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GENDER PLANNING, BUDGETING AND AUDITING

Department of Local Self Government D.S.P Mission (Decentralisation support programme)

Sakhi Women's Resource Centre

Thiruvananthapurarn 695 035,Kerala.

GENDER MAINSTREAMING I N LOCAL LEVEL PLANNIN'G. AND IMPLEMENTATION

GENDER PLANNING, BUDGETINGAND AUDITING

MANUAL

(Draft)

2006

Department of Local Self Government, Govt. of Kerala DSP Mission (Decentralisation Support Programme)

Prepared by

Sakhi Women's Resource Centre

Trivandrum 695 035

Gender Planning, Budgeting & Auditing ~ a n u 2( ~ i a f t ) 1 English . First Printed November 2006 No. of Copies - 500 (not for sale) Cover Design Shamnad Rasool Design & Production Word Pecker Publishedby Sakhi Women's Resource Centre T.C. 2711 872, Convent Road VanchiyoorPO., Thiruvananthapuram Phone : 0471 - 2462251 Fax : 0471 - 2574939 E-mail : sakhi@asianetindia.com Website : www.sakhikerala.org Supported by DSP Mission, Department of Local Self Government, Kerala as part of the programme " To organise and undertake the various activities under the initiatives on strengthening the Women Component Plan and Capacity Building for Gender Planning, Gender Budgeting and Gender Auditing" Preparedby Aleyamma Vijayan , Daya. J, S. Jayasree, C.S. Chandrika, Sreedevi. P, Rekha Raj, Seena K.M

Preface Introduction
Chapter 1 Purpose and overview of the manual Chapter 2 Decentralization and gender equality Chapter 3 Condition and status of women in Kerala Chapter 4 Gender and related concepts Chapter 5 Gender mainstreaming in Decentralization Chapter 6 Gender planning Chapter 7 General projects Chapter 8 Women Component Plan Chapter 9 Gender budgeting Chapter 10 What is Gender auditing Chapter 11 Roles and responsibilities of implementing officers Chapter 1 2 Some project ideas and suggestions

Annexures

FOREWORD
The People's Plan Campaign in Kerala brought in its wake a series of development innovations breaking away from conventional approaches and practices. The most significant example is the earmarking of ten per cent of the Plan allocation of Local Governments for the development of women. Initially, Local Governments struggled to identify suitable schemes most of which can be classified as beloging to Women-In-Development approach. But now with universalisation of Kudumbashree and the prospect of Employment Guarantee Scheme being expanded to cover all the districts in the State, it is time to move ahead to a better conceptualization of gender sensitive schemes. The Decentralization Support Programme partnered the well known NGO Sakhi and launched an action research programme i n mainstreaming gender in local level planning and development. This Manual on Gender Planning, Budgetingand Auditing is one of the important outputs of this fruitful research. It has evolved from the expertise of almost everyone interested in gender and local level development in the State and has imbibed the most relevant concepts from literature on the subject. It is hoped that this extremely well written but simple manual would go a long way in enhancing capacity at the local level for proper gender planning, budgeting and auditing

Trivandrum 30-11-2006

S.M. Vijayanand Principal Secretary Department of Local Self Government

Women constitute more than half of the population in Kerala. Yet they are denied equal opportunities and justice in most sectors. to identify their needs or work towards establishing their rights. For women who remain marginalized from the mainstream social and political scenario, local governments are the most proximate and acccessible institutions of governance. Hence local governments have a serious responsibility to integrate gender equality and equity in their development approaches, policies and programmes. This manual is intended to help local governments to uphold the human rights of women, by involving them in identifying their needs and with their participation, to find possible solutions and move towards action. This manual details the processes of gender planning, budgetingand auditing in the general projects and in the Women's Component Plan. A handbook and training manual will be published along with this Manual which will give more information on local level planning from the gender perspective. Prior to preparing this manual and handbook, a review of ten years of decentralization in Kerala and a review of the Women's Component Plan (WCP) were undertaken. An indepth study of all the handbooks published by the State Planning Board was also undertaken. This manual is meant for elected representatives, officials, experts, representatives of non governmental organizations (NGO's), Community based organizations (CBO's) and all those who are associated with the process of planning and project implementation for a gender just society. We live in a society which is patriarchal, where men have control over resources, over decision making and over all aspects of life. Hence establishing a gender equitable society and making sure that men and women equally benefit from development outcomes i s not something which elected representatives can do alone. There has to be an enabling environment in the form of larger policies formulated by the central and state governments, laws and programmes of action. Along with this the elected representatives, officials and people working at various levels of governance will need to be fully involved and committed in bring about a gender responsive governance system. Due to discrimination and oppression experienced over centuries, women are unable

SAKHl TEAM

Chapter I

PURPOSE AND OVERVIEW OF THE MANUAL

-This manual focuses on how to ensure gender equality and justice in programmes implemented.,: at the local level within the mandate of local governments. The aim is to ensure that outcomes of all processes and programmes o f local governance are shared equitably between men and women. For whom is this manual? The manual i s meant for elected representatives, officials, technical experts, and all those who are associated with the process of planning and project implementation at the local government level. It contains tools, methods and indicators to help with gender based planning and implementation of programmes. It is a misconception that the term 'gender' indicates only women. Gender is different from the biological differences and i s about relationships between men and women-relations which are socially and culturally determined and indicate power differences. In the male-female relationship, i t is the woman who is generally exploited and oppressed. So programmes and policies at the local government 'level, should therefore attempt at resolve this gender inequality. If the goal is gender equity, change should happen in both men and women. It is the responsibility of all to achieve a gender equitable society, which eventually will benefit both men and women. Hence this manual is for both men and women. Both need to get involved, cooperate and work together towards achieving gender equity. How this manual is organized? After the introduction on decentralization and

gender equality Chapter I discusses the gains and 1 limitations of the last 10 years of gender integration in decentralalised planning etc. Chapter Ill gives a brief summary of the status of women in Kerala and highlights the need to gender planning. The basic concepts related to gender are explained in chapter 4. A handbook which will be published along with this will give additional explanations of the concepts. Chapter V explains the relevance of gender mainstreaming, the steps, approaches and strategies towards achieving this. Chapter VI focuses on gender planning-its relevance, the process, stages of planning. Chapter VII and Vlll explain how gender needs and interests can be integrated in the general and women component pldrl processes. Chapters 9 and 10 are on gender budgeting and auditing and chapter X I indicates the responsibilities of the implementation officers. Chapter 1 2 comprises ideas that can be of use to local governments. The manual ends with appendices which give a number of related tools for gender analysis, status study of women and tools for gender auditing
How the manual can be used? The approach of decentralized planning itself is to find local solutions to local problems. Hence this is not a rule book or prescription. O n the other hand this manual gives general guidance, methodology and tools which can be adapted or modified based on diverse experiences, needs and levels of knowledge of those who use it. For example i n the fisheries and tribal sectors, depending on the specific issues appropriate interventions can be made. Indicators and check lists can also be adapted depending on local situations.

Gender Planning, Budgeting and Auditing Manual (Draft) 2006

Chapter II DECENTRAL~ZATION AND GENDER EQUALITY

-The 73rd and 74rh constitutional amendments established the Panchayat Raj system in India. Through this, 33% of seats are reserved for women in local governments assuring women of 1/3rd representation in governance. In 1994, the Kerala Panchayat Raj Act came into being. Since 1996, the Kerala government initiated the decentralized planning process and 35-40% of plan funds were devolved to local governments with a mandate to identify locally specific needs, mobilize resources, plan and implement programmes suited to each area or locality. By transferring powers, responsibilities and by devolving finances to the three tier Panchayat Raj institutions (PRl's), Kerala has been able to transform them i n to real institutions of local governance. When decentralized planning was introduced replacing the age old centralized planning, the lack'of experience in initiating new proceeses naturally created a certain amount of confusion and allied problems. Although the decentralized planning process was initiated with commitment and a long term perspective popularising these perspectives was a herculian task. I n the existing development paradigm, normally the focus is on economic growth and infrastructuredevelopment. If the focus has to shift to integrated and holistic development of all human beings with special consideration to women and marginalized groups like the dalits, tribals, the disabled and elderly, very conscious analytical methodologies and tools have to be developed and used. The new constitutional amendments envisions the gram sabhas as the ultimate decision making bodies, giving primacy to the involvement of people 'to voice their needs. Development interventions have to be planned not from the top but by the poor and marginalized identifying their actual needs, prioritizing them and finding solutions. But due to decades of oppression and subjugation, the marginalized and oppressed are not able to identify their actual needs. For example, women living in patriarchal societies for centuries have internalized the values and norms of such a society. They can only identify those needs which 10

'

will make their day to day lives less miserable but it' will not be easy for them sto identify those strategic needs which will improve their position in society or free them from the exploitative relationships in which they live or achieve social justice. This is the relevance of planning from a gender perspective and analysis. Even those who desire gender equity may not even be able to identify real needs of women in the existing social system. Hence specific tools which help to analyze the causes of such oppression, identify those needs which w i l l help to improve not just their CONDITION but their POSITION are needed. Gender analysis, gender planning, gender responsive budgeting and auditing tools are relevant in this context.
Attempts to integrate a gender and development approach in the decentralized planning process in Kerala As part of the peoples plan campaign which was initiated in 1996, several steps were initiated to ensure gender equity. A participatory study of the status of women in each area was made mandatory a a step s to understand local specific issues of women and subsequent planning of relevent projects. A working group on women was initiated to formulate projects for women I t was directed t o ensure women's representation should be there in all sector wise working groups Attempts were made to improve women's participation in the grama sabha and focus on issues of women in discussions 50% representation of women was ensured in the sub committees formed in the gram sabaha. Out of the two representatives in each subject group in the grama sabha, one had to be a woman. A chapter on women was n1,lridatory in the report prepared o n perspective on development for the local body and also in the plan document. It was directed that in general projects special

Gender Planning, Budgeting and Auditing Manual (Draft) 2006

consideration be given for women It was mandated that at least 10% of funds be allocated for the Women's Component Plan (WCP) A special subject committees on WCP in the Technical Advisory Committees(TAC's) .was created to scrutinizes the projects and ensure gender considerations in general projects and to assess whether the 10% allocation to the WCP is respected. It was suggested that 1/3rdrepresentation of women be in beneficiary committees Self help groups as new organizational forms for women and its ward wise and Panchayat wise coordinating bodies like the ADS (Area Development Societies) and CDS (Community Development Society) were created. At the state level the 'Kudumbasree' mission was formed to give overall guidance It was suggested to form Jagratha samithis (vigilance cells) at each local government level in the model of the state women's commission to address issues of atrocities against women and to work towards preventing them Gender awareness classes were organized for elected representatives and officials A number of handbooks on gender and development, study of the status of women etc were published

limited opportunities to increase their assets or to participate in decision making. Women were seen as only housewives and not as workers or producers or farmers. The women's component plan focused mainly on addressing practical needs of women (basic facilities, employment, poverty eradication ...). As a result, their condition has improved. But there was hardly any attempt to improve their status. For example, very few projects were started to address issues like violence against women, sexual abuse, occupational illness, reproductive health issues etc: Although the government had asked local bodies to conduct studies on the status of women at Panchayat level and devise appropriate projects, this was not done in many places due to lack of expertise, clear methodologies etc. Hence a clear idea of the actual needs of women and their priorities could not be A(-hieved. A comprehensive policy for wornc3n could therefore not be formulated, based on the needs identified, their causes and solutions. The review of decentralization in the last 10 years of points to a number of achievements. The power of people in influencing the decisions in the local development is apparent. Basic needs of most people like housing, toilets etc are met. Considerable changes have taken place in the productive and service sectors. This has been a primeval attempt towards women's participation and visibility. Nevertheless the kudumbasree neighbourhood groups and their co-ordinating bodies were not associated in activities related to enhancing the status of women. The majority of them limited their activities to savings and credit. 'This review shows that the local governments have not been able to achieve gender equality, let alone gender equity and justice. Women who are backward and face very specific problems need special schemes in the coming years to achieve gender equality and equity.

Some limitations in the last 10 years of decentralization

Despite the above considerations, while reviewing the last 1 0 years of decentralized planning, certain limitations are visible. Although women's participation in the gram sabhas has increased substantially, the quality o f participation still leaves room for improvement. Women are regarded as beneficiaries and subsequently women's agency was not exercised in project planning and implementation There were only a few projects for women under the general category .Women got only

Gender Planning, Budgeting and Auditing Manual (Draft)2006

THE

Chapter Ill CONDITION AND STATUS OF

WOMEN KERALA IN

of It is generally believed that the condition of women ,. the legislative assembly, less than 10% are 'women. Kerala has twenty members in the in Kerala has improved due to the achievemenGin the social development of the state. As parliament of which the maximum number of compared to other states in lndia the male female women have been two! Women representation ratio in Kerala is favorable to women (1058 females both i n mass organizations and high level to 1000 males), Kerala is ahead in the literacy rates committees of political parties is negligible. It is achieved by women, the number of school going only because 33% representation of women was girls, lower maternal and child mortality rate and made mandatory in local governments that we longevity of women. O n this basis it is generally see so many women in local governance. assumed that the condition of women has improved considerably. However i t is critiqued Increasing Violence against Women Studies have shown that there is a rising trend that this has not helped to solve the issues of in multiple forms of violence against women exploitation, discrimination and various forms of oppression that women face. The issues domestic violence, rape, trafficking, child abuse, confronted by women belonging to marginalized sexual harassment at t h e workplace, and groups such as dalits, adivasis and those in urban harassment while traveling. Reports of the Crime slums and migrants are even worse. They Records Bureau indicate that crimes against experience acute poverty, unemployment, caste, women have actually doubled between 1995 and 2005. If we take into consideration the unreported class and gender discrimination. The following data reveals the secondary status cases and those complaints that are brought before the Women's Commission the increase will be of women in Kerala and the gender paradox. manifold. It must also be noted that most of the violence directed against women is not reported Women and Work The work participation rate of women at the which means that the actual incidence of violence all lndia level is approximately 25.7% and in Kerala is much higher. it is only 15.3%. Those women who work do so in the private and unorganized sector which does Less W o m e n in 'Professional 1 Technical Education not offer regular income, labour rights or job The rate of enrolment of women i n security. Women who work in the agriculture and construction sectors and other unorganized professional and technical institutions is low compared to that of men. According to the sectors also face wage discrimination. Economic Review, Government of Kerala, 2004, Women and Property the number of admissions in Government IT1 s In Kerala women do not enjoy equal property was 3491 of which there were only 28.93% rights. Only 23.8% women have operational women students. With reference to polytechnics (Economic review 2003) landholding. Women's 36.49% are women students. Only 30% of control over and access to income from land is engineering students are women. limited. .Women living in slum areas and i n colonies do not have any rights of ownership Increase in Morbidity and life style related making their lives more complex. diseases among women 'Though it has been possible to significantly Lack of Political Power reduce maternal and child mortality rates in Kerala, Women's leadership is limited and inadequate morbidity rates among women are on the rise in political parties, trade unions and in other especially lifestyle related diseases like blood institutions of political power. Among members pressure, diabetes, obesity and heart diseases.
12

Gender Planning, Budgeting and Auditing Manual (Draft) 2006

Mental Health Issues and suicides among women

Increasing numbers of elderly women The population of aged persons is increasing

Many women are becoming prey to depression and suicidal tendencies. Economic struggles within households, mental and physical violence at home, dowry related harassment, issues ' related to sexuality etc are contributory factors. For the last seven years the number of suicides in Kerala is highest in India. The number of men who commit suicide is higher than that of women but the number of women who fail in attempts to commit suicide is higher.
Decreasing Male-Female Ratio

in Kerala. According to the 2001 census, the number of women aged above 60 years is 10.16 lakhs and the number of men, 8.96 lakhs. Elderly women have specific problems such as economic dependency, mental and physical health problems, malnutrition, loneliness and are also victims of domestic violence.
Increase in the number of women headed households

Though Kerala has a favorable male female sex ratio, it is a matter of concern that there is a decreasing number of females to males in the 0-6 age group (1000:963). As per the census of 2001, 12.48% of the population comprises male children and only 10.95% female children. These figures give rise t o speculation that the cause for decreasing of girl children is the practice of female feoticide.

The number of female headed households in Kerala is higher than the national average. While the national average is 8%, in Kerala it is 22%. These include widows, single women, and abandonediseparate women. The increasing unemployment of men and decline of the traditional sectors increase the domestic responsibility of wonlc>ri.

Development planning needs to be based on a thorough understanding of the general Family planning and birth control, the sole and specific conditions and needs of women. responsibility of women There is pressure on women from the family I t is imperative for local planning to work and the medical establishment, to use oral pills towards improving the socio economic status, and other invasive technologies which have side gender equity and justice for women across effects as a means of family planning. ~ l t h o u g h castes/religion. (For detailed notes, please refer the vasectomy is simple and less expensive, it is mostly handbook). women who are sterilised.

Gender Planning, Budgeting and Auditing Manual (Draft) 2006

Chapter IV

GENDER RELATED AND CONCEPTS

Understanding gender and related concepts is . 2 - What i s masculinity? . . Masculinity relates to what is means to be a an important pre-requisite for gender based man in a particular society. Certain norms about planning how a man should behave, his characteristics, body 1. What i s Gender? language, responsibilities, dressing, occupation etc Gender is the social meaning given to being are laid down. Aggressiveness, domination, man or woman in a particular society or historical courage, self confidence, rationality, freedom, etc context. Gender refers to those characteristics of are considered qualities of masculinity and give women and men which are socially and culturally men a feeling of being superior to women and in determined. Gender is about social relations a position of power. Such superiority of the men which are based on power and are hierarchical. leads to society being patriarchal and vice versa. It is not the biological difference which determines this power difference. On the other hand it is the 3. What is femininity? beliefs, customs, institutions and ideologies which Femininity relates to what it means to be a are created to support a male dominated system woman in a particular society. Qualities such as which maintains this power hierarchy. caring, dependency, being emotional, timid and Certain norms and stereotypes about femininity affectionate are established as being feminine and and masculinity are created and sustained in our give women a feeling of being subordinate to men society. and powerless before them. A patriarchal society The different roles, behaviors, expectations takes advantage of this subordination to exploit and responsibilities of men and women are women. learned in the context of their own societies. Because societies are different and because The above said qualities are not due to specific every society develops and changes i t s genes men and women posses but as a result of practices and norms over the course of time, social and cultural conditioning from childhood. gender relations and roles are not fixed and Socialization processes and social controls, work universal. They differ in different places and to develop such specific qualities and attitudes in in every society they change over time. Gender can be understood, if only one boys and girls. If we.closely examhe them, we analyzes the power, roles and responsibilities understand that either men and women can men and women have in the family and in acquire these qualities. society. For example, i t i s important to understand and compare the occupations 4. Patriarchy Patriarchy is a system of control of men as a undertaken by most women and men, the work women do at home, the kind of group over women's labour, sexuality, fertility, education women receive, the extent of mobility, time and all aspects of her life. It is a men's and women's participation in politics sociological and ideological system which considers men superior to women; one in which and other decision making process. The gendering process happens socially and men have control over resources and decision culturally. It not only affects women adversely making. Patriarchy is historically constructed and but also men at times. The creation of its form, content and extent can be different in masculinity is also according to certain norms different contexts and at different times. and perceptions. Men have solely to bear the economic burden of family; they are not 5. Gender division of labour supposed to be emotional. Many such In all societies, the tasks performed by men processes of socialization have a negative and women are different. These change from time effect on men. to time. Normally women engage in household
'

ii

1
f

1i

i t

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Gender Planning, Budgeting and Auditing Manual (Draft) 2006

tasks, in the care of children, in sustenance occupations etc whereas men engage i n production activities that contribute to the income of the households The gender division of labour refers to a hierarchical system wherein the gender of the, person, rather than capacity or interest determines what work the person does, when, where and at what terms of exchange. The GDOL varies across countries, cultures, castes, class and ethnicity. The essential biological sexual division of labour (SDOL) applies only to a small subset of reproductive labour namely pregnancy, child birth and perhaps breast feeding. The SDOL does not vary across countries The gender division of labour is thus a process of allocating speciCic jobs and responsibilities to men and women. Such a division of labour based on gender slowly become a social norm and develops specific skills in men and women. Since gender relations are hierarchical, the jobs women perform are valued less and women have less access to resources.

and contribute to be regeneration of the family and the society. Such tasks are considered 'natural' for women and remain invisible, unacknowledged and not valued. These tasks require hard work, considerable time and energy, yet are not regarded as 'work'.

