. (eds. New York: United Nations. Social Forces. 'Roles in Sociological Field Observations'. April 2011. 36. Rome: United Nations. R. United Nations (2006): Delivering as One. 37 . (2001): "Between Crisis and normalcy: The long shadow and post-crisis politics". Rome: United Nations. References 't Hart. R.. New York and Geneva: United Nations. Boys and Men. New York: United Nations. Different Needs – Equal Opportunities. Springfield: Charles C. U. pp. L. 217-223. Managing Crises: Threats. Vol. Opportunities. New York: United Nations. Geneva: United Nations. and Boin. & Comfort. World Food Programme (2009): WFP Gender Policy.. Enhanced Commitments to Women to Ensure Food Security.7. 3. in Rosenthal. gender and diversity mainstreaming. Report of the Secretary-General's High-Level Panel. World Food Programme (2002): Gender Policy (2003-2007). Dilemmas.). L. R. Unicef (2011): Annual Report 2010. UNICEF Policy on Gender Equality and the Empowerment of Girls and Women.A. UNHCR Executive Committee of the High Commissioner's Programme (2010): Age. Commissioned by the United Nations Emergency Relief Coordinatior and Under-Secretary-General for Humanitarian Affairs. Thomas. United Nations (2005): Humanitarian Response Review. New York: United Nations. Promoting Gender Equality and the Empowerment of Women in Addressing Food and Nutrition Challenges. K. Unicef (2010): UNICEF Strategic Priority Action Plan for Gender Equality: 2010-2012. (1958). Boin.
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