Corllmunity work
After performing the productive and reproductive tasks women are supposed to maintain social relations by participating in religious, social and family functions as well as engage in activities like visiting the sick, being present for parent teacher meetings etc. Although both men and women are engaged in such activities, the roles of each will be different. Men do engage in community related work as leaders and use this for gaining more status and recognition whereas women are supposed to be of 'service' to the community. Women bear a multiple burden of work and it is very important to understand this in the planning processes. 7. Gender n e e d s Since the roles and responsibilitiesof men and women are different in each society, their needs will also be different.

6. Cender roles The different roles, behaviors, expectations and responsibilities of men and women are learned in the context of their own societies and it is influenced by caste, age, gender, religion, ideology, socio-economic and environmental factors. O n the basis of gender roles, women's work can be divided into three aspects: Productive work, reproductive work a n d c o m m u n i t y involvement.

a) Practical gender needs (PGN)

The day to day needs of everyday life are called practical needs. For example food, water, income, health care etc. Practical needs often depend on the responsibilities performed by men and women in a particular society. Women who perform household and particular social responsibilities and engage in production and reproduction will have specific practical needs. For examples, since cooking is solely women's responsibility, collection of water becomes her need. Basic needs like a safe habitat, education etc are also practical needs. Meeting practical needs help to change the condition of women. li carefully planned, PGN can also address Strategic Gender Needs.

Productive work
Men and women are producers; they produce for the market or for use .Yet their roles and responsibilities are divided based on their gender status. Even when women are engaged i n productive work, it is considered less valuable and remains invisible. Most of the work in which women engage is considered supplementary.

Reproductive work
Giving birth, rearing children, cooking, gathering water and firewood, cleaning the house etc are essential for the maintenance of human life and is performed by women within the home

b) Strategic Gender Needs (SGN)

Strategic gender needs are those that relate to the secondary status of women in a society. Such needs are addressed by:

Gender Planning, Budgeting and Auditing Manual (Draft) 2006

15

Programmes which help to reduce drudgery at home and ensure male participation in household tasks and childcare Breaking traditional gender division of labour and engaging in non stereotypical tasks Ending discrimination in social institutions like caste, religion, class, education, judicial system etc Availability of reproductive health services Mobility of women Preventing atrocities against women in the family and society. Equal remuneration for equal work Such interventions addresses strategic gender needs and help to improve the status of women and ensure gender equity. 8. What i s gender rnainstreaming? Gender mainstreaming is an approach or strategy, which Considers men's and women's experiences, needs and priorities at all stages of planning and implementation Ensures outcomes of development be equally available to men and women Terminate gender inequalities In order to achieve this a two pronged approach has to be adopted 1. Throughout the planning process consider the needs and interests of men and women. 2 . To bring about equity, organise special programmes focusing only on women.

, I

- - ...

- -

potentials, to participate in political, social, economic and cultural processes, to contribute towards this and enjoy its benefib The most'important aspect i s that men and women should be able to enjoy the outcomes equally .

b) Gender equity is the equitable distribution of responsibilities and outcomes of development among men and women. It is about justice and hence special measures to compensate for years of oppression. To end existing discrimination, specific programmes aimed at women are needed. This is a proactive approach termed as positive discrimination. For example, reservation is needed to ensure gender equity.
10. Access and Control Access is the possibility to use resources. Control is the ability to define the use of resource and take decisions regarding the use. Resources are of different kinds Material resources: Food, occupation, child care facilities, housing etc. Political resources: Leadership capabilities, ability t o influence those i n power, communication, conflict resolution and reconciliation. Education/knowledge as resource : access to knowledge to change or transform certain situations or conditions, formal and informal education, opportunities for transfer of knowledge etc. Intangible resources: the qualities like selfconfidence, ability to express one's interests etc.

9. What is meant by gender equality/ gender equity? a) Gender equality This does not mean that men and women, boys and girls are present i n equal numbers in all programmes Gender equality means that men and women enjoy equal status in society Men and women are not same. There are differences among them. These similarities and differences have to be acknowledged and recognized Gender equality means that men and women get equal opportunities to utilize their full

11. Empowerment is a process whereby, women critically reflect on the condition of one's own life and acquire the knowledge, skills and consciousness t o change or transform that condition. It is a condition where women's self reliance and inner strength are enhanced and thereby gain control over assets and resources and subsequently are able to control all aspects of their lives. This can also be seen as an organized activity to change power relations between men and women i n the family, and i n all other social institutions and proccesses.

Gender Planning, Budgeting and Auditing Manual (Draft) 2006

Chapter V

What is the Mainstream? Our society is a stratified one. It consists of those' who wield power and exercise domination and those who are marginalized and are relegated to the periphery. The power relations between the dominant and subservient work across caste, religion, class, race and gender. The dominant section control key power structures, processes, values, beliefs, institutions, relationships and this aggregate is referred to as the 'mainstream'. The 'mainstream' determines who owns and controls resources, who are influential, who do what, who gets what. Social institutions determine the quality of life of the people in the society. These include the family, educational institutions, the market, the administration, people's organizations, religious institutions etc. These mainstream institutions are generally male dominated and controlled and the development perspectives proposed by them and their outcomes do not ensure equity and justice in society. What is gender mainstreaming? Gender mainstreaming is a process to ensure gender equality and equity i n the existing 'mainstream' and challenge the centralisation of power. The essential factor is that all sections of society participate equally and are able to influence processes and institutions that are decisive in society. It is a process of redefining women's and men's involvement in determining who does what, who has the ownership, who has access to education, employment, income, who controls resources and institutions and who makes decisions and who determines priorities. To ensure mainstreaming of gender equality and equity, a major transformation is envisaged in institutional structures, processes and approaches. It demands women's participation in processes of decentralization of power and better influence and involvement in decision making.

Why is gender mainstreaming important in development planning? Women and men experience life differently. Their needs and priorities differ. Policy and development interventions also impact women and men differently Among the poor, the majority are women. Women are also subject to violence, more women than men are illiterate and women need more access to health care than do men. The work participation rate of women is also less than that of men. Gender equity and justice is to be emphasized when attempts are made to form a just and equitable governance process at the local governments Women should have a share in the general projects as well as women specific projects through gender mainstreaming. While women specific programmes are essential in the context of gender inequalities, (such as mother and child support programmes, poverty eradication programmes), these are not sufficient to bring about gender equity. They do not analyse the cause of male female inequalities. Problems and issues relating t o gender inequality affect and impact all sectors. Recognizing that everyone has a stake in the process makes gender mainstreaming every ones' responsibility. Gender issues are not women's issues alone. They are social issues and hence everyone has a responsibility in addressing such systemic issues and ensuring gender justice. What i s gender equality in the context of gender mainstreaming? Gender equality means that men and women have equal opportunity to realize and fulfill their full potential; participate and contribute to the political, social, economic and cultural development process, erijoy the benefits and obtain equal opportunity to experience equitable outcomes. It recognizes and accepts the similarities and
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Mainstreaming gender equality and equity is a long term process

Gender Planning, Budgeting and Auditing Manual (Draft) 2006

differences i n the problems and needs of women and men. I t ensures quantitative and qualitative participation of women and men, girls and boys in all activities. It uphold that women ' and men should enjoy equal status in society--.

Who is responsible for gender mainstreaming in governance This is the responsibility of every one at all levels of government; gender mainstrearning is not the responsibility of the Social Welfare department or the Women's Commission or elected women leaders alone. It is only when the higher level officials and political leadership have a commitment and will to take forward gender mainstreaming that can the lower levels can be influenced to ensure appropriate progress. All government officials and elected representatives who are involved in policy formulation, project planning, preparation of budgets, programme implementation and

review are responsible for gender mainstreaming. AII government officials and elected representatives should: Understand the inequalities prevailing between men and women in their respective departments in terms of roles, responsibilities and experiences. lnvolve women and men equally and a much s as possible in institutional processes Understand the different needs and priorities of women and men in plan formulation, processes and implementation Ensure that both women and men benefit from proposed plans Create strategies to ensure gender justice, equality and equity.

What can be done practically to mainstream Gender? It is important not to assume that any plan or project automatically benefits women too. The different needs and priorities of women and men

GENDER MAINSTREAMING - A SYSTEM MODEL

Enabling environment

- Political will
- Necessary Government Orders and Policy - Required Human and financial resources
-

Women's participation in decision making

- Legal framework, women's organisations

Mechanism

- Main agency (L'SC) - Implementing officer - Gender sensitized core group

Processes
- Gender analysis, identification of opportunities - Gender training - Skill development programmes - Information dissemination

- Gender planning, budgeting - Evaluation and auditing

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Gender Planning, Budgeting and ~ u d i t i n g Manual (Draft) 2006

of women and men and the evaluation report should be gender responsive. Gender mainstreaming in the context of local Plan formulation - The overall objective should self government implies initiating and taking be doing away with gender inequalities and forward a process of change and transformation. discrimination. Activities to achieve this should be.' This will help ensure meaningful and measurable clearly defined as also the processes to achieve changes in gender relations. this. This should include development of appropriate monitoring and evaluation indicators. For this we need the following twin approaches: Equal outcomes should be ensured for women and 1. General projects men through equitable distribution of resources. As members of the society women are entitled to an equal share of development resources Women's Plan implementation - Ensure that both women basic needs, and activities for livelihood security and men participate in implementation on an etc should form part of the general projects. equal footing and be given equal respect. 2. Women component plan Monitoring - There should be specific indicators Under this, projects which help women to to monitor the impact on women and men overcome the constraints, backwardness and differently. Data should be gencler disaggregated challenges from centuries of discrimination and those that help enhance their status should be and analyzed in order to monitor progress included. Examples include projects to address Evaluation - Develop indicators w i t h the issues of violence, increasingwomen's control over participation of both women and men to evaluate reproduction and fertility, facilitating women's the impact on gender equality and equity; the mobility, ensuring access and control over evaluation team should have eqilal representation resources etc. need to be clearly addressed and considered in all stages of project planning and implementation.

Gender Planning, Budgeting and Auditing Manual (Draft) 2006

H O W TO ENSURE THAT GENDER MAINSTREAMING IS EFFECTIVE IN THE PROCESS OF DECENTRALIZAl-ION?

Objective

Gender Equality and Equity

Strategy Two approaches to mainstream gender

Ensure equitable participation and consideration for women and men in general projects and policies.

Gender Equality

Special Women focused project activities and plans aiming at empowerment of women (Women component plan).

Women Empowerment (Gender equity)

Gender Planning, Budgeting and Auditing Manual (Draft) 2006

Chapter VI

GENDER PLANNING
Gender planning is the recognition of existingsocial and gender inequalities and tlie formulation of appropriate development approaches and processes and activities in development plannes to address the inequalities. Gender planning aims to improve tlie status ~ of womer: by d e v e ~ d p i nactivities that confront proble~nsarisirig from gender inequalities, exploitation and discrimination. Gender planning helps to expose, analyse and resolve the inequalities existing in social, economic, cultural, legal and family structures and serves to initiate a process of change to address such inequalities in such structures and processes.

n
Consequences

productive assets; econornic dependence

Gender Planning, Budgeting and Auditing Manull (Draft) 2006

Relevance of Gender Planning The existing development approach and planning are based on the assumption and acceptance of the subservient status of women.

Existing stereotypes perpetuate gender inequalities. Cender planning requires that these stereotypes be reexamined.

Existing assumptions in planning process 1. In Kerala all women are educated Literacy rates indicate that literacy rates of women are lower than that of men. Those who have obtained primary education but have then become dropouts have also turned illiterate. The literacy rates among women in the fishing, dalit and adivasi communities are lower than the state average. Among the women who have obtained technical education only a few have taken up non conventional subjects like electronics, automobile engineering etc. The existing system of education reinforces gender inequalities and domesticates women.

2.

All women's issues will be solved if economic equality is ensured. Women's issues arise not only out of economic dependence. Women may work for income generation but this alone does not ensure that she will be able to control the income thus earned. Existing inequalities in the cultural and family realms cannot be done away with economic gains. Men are the main bread winners and providers This is often not true. In a large number of cases income earned by men does not benefit the household. However the income earned by women in the majority of cases is utilized for household and related purposes. Men use their income to increase assets/ recreation purposes but women use the income earned for day to day household needs.

3.

4.

The family is a socio-economic unit where women have equal access and control over resources Hierarchical power relations exist in families. Generally men have access to and control over resources. Men have the key role in decision making in households. All households are headed by men This is not completely true. There are families headed by women, there are families with only women, destitute and old people. The structure and composition of families is varying. Since Kerala is a highly literate state, domestic violence i s less Studies conducted by INCLEN and Sakhi prove that the incidence of domestic violence in the state is increasing. In a male dominated power hierarchies and in caste, ethnic and religious power hierarchy, violence is used as a weapon. As such i t is assumed that a man has a right to beat his wife. As a consequence, women suffer from mental health problems and there are many cases of unnatural deaths

5.

6.

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Gender Planning, Budgeting and Auditing Manual (Draft) 2006

Cender Planning - pre requisites

The pre requisites for gender planning in local self governments are as follows:

Women's participation should be increased in all decision making structurescommittees, working groups, grama sabhas, organizations and instittr~ion~. This implies not only participation in numbers but also equipping women to identify and articulate their needs and priorities. Women's self help groups, Mahila Samajams etc should be coordinated to facilitate qualitative participation of women in decision making structures. Libraries, clubs etc should admit women as members. Public presence and participation of women needs to be made strong and the experience thus gained and the active involvement of women in grass root process would be an asset to the planning process. Women with leadership potential should be identified and their skills in gender analysis and technical skills in planning need to be strengthened. those involved in planning should be familiarized with the concepts of gender and power relations. It is also important to Gender sensitize key persons like elected representatives, officials, social leaders and representatives of social service organizations. Gender planning should move beyond being a technical concept to being a dynamic process of practical use in the day to day life of women. Planning is a political process. Intervention in the planning process with the objective of improving the status of women leads to a transformation of power relations in family and social and political processes. Such a process of transformation entails struggles and those involved need to be aware of possible conflicts that may arise out of initiating such a process and acquire the skills to deal with these. For example a woman who has found an income generation activity may, as a cocsequence become more mobile and less dependent on her husband. This might be perceived as a threat to the existing family hierarchy and may cause some conflict. It i s important that people are prepared to come to terms with such chafiges. Elected representatives also need to be sensitized to the concepts of gender, gender relations and power relations and to deal with such changes in a mature way.

Gender Planning, Budgeting and Auditing Manual (Draft) 2006

23

How does Gender Planning differ from conventional planning? Development planning and policy approaches which existed for years perceived women only as mothers, wives, daughters and housewives and supplementary income earners. Women have been addressed from a welfarist perspective. Thus development planning for women included only nutrition education, home science, income generation activities etc. Women were not viewed as active participants in the process of development and therefore did not find their deserved place in a male centered development process. However Gender planning takes into account the existing power relations between men and women and is based on an understanding of the inequalities existing in various spheres. It aims at carrying out specific

programmes to address such inequalities, allocate resources for this purpose and i t also aims at a transformation of organizations and institutions. , . Gender planning is a cyclical process involving : .specific stages. Gender planning requires gender ' analysis, to determine needs and priorities of men and women. The second stage is project formulation from a gender perspective and appropriate gender budgeting. The third stage involves project implementation to ensure gender equality and equity. Finally a gender audit is carried out to review the policy, approaches, process of planning and project formulation, gender budgeting from a gender perspective. and to provide recommendations for future plans. Gender audit is an important part of the socia1,audit.

i
i

Cender Planning Cycle

of needs, data collection,

7'
and recommendations

~mplernentation, ensure gender

Cender Planning, Budgeting and Auditing Manual (Draft) 2006

Cender Planning at Local Government Level -Steps

Planning structures

Responsibilities Processes.
*

Activities to int&iate Gender Perspective

Ensuring gender in project formulation and implementation Giving needed training

State Government

Guidelines, necessary orders

11

Core group at LG level consisting of governing body, standing committees, working groups, rep of neighborhood groirp

Identifying local specific gender needs

Data Collec ~ I O I I (Gender analysis, women status study etc.) Classifying needsldeciding priorities

'11

Governing Body of local governments

Policy formulation

Women's perspective in development policy Local level women's policy

-

IV

Governing Body of LG

Development Strategy and action plan

Equal share for women in general projects Women component plan for programmes that improve women's status

Standing committee, working groups

Plan formulation

five year plans and annual plans Women's practical needs (general projects) Strategic needs (Women component plan)

VI

financial Standingcommittee, working groups

Gender Budgeting

Resources mobilization Fund allocation for projects with gender perspective Ensuring women's pdrticipation in all projects Ensuring a gender plartning process

VI I

Working groups

Plan formulation

Writing prole( LSin detail, in a gender responsive way

Gender Planning, Budgeting and Auditing Manual (Draft) 2006

"Ill

Technical Advisory Committees, District Planning Committee

Technical appraisal of projects, project approval

. .. , . .

Ensuringgender concern in projects Ensuring guidelines and components in WCP Obtaining approval by fulfilling requirements

IX

Implementing Officers, implementing committee

Ensure women's participation in implementation Implementing Calendar Ensure roles of implementing officers, Monitoring committees in women's leadership Decide time of gender audit

Working group, sub committees of working group

Monitoring calendar Monitoring Monitoring committee/develop Gender responsive indicators Monitoring report

XI

Working groups, sub committees of working group and experts

Social assessment of gender Gender auditing Economic assessment of gender Include as part of social audit

Working group, sub committees of working group and experts

Suggestions for next planning

Suggestions and recommendations for planning

The above chart outlines the different stages of the process of gender planning- These are described in some detail in the followingsections:
Necessary Government orders and Guidelines The state government is to issue specific orders and guidelines to initiate the gender planning process in local bodies. It is the responsibility of the state government to give guidelines and necessary directions to ensure gender considerations in plan formulation and to give needed training to all stakeholders.

I.

specific needs.

II. Gender Needs Identification The Planning process needs to be based on accurate data and need identification. Gender disaggregated data is not available now. Thus data collection should be undertaken by the local governments from a gender perspective. The Working Groups have to be reconstituted as follows: At least 50% of the members of the working group should be women. There should be representatives of from different sectors in the working groups (e.g. occupational groups, economic sections, socially backward sections) Experts should be drafted in the working groups as per requirement. Experts from various sectors csn be drafted into the sub committee. The first taskof a reconstituted workinggroup for women should be the collection of data to determine needs to facilitate gender planning. In this process it should be noted that women are not a homogenous entity and the various caste, class, religious, economic and social differences should also be taken into account.

Members of the sub committee could be as follows Women elected representatives Representatives from o f the three Standing Committees president of the Women~sWorking Croup Implementing Officials from the three tier LSGls Members of the Communitv Develo~ment Society (CDS) of SHG's Gender experts from women's groups/NGOrs There should be at least 10 members in the sub committee. The working groups can commission specific studies to determine gender needs and priorities. conduct such studies among women, a separate group comprising women can be drawn up. This group may
I

representatives from all sections mandatory participation of tribal and dalit women participation of women from minority groups according to local specific situations. representatives from kudumbasree neighbourhood groups, CDS and ADS
What are Gender Needs? There are two kinds of gender needs. There are practical gender needs which i f addressed would contribute to improving the condition of women. Strategic gender needs are those which if addressed would contribute to improving the status of women by addressing prevailing gender inequalities.

Practical Gender Needs of women Housing Sanitation facilities Employment Health Education Water Waste management etc.

Strategic Gender Needs of women Reduction of household burden, increase men's participation in household tasks Improvment, access to reproductive and sexual health care services Prevention of violence and protection from violence Increase of women's participation in political a n d cultural activities Skill training and up gradation Technical education Yacilities for higher education, mobility etc.

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Data Collection Women's access to education, knowledge, skills and work are dependent on their social and economic position. There fore it is important to identify the needs of women from various sections o f society. There are two methods of data collection: I ) secondary data collection and (2) primary data collection. Secondary data collection Census reports Records from police stations School records Records in Primary health centre Village survey records Reports of Surveys and studies Reports of local government idevelopment report, plan document etc) Primary data collection Cender analysis (various sector institutions) Status study of women Participatory tools to assess needs Focus group discussions Key informants interview (Refer Annexure 1 and 2 for details on primary and secondary data collection. More details are available in the handbook).

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approaches, activities that could be undertaken and recommendations could be put forth Consultations should be conducted on the draft policy paper with women's groups and participants o f the studies and other stakeholders before finalization The president of the women is working group should present the draft policy paper to the panchayat committee and i t i s the responsibility of the committee to finalise the women's policy, after needed deliberations. The draft policy paper should be approved by the Grama Sabha The policy paper should be presented in the development seminar and thereafter made accessible to all.
Who should be responsible to formulate a women's policy? The respective Panchayat Committee should be responsible The working group on women's development, the social welfare standing committee members etc. should participate in the formulation of the women's policy

111. Policy formulation All the different methods of data collection mentioned above will show the needs and issues of women. The development and gender policies should be formulated based o n this need identification. A women's policy should be developed in the context of central and state level policies and specific local issues should be included. Local government needs to focus on improving women's participation, entitlement and influence in all spheres such as politics, culture, economic, law, health, work, women's mobility and security. (Please refer handbook for a draft women's policy) To develop a local specific policy for women, the following steps can be taken: The members of the working group and standing committee may consolidate the findings emerging from the studies undertaken and present them sector wise. Sector wise suggestions on policy and
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IV. Development strategy The development strategy should be based on the women's policy. The practical needs should be addressed as part of the general projects and the strategic needs should be addressed as part of the women component plan. Following the preparation of the development strategy the standing committee and working groups should accordingly develop the action plan.
Who is responsible for the preparation of the development strategy?

The Panchayat committee is responsible for the preparation of the development strategy.

V. Plan Formulation Action Plans should be developed on the basis of the policy and development strategy. The following steps are essential for plan formulation: The women working group should classify the needs which are articulated sector wise and suggest ways in which the local governments can meet the needs. All gender needs cannot

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i
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be met i n a short time and by local governments. Therefore both long term and short term plans should be prepared. The standing committee should call a meeting of all working groups to discuss the analysis and recommendations of the women working group. The working group, based on discussions and consultations, should determine sector wise activities to be carried out and identify the executing agencies (i.e. District Panchayat, Block Panchayat) through which various projects can be co-ordinated. The finance standing committee would then work out resource mobilisation strategies In this meeting women who participated in the studies and surveys, representativesof self help groups, representatives from the apex body of the self help groups (i.e. ADS and CDS), women beneficiaries, dalit and tribal women etc should participate. Resource allocation should be carried out sector wise based on priorities and sufficient funds should be earmarked. (Gender Budgeting) Resources for short term and long term programmes should be computed The budget thus arrived at, should be discussed in a joint meeting of the working groups and once completed should be presented to the Panchayat committee. The budget should be presented in a public forum by the Standing committee. This meeting should include beneficiaries, ,4DSICDS representatives.The draft budget presentation meeting should include representatives of employees of LSGs at panchayat level representatives from social / voluntary organizations o representatives of political parties o representatives from local trade and industry

in the first year of the plan with budgetary details. The practical needs of women should be addressed under the general projects and strategic needs should be addressed under the Women Component Plan. The development report to be prepared by the local government will have a chapter on women's development and it should include the development perspective, development projects, resource allocation strategies and budgets. The chapter on women is development could be prepared as follows:
Part 1 o Local women's history o Findings from the women status studies and gender analysis report o Practical and strategic needs of women in the o Report of the Jagrata Samitis Part 2 o Women's development policy o Development strategylperspectives o Analysis of women's participation in Grama Sabhas, Wokring Groups and standing committees (quantitative and qualitative) Part 3 o Development projects/Resource allocation strategies and budgets. o Suggestions/Recommendationsfor monitoring and process of gender auditing. o The development report and plan document should be submitted for the approval of the Panchayat committee. After that, they should be submitted to the grama sabha that meets for the planning process in order to determine priorities. o The suggestions and priorities articulated should be discussed i n the development seminar and incorporated in the development report, plan document and policy document. The studies on the status of women carried out as part of gender analysis and the need identified should be updated every five years to track the progress made and also to identify newer issues.

representatives institutions

from

financial

t h e annual plan document should include information on projects to be implemented

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1
Who is responsible for plan preparation?

The various working groups are responsible for plan preparation.

Organisation - The activity calendar should specify at which levels women should participate. It should also specify how many women should participate at each committee. Ginancia1 analysis- While carrying out financial analysis, the 'invisible' work done by women (care economy) should also be taken into account.
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VI Gender Responsive Budgeting Gender budgeting is primarily a tool for social change and a process towards gender equity. Gender budgeting is a steps towards realising the action plan of the government. Details on gender budgeting are in Chapter 7.

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Cost Benefits analysis - Should be carried out Monitoring- The monitoring committee should have at least 50% women, and the monitoring indicators should be gender responsive (Details on project structure and formulation in Annexure 3) Women who are members of working groups should be involved i n all stages o f project development. It is important to ensure that these are done at a time and venue suitable and convenient to women. There should be at least one woman representative from the women development wbrking group in order to ensure that the w o r k i n g group findings and recommendations are incorporated .in project development. Women elected representatives should receive training for writing. I n all organizations and committees constituted as part of the project, it should be ensured that women are equally represented in the membership and leadership (eg. farming cooperatives, PTA) The projects that are developed should then be submitted to the Panchayat committee which would, then submit it to the technical advisory committee at the block Panchayat level for approval.

VII Project formulation Once the plan documents are approved in the development seminar, each working group should prepare detailed project documents. The underlying aim of all projects should be gender equality and equity. Projects should be classified as follows: General projects, women component plan (Please refer to chapter 7 and 8) and special component plans.

formulation?

Detailed Project formulation Each project should comprise the following nine components: Introduction - Problems and issues of women and men in each sector (based on study findings). Gender disaggregated data should be made available Objectives: Irrespective of the sector the general objectives should specify gender equality and equity

Beneficiaries/Beneficiaryarea

- In any project,

when women are selected eligibility criteria and parameters for the selection of beneficiaries should be ensured.
Activities - i t should be ensured that women equally benefit from the project activities. Activity calendar- An activity calendar should be prepared.

VII Technical review of projects These are Technical Advisory Committees (TAC's) at the block and district levels to technically review projects and project budgets to determine how viable and feasible they are. The technical advisory committee reviews the following: the technical aspects of the projects whether projects are in line with government guidelines whether 10% of the budget is allocated for the women component plan

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Gender Planning, Budgeting and Auditing Manual (Draft) 2006

whether there i s focus on women in the general projects whether all components of the project are described whether income and expenditure details are . .' . presented whether projects are designed, keeping in mind the local context and whether they are based on studies and data whether projects were based on the needs and findings emerging from the studies conducted (for example, if demographic trends show an increasing aged population, a project to address their needs is called for).
Who i s responsible for the technical review of projects?

What are the components essential to a project before it i s submitted for the sanction of the technical advisory committee

With each project the formal i r i the next page should also be completed and submitted alongwith the financial statement.
IX. Project implementation Project implementation should be a process which is efficient, time bound and which ensures the criteria while giving women their needed position.
How to implement a project

Each sub committee of the Technical advisory committee would comprise subject experts from various government departments, retired officials, experts from the social sector/ organizations, women activists with expertise in gender studies and ex-officio members.

Projects should be implemented according to the objectives identified during project design. While identifying beneficiaries, the existing poverty criteria set up by the government should be followed with special attention to the following factors : The poorest of poor women, especially widows, destitute and abandoned women, unmarried and single women Women w i t h HIVIAIDS, other chronic

Model form to be submitted for annual plans to the technical advisory committee Subject Annual budget for current year Budget for previous year Expenditure of previous year

General
1. 2.

3. Women Component Plan

1. 2.

3.
Scheduled Caste Sub Plan
1. 2.

Scheduled Tribe Sub Plan

1. 2.

Total
(A checklist for the technical review ofprojects is presented in annexure 4)

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diseases, mental illnesses, physically and mentally challenged women Elderly women Women working in the unorganized sector Migrant women labourers Adolescent girls Women belonging to scheduled castes/ scheduled tribes Women belonging to the minority communities and other socially backward communities
How to select beneficiaries in the Grama Sabha? A comprehensive list of potential beneficiaries fulfilling the criteria listed above needs to be drawn up before the Grama Sabha meeting by the NHGs (Neighbourhood Groups), women's organizations like Mahila Samajams, women representatives in the working group etc. This list can then be submitted to the Grama Sabha for consideration. Based on their recommendations the Working Groups are responsible for the finalization of the list of beneficiaries. Based on the projects, ward level beneficiary committees (for both public works projects and individual beneficiary projects) should be constituted with at least 50% of women members. Who i s responsible for project implementation? Project implementation is the responsibility of each Standing Committee responsible for the sector with an implementing officer in charge. For women development projects, a woman implementation officer, should be in place to ensure the gender perspective and integration of women development plans. X. Project monitoring and evaluation A monitoring mechanism is to be put in place to ensure that basic project objectives (e.g. Gender equality and equity) are met. Each project should be monitored with sector wise indicators a applicable. (Please refer Annexures 5 and 6 for s gender indicators). Who i s responsible for monitoring? The concerned working group is responsible for project monitoring and guidance. The

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working group can constitute monitoring sub groups from among them for specific projects. Where applicable, the concerned beneficiary committee i s responsible for respective beneficiary area. A meeting of all .beneficiaries of an area should be called and a committee of a minimum of ten members with at least 50% of women members should be formed.

When should the monitoring of projects be undertaken Monitoring should commence right from the beginning of project implementation. Monthly monitoring should be carried out and the progress of the project should be evaluated against the indicators defined. A monthly monitoring report is to be prepared. A consolidated annual report is also to be prepared. Recommendations from the report should be submitted to the Panchayat committee. XI. Gender Auditing Gender audit is a part of the social audit. Gender audit reviews the process and the impact of the project on men and women. It should also review the progress towards gender equality and equity. (Please refer Chapter 10 for a description of the gender audit process.) XII. Recommendations for the Planning process The plan process is a cyclical one. Thus the findings from the gender audit should feed into the next phase o f the plan process. Recommendations form both the basis of the plan process as well as the outcome of the plan. Recommendations could comprise the following: How to make institutions women friendly How to ensure equal participation of women in all formal planning processes and structures How to create an enabling environment for women to engage in creative activities How women's leadership capabilities be enhanced i n the project implementation process H o w t o ensure the participation and leadership of women through a transparent and participatory monitoring process.
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Gender Planning, Budgeting and Auditing Manual (Draft) 2006

Chapter VI I

GENERAL PROJECTS
Gender equity and equality can be achieved only when women also have equal access-toand control-over resources (land, capital, tools, knowledge, skills, information, basic facilities and natural resources). To achieve this aim, projects under the general category should be designed in such a way as to equally benefit men and women. What are projects in the general category? Projects with the objective of gender equity and equality should be formulated under the general category for both the production and service sector. For example in the productive sector, many women work in the unorganized sector. Women workers in fisheries, coir, cashew, weaving, pottery, bamboo and plantations sector face severe exploitation and job insecurity. Women also experience discrimination on caste and class basis. Projects could address these issues by providing jobs for women, access to health services, social security and access to raw materials, market for products and skill training. In the agricultural sector, women are landless and unable to access other resources. In agriculture women are only labourers or engaged in allied occupations. When projects are formulated in the agricultural sector, care should be taken to see that women have access to productive land, tools, and equal wages for equal work etc. Skill development, control over income, assured markets for their products and control over profits generated from i t should be ensured. There should be a concerted effort to link the ancillary activities. E.g. live stock to dairy products, food processing, water shed management etc. In the infrastructure sector it should be ensured that women have access to and use of infrastructure facilities, What can be done to ensure gender equality in the general projects in the productive sector like Agriculture, Animal husbandry, Fisheries, water resources management, Industry?
Women should be able to own land, tools and acquire technical skills Women should have access to common property resources (land, water bodies, forests) Women's unemployment should be addressed. Training should be given in non traditional areas. Women workers i n traditional occupations should be given backup and support and training for product diversification Women should be able to earn better income and should obtain equal wages for equal work Women should be able to have access to raw materials ; provision of technical training is also important Women should be given training in the storage, processing, marketing of products. Their negotiation skills should be development Women should be able to attain technical knowledge and have access to information in each sector Women should be members of and have leadership roles in all committees related to the production sector.

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Services sector Education Women should have better access to education ranging from primary to higher education. They should also be able to access education and skills in non conventional areas. Basic facilities for women and girls should be ensured (e.g. waiting room, girl friendly toilets) Access of girls to playground, libraries etc. should be facilitated. Physical training facilities for girls should be created. Health Access of women to heillth services should be improved. Health security ensured. Social security (including security against violence and exploitation) improved

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While providing housing, preference should Women sensitive facilities should be ensured i n health centres (e.g. privacy during be given to marginalized women who are divorcees, abandoned, single, widowed, consultation, availability of waiting room, unwed mothers and women with HIVIAIDS. drinking water facility) Better reproductive health services( for delivery, availability of gynecologist at least-. 'Cultural activities Women should have membership, and once a week) provided leadership of social and cultural organizations Health security for adolescent girls( nutritious Women's clubs and cultural activities should food, sexual health) improved be encouraged Men's responsibility i n family planning There should be separate recreational and increased sporting facilities for girls Elderly women, women with HIV/AIDS, women suffering from terminal illnesses such Infrastructure facilities as cancer should get special consideration Women' sexual health and mental health Road, Waterways Arrangements to be made to improve the should receive priority Violence against women should be perceived mobility of women as a public health issue and suitable treatment Security while traveling should be ensured facilities, referral services etc should be Elderly women should be allowed to travel provided free i n public transport; there should be Women who are physically and mentally facilities like ramps etc in public buildings to challenged need special consideration allow access to those who are physically challenged Housing (Please refer Annexure 10 for sector wise Ensure that women have ownership of house. indicators for gender equality in planning under Women's needs should be incorporated while the general category) preparing the plan for a house

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Gender Planning, Budgetingand Auditing Manual (Draft) 2006

Chapter Vl l l

THE WOMEN'S COMPONENT PLAN

The Women's Component Plan (WCP) aims to., provide a mechanism for special activities 'to ensure gender equity in the society and within the family. At least 10% of the plan budget i s mandated to be set apart to meet the specific needs of women. Short and long term strategic needs of women can be addressed through the Women's Component Plan (WCP) to ensure the overall empowerment of women. Review of the women component plan in the last decade The review of the last decade of the Women Component Plan (WCP) in the decentralized plan process in Kerala, reveals that basic needs for women have been recognized and met at the local government level. Projects to improve women's income and to enhance the status of women through adoption of non traditional projects have been carried out in some areas. Some examples are transport cooperatives of women, training of women as masons, collectives for repairing of household tools, manufacture of electric equipment, paramedical training, gender education, karate and self defense training, cycling training and sport and cultural competitions. The Women's Component Plan has paved the way for women to enter the small scale industry sector. It has also been possible to bring about improvements i n women's participation i n planning processes at the local level, improve women's organisational ability, personal development and collective action through the activities of the Kudumbashree. Women's participation in economic development activities has also improved significantly. However there have been some constraints and limitations: Most of the activities which attempted to ensure women's participation in mainstream development have been focused mainly on improving the women economic status. No corresponding attention was paid on enhancing the social status of women. Although the primary emphasis was on promoting women's group entrepreneurship and leadership, most o f the projects promoted individual women entrepreneurs. Most of the projects in the agricultural sector provided women with home based work and have therefore resulted in increasing their burden of work and have not been successful in improving income. Industrial units that were set up had limited facilities. Marketing arrangements were also limited Basic amenities like housing, water and sanitation were to be included in the general projects. Yet i n many areas they were included in the Women's Component Plan. Occupational training, Skills training and awareness classes etc were organized for women. However not enough follow up action was evident. Specific problems faced by women like domestic violence, lack of mobility, reproductive health problems, lack of property rights, lack of control over their income etc have not permeated mainstream development discussions. These strategic interests have not been adequately addressed in the Women Component Plan. What were the reasons for this? The lack of baseline data on the status of women in Kerala has been the major limitation. Although plans under the women component were to be formulated on the basis of status study findings, this process suffered from lack of resources and ability to take up such studies locally. The notion of 'status' was also very limited. Thus, the issues concerning women who form half the <e population did not ~ n ~ l it to the development agenda. Women's limited role in the decision making processes, the perspective that development is about visible construction activities and the perception that economic development of women would result in their empowerment etc. were inflicted on the development perspectives and reflected in the lack of progress in the status of women through the Women's Component Plan. Lack of clarity on how to identify needs of women, how to analyse them and how to address them in the local development agenda was also a limitation.

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During to a combination o these factors, f women have not been adequately addressed in local development planning. The overarching objective of the Women C o m p o n e n t Plan is t h e empowerment of women. It aims at overcoming the disparities and discrimination experienced by women over centuries to bring about gender equity. 10% of the budget is set apart for this. Where as the Women Component Plan strives to ensure gender equity, equal participation can be established under the general category projects.
Project development under the W o m e n Component Plan

bring about more equitable gender relations within the family and society. The Women's Component Plan should address f strategic needs o women and thus contribute to the empowerment of women. -- " - Women and men will have better control over their lives when the following conditions exist: o Decision making power Power to articulate needs and to respond o o Power to influence the agenda of governance o Power to negotiate in matters of concern Power to question existing practices and o values
Indicators for the Women Component Plan Productive sector
o

The planning of projects under the Women Component Plan are to be based on status studies of women, gender analysis, time use analysis etc. (Please refer Annexure 2 for details). Using these tools, it would be possible to identify the specific needs of women which cause their secondary status. Through projects formulated under the Women's Component Plan these strategic needs could be addressed. It is the responsibility of the Working Group for women to ensure this. f The processes and stages o plan formulation under the Women's Component Plan are similar to that of the general category projects. The projects taken up under the Women's Component Plan need to ensure the empowerment of women and not focus on improving the existing condition of women. This is a step-by-step process.
What i s the Empowerment of Women

o
o o

Ownership a n d control over productive resource like land, money etc. Knowledge of and control over means and methods of production Opportunities a n d rights t o improve knowledge and skills Recognition and valuing of women's skills Better negotiation ability for the knowledge , skills , effort and time invested Power to intervene in the economy

Service sector

Women's empowerment is a process through which w o m e n acquire t h e knowledge and confidence to make informed decisions on all aspects of their lives, acquire better access to and control over resources and thereby become increasingly self-reliant and aware of their rights. women's empowerment is presently equated to economic improvements alone. If empowered, women can work to transform existing g e n d e r discriminatory laws a n d procedures, transform the power relations in the family and other social institutions, that can help

Better access and support for educational opportunities for girls. o Better health care to address specific needs of infant girls, adolescent girls, women of reproductive age, women aged between 45 a n d 60 a n d elderly w o m e n (life-cycle approach). Equal rights to access health care institutions o a n d services a n d better say in health programmes and policies o Better control over her own body, sexuality and fertility o Improved mental health Access to health care for women who are o mentally or physically disabled o Better mobility for women o Increased access of women to public spaces (Please refer Annexure 10 for detailed indicators)
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Gender Planning, Budgeting and Auditing Manual (Draft) 2006

Chapter IX

The Gender budget is not a separate budget. Gender budgeting is a process to ensure that women's needs and priorities are also taken into account in the budget allocation. It could thus become an effective mechanism to bring about gender equity. Gender Responsive budgeting is a means to realize the commitments of the Government. It is a financial planning method to enable equitable allocation of resources. The gender budgeting process earmarks budgetary resources as per the requirements projected in gender planning. It reflects the budget required and source of funds. The budget should reflect the gender equity commitments in the women's policy.

Gender budgeting is a means to ensure that women receive equal treatment and social justice. Participation of women in the budgeting process can also ensure transparency, accountability and efficiency.
Who should carry out Gender Budgeting The sole responsibility for preparing local government budgets is that of the Finance Standing Committee. The Chairperson of the Standing Committee has t o ensure the coordination of activities.

0bjectives:
Gender budgeting aims at gender equality and equity in resource allocation. Gender budgeting should focus on the needs of marginalized and backward sections of women. Gender budgeting aims to address existing gender inequalities in access to and control over financial resources. Gender budgeting aims at overall empowerment of women economic, social, political and cultural.

The draft plan following the gender budgeting process should be presented in the Grama Sabha which meets for planning projects. The subject groups in the Grama Sabha would then present their recommendations and suggestions to the Working Groups, who in turn would present it at the development seminar for validation and finalization.
Knowledge and Skill requirements for Gender Budgeting The process of gender budgeting requires various skills and technical training Elected women representatives need to be oriented on economic activities of local self government, the budgeting process and the concept of gender budgeting. They should also be aware about roles that are expected of them and their responsibilities The Finance Standing Committee members and sub committee members are to be trained on gender budgeting Officials involved in gender budgeting also need to be trained. Women's participation in Gender Budgeting Women's organizations should be actively involved in the gender budgeting discussions. Focus group discussions are to be conducted to determine the needs and priorities of women by NHG leaders, women elected representatives and representatives of women's organizations. They should determine priorities in resource allocation

a ,D
Accountability Efficiency

Aim of Gender Budgeting Gender budgeting aims at economic and political empowerment of women and should serve t o reflect the social and economic commitments of local governments. Gender budgeting reflects the resource allocation policy. Gender budgeting ensures that resource allocation is favourable to women.

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How to mobilize resources Identify and ensure the availability of resources from the previous year Collect information on the various projects o o Meet and discuss with officials of various . - . departments, financial agencies and with . How to carry out Gender Budgeting social organizations at the local level To begin with, a qualitative and quantitative analysis of the previous year's budget is to be o Ensure use of central and state projects carried out by the Finance Standing Committee. For this budget analysis, the following steps should 7. Integration of resources It is important to ensure the availability of be undertaken. funds from different sources within the same 1. Review of official records - Development period. All funds available should be integrated Report, Project reports, annual budgets, Demand and the financial planning of projects can be Collection Balance, audit report etc should be carried out. For example, if women development reviewed. projects require more resources than the project allocation, it is important to use the own funds of 2. Discussions with women beneficiaries of local government for the purpose. (Please refer the previous years - This i s to obtain their Annexure 10 for indicators on sector wise gender feedback on the previous year's activities and budgeting.) whether the allocated budget was actually spent and what the outcomes, were. Special attention in the gender budgeting Process 3. Identify limitations and inadequacies of the The budget should give attention to the previous year's budget. practical and strategic needs of the marginalized sections of society such as dalits, adivasis, fish 4. Seek information from implementing workers, women belonging to backward and officer - The Standing Committee should analyse minority communities, physically and mentally the reports of the implementing officers regarding disabled , widows, elderly women, single1 any difficulties faced i n the financial unmarried, female headed households, women implementation and review the recommendations with HIV/AIDS and terminal illnesses, adolescent made by them. girls, migrant women etc. Along with the creation of infrastructure in 5. Obtain information from other Standing the general projects, it i s important to allocate Committees - This i s to obtain their resources for the education of girls, the sexual and recommendations and feedback. reproductive health of women and access to (Please refer Annexure 7 for suggested indicators drinking water. for review of the previous year's budget.) Expenses to address practical and strategic needs should be classified separately and 6. Resource Mobilization indicated. The process of gender budgeting has to ensure Funds should be set apart for discussions, seminars, the sources of funding for women development meetings and trainings related to gender planning projects. The sources of funding for Local and for payment of honorarium to resource Governments are Plan funds, Own funds, funds persons facilitating the process. from central government schemes, voluntary services, funds allotted for government schemes, Preparation of the draft Gender Budget The draft budget is to be prepared based on services of subject experts and services of the beneficiaries. Timely awailability of resource the parameters specified and available budgets should be ensured and potential resource also taking i n t o account the recommendations identified. emerging from the discussions and consultations. as well as resource requirements to meet the practical and strategic needs of women. The recommendations by this group should be incorporated by the Finance Standing committee.
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Following the preparation of a draft budget, it is Funds should also be set apart to meet time submitted to the Panchayat committee. A and labour invested in the process discussion is then held with representatives of women organizations, representatives of CDS, Services Sector ADS, representatives from IUGOs, academicians, Funds should be set apart for : stakeholders and the budget is finalized after - * human resource training of dalit, adivasi, fisher folk and poor and other marginalized incorporation of their feedback and suggestions... sections of the society The finalized budget is then presented at the Separate facilities for girls to be made available panchayat committee meeting for approval. The in educational institutions. approved budget is submitted for the further Basic facilities for women in primary health approval of the District Planning Committee (DPC), centres and hospitals officials, Audit Department etc. better access t o sexual and reproductive health services Sector wise indicators for Gender Budgeting to make available essential medicines for Productive Sector women and children Funds should be set apart for : the improved access to health services of income generating activities for women marginalized women technical training for women to use various projects to provide recreational, health and tools and implements nutrition facilities for elderly women restructuring traditional occupations that projects to address issues on violence against women are engaged in and to enhance skills, women to provide support services. Skill training for w o m e n for productive Gender Budgeting i n t h e Women's activities Networks to establish backward and forward Component Plan A t least 10% o f the budget should be linkages and to establish marketing networks earmarked before planning general projects for products manufactured A realistic budget should be set apart for women to buy agricultural land, lease land, women's integrated development and avail subsidized loan facilities and purchase empowerment projects agricultural tools entrepreneurship training, skill training and (Please refer Annexure 70 for indicators for gender budgeting in the women component plan). technical training basic facilities in work places

Gender Planning, Budgeting and Auditing Manual (Draft) 2006

Chapter X

'

Gender auditing i s not only the process of .. Who should carry out the gender audit? reviewing financial figures, but also a criticaSl- The gender audit should be carried out by the analysis of the systems and processes of local ~resildent the Working Group for wohen, of government. Gender auditing implies auditing the President of Standing Committee for income and expenditure of local governments development, Implementation officers of from a gender perspective and also analyzing the Social Welfare, Agriculture, Health and development process including the process of Education, Women representatives of dalits, legislation, guidelines, taxes and social adivasi, backward and minority communities, development projects. Gender auditing is based the CDS and ADS representatives (4 persons), o n the understanding that policies have a women elected representatives and Key differential impact on men and women. The Resource Persons (5 persons). recognition of the different roles performed by womhn and men and their responsibilities and thb Skills and Training needs to conduct gender different roles of marginalized women form the auditing basis for such an analysis. The conduct of the gender audit requires training in methodology and tools for gender Social Audit and Gender Audit The objective o f Gender auditing i s t o analysis. (Please refer handbook for detailed integrate a women's perspective to the process of description of tools). The Gender Audit team should receive skill planning, implementation, monitoring and evaluation in local government. The gender audit training for at least 3-4 days. The training should is one aspect of the social audit. 'The social audit cover methodology, processes, tools and indicators. is a process to analyse and evaluate the progress of local governments in realizing the social Sector wise indicators of Gender Auditing development commitments. The social audit Productive sector evaluates social, economic, environmental H o w many projects were exclusively for benefits and inadequacies. The gender audit is women (under both the general category and carried out to create a space for women, who women component plan)? constitute half the population, to voice their D i d women participate actively i n concerns, suggestions and opinions within the implementing projects? broader social audit process. A gender audit is able D i d the project result in better income to assess the differential impact of projects and earning capacity, skills, expertise, policies on women and men. The gender audit organizational skills, entrepreneurship, also assesses the progress attained in realizing the negotiation skills etc for women? objectives of gender equality and equity. Did women get equal pay for equal work? Was the time spent by women taken into When i s the Gender Audit to be carried out account? Auditing should be carried out as and when Have women been able to take up non each project is completed. A copy of the gender conventional and new areas of work. If yes, audit report should be submitted to the auditing please list them? team and presented t o the administrative Was i t possible to create sustainable committee. A project should be deemed to be livelihoods for women through provision of closed only on completion of the gender audit. A adequate support for production, enterprise, gender audit of all policy, programmes and marketing, knowledge, skills, technology projects should be carried out in the month of transfer, utilization of basic facilities and September. The report should also refer to the betterment of income and earning potential? findings of previous gender audits. 40
Gender Planning, Budgeting and Auditing Manual (Draft) 2006

- -

Service sector D i d projects enable better access t o opportunities in the education sector for women especially from dalit, adivasi and other backward classes. Please indicate resource -. . ' utilization for this purpose? Did projects result in the provision of basic facilities for girls in educational institutions (e.g. water, sanitation, hygiene and facilities for disposal of sanitary napkins)? Did projects include support activities to enable better access to vocational, technical and professional education for girls? Were there projects to improve access to sexual and reproductive health care services for girls? If yes please indicate resource utilization for the purpose What is the resource utilization to create basic facilities in health institutions for women and girls?Are the basic facilities adequate? For example, has the number of women with HIV/AIDS increased or decreased? Has it been possible to prevent/decrease the number of women committing suicide? Has it been possible to reduce maternal mortality rates? Is the malefemale ratio in the 0-6 age category favorable to females? Did projects cater to the nutrition, sexual health needs of adolescent girls? How many girls benefited from the project and what is the resource utilization for this purpose? How many family planning / sterilization activities for men were conducted? Please review how many women and men underwent sterilization in the previous plan year Were there projects to prevent violence against women? Has the violence against women declined? How many cases were registered before the 'Jagrata Samitis'? What were the interventions? What support activities were initiated to enable women to better control their lives? What are the support services for that? H o w many women were given housing facilities? How many women are the registered and legal owners of the houses thus provided? What are the basic facilities provided in the house (e.g. low cost sanitation, smokeless cooking stoves etc)?Did women participate in the plan and design of the structure?

Were there projects for continuous availability of water?Were these projects able to address women's health problems and reduce their burden in collection of watcrf What cultural activities were undertaken for women? What was the resource utilization for this purpose and how many women benefited? Is gender disaggregated data available for education, sex ratio, health, occupation etc. Has any space/ forum been developed for women to gather, organize activities? HOW many women utilize these/ have benefited from these? Have there been projects to make available basic services?Have these benefited women? H o w many women have availed these benefits?What are the types of basic services / facilities made available? (Please refer Annexure 10 for indicators)
How to conduct a Gender Auditing of the Women Component Plan? The various aspects of women's empowerment are to be analysed as part of gender auditing of women component plan.

Key indicators of women's empowerment Women's participation i n the planning structures and processes Capacity building of women Prevention of violence against women Better mobility for women Better self esteem and confidence Key indicators of progress achieved in the status of women
Better freedom for women Better access to and control over resources Better social status Better empowerment

Gender Planning, Budgeting and Auditing Manual (Draft) 2006

Gender Auditing Methodology

Levels Description Review of documents
- Women's policy - Women status study

Methodological strategies

1. Policy

Women's policy Quantitative analysis of local government projects

rep'ort Guidelines - Development document - Development report - Annual project documents

-

Content analysis Focus group discussions with Sector experts, elected representatives, Secretary, Working Croup members

2. Plan

In depth case studies of the projects

- Number of projects for

gender equality - Number of projects for women's empowerment

Analyse and review sector wise resource allocation; related documents and project documents Focus group discussions with beneficiaries, implementing officers and field visits Carry out gendered costbenefit analysis
- Observation
FOCUS Croup Discussions with members of Crama Sabha, Working Croup members and elected representatives - Review records and cross checking - Check attendance books and reports

3 . Institutional
level

Whether the institution is women friendly, number of women and men in each institution, vacancies and process of filling up vacancies etc. Quantitative and qualitative analysis of the following local government structures: 1 . Crama SabhalWard Sabha 2. Working Groups 3. Standing Committee (Administrative Cornm ittee)

- Projects for Poverty

alleviation - Project, for sustainable livelihoods - Health - Small scale industry
- Whether institutions

Structural level

provide basic facilities for women? - Whether there is a women friendly atmosphere? - Whether there i s anti sexual harassment committees? - Whether personnelare aware of innovative projects for gender equality? - The basis for appointment, promotion, transfer etc. Participation, interventions, role of women in discussions and in decision making (Governingbodies)

4. Process level

Analysis of all decentralization processes - Planning - Implementation Monitoring - Evaluation

Observation, Minutes book of meetings and focus group discussions

- Process documentation

and analysis.
- Interviews with Covern-

ing body members

- Focus Group discussions

with implementing officers - Focus group d~scussions with monitoring committee members

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Gender Planning, Budgeting and Auditing Manual (Draft) 2006

Women's empowerment frame work Welfare

Access

. .

Mobilisation

Control

C C

More equality

More empowerment

The various inadequacies i n resource allocation can be addressed better i f equal access to local government resources i s ensured through a women friendly policy frameworlc. Guidelines and suggestions for women's development in the production, services and infrastructure sectors should be provided. The report should also contain: Suggestions for appropriate policies, strategies, models and activities for gender mainstreaming in local government Suggestions for planning and project formulation to address and prioritize the practical and strategic needs of women who are disadvantaged and marginalized Capacity building activities for gender mainstreaming for elected representatives and officials.
Presenting the gender audit report The draft gender audit report should be submitted to the administrative committee and then for further discussion to the Grama Sabha. Suggestions should be incorporated and a final version of the report should be prepared for submission t o the Panchayat administrative committee. The Right to lnfhrmation Act of the Government of India emphasizes the rights of people t o access information related to administrative / government processes. In this context, it is important to make available a copy of the gender audit report to the public. This is also necessary for the transparency and accountability of local governments.

(Please refer Annexure 8 for indicators to be used by the Technical Advisory Committee for evaluation of women's empowerment and Annexure 9 for indicators to measure the condition and position of women)
Gender Audit report and recommendations What the gender audit report should contain?

The gender audit report should consist of two parts. The first part reports the analysis of policies and projects. The report should also refer to the outcome of each projects. The report should analyse the impacts - positive and negative - on women and men. Some policies or programmes would have affected the position of men and women indirectly. Such findings should be summarized. The second part of the report would consist of recommendations for the future. The report should outline approaches, strategies and suggestions to enhance gender equality and equity at all levels- technical, policy and socio cultural.

Policy level

Sociocultural level

Gender Planning, Budgeting and Auditing Manual (Draft) 2006

Chapter XI

ROLES AND RESPONSIBILITIES OF

I t is important to hold a monthly meeting between -2. the implementing officers and the ~ a n c h a ~ a t committee to ensure proper coordination, smooth functioning and efficiency. Implementing officers should discuss any issues to be resolved in these meetings. A suggestion box should be made available 3. in the panchayat office and in various institutions of local government. All suggestions should be considered and recorded and action taken on each suggestion should be reported. The 'Karakulam' 4. model' of responsive governance could be followed, where a monthly meeting of all officials is held to review and plan action. 5. An implementing officer should be designated to coordinate the process o f gender 6. mainstreaming. (e.g. the Women Development Officer). The implementing officers should be 7. responsible for gender mainstreaming in the projects under all sectors. As a case in point, it is 8. possible for the implementing officer to implement the following to ensure gender mainstreaming in agriculture related projects: Maintain gender disaggregated data on 9. women and men agricultural workers (farmers, agricultural labourers, those engaged in agriculture related occupations) Technical support to provide women farmers 10. with land and agricultural implements Training programmes to be organized for 11. women farmers Dissemination of information with regard to 12. the rights, services and opportunities 13. potentially available to women in all sectors Ensure that women benefit from project interventions and outcomes - both i n quantitative and qualitative terms Take initiative to ensure gender equality and equity in all projects. The role of implementing officers i n resolving gender issues i n Governance 1. Develop a policy favorable to women with a gender, development and empowerment perspective 44

~MPLEMENTINC OFFICERS

Ensure active and equal participation of women in all processes and structures related to implementation in both qualitative and quantitative terms; especially ensure the participation of women from dalitladivasil backward communities Standing Committees, Working Groups and Expert Committees should have equal representation and decision making for women Improve nature and quality of participation of women through orientation and motivation sessions The active involvement of women should be ensured while making crucial decisions Meetings should be held at timings convenient to women Women should be given opportunities to be exposed to administrative procedures. Ensure that women representatives, women officials, women who come for services are not subject to gender discrimination and any form of sexual harassment Create anabling environment for women's mobility so that women have a sense of security Conduct capacity building programmes for women on administration Designate a women implementation officer to coordinate women development projects Women should receive training in accounting, management etc Create a resource pool of women social workerlto assist and intervene in the planning processes in grama sabhas, development seminars, Jagrata Samiti's etc. They should receive adequate capacity building to equip them to contribute effectively to these processes. This resource pool should have representation from women belonging to dalit, adivasi and backward communities. 14. Gender training should be regularly organized to support all processes relating to pla~ning, implementation and monitoring.

Gender planning, Budgeting and Auditing Manual (Draft) 2006

Chapter XI1 SOME PROJECT IDEAS AND SUGGESTIONS

reference to their occupation Introduction Financial support may be provided for the In the last ten years of decentralized planning; establishment of biogas plants. there were a very few sustainable projects for In this manner, addressing the practical needs women which were included in the women component plan; however even the 10% funds of women would eventually lead to addressing allocated for the women's component plan was their strategic needs as well. not fully utilized. There were hardly any projects Agricultural sector for women under the general category. Projects implemented for women did not As a large number of women still ate out a living prove to be sustainable or economically gainful, from agriculture, this skill should be enhanced. Projects in the agricultural sector should lead especially the small scale industrial enterprises. to food security. Most projects reviewed went into loss or Give priority to women who do not own land stagnation. There were various contributory and are interested in agricultural activities. factors such as: Help them to lease land or buy land. 1. Project formulation was not based on need Ensure women's participation in farmers' identification committees and in 'Paadasekhara Samitis' 2 . Projects were not implemented with women's (paddy land committees), Coconut farmer's participation and initiative committees etc. 3. Women beneficiaries d i d n o t receive Provide access to new methods of agriculture, adequate skill training and development manure and seeds through agencies like the 4. Women beneficiaries did not have adequate Agriculture Information Centre, Agricultural technical expertise i n quality checks, universities and their sub centers. packaging and marketing of products Make availabe appropriate impliments/tools 5. lnadequate backward and forward linkages like tractor, tillers etc on nominal rent. Women 6. lnadequate resource allocation should also be trained in their operation and 7. Networking activities for marketing and use obtaining of raw materials was inadequate. Make available unused land for women Besides the above, there were area specific farming group on lease for at least five years. reasons as well. Organic farming should be promoted and so This chapter provides project options for also the use of vermi compost, bio manure, implementation under the general category and bio pesticides. A separate unit to produce the women's component plan. these may be set up. It is important to keep in mind that addressing The three tier system of local government practical needs would lead to the larger strategic could take up collection and marketing of needs. Therefore emphasis should be on strategic paddy needs. As a case in point, cattle rearing, although Local governments could provide vehicles for an individual beneficiary project may lead to transportation of produce o n lease or individual beneficiaries forming an informal group affordable rent. to market dairy products. This would considerably Women farmers' specific needs should to be improve their income earning potential. addressed- and appropriate clothing, tools Women's participation in dairy farmers' and technical trainings to be provided. committee, M i l k society etc should be ensured. Meetings should be conducted at Fisheries sector timings convenient to women Women i n the fisheries sector participate Women should have opportunities to gain mainly in marketing and processing activities and new expertise, information and skills with projects should be formulated in these areas Gender Planning, Budgeting and Auditing Manual (Draft) 2006
45

1
1;
I

1,
:

I
I'

1I
I

1'

Vehicles should be provided for women vendors to travel from the landing centers to the market Women roadside fish vendors should be provided space to sit. They should also have access to basic water and sanitation facilities. Promote ornamental fisheries Set up marketing booths for women Occupational diseases associated with the sector are to be identified and appropriate preventive measures are to be taken Women vendors may be provided mopeds Working conditions in prawns processing units should be improved Initiate studies on occupation related diseases and hazards in the fisheries sector
Industries sector Support to women in the industrial sector could include : Work sheds for small scale industrial units with basic facilities including creche for children Training programmes in radio assembling, electronic choke manufacturing, mixie repair, mobile phone, cycle, repair car repairing and maintenance Training women who have passed out from lTCs and ITl's in auto rickshaw, tiller and tractor maintenance Transport provision to reach products manufactured by women to the markets Lessons in driving tractors and tillers and strengthening women's participation i n agriculture Technical training for women to implement housing, water supply programmes , energy conservation programmes (solar, biogas) Housing Small consideration can make housing more women friendly. For example: Houses constructed under Panchayat schemes should include smokeless stoves, water supply, rain water harvesting mechanisms and solid waste disposal facilities; it should be ensured that the women are given ownership of the house. Collective housing schemes for single women, for women who are divorced, aged and destitute; common facilities can be provided

and security ensured Construction of toilets in public places and work places. Panchayat offices, health centres, schools and markets should have toilet complexes, sanitary napkin disposal units, room to change and facilities for women to breastfeed. Water supply should be ensured. Buildings for public use such as Anganwadis, Primary health centers etc should not be constructed in remote and inaccessible areas. Transport facilities should also be arranged.
Employment exchange This can facilitate women's access to work and other assistance if : A database of those who are technically qualified could be compiled at the panchayat level and a directory can be created. this can be used as a resource base for a 'labour bank'. The contact details of women who migrate outside the state and to other countries to work in the fisheries sector and as domestic helps is maintained. The names and addresses of contractors/middlemen who offer such employment and employers as may be applicable as per existing laws should also be maintained. Similarly local governments should also maintain the contact details of women workers who migrate into the Panchayat. Awareness on labour rights is provided and employment of minors should be strictly monitoredlprevented. Self Help Groups and Micro enterprises Sustaining women's micro enterprises will include: Follow up training for women SHG members in employable skills Leadership training for women SHG members Projects to develop forward and backward linkages and for maintenance of workplace, storage of raw materials and products could be developed. Training in quality, packaging and marketing at the villagel Block / District. Health Improved health service may include: Projects for cultivation of medicinal plants and herbal preparations and link it to Ayurvedic hospitals

.'I

46

Gender Planning, Budgeting and Auditing Manual (Draft) 2006

Health security initiatives- doctors at the cashew etc. primary health centre should conduct Skill training and gender sensitization training periodic inspections in factories etc to monitor for JPHNs and JHls. They can be the first health and safetjl standards and provide contact points to identify gender specific awareness programmes issues. Facilities for privacy for women in health - Education centres; toilets, water supply, waiting rooms Education encompasses a wide range of subjects and environmental sanitation projects could and facilities can be enhanced: be taken up Life skills education for adolescent girls and Periodic medical camps in dalitladivasi boys. The syllabus should include sex colonies education, gender relations and social Provide mobile medical clinics in the remote conditioning, personality development, adivasi areas; ensure services of a leadership training, social responsibilities etc. gynecologist; projects could promote Ensure girl friendly toilets, drinking water traditional medicine as well. facilities, sanitary napkins disposal facility etc Support services and referral systems for A gender desk should be set up in every women and children affected by HIVIAIDS school. There should be programmes to and facilities for community care, such a care s review and monitor gender discrimination, centres and short stay homes. exploitation etc and to find solutions to this. Women could be trained as paramedics to Counseling for girls and boys, joint activities provide door to door monitoring of diabetes, for girls and boys in literary, music, theatre, blood pressure. movie clubs etc should be initiated. Day care centre for recreation and health care Special coaching in English and mathematics for the aged for dalit and adivasi girls Medicine bank schemes for women belonging Special assisted learning programmes for to marginalized groups capability development of children from dalit and adivasi communities in higher education Women's Component Plan Economic support for dalit and adivasi girl Several projects can be developed under the WCP students such a : s Career guidance classes Conducting women's status studies Educational facilities for children of women Organizing women development with HIVIAIDS and children with HIVIAIDS committee, Jagrata Samitis. Short stay homes Economic support to children of sex workers, for women victims of violence widows, physically or mentally disabled Counseling and legal support projects could women also be formulated School projects could be linked with local Creating a database of technically qualified government processes, so that children women and facilitating employment develop interest in governance processes. opportunities and skill development training; labour bank Cultural Establishing women's resource centre for This is an area which importance should be given through : studies, recreation, reading room, career guidance, swimming and cycling training. Media training for women from marginalised and poor communities Projects to detect and treat UTls and RTls in Training in theatre, movie making, yoga, primary health centre, treatment o f karate, swimming for women occupation-related diseases, health education Promotion of women's studies centres to take classes on women's body, sexual and reproductive health. up local cultural history studies, publication, cultural activities etc. Health care programmes for women in the Sports clubs to be set up for womenlgirls unorgansed sector, who are engaged in coir, Gender Planning, Budgeting and Auditing Manual (Draft) 2006
47

Study trips/ literary camps, theatre camps for women Some M o d e l projects executed by local governments Thrissur District Panchayat- Women transport cooperative and women masons cooperative Nenmanikkara Thrissur- Women purchased 3 acres of land for Group farming with the help of a bank loan Kodakara Block Panchayat and Thaikattuseri Ayurveda Medical College collaborated to organize a health care project for pregnant women (Janani) Karate training for girls in Balusseri Panchayat

: . -

Project implemented by Chakkupallath in ldukki with the support of UNDP and Government of India through Women In Agriculture(W1A) i n the agriculture and tourism sector Women farmers committees called Harita Mitram in Kollayil, Trivandrum district Coconut processing i n Perambra Block Panchayat (subiksha project) Jackfruit products by Mupliyam panchayat in Kodakara Block Panchayat by women Cluster mechanisms to manufacture a range of products in Kanjikuzhi block panchayat Women resource centre in Alappad Panchayat.

Annexure 1

SECONDARY DATA COLLECTION - GUIDELINES

Census : Population, literacy, mortality, birth rate, work participation, main occupation, landless labourers, land ownership, homeless etc. National Family Health Survey: Morbidity rates, gender disaggregated population data, number of persons using family planning techniques, age of sterilization, women headed households etc Socio economic survey: landless, homeless, basic facilities etc. Police station: violence in public places, domestic violence, rape cases, caste based violence, other forms of sexual harassment such as obscene comments and actions, dowry related deaths, unnatural deaths etc. School records: School enrolment and dropout rate for both girls and boys etc. Primary health centres: Number of women patients, type of disease, availability of medicines, type of delivery and male female sex ratio etc.

Gender Planning, Budgeting and Auditing Manual (Draft) 2006

L.

Annexure 2

PRIMARYDATA COLLECTION
Tools
Literature review

Objectives
Compile available material on specific subjects. This will provide a background on the subject. It will also be possible t o obtain background information, gender disaggregated data that would be useful for the women component plan and the gender analysis I t would be possible t o obtain socio economic details . The position and condition of women can also be understood. This also makes i t possible to critically interpret information obtained from other sources. This is a method to seek detailed information on a specific su bjectlproject from a selected group of persons. This would bring out the assumptions, approaches, values etc. It would help to understand the group's perspective on change / expectations and whether it is acceptable to them. This is an analysis of trends over a specified period of time. This may be achieved through an FGD.
.

Methodology
Material to be compiled from various sources. This will provide information on gender disaggregated data and also various tools and methods.

House visits, Interviews

Interview is based on a prepared schedule. One can obtain only limited information.lnterviews should be held with a proportionate and representative sample. The limitation is that the information obtained from the limited interviews are generalized.

FocusGroup Discussion (FGD)

An FGD can be conducted with the help of a few subject experts and a few other participants .This process helps to obtain a lot of information in a cost effective and within a short time period. The participants should be of the same category. Women and men should have separate focus groups. This will enable a gender perspective. The focus group discussion should be limited to a maximum time of 1.5 hours.

Trend Analysis

This is a method to collect information on changes that have occurred during the 2-3 years following the implementation of an initiative or project. E.g. womens work participation, household burdens, food security, Availability of water etc. This would provide an understanding of the different roles/tasks carried out by women and men, the time spent on each task, leisure time available. This would also help to assess the extent of men's participation in household tasks.

Time use analysis

Time use analysis i s to understand time spent on different tasks by an individual in the course ofa typical day. This may be carried out as part of the FGD.

Participatory resource mapping1 Social mapping

Thisenablesanunderstanding
of the physical conditions of an area. There is emphasis on socio economic aspects and the perspective o f varied groups. Social

Mapping can be carried out on the floor/ on paper. If on the floor using twigs, stones, leaves etc to draw a map of the village/ward, area and to represent houses, public facilities, water resources, institutions. It can also indicate where poor people, landless people, single women stay and what resources/facilitiesare accessible/

50

Gender Planning, Budgeting and Auditing Manual (Draft) 2006

mapping allows a temporal and spatial analysis of resources.

available to them. If drawn on paper different colour can be used to represent these. Social mapping is also of use to make plans (eg. roads, reservoirs, location of taps), to understand who has access to what resources. The first step is to identify relevant local government institutions. The names of these institutions are written in differently sized cards. The more important the institution the bigger the size of the card. Different colour can be used to indicate different types of institutions , e.g. government institutions, social organizations etc. The society/community is represented by a circle drawn on paper or floor. Then the cards are arranged around the circle according to their importance. The closer the institution is to the centre (i.e. the circle), the closer i t i s to the people. This would help to understand the role of these institutions, whether they respond to the needs of people, levels of interface and how effective they would prove as implementing agencies. This is the most effective and simple method to understand physical conditions/ facilities , attitudes, visible changes from the implementation of a project etc. Case study helps to understand the perspective, experiences and solutions t o problems/issues encountered from the point of view of individuals/ families/communities. It uses purposive sampling to identify respondents. Interviews related to case study can extend up to 3 hours. The workshop should be conducted following all other studies at the village level. This could be also conducted during a special Grama Sabha . This is a forum to share the findings from the studies, exchange information and ideas and obtain a deeper understanding of issues involved and to collectively plan the way forward. Stakeholders include direct and indirect beneficiaries, government officials, and representatives from social organizations. Workshops should bringout an action plan on the way forward.

Venn Diagrams

[his is a method to understand the interface between institutions and organizationswith the people in a specified area. These help to identify the following:- the responsibilities o f various institutions , their importance, levels of interaction, potential for implementation of projects, potential responsibilities/tasks that could be carried out
-

Direct observation

The objective is to understand the condition of institutions in a specified area

Case study

This i s a method t o obtain information / details pertaining to a particular issue. This helps to highlight and emphasise the issues pertaining to individuals/families/ communities This is to discuss the findings from group discussions and other methods and discuss related issues and recommendations with those who have a director indirect interest in the matter. This helps to arrive at a consensus o n conflicting suggestion/opinions and t o inculcate a sense o f ownership among the stakeholders. Women status studies help to identify the different kinds of discrimination/ exploitation experienced by women in each sector and o n this basis t o understand sector specific needs of women. This helps t o anlayse the differential impacts of particular situations/contexts on women and men.

Stakeholder workshop

Women status studies

Indicators should be used to understand the position of women including women belonging to marginalizedl backward communities' vis-a-vis men. (Please refer handbook for details on methodology used for women status studies).

CenderAnalysis

The roles and responsibilities of women and men, their participation and involvement, 'Iccess and control over resources in relation to institutions, structures and processes can be analysed.

Gender Planning, Budgeting and Auditing Manual (Draft) i

Annexure 3

STRUCTURE

FOR

PROJECT PREPARATION
Activities '1. Number of beneficiaries ( how many men, how many women and what grbup they belong to) 2 . Process that led to project formulation should be described ( needs articulated by women, participation, review process etc) 3. Technical skills and physical resources to be employed for each activity to be mentioned Description of activities at each stage of project implementation Activity calendar The activity calendar should contain the time line for all project activities from start to end. Organisation Who will undertake coordination, Who are the agencies involved and their roles and responsibilities should be mentioned Mechanisms for implementation, how this WIII be done, structures, division of responsibilities should be specified. Women's participation should be specified and participation of women who are from dalit, adivasi, backward and minority communities should be highlighted. The composition and method of working of the beneficiary committee(which has between 5- 15 members) should be specified Ensure 50% representation of women; ensure representation of women from backward1 minority communities Womens groupslorganizations should be entrusted with some projects in the general category as well (Housing, sanitation, shopping complex construction etc) Financial analysis Capital to be invested, resources required at each stage and what percentage allocated from plan funds should be mentioned. Fund flow should be specified. ~ n n u aexpenditure projection. l Productive sector projects for women should

1. Introduction 1. Need for project: The following seven components should necessarily be a part of the introduction. The project formulation should describe what problemlissue is being addressed, where and why. 2. Background: This section should address the context of the project. 3. Data: This section should state facts and figures in relation to the project. Women status study reports can be referred to for data. 4. This section should mention whether the need emerged from the Grama Sabhal Development plan 5. If the project is a follow up or second phase of an existing project, an analysis of the benefits and limitations of the project should also be provided. 6. How the development problems sought to be addressed affect women specifically should be discussed. 7. The sub sector should be mentioned

2. Objectives 1. List objectives 2. In the specific objectives (for general category projects) mention how the project ensures gender equality 3. In the case of projects for employment, indicate how many days of work women will obtain 4. Projects aimed at income generation for women should mention how they reduce women's physical burden. It should also take into account time and effort invested by women.
3. Beneficiaries1 Location 1. Criteria for selection of beneficiaries1location 2. In the case of productive sector projects, existing skills and abilities of beneficiaries should be mentioned 3. Selection of women as beneficiaries should be prioritized both in general and individual entrepreneurship projects.

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Gender Planning, Budgeting and Auditing Manual (Draft) 2006

also take into account the "invisible" work done by women. Ensure equal pay for equal work for women and men. Analysis of benefits and limitations What would be the increase in income/ production as a result of the project Estimate the employment opportunities as a result of the project; how many temporary days of work? H o w many permanent employment opportunities? It should be specified if the employment opportunities would decrease How far would it improve quality of services How will it help enhance the status of women? W i l l women have increased access to employment opportunities?Would they gain increased access to and control over

resources? W i l l this result i n reducing discrimination against women? What would be environmental implications of the project?Guidelines to control pollution, effluents, soil erosion and resource exploitation Ensure that sub plansand Women Component Plan help to enhance the status of dalitladvisai women. Monitoring Who would be involved in monitoring and how often? At which stages would monitoring be carried out? Composition of monitoring committee to be specified and representation and participation of women to be specified. What are essential indicators for monitoring?

Gender Planning, Budgeting and Auditing Manual (Draft) 2006

Annexure 4

CHECKLISTR TECHNICAL F O REVIEW F PROJECTS O

Productive sector Are there at least 50% women members in the farmers group? Have women received training in the use of agricultural tools/machinery purchased through the group? Is women's empowerment one of the specific objectives? Do women constitute at least 50% of the membership in the monitoring committee? Does i t ensure that women agricultural labourers obtain at least 150 working days? Is there at least 50% women's participation in study tours and camps organized as part of the project? Are the mechanization be such that women are not sidelined and do not lose working days; was adequate care taken to ensure that proper training in the use of equipments is given to women? Does the projects in the agriculture and allied sector make use of the skills and expertise of women? Does the projects ensure transportation/ accessibility for women agricultural labourers to place of work( as women usually undertake hours of walking to reach the work place)? Does it ensure that work places have basic facilities like toilets with privacy, access to water etc.? Industries sector How many projects for women? Are there basic facilities like toilets, drinking water, changing room for women (both beneficiaries and women workers) i n industrial units to be constructed?
.

In case of enterprises by women, is there specification on access to raw materials, marketing etc? Is there provision for reduction of women's physical burden and improvement of production efficiency? Is regular skill training ensured? Are there measures to control occupation related diseases? Is access to transportation ensured?

Infrastructure sector Are they accessible to beneficiaries? Do they envisage basic facilities such as toilets and drinking water? For facilities such as day care, does it ensure that beneficiaries have transport facilities, food and recreation. Does it ensure equal pay for equal work for women and men construction labourers? Services sector Are women/ women's groups involved in housing projects? Has the drinking water supply projects take into account women's views on situation and location of schemeltaps etc? In health projects, has the access to health care services according to timings and locations convenient to women?

Note: This checklist is not an exhaustive one. Project and location specific indicators should be developed further. Technical advisory committee should ensure that indicators for gender equality and equity are in place.

~ender planning, Budgeting and Auditing Manual (Draft) 2006

Annexure 5

~NDICATORSFOR
Is resource allocation adequate? 2. Is the time use efficient ? 3. Is there adequate expertise? 4. Is there a need for follow up training? 5. Are the technical facilities adequate? 6.. What has been the criteria for the selection of women beneficiaries? 7. Were individual beneficiaries selected according to established criteria? 8. Quality of. works (e.g. Strong and clean houses, good drinking water, nutritious food, water efficient toilets with good drainage, energy efficient fuel use) 9. For each project,is gender disaggregated data provided on how many women/men were main beneficiaries and how many women/ men were indirect beneficiaries?. 10. How many women are able to use means of production (land, machinery etc.) efficiently 11. How many women have started their own enterprises and how many of these are functioning successfully? 12. Is the compensation for women workers proportionate to their time and effort? 13. Are women better equipped with better control over land/ house and improved negotiation /transaction skills? 14. Are women better equipped with knowledge, information and skills as a result of the project 15. H o w many women ( especially women beneficiaries selected on the basis of established criteria) have gained better access to the following: health care services for sexual and

MONITORING
reproductive health (UTlsIRTls) medical care for women victims of violence counseling care recourse to complaints in police station

I.

16. Gender disaggregated data to be made available in the health sector ( birth rate, death rate, mortality, maternal mortality rate, unnatural deaths, death of infant girls, male-female ratio, forced abortions, sterilization of women. men, women/men w i t h t e r m i n a l /fatal illnesses, mental disorders etc) . Reasons should also be documented and the information should be updated periodically. 1 7. How many adolescents have access to life skills training? How is the quality measured (have they become more involved i n social activities, cultural and sports activities, do girls have better mobility, complaints registered with Jagrata samitis etc?) 18. H o w many girls/ women have access to technical education? 19. Has the drop out 'rate among girls (dalit! adivasil Scheduled Caste/Scheduled Tribe etc)come down? 20. Are there increased presence of women in public institutions such as libraries/play grounds etc? Are there women representation in cultural committees etc? 21. Are women more actively involved in the activities of social and cultural organizations? Are there more women i n leadership positions?

Gender Planning, Budgeting and Auditing Manual (Draft) 2006

Annexure 6

~NDICATORSFOR

REVIEWOF PROJECTS
How many meetings for need identification and participation of women were held? To what extent was women's participation in planning infrastructure projects ?
Implementation stage Women's participation in meetings with different agencies, in decision making. Involvement of women in individual project processes Evaluation stage How many women benefited from the project With reference to individual beneficiary projects- was i t possible to increase the income of women, reduce work burden etc What about participation of men in work within household? Note: lndicators are not exhaustive and need to be developed according to location and area and project.

Indicators are provided for project review at each. stage of the project
Plan stage Number and participation of women in the women working group (WWG) Number of women (including class/caste representation) in the planning grama sabha Sector wise participation of women Sector wise needs and women's involvement in articulation of the needs Did women articulate strategic needs? Number and participation of women in the Standing Committee Women's role in project formulation Needs identification Women's participation in need identification for women Nature of womens participation in women's status study, gender analysis etc. Did this enable their personal development?

Gender Planning, Budgeting and Auditing Manual (Draft) 2006

'The local governments need to evaluate/review the budget of the previous year from a gender perspective, in both quantitative and qualitative- terms. For quantitative evaluation the following indicators may be utilized.
Sector No of projects Project fund Resource allocation Expenditure Total

Production Services Infrastructure Women component plan Sub Plans Total For qualitative evaluation, the following indicators may be used: Under the general category, what was the resource allocation for projects addressing women? How many women benefited? How many women gained access to land, housing, natural resources (water, forest resources etc)? How many women obtained land? How many women obtained houses? How many women could build up capital? H o w many women gained work days/ employment/access to new work areas? Have projects been able to reduce the work burden of women and the time spent (e.g. how many hours of household work, how much time of work in projects? Nature of work etc) H o w many women have been able to improve their technical skills and expertise? How many women have been able to use the increased skill? In which areas has skill development taken place? H o w far has women's participation and representation increased in institutions and organizations? How many women's organizations were formed? What have been their activities? Has the incidence of violence against women reduced? Have projects encouraged participation of men in household activities?

Gender Planning, Budgeting and Auditing Manual (Draft) 2006

Annexure 8

CHECKLISTREVIEWWOMEN'S TO EMPOWERMENT The technical advisory committee could use the following checklist to assess how far a project can enable the process of women's empowerment. The checklist can help to determine how far women's practical and strategic needs can be addressed. It must be ensured that all interventions must strengthen women's empowerment. This form would help to assess the extent of women's empowerment through each project (Please read carefully before completing the form) Project No Date of Review Project start date Project end date Sector Category (General, WCPITSPISCP) Total budget Project budget Other sources Beneficiaries contribution : Objectives of the project : 1. 2. 3.

Score card to measure women's empowerment

(How to measure the score is explained below)
Practical and Strategic empowerment components

1 Evaluating women's empowerment

1.
2.

3.
4.

5.
6.
7.
8.

9.
10.

Does the project increase womens and mens accessibility to and control over basic facilities? Does the project result in better access to technical skills? Have women's and men's health condition improved? Did the income earning opportunities for women and men increased? Does the project increase opportunities for bettering technical expertise1skillsleducation etc? Have there been any issues in participation of women1 men?What is the solution suggested? Have the project envisaged to foster participation of women and men? Does the project encourage collective initiative? Does the project make it possible to have better accessto and control over resources? Does this address the democratic needs of women and men? ( protection of rights, equal opportunities etc)
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58

Score
Very much Somewhat Empowerment not possible Negatively affects empowerment No information
-

1 1

-3
-4 -5

Is there need for follow up activity? What further information is required? Is there a need for further review prior to approval?

Gender Planning, Budgeting and Auditing Manual (Draft) 2006

& .

Annexure 9

INDICATORS TO MEASURE WOMEN'S POSITION AND CONDITION FOR GENDER AUDITING

The following indicators would enable the qualitative measurement1evaluation of women's condition and position to be carried out as part of gender auditing:

lndicators to assess the condition of women

Have women gained acceptance in decision making on social issues? Have women gained in terms of personal and economic independence, better self confidence etc Has the participation of women increased individually, within the family and within the community? Has women's participation increased at the community level decision making forums? Has economic self reliance enabled women to make decisions on controlling their own income? Have women's organizations or groups been formed? Are women's issues being discussed at the Grama Sabha? Has women's participation in education, training activities etc increased? Has there been better provision of basic facilities for women in public buildings1 places etc

lndicators to assess the 'position' of women

Has the legal awareness of women increased?Are legal decisions favourable to women? Has the incidence of violence against women reduced? Has women's visibility and participation in public forums increased? Do women have an active presence in social, cultural and political activities? Have women gained better control in decision making over their own body, fertility and reproductive health? Has there been reduction in discrimination towards women in institutions? Is there a growing trend towards ensuring representation of women in all decision making process Are issues of gender equality being discussed in the mainstream? Has women's mobility and safety increased? Is there general acceptance of the notion that women too should have independence and authority? Has the WCP enabled the empowerment of women? Is there equal participation in household work?

Annexure 10

GENDER PLANNING,BUDGETING AND AUDITING - SECTORWISE INDICATORS

Planning ~udgeting Auditing

Production Sector 1. Projects should ensure that

Production Sector 1. Resources should be allocated

Production Sector

I . Ensure that women benefited

from the resource allocation (income, skills, knowledge, access to markets, negotiation skills, organization, entrepreneurship, better access to and control over resources)
2. Whether ability to operate and use tools/equipments has increased?

women get owners hip o f land, agricultural tools/ machinery and assets Ensure that women have access to new technologies and receive training in their use
2. Women should have access to and control over public land. For example women's groups should be given priority to take up agriculture, fish rearing etc i n public places

for such projects. There should be sufficient resource allocation to help ane en's groups to buy land, lease land, purchase equipments etc. Regular training should be provided in technical aspects, management and marketing.

2.Budgets should earmark resources to purchase necessary equipments

3. Whether work burden is reduced?

4. Whether production and income has increased? 5. Whether sustained income generation and livelihood improvement has resulted through ensuring backward and forward linkages, collection, storage, marketing, better technical and managerial skills, access to and use of basic facilities and income generation

3. Women engaged in traditional U occupations S ~ O Id have projects that enable modernize , increase income and reduce work burden
4. Projects should be formulated that generate better income, increase technical skills and are non conventional jobs
Services Sector 1. Formulate projects to reduce

3. I n projects that address women in traditional occupations, resources should be allocated for storage of raw materials, storage of products, basic facilities, marketing facilities and technical skill traini ng
4. Budget should coordinate the

Central-State funds and Own funds of the local government

Services Sector 1. Special coaching1 training

Services Sector 1. 1s there increased enrolment

dropout rate of girls, support activities for socio economically backward girl students, ensure transport facilities and improve basic education standards 2. Better opportunities for girls to participate in co curricular activities including literary, art and sports activities

centres should be organized through the PTA for girls belonging to marginalized communities(poor, Dalits,Adivsais, fisher folk and other). Budget should include provision for land and building, basic facilities, snacks, educational material , honorarium for teachers etc

of girls and decreased dropout rates 2.Are there basic facilities for girls in tlons? (water, sanitation etc.) as a result of project? 3. H~~~there been projects to ensure that women and girls from mar inalised communities have etter opportunities in the vocational , technical and professional education sector through better access to su port services like loans, .~nformation, scholarships etc.

Gender Planning, Budgeting and Auditing Manual (Draft) 2006

-~

Health 1. There should be projects to ensure that women's specific health needs are addressed in primary health centres.Basic facilities, reproductive and sexual health, health care for adolescent girls, aged women, women w i t h HIVIAIDS, Diabetes, blood pressure, women with terminal illnesses like cancer, women w i t h mental disabilities etc should be given priority.
2. Family planning projects should ensure responsibility of men.
3. Ensure availability of ynecologists i n primary Eealth centres and child birth facilities, health care for women's diseases and basic facilities.

Health 1. Resources to be allocated for the hiring of temporary personnel to meet specific health needs of women, ensuring basic facilities, facilities for privacy during-consultation, access to medicines, lab facilities etc
2. Resources should be allocated for marginalized women taking into account their specific needs. E.g. mobile medical units in tribal areas, transportation facilities for delivery etc.
3. Ensure services of gynecologist at least once a week. Resources should be allocated to conduct periodic medical camps and check up. Resources should also be allocated for sex education programmes, mental health programmes including prevention of suicides and counseling support for women who havelare experiencing violence.

4. Ensure projects for women's sexual and mental health

5. Ensure that violence against women is also seen as a health. issue

Housing 1. Housing programmes should include women's ownership. Women's views should be incorporated in the planning process and further at all stages of implementation
2. Participation of women in construction activities (e.g. toilets, rainwater harvesting units, smokeless stoves etc)

Health 1. Has there been improvement in the provision of basic facilities in primary health centres? 2. Is there facility in the PHC for treatment of women's diseases/ health related problems 3. How many projects for improved sexual and reproductive health care? What resources were allocated? Has women's health improved? Has it been possible to reduce incidence of sexual and reproduction related diseases?Has it been possible to contain occupation related diseases? 4. Have cases of HIVIAIDS been reported at the PHC 5. Has it been possible to prevent suicides? 6. Has it been possible to prevent maternal and infant deaths? 7. Have there been projects to address nutrition and sexual health requirements of adolescent girls? How many girls were benefited? What was the total cost? Housing 1. How many women were able to get housing based on established criteria
2. Did women participate actively in the planning of housing

Housing I . Resources to be allocated to ensure housing complexes for women who live alone.
2. Resource to be allocated for training women in construction and maintenance of houses, toilets, rainwater harvesting units, smokeless stoves

3. Resources to be allocated for women's skill development training in housing

Cultural 1. Women's participation should be ensured in socio cultural forums and projects should address this
2. Playground for girls only. Training in non traditional

Cultural I . Resources to be prioritized for girls and women to organize clubs, cultural activities etc
2. Scholarships for sports training

Cultural 1. Has the participation and membership of women in sociocultural organizations/activities increased? 2. How many projects formulated for women? How have women benefjted through

Gender Planning, Budgeting and Auditing Manual (Draft) 2006

sports activities

3. Promote women's clubs/ cultural activities

Hygiene and sanitation 1. Equal pay for equal work, reduction ofwork burden and safe working conditions to be ensured for women who articipate i n sanitation/ Eygiene activities.
2. Women's participation and views to be incorporated in planning for water supply schemes.

3. Resources to be allocated for training girls in Karate, swimming, cycling and yoga
Hygiene and sanitation 1. Resources to be allocated for three wheeler training for women working in solid waste disposal, provision of uniforms to permit mobility etc

these projects?

Hygiene and sanitation 1. Have there been projects to ensure drinking water supply 2. Have water supply programmes been able to reduce women's work burden and health conditions? 3. Has the participation of women been ensured? Have women's needs been considered and addressed?

Infrastructure 1. Ensure the participation of women ensured in decision making and planning for construction of infrastructure facilities like roads, bridges, public buildings etc WOMEN COMPONENT PLAN Production sector 1. I t should be ensured that women entrepreneurs are provided training in improved methods o f production, technology, information, marketing support and follow up training. This should improve women's bargaining capacity and ensure improved capital and assets and a place in the economic structure. Services Sector 1. Projects should address support activities to ensure better higher education opportunities for girls.
2. Ensure equal participation of girls and boys in curricular and co curricular activities Further to ensure that girls are able to access libraries etc by adjusting school timings

Production sector 1. Resources should be allocated for the small scale sector to cover training, marketing support and financial support.

Production sector 1. Have women been supported through bettertechnical training, marketing support, better income, bargaining capacity and better quality of products?
2. Has it been possible to reduce work burden in traditional sector?

Services Sector 1. Resources to be allocated for better access to opportunities for girls

2 . Specific needs of girls should be provided for i n the budget, e.g. basic facilities, facilities for studying etc

Services Sector 1. Have girls from marginalized communities benefited? 2. How many girls gained access to higher education opportunities 3 . Have girls been involved in school activities 4. Have girls and boys had equal opportunities in sports, class responsibilities etc.? 5. Is there discrimination against girls in seating arrangements, attendance register etc.

Gender Planning, Budgeting and Auditing Manual (Draft) 2006

Health I . In order to ensure safety for and protection of women, jagrata Samitis should be promoted 2. Programmes to address sexual and mental health, violence against women should be regarded as a health issue 3. Strategic needs of marginalized women to be addressed- RTls, UTls and occupation related diseases to be addressed 4. Projects to ensure sexual and reproductive health care for adolescent girls 5. Plan better health care, physical and mental for women w h o are aged, disabled, living with HIV/AIDS , in sex work 6. Women's resource centre to address women's health needs and issues 7. Projects to promote socio cultural activities led by women, media groups, publications etc.

Health 1. Resources for women's resource centre

2. Resources to be prioritized for marginalized women
3. Building for a women's resource centre to be budgeted for.

Health 1. Have there been projects to address the specific health needs of women? 2. Has the Jagrata Samiti been formed? Does i t function well? 3. Has there been a reduction in women's health problems? 4. Have the needs of adolescent girls been addressed? 5. Have there been efforts to mainstream women's issues? 6. Has a women's resource centre been set? Is it functioning well? 7. Has there been increase in women's initiative in cultural activities? Has there been increase in their membership and participation in socio cultural organisations?Has there been an increase in women's leadership?

Gender Planning, Budgeting and Auditing Manual (Draft) 2006

References
Books Bava Khan, Pareeth l M., Oomman John, Leela Kumari (2001) Report of Study of Women Component ? Plan in Kerala. State lnstitute of Rural Development, Kottarakkara. Bhat Ahalya, JanaagrahaSivasankaran, Building Budgets From Below: Methodology and Tools Developed in Karnataka to Enable Women in Local Government to Design Fiscal Policy : Karnataka Women's Information and Resource Centre, India. Batliwala, Srilatha. 1993 "Empowerment of women in South Asia: Concepts and Practices". FA0 Freedom From Hunger Campaign, New Delhi. Convention on the Elimination of All Forms of Discrimination Against Women (CEDAW) adopted by the UN General Assembly 1979 Erwer Monica. (1998) Development beyond the "status of Womenu-the Kerala model from a gender perspective: Research paper, Goteborg University, Sweden Eapen Mridul, Asoya Thomas 'Gender Budgeting and Decentralised Governance: A Study of Select Gram Panchayaths Plan - Budgets in Trivandrum District. UNDP Eapen and Kodoth (2001) Demystifying the 'High Status' of women in Kerala: An attempt to understand the contradictions in social development. 'Thiruvananthapuram, Centre for Developmental Studies. Fourth World Conference on Women (Beijing) 1995 :Platform for Action Government of Kerala (2001) Census obtained from the official website of the Government of Kerala. Government of Kerala (2001) Economic review: Chapter 11, Gender and development Gulati, Ramalingam and Gulati (1997) Gender Profile, Kerala. WID, Royal Netherlands Embassy, New Delhi Heyzer, Noeleen and Gita Sen (1994). Gender, Economic Growth and Poverty: Market Growth and State Planning in Asia and the Pacific. Kuala Lumpur: Asian and Pacific Development Centre. lnstitute of Social Studies Trust and UMA National Resource centre. 'As We Did It: A Training Manual for Local Governance', 1999. ICRW (2000) Domestic Violence in India: a Summary report of a multi-Site Household Survey. Washington DC, ICRW Jackson Cecile& Pearson Ruth (1998): Feminist visions of Development-gender analysis and policy: Rutledge-London Jagajeevan, N. and Ramakanthan, N. (2000) Gramasabhas - A democratic structure for development planning. Paper presented in lnternational Conference on Democratic Decentralisation State Planning Board. lain Devaki (2005)) 'Value of the local Paper presented at the seminar on gender - sensitive planning, organized by Sakhi, Thiruvananthapuram Kabeer, Naila and Tamya Subrahmanian (1996). Institutions, Relations and Outcomes: Framework and Tools for Gender-Aware Planning. Brighton: IDS Discussion Paper #357. Kabeer, Naila (1994). "Reversed Realities: Gender Hierarchies in Development Thought". London: Verso Kanji Nazneen: Mind the Gap-mainstreaming gender and participation in development: lnternational lnstitute for Environment and development and the lnstitute of development studies, UK K.B. Madan Mohan, 'Grama Sabha', a handbook (in Malayalam), S.D.C. - CapDeck, Trivandrum. Mala Ramanathan,Aleyamma Vijayan et all (2004): Political decentralisation a11i1the Primary health care system :Study jointly by Achutha Menon center for health sciences stuclit~i and Sakhi resource centre for women Manjula B (2000) Voices from the spiral of silence, A case Study of Samatha self help group of Ulloor. Paper presented in lnternational Conference on Democratic Decentralisation, State Planning Board.
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Moser Caroline (2005,) An Introduction to Gender Audit Methodology : Its design and implementation in DFlD Malawi', Overseas Development Institute; UK. Moser Carolyn 0. N. (1993). Gender Planning and Development: Theory, Practice & Training. New York: Routledge. Mies Maria & Vandana Shiva (1993). Ecofeminism. London: ZED Books. Mukhopadadhyay Maitrayee (ED) (2003) Governing for equity; Gender, Citizenship and Governance, KIT publishers, Amsterdam Mukhopadadhyay Maitrayee and Shamim Meer (2004) Creating voice and carving Space, refining governance from a gender perspective; Royal Tropical lnstitute (KIT), Amsterdam, Netherlands Parayil Govindan (Ed) 2000: Kerala-the development experience: Zed Books. Radha S and Choudhary Roy, Bulu (2002) Women in local bodies, KRPLLD, Centre for Development studies, Trivandrum Ramanathaiyar Sundar &Macpherson Stewart (2000) Social development in Kerala- Illusion or reality? Ashgate,USA Razavi, Shahra and Carol Miller (1995). Gender Mainstreaming. A Study of the Efforts by the UNDC the World Bank and the ILO to Institutionalise Gender Issues. Occasional Paper 4, Fourth World Conference on Women, UNRISD, Geneva. [Available through Women, Ink.] Razavi, Shahrashoub and Carol Miller (1995). From WID to GAD: Conceptual Shifts in the Women and Development Discourse. Geneva: United Nations Research lnstitute for Social Development (UNRISD), Occasional Paper No. 1, Fourth World Conference on Women Seema T. N., Kamala T Rajamohana Kumar and Sindhu E (ed.) (2000) People's planning and women's , advancement. The State lnstitute of Language, Kerala State Planning Board Sharp Rhonda, (2003), Budgeting for Equity, July 2003, UNIFEM, New York . Sida studies no.3 (2001) Discussing women's Empowerment-Theory and practice UNRISD (1997) Working towards a more gender equitable macroeconomic agenda (report of Unrisdl cpd workshop 1996) Vijayanand3.M. ' A note on The Kerala Model of Decentralisation: Features, Processes and Lessons', 2004,Kerala state planning board. Vijayan Aleyamma, Sandhya J. (2004) Gender and decentralized planning in Kerala. Study report by Sakhi Women's Resource Centre, Trivandrum Williams Suzanne with Janet Seed and Adelina Mwan (1994). The Oxfam Gender Training Manual. Oxford: Oxfam (UK and Ireland Wieringa Saskia (ed.) (1995). Subversive Women: Women's Movements in Afyica, Asia, Latin America and the Caribbean. London: Zed Books and Kali for Women Young Kate (1993). Planning Development with Women: Making a World of Difference. London: Macmillan. Zachariah K.C. (1998) Models of Development and demographic Change: A case study of Kerala. Demography India, 27(7), 77 -89.

Acharya ~eenakshy, Ghimmire Pushpa. 'Gender indicators of Equality, Inclusion and Poverty Reduction: Measuring Programme /Project Effectiveness', 2005, Economic and Political Weckly. Department of Women and Child Development, Ministry of Human Resource Development, Government of India. 2001. "National Policy for the Empowerment of Women". Senapathy Manju: Government of India Budget 200-2001 and Gender: paper presented at the Inter agency workshop on Improving the effectiveness of integrating Gender into Government Budgets

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organised by commonwealth Secreatrait,London,26-27 April 2000 Mathew PM. Kerala's turn around in Growth- a note: Economic and Political weekly July 23,2005 Velayudhan Meera (2004), Engendering The Democratic Space in Kerala, presented in a conference on Reconstructing Governance: The other voices organized by Karnataka Women's Information and Resource Centre, India. Feb 20-21 ,2004 in Bangalore UNIFEM- Report of the fourth South Asia regional workshop on Gender analysis of Budgets held at Hotel Kohinoor Park,Mumbai,27-28 November,2003 Debbie Budlender: Gender Budgets: what in it for NGO's :Gender and Development Voll0,No 3, November 2002 Bhaskaran Seema; Jayasree S; Gender and Panchayti'Raj: experiences of gender mainstreaming in 4 panchayats of Kerala: Paper presented in the lnternational conference organized by the Dept.of Gandhian studies, M G university, Kottayam Vijayan Aleyamma: "A decade of Gender mainstreaming in Local Governance in Kerala" Paper presented at the lnternational conference on a decade of decentralization Kerala; issues, optiol.is and Lessons ; orgnaised by Institute of Social sciences, October 7thto gth,2005 Mascot hotel, Trivandrum) Muraleedharan, Sarada (2005) Decentralization and gender - the Kerala experience of the WCF: Paper presented in a workshop on 'Gender Based Planning In Local Governance: Issues and Concerns, 1 on 8 h February, 2005 Organised by Sakhi Women's Resource Centre, Thrivandrum Lahiri Ashok, Chakraborty Lekha, Bhattacharyya, (2005), Gender Budgeting in India, UNIFEM, New Delhi. Banerjee Nirmala, What is Gender Budgeting?, Sachetana, Kolkata. Budlender Debbie, Hewitt Guy, (2003), Engendering Budgets, Commonwealth Secretariat, London Action for development( ACFODE's) , 2005 Gender Budget Training Manual Candida March (etal) (1999) ' A Guide to Gender Analysis Frameworks', Oxfarm Pub, England. Mariamma Sanu George and K.B. Madan Mohan (2005) 'Interventions in Panchayati Raj - Ensuring Accountability through Social Audit', paper Seema T.N. and Mukherjee Vanitha (2000) Governance and Citizenship in Decentralised Planning the Experience of People's Planning Campaign in Kerala, Paper presented in lnternational Conference on Democratic Decentralisation, State Planning Board. Thomas lssac T. M., Seema T. N. and Gupta Smitha (2003) A deceade of Women's Empowerment Through Local Government in India. Pub. Institute of Social Sciences Important Websites Gender and development Mainstreaming gender Equality www.siyanda.org Engendering organization, 2005, 'Economic development Strategic planning for local government', 2005, the urban institute. http:// unpanl .un.org/intradoc/groups/public/documen~UNPANOl3656.pdf. Clayton A. F1 Oakley and B. Pratt (1997). Empowering People - A Guide to Participation. UhIDP http:/ /www.undp.org/csopp/paguide.htm Cornwall A. (2000). Making a difference? Gender and participatory development. IDS discussion paper 378. Can be downloaded from: http://www.ids.ac.uk/bridge~reports~gend~~~Phtml Seek ... and Y Shall Find: Participatory Appraisals with a Gender Equity Perspective. Module 2 of the e ORMA modules towards Equity. http://www.iucn.org/themes/spg

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Jones E. (2001) 'Of other spaces: situating participatory practices: a case study from South lndia', IDS Working Paper 137. At: http:llwww.ids.ac.uk/idslbookshop/wp/wp737.pdf For gender and participation the BRIDGE website is most usefull: http://www.ids.ac.uk/bridge/ reports-gend-CEP html Development Beyond the Status of women The Silence of Agency in the Political Space in Kerala, South lndia http://www.skk.uit.no/WW99/papers/Erwer-Monica. pdf Gender Mainstreaming -Tools and checklists http://www.undp.orglwomen/docs/GM~INFOPACK/ StrategicDevtl .doc. A Conceptual Frame work for Gender analysis and Planning' , 2005. http:llwww.ilo.org/pu blidenglish/region/asro/mdtmani la/training/unitl /socrelfw. htm A guide to Gender sensitive microfinance http://~~~.fao.org/sd/2002/PE0401 htm a-en, Gender and education: http://www.eldis.org/cf/rdr/rdr.cfm?doc=DOC22067 The Gender Audit Questionnaire Handbook (http://www.interaction.org/caw/publications. htmI# Gender) Gender Equity Building Blocks published by CARE, UK http://www.careinternational.org.uk/ resource~centre/toolsandmanuals. htm Gender and development topic page of the Development Gateway: http:/topics.developmentgateway. org/gender Gender Anlaysis: www.gdrc.org/gender/frameworldwhat-is.html FAO's socioeconomic and gender Anlysis programme(SEAGA) www..fao.org/WAICENT/FAOINFO/ SUSTDEVIseaga Using Gender Sensitive Indicators-a reference manual for governments and other stakeholders: Tony Beck: Commonwealth secretariat www.earthsummit2002.org/workshop/lnformation%20S%20TR%20PR%20Annex.pdf How to mainstream gender in ILO operations http://www.ilo.orglpublic/english/region/asro/mdtmanila/ traininglunit3/cidamen~.htm The why and how of gender-sensitive indicators: a project level handbook http://www.acdi-cida.gc.ca/lNET/IMAGES.NSF/~LUImages/Policy Gender Responsive Budget Initiatives www.idrc.ca/es/ev-64152-201-1 -DO-TOPIC.html Dianne Elson on Gender Budget Initiative-Commonwealth secretariat www.the commonwealth.orglgender The women's Budget group www.wbg.0rg.uk Gender budgeting tools www.the commonwealth.or~gender/htm/publications/gmspdf/brochur Gender Audit: Whim or Voice Barbara Krug (Rotterdam School of Management Erasmus University Rotterdam) and Irene van Staveren (Institute of Social Studies) www.eurosur.org/wide/structure Gender mainstreaming guidelines in national policy formulation and implementation: http:llvietnam.unfpa.orgldocumen ts GenderMainstreamingCuidelineslnNa tionalPolicyFormulationAndlmplemen ta tion.pdf Menon http://almavijai.sphosting.com/india/Kerala/Social/l. htrn

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Gender Planning, Budgeting and Auditing Manual (Draft) 2006

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ME MY BODY
(Malayalam)
Ej.o:ja; Board:

Aleyamma Vijayan C. S. Chandrika S. Jayasree

Co~?siiltalits:

Dr. Sundari Ravindran Dr. Mala Ramanathan Dr. Soumini. S. Nair Dr. D. Raju Dr. Amar. S. Fettle First printed in March 2002

- No of copies : 2000

Second edition in January 2009 - No of copies : 1000

@ Sakhi Women's Resource Centre

l l l ~ i s t ~ ~ :1~ t i o !

Reghu. G
iaycut 8 Coker Deskgii

Fingraph, Trivandrum-5
Printed at:

St. Joseph's Press

Trivandrum-14
Published by'

SAKHl WOMEN'S RESOURCE CENTRE

TC 2711872, Convent road Vanchiyoor Thiruvananthapuram - 695 035 Phone: 0471-2462251 Fax: 0471-2574939 E-mail: sahi 8asianetindia.com Website : www.sakhikerala.org

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1. Adolescence, to walk your through 1 pegg mohan ph.D New Delhi Volutary Health Association of India, 1997.

2. The blue Book & The Red Book, What you want to know about yourself sunita kajur New Delhi Tarshi 1999.

3. Where women have no Doctor I August Burns et. all Edited A by Sandy Nice man californiya - Mac Millian Education Ltd. 1997
4. 'The New our bodies, ourselves a book by end for women. 5. 'Bloom and Blossom' - a girl's guide to growing up

6. Stri-Sareeravum Arogyavum. Science (mal) / Dr. Satheesh Chandran, Calicut, Poorna Publication, 1995. 7. Stree Rogangalum Prathiwidhikalum - Health Science (Mal) I Dr. Santhama Mathew MD DGO Kollam, Current Books, 1996.
..

8. Life Skill Education for Adolescents1 Dr. M. K. C. Nair, Reshmi

R. (Trant), Thiruvanam Thapuram, child Development Centre.

9. Kowmarathilek Pravesikumbol IAleyama Vijayan (En),

Thiruvananthapuram

MEDICINES
1. 'Medicinal Plantsfor Primary Health Care' A uses guide1vaidya R. Ram Manohar (Comp) Bangalore, Medplam conservatory society, 1998
2. 'Touch me Touch me not' Women's plants end Healing1 Shodhini. New Delhi, Kali for women 1997
3. Streeregangalum Ayu rveda Chikilsayum Science (Mal)/ Dr. (Prof.) K. Muraleedharan Pillai BAM, MD (Aye) IVP,

Kolloyam, DC Books, 1995

4. Oushadachedikal (Mal) / Sr. Dolorous Kannanpuzha (Comp), Kottayam, Medical Mission Sisters.

Convention on the Elimination of all forms of Discrimination Against Women (CEDAW)

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CHILD SEXUAL ABUSE

(Malayalam) Editorial Board:
i ? :

Aleyamma Vijayan S. Jayasree First Printed in Nov. 2002

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No. of copies: 1000 8 sakhi - Women's Resource Centre

Illustration:
Geetha. T

Layout & Cover Design:

S. Jayasree

Translation:
VidhuVincent

Typesetting and Printing:

SB Press (P) Ltd, Trivandrum-1 Phone: 47t904,478013 E-mail: sbpress8satyam.net.in

Published by:
SalhiWomen's ResourceCentre .: ; T.C. 2712323, Convent Road ,j$-.:.... &&$.. Thiruvananthapuram - 695 001 $ . . i . . . ..,,.... -<...-. . Phone :0471 462251 ..... . . Fax : 0471 - 574939 E-mail :sakhi8md2. vsnl. net.in
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Sexual crime against chilaren

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playwright on cf~argesof raping a st~vcr~-yc;~r. ha< old girt l'~~usst*d rrrer~~iorl sexunl ctn c-rt~:~t>r agair~st chifdtcS:l I ' o ~S J I ~~ I L (ha[ d ~ tctlild ~ *
\46< S ~ ~ O ~ ~ C I C L I 1o

H E RtEI3-4-r amsr of

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Abuse, kktirrtlsation, ntalcsting and w u l t are the mcnt common crimes against children that are reported ro the police. I~tmcrts of actual rant. ot rninor cttitdret~

C,'~ist'~0f~~~11uf Z1"'"".

rapc t ~ y ltrc

pts?wrighr sr itis 11ous~. where rile giri had cctclrc f<ti

Et~glishtuition.

Tlic accused, as in ort~er similar cases, rtias closrly acquainted with the victjni's family. 1hc alleged incident that occurred in May w w rclmrtrd to the police orlty i l t old pinywriglot an Septcnibcbr. charges o snpittg a f In yet at301her rase of bitnilas nature. the h l w u r n ser)en-year-old girl ~ ~ o i i c u investigating P art 1 ny ~octdsed 1. coinplaint d xyud abrrse tiled by two Austrian r>atior~als against a risy.biscui &.;aofogt:r, .lhe pro,secutictrl c:tw i s tijar the astrolo,gcr '~ati sexudly abukd two t:rinut gtr!r \vhils on n vfskt to t ? ~ ~IWSI! ~f iiis ftnst in c -..-. " ........ ..... " I -

t ~ b f (blf e ~ ~tlijdfcn arc rrzore (;unxrn0t2 than fnosf peopltr or authorifies realise it to bc. TIze recent

A Stzte SlenLd ticalth Al~thority S M ~ W ( source, ruoti"lr nmnt *ufi'cy.d, drat one out dtrec niinor d t and or~e of 16 y o u q rs out

boys w sextrsUy abused e Mare the, ago of 18.

Sourca at phe State \Vorwn's Ca-on say

thrtin$Op@rmtufthg rrlrnftcd child abuse c , the uffendcr was b o w b ru dte a m ' s f a y . f n many c r t s ~ d>e , ufffndca h d conv%nd tllc v+ninn, through r f u ~ ~ ,or t .j bribe. no1 to repan the mntrrr to mybody. %lorcover, $t&tmtc't~~s the @wnby &$fd victims iue often tncom fete, thus Icrdrtg the jmr apnl tor offentiers to m m p Aisslria. cenviclton. A ytrlicc nffteial mi<& tililt oflcttders, he ~ t a p A senior affidl says: there nlost inslanrm of chiid f)%et:~l, that zbzctre sly is w uqmt nced to wnsltfx a n n1)ilse nre rq>oneCifr0111 been XP SICB~'? ilecit11~' the 1n Otc police as woU as the O P . I @ I ~dJ ( ! l i l ~ ~ tP ~ P ~ ~ O I I I ~ ttntnber t ~ ~ a w r~gisteted ~; C i~ l s p~hlic abtlttt child abuse \*iiic.rt. the offender 1.; srsually by thr p t r h c c irnri~r.%iott prewnuan. Teachers and A jlCiTOP1 ~ f ' t t dn3uVbs i01 fhi: 3 3 of the frrdran b3r:na1 c&cr parents should be taught c-tosc. socM circle. 1 . l ~ seiat wk%irh relates to a rvtde range haw ta ~ e m g n h tell-tale .itst casm of wxud abuse of of tm-natural nfffet~em, signs o sexual abuse & f I cttildwn are nore cornxncm ~rictudrrtg cl~iitld &use, homo- chmMrr?l%. Pqchobgists say r i m most p'eaple or sexuality md efiibiticmism. chris excepriond fear 1s aiathorities r d i s e i k to be. 'Pkls Ls drily bt,~~iiwc in chitdren of certain people or f lowcver, the aduai inust mwpiainr$ of cttiid u h a unr-ililbtc reporting of such cltlld a b ahttse, rhc pmm~s am cI15Cfi 1 0 tlli! potice i s very unwIUIng ta preJTc charges !OW owing to the m&lfw bqwnd t paint bccaw il osturc of tlrc crime eumd the pMce con~plbltnr wouhf social &ipm h i v s r L 'I'hls m a n publie xntclny which stvrns la tx working 10 rke t i r q want to a d d fw tho advantage of ctiild wx sake of their &lW.

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n n

Reference Books on Child Sexual Abuse

1. 2.

Bitter Chocolate: Child Sexual Abuse in India - Pinki Virani _ _ ..,' The Courage to Heal: A Guide for Women Survivors of Child Sexual Abuse - Ellen Bass and Laura Davis The Emotional Incest Syndrome
- Patricia Love

3.

4.

Abused Boys: The Neglected Victims of Sexual Abuse

- Mic Hunter
5.
6.

TransforrningTrauma

- Anna C. Salter
The Facts About Child Sexual Abuse

- Bill Gillham
7. Counseling Survivors of Child Sexual Abuse

- C.B. Drauker
8. 9.

A Source Book on Child Abuse

- David Finkelhor
From Hearing to Healing: Working with the Aftermath of Child Sexual Abuse - Anne Bannister (ed.)

10. Child Sexual Abuse and The Law - MaharukhAdenwalla

W O H E N ~ S ~ I O U R C EC E N T R E R

NEWSLETTER
Vo1.15

No. 2

JUNE201 1

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Research findings of the study conducted in Thiruvananthapuram and Kozhikode Cities

By SAKHl Women's Resource Centre,Trivandrum UNWOMEN, Delhi, JAGORI and Anweshi, Kozhikode

Are cities in Kerala safe for women? Summary of the Research findings of the study conducted in Thiruvananthapuram and Kozhikode Cities, Kerala.

Published in April, 201 1

All rights reserved This document may be freely reviewed, quoted, reproduced or translated, in parts or in full, provided the source is duly acknowledged. The document is not to be sold or used in conjunction with commercial purposes without prior written approval from the copyright holder. The views expressed and represented in this document are those of Sakhi. For limited circulation only. Published by Sakhi women's Resource Centre T.C. 27/1872 Convent road, Vanchiyoor, Thiruvananthapuram695035 E-mail: sakhikerala@gmail.com, Sakhi@asianetindia.com www.sakhikerala.org Report writing: Mariamma Sanu George (Nirmala) & Sakhi team Design and Printing: Printaids Laser Media Supported by: UN Women, Jagori, Delhi

Are cities in Kerala safe for Women?

Safe City free of Violence Against Women and Girls Initiative Summary of the study
Research findings of the study conducted in Thiruvananthapuram and Kozhikode Cities

By SAKHl Women's Resource Centre, Trivandrum Anweshi] Kozhikode JAGORI and UNWOMEN, Delhi

CONTENTS
Introduction Safe City Campaign Safe city free of Violence against Women and Girls Initiative Thiruvananthapuram Kozhikode Focus Group Discussion Women Safety Audits Capacity Gap Analysis Way Forward Annexure

Acknowledgements
he findings of the research undertaken by Sakhi with support from Jagori and UNWOMEN as part of the Safe cities project is presented here. The research has sreatlv benefitted from the contributions ' o f 'partner organizations as well as individual experts and activists. Sakhi acknowledges with gratitude the contributions of : Suneetha Dhar, director, Jagori and Dr.Kalpana Viswanath 'who have taken special interest to get the necessary support to Sakhi to undertake the study and to other staff of Jagori who were ever ready to help and support us in all matters related to the study, Ms.Aleyamma Vijayan, for her guidance and support throughout the process, Anweshi, Kozhikode, who undertookthe study in Kozhikode city and K.Ajitha for ably coordinating it. Sakhi acknowledges with gratitude the contributions of our research advisory committee members b Dr.Mishra, Faculty, Centre for Development Studies b Dr.Praveena Kodoth, Faculty, Centre for Development ' Studies b Mr.A.J.Vijayan, Protsahan b Ms.Mariamma Sanu George (Nirmala),

Ms.Nalini Nayak, Protsahan We are also thankful to our advisors and ;*..*".li&::se><3 r.&#vw.@:5 like Dr. Mridul Eapen, (Member, Kerala Planning board), gi$%$fd& Ms. Lids Jacob IAS (Rtd), Mr. T.P Senkumar IPS (Transport i t @ z <& s ? . .. commissioner) and Mr. Jacob Punnoose Kerala). A special thanks to Mr. Sreekandan Padana Kendram), who helped us in processi of Thiruvananthapuram study. We are grateful to Ms. Mariamma Sanu George for helping us to write the reports of the study and Ms. Minji Sukumar for doing the capacity Gaps Analysis of Kozhikode City. Several individuals and groups supported us in data collection and in conducting FGD's and Safety audits. Special thanks to SEWA Kerala, .Mahila Samakya, Working women's association, Kudumbasree, National association for the blind, KSRTC Ms. Parvathy Devi and Indira. We acknowledge the efforts and commitment of the core research team from Sakhi and Anweshi: Ms. Rejitha G, Project coordinator and Ms. Soni S.R, and Ms. Sreeja.P project associatesThe study team is grateful for all the support from the teams of Sakhi and Anweshi whose experience and support was very important throughout the process of study and in the campaigns
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, I . ln July 2010, the United Nations General Assembly established the United Nations Entity on Gender Equality and the Empowerment of Women (UN Women). UN Women combines the mandates and assets of UNIFEM, OSAGI, DAW and INSTRAW, with an expanded mission and vision. (for more infarmation see http://www.unwomen.org/about-us/about-un-women)

afety is a feeling of security and protection, which encourages greater mobility as well as protection from sudden and harmful disruption in the pattern of daily life. Often women and girls are seen as soft targets. Cities, in order to make it safe, needs decadal transformations and constant investments and has to be concerned about the ways in which planning and design can diminish or enhance people's sense of safety. Therefore, safe city is an initiative that aims to reduce crime, build awareness and develop community into safer places to live, work and shop. The issue of safety for women is now gaining ground as part of the national agenda. The National Policy for the Advancement of lndia (2001) specifically recognizes diversity of women's situations and needs of specially disadvantaged groups and is committed to eliminating discrimination and all forms of violence against women and the girl child.The PlanningCommission2constituted a Working Group onUEmpowermentofWomen"for the 11th Five Year Plan (2007-11) under the Ministry of Women and

(India's report 2007) has clearly highlighted that lndia needs to develop a comprehensive national plan to address all forms of violence. The Declaration on the Elimination of Violence against Women is the first international human rights instrument to exclusively and explicitly address the issue of violence against women. In Article 2 of the Declaration, gender based abuse is defined as 'any act of gender based violence that results in, physical, sexual or psychological harm or suffering to women, including threats of such acts, coercion or arbitrary deprivation of liberty, whether okcurring in public or in private life':4 In India, Delhi haithe reputation of being the crime capital of the country, having the highest rate among all cities for the past five years, topping in numbers of murder, rape, dowry deaths, molestation and kidnapping. Delhi also records.the highest rate in crimes against women. Today, it is equally important to focus on other states like Kerala and smaller cities where significant growth is taking place. The achievements in the social and demographic fields cclaimed and often the "Kerala of emulation. Historically, Kerala the rest of the country in terms of evelopment. In terms of sex ratio, mean age a t marriage, women in y other state in the country. Kerala's

3.http://daccessdds.un.org/dodUNDOC/GEN/N07/243/98/PDF/NO724398.pdflOpenElement 4.Human Rights Newsletter, United Nations ~ e ~ a r t m eof tPublic Information. Feb 1996 n

share in the population of lndia is 3.1 %. In Kerala, 74% of the population lives in rural areas. The 201 1 population of Kerala i s 333.87 lakhs of which 160.21 lakh are males and 173.66 lakh females. In spite of all these positive indices of better quality of life, Kerala is ranjed high in crime and suicide rates. As per the records of National Crime Records Bureau, the total rate of crimes in 2007 is higher than that of the national average. The rate of violent crimes is high against children and women. Among the cities in Kerala, Kozhikode (Calicut) has the highest crime record followed by Thiruvananthapuram (Trivandrum). The Kerala State Economic Review (2008)showed that atrocities against women have increased in Kerala by a whopping 338.40 percent since 1992. What is more startling is that the number of rape cases went up from 227 t o 601 and molestation cases rose from 523 to 2,5435.It has been noted thatntrendsof crimes committed against women in various districts during 19902005 showed that the number of cases inThiruvananthapuram

increased steadily and a four - fold increase was noticed between 1990 and 2005: (Anitha Kumari 2009Y. Clearly this is only the tip of the iceberg with the high levels of under reporting that is common with cases of violence against women. Such incidents take place as they are the inevitable consequence of unplanned economic changes that are not supported by changes in social structures and attitudes? In 2010 the Kerala Cabinet has approved the adoption of a new policy to ensure gender equality and prevent crime against women. Under the policy, a few model villages will be set up where there will be "no atrocities on women". Crimes against women will be tackled by vigilance committees (Jaagartha Samithies) that have already begun functioning in over 850 Gram Panchayats in the state.The government is also earmarking funds for programmes to empower women especially through local bodies.

5.http://www.thaindian.com/newsportaI/uncategorized/rimes-against-women-on-steep-rise-in-keralal0024071.html The number of kidnappings of women went up from 86 to 202.Likewise, cruelty by husband or relatives to wife or women also showed a steep 1 ,while 219 rape cases were registered as increase from 290 to 3,708cases. A record number of 5 children were murdered in 2006 compared to 140 in 2005.Kidnappings of children showed a steep increase from 45 in 2005 to 73 in 2006. 6.Anitha Kumari, K.R.(2009) Scenario of Crimes against Women in lndia and Kerala. Population Research Centres, PRC Division, Ministry of Health & Family Welfare, Government of lndia (Head Quarter) 4-6.

Safe city free of Violence agains t Women and Girls Initiative

raditionally public places are occupied by men. Women's access to and visibility in public is compounded by several factors like time, place and purpose. Conscious use of time and space does categorize them as decent and respectable women. Thus many spaces that women are able to access during the day become inaccessible or more difficult to use at night. The study examines how safe the two city areas are for women and girls, what i s the relationship between women's fear of violence, their avoidance of specific public spaces1places or times and how they restrict themselves in terms of dressing, etc. to avoid harassment. Societal response, role of police, knowledge of existing violence, redressal mechanisms was also explored through this study. The methodologies adopted were interviews, focus group discussions (FGD1s),capacity gap analysis and safety audit. These exercises helped to map the public spaces that are unsafe in order to give feed back to policy planning and design process.

spaces. Questions were incorporated to elicit contextual information about the violence, including the types of violence and the support mechanisms received and looked forward to get and validated by common witness both male and female. The overall process including the finalization of this report was under strong monitoring of a Research Advisory Committee and Steering Committee. A t the outset of study, the questionnaire was reviewed by the Research Advisory Committee and suggestions made were incorporated. The questionnaire was then translated to the local language. Further revisions were made to the questionnaire following its pilot test in Thiruvananthapuram. Again revisions were made before the Kozhikode survey.

Sample Selection
The sample population belonging to diverse categories like students, workers, home makers, unorganized workers, commuters, drivers, conductors etc. is spread across public places such as road sides, bus stops, markets, beaches, buses, hospital compounds, hangouts, knowledge centres and theatres. Men and women between the age of 16 and 66 years were part of the whole sample based on the demographic data. For example the number of students (sample age between 16 to 24 yrs) is the percentage of total girl students out of total female population age between 16-60 yrs in the cor-

Methodology
Survey Questionnaire
Two types of questionnaires were used, one for recording the direct experience and perception of women and the other for common witnessesl1(CW). SAKHl adapted the questionnaire designed by Jagori, New Delhi. It was designed to generate estimates of sexual and physical violence in public

11.The term common witness refers to men and women who 'by virrtue of being located physically closer to public places have a high probability of witnessing acts of sexual harassment on women.

place at East fort and 5% at Thampanoor.

ResearchTeam
The Thiruvananthapuram survey which took place during April and May 2010 had a team of 16 investigators consisting of 2 male and 14 female. While SAKHI, lead the survey in Trivandrum district, Anwashi, collaborated with SAKHI in planning and leading the research in Kozhikode district. The Kozhikode survey was conducted by a team of 10 investigators of which 2 were male and 8 female.The research team comprised of Research Advisory Committee., Steering Group, Programme Coordinator, supervisors, and interviewers.

Training
The investigators received 3 days fulltime training. The training began with a basic introduction to project, gender sensitisation, questionnaire, tools were familiarised therefore they were able to get maximum information regarding ways to extract information on the personal safety of women in the city. The pilot test gave SAKHI an opportunity to assess the skills of the interviewers and to make a final selection of the team. Based on the bilot tests, final revisions were made to the questionnaire.

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by finding the percentage of female workers out of total female population in the city. The rest of the samples are divided into unorganizedworkers, home makers and commuters. The commuters were either student or worker or home maker whom we found inside busesor waiting for a public transport. Sites were chosen based on the possibility of getting for interview. For example the particular quota of Chala, Palayam, Manacaud markets were selected to get unorganizedworkersor housewives orworkers, Like wise commuters could be interviewed fromThampanoor,East fort and PMG, where the railway station and main bus

Data Collection and Analysis

The interviewers had to select the respondents, and conduct a face-to-face interview with the respondents. Each interview lasted around 30 minutes with each interviewer. The ~upervisorsWere responsible for monitoring the activities and verifying the questionnaires. The Kozhikode survey was conducted among 400 won~en direct experience, 78 men for and 22 women as Common witness in 69 wards l 2 while the Thiruvananthapuram survey covered a total of 93 sites from 68 wards of the corporation. The data entry of Thiruvananl 3 and that of Kozhikode by SAKHl Id-surveys in Thiruvananthapuram

and Kozhikode was analyzed in SAKHI. The findings of the study were disseminated initially in exclusive press meetings held in both cities. This was followed by further dissemination through workshops.

Survey Findings
Thiruvananthapuram
The study shows that all women who were interviewed fear the possibility of violence. While 34 % of the women respondents said they felt safe a t the site / space they were interviewed but they have other unsafe sitedspaces to mention. This feeling of safety depends on where one lives or works.

Forms of violence / harassment women face in public spaces in Kerala

Different and multiple forms of violence and perception of insecurity which are deemed most common has to be differentiated as gender based forms of violence against women and girls (e.g. sexual harassment, sexual assault), or generalized violence (e.g. theft, other) b Sexual harassment has been pointed out as the main safety problem by 98 % women and 99 % common witnesses. This was followed by robbery, as reported by 60 % common witnesses and 51% women. b The respondents have shared their experiences of robbery by young men in bikes wearing helmets and snatching ornaments and in some lanes they even sexually harass women. b Verbal and visual abuse is the most common forms of sexual harassments, as reported by 80 % women respondents and slightly more by common witness. This is followed by physical harassment, as reported by 60 O h women. Only 26 % women reported stalking and 21 % flashing.
b Both common witnesses and wprnen respondents agree that women face maximum harassment while using public transport, bus stops and roadsides. b Here, women rarely go to theatres and park alone. And in the case of public toilets, women are reluctant to use it due to i t s lack of cleanness and safety. There are also other areas like beaches, festivals, hospital compound, and ticket counters reported where either women avoid going to or go accompanied with a friend or family member. b Here the response of common witnesses and women respondents shows wide disparity. While only 60.75 % of women respondents reported sexual harassment / assault while using public transport, 86 % of common witnesses have reported it. While 33 %of the common witnesses point out that there is sexual harassment at ticket counters only 35 %women agrees to it.

Where harassment is faced

A feeling of safety encourages greater mobility and accesses the full range of rights of being a citizen. Therefore, solution has to come from the community and the state.

Who is more vulnerable?

We probed a little more to find the rate of vulnerability when compounded with the attitude of family, level of education and income. Family support i s very crucial. Many bear their

burden in silence for as long as is possible. When we analyzed the income levels and,the support received from the family,
b 64 % of the women respondents discussed their personal

adjacent or the doors are opposite to that of women. The lack of regular and familiar people, shops and vendors creates a feeling of insecurity for women when using public spaces.

experience of sexual harassment with their family members

b 70 % of the women respondents were motivated to react

Knowledge of redressal mechanisms

b The respondents were asked about the redressal mechanisms available in Trivandrum Corporation. 91% of the respondents were aware of Women's commission and 34 % knew about Jaagratha Samithies (Vigilance cells) functioning in local bodies. Knowledge of other systems like women help line, traffic help line and railway alert is insignificant.

to sexual harassments and 62 % had discussions with family members on how to deal with such situations. b Surprisingly, we find that housewives, low and middle income group unorganized workers and workers claim that their families support them b 47 % of the interviewed responded that those women who belong to the age group between 26 to 40 seems to be more vulnerable b 36% of those who did not disclose their issues with family feared restrictionsto their mobility, inability of the family to help them or fearing over reaction.

How women respond to harassment and lack of safety

Women are considered as responsible for their personal safety. Every time women move out they have to find strategies in order to remain safe or comfortable -they do this by weighing where they choose to go and where not, what they wear, by seeking company and so on. b Among women witnesses, those who have faced harassment 2 to 5 times are more responsive than others. b 53 % o f the women respondents in the age group 26 to 55 years have confronted the perpetrator. b Around 26 to 28 % have asked help from family or friend b Only 7 % of women have reported the incident to Police while 33 %of the common witness called the police. b Only 21 % women respondents considered approaching the police due to the myths and experiences that they experienced. b The survey finds that 38 % of women respondents feel the process is too tedious when approaching the police and 29 %feel it might affect their family b 69 % avoid going to secluded places and 67 % avoid going out alone after dark. b Out of the 200 common witnesses only 30 % has intervened when they happened to witness any harassment in public places. While 16 % of women and 28 % of common witnesses prefer not to get involved, 38 % of women and 31 % of common witnesses preferred to come forward to support

Factors that contribute to

s show that the following factors coning of insecurity and vulnerability. b Around 68 % women respondents and 79% common witnesses said seeing men dealing with or taking alcohol or drugs makes them uncomfortable and unsafe. b While for common witnesses this is followed by crowded public transport / bus stops / stations and lack of effective / visible police. But for women witnesses lack of respect for women (58.5%) was more crucial factor than crowded public transport / bus stops / stations (55 %) and lack of effective / visible police (53.5). b The link between other safety issues range from inadequate lighting, high walls on both side of roads and state of public toilets. The lack of public toilets for women in public spaces such as markets, cinema halls, parks and commercial spaces limits women's access to these areas.. . Some women articulated that they are uncomfortable in using public toilets because the toilets for men are very

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the victims 24 % of women and 28 % of common witnesses gathered public support

Kozhikode

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80 % of the survey of women was conducted during day (+ n h a r r i e d ,,~ ,. ,,:,,> time and 20% after dark. 77% of the Common witness z:Wjd,ow /Widower < (CW) survey took place during day time and 23 O h after j~ivorcee 5 dark. 58 % of the women interviewed described their ., , Occupational Status . monthly household income below Rs10,OOO and 3 % -Working 227 68 15 have income above Rs 25,000. The women survey has 24 Students 5 76 10 % housewives, 19 % students and 57 % workers. Among House wives 97 2 the common witness there is only 2 housewives and 15 Time of interview students. The women survey was conducted among 63 Before dark 322 61 16 % married women, 31 % unmarried, 5% widows and 1 After dark 78 17 6 % divorces. Table 1 shows the marital and occupational status of the 500 persons surveyed in Kozhikode Corporation. The survey took place in nine public spaces (Fig. 3.5) in 69 Of the erght reasons asked on their perceptions on the wards. 34 % of the women survey took place in bus stops, 24 factors that affect women's personal safety in the city, both %took place on roadsides and footpath. 18 % of the interview common witness and women feel that being a women is took place in bus, auto, train and taxi. the main reason. When 74 % women feel that there is disThe survey started by looking into habituation of the respondents. Out of the 500 respondents, 54 % are either living respect for women from men, only 28 % of common witnesses agree to it. Again there is wide variation in factors in the city or have been visiting the city for more than five years. that affect women's personal safety between Women and Fig 3.6 shows to what extend the women in the survey are faCommon Witnesses, like being single/widow (62%), being miliar to the city. 66 O/O who travel frequently or daily to the city of certain age group (43%) and being from certain region or were able to list a number of areas within the city which they state (46%). felt unsafe for women. What do women feel afraid of? Harassment of a sexual nature has been pointed out as the main safety problem by 99 % Experience of Violence: of women and common witnesses. This was followed by rob- Levels, Patterns and Correlates bery, as reported by60 % common witnesses and 83 O h women Nine of the women respondents and one CW have not because it may lead to violence or a situation one cannot con- witnessed sexual harassment. Verbal and visual abuse is the trol.The basic factors, which contribute to this feeling of unsafe most prevalent forms of sexual harassments, as reported by as pointed out by women and common witnesses are crowded 86 % women respondents and 90% common witness. This is public transport and bus stops. Another main factor is the nui- followed by physical harassment of women, as reported by sances of alcoholics in public spaces. W 73 % C and 65 % women. And 53 % women reported stalk-

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ing and 43 % flashing. Misuse of mobile camera is another major issue reported by the respondents.53 %of the women respondents reported that the incidents took place during W day time and 24 % after dark. 44 % C also report that the incidents take place during day time and 15 % after dark. Which are the public spaces considered to be unsafe? 69 % of the women and 76 % common witness reported that they face sexual harassment while using public transport. Also it is reported that 71 % of women faced sexual harassment while waiting for public transport. Parks are identified as unsafe by all. While other areas which are identified as unsafe by women are roadsides and public toilets, for common witness it is cinema theatres. W 95 % of the C and 97% of women respondents are able to describe about the perpetrators age group, whether it was in a group or individually and whether the perpetrators were the same in the different incidents they faced. While women respondents say that the perpetrators are mainly in the age group of 26 to 55, C point out that 15 -55 age W Personal experiences narrated by the respondents in diverse circumstances and locations bring in different experiences and feelings. Those who reacted saw the offenders going out of the scene without any confrontation. But some women feel so upset afterwards. But what can be done when the culprit is the bus conductor? One lady said "The bus conductor instead of asking to move back, he physically (pressed her breast) pushed her".A student shares the abusive language used by the conductor while another reported they are allowed to enter the bus only after everybody gets in. A student said while travelling in a bus, her dress was torn with a blade from top to bottom by someone from behind. Another incident was when a respondent was pulled into a jeep while waiting for bus. Many incidents are reported while travelling in trains. If one responds, either they are threatened or humiliated with comments. Night journeys in auto rickshaws were not safe and comfortable for women. Exhibitionism is another harassment which disturbs the feelings of women. In the survey, some cases are reported as handled by

the local people and others by themselves. Public toilets are another area where women have to face vulgar comments and exhibits.

On mitigating and negotiating violence in public space

How do women take care of themselves from sexual harassments in public spaces? A significant lot avoid secluded areas and going out alone after dark. 68% reported that they avoided walking alone after dark and 49 % avoided secluded places because they felt unsafe. But the interesting part of Kozhikode women respondents was that 83 % used public transport, 87 % wore the dress they preferred, 85 % did not carry any thing for self protection and only 19% avoided certain public places.

Support Mechanisms
The survey has looked into the support received and actions taken by the respondents when they faced harassment sexually over the past one year. 98 % of the respondents faced some kind sexual harassment over the past one year. While 52 % confronted the perpetrator, 35 % asked help from bystanders, 28 % depended on friends and 26 % on family. The respondents least depended on helpline and police. Only 5 % reported to police but 28% thought of approaching police. 19 % did nothing when they were sexually harassed in the last one year. Only 29% thought of approaching the police. Why? 68 % mentioned different obstacles in appraoching police. What are the obstacles? 66 % feel the process i s too tedious when approaching the police. Moreover since the frequency of such incidents i s higher than any other crimes, the official procedures will be more. Apart from the general fear of approaching the police station, the respondents fear that they would be blamed for it , the issue may be trivialized or they may not do anything and will not take any further action. 31 % of the respondents also avoid the police due to the fear it may reflect their family.

Public support
99 O of the C and 54 % of women respondents have with W nessed other women being harassed in public places. Of the 54% (216) respondentswho reportedwitnessing harassements in public spaces, only 71 % (153) intervened. When asked how they would respond or what would be their approach, if they W witnessed, 10.3 % of the women respondents and 38 % of C still preferred not to get involved. Respondents 83 % agreed they will support the victim and 54 % will try to get public support. Only 11 %women and 35 % CW preferred to call the police.

Around 130 respondents preferred not to share their experiences with other family members because they believed nothing could be done. They were concerned about their families' feelings and their inability to support them. About 44 % respondentsfeared their mobility would be restricted or feared their family would not be able to support them.

Redressal Mechanisms
The survey also tried to get an understanding on the knowledge level of the respondents on the existing redressal mechanisms to help women or girls facing violence. b 82 % of the respondents had no idea about the railB way alert. When 55 % were not aware of the Jaagaratha ; Samathi while only 1 O did not know about Women's 1 h Commission. 31 % have heard about the traffic helpline number and only 16 % knows the details. Women's help line was not heard off by 33 % and 40 % was not aware of Janamaithri police. A comparative analysis of respondents based on their occupation which is broadly divided into housewife, students and working class. It shows that housewives knowl- 3 ien tll pi Gecha ~ms are edge of I s hi lea and st[ tnts. Hc working I 5 of the redressal mechanisms.

Family Support
The family of 65 % of the respondents motivated and prepared them to be independent and take care of themselves. 68 % (270) of the respondents discuss with their family members of the sexual harassments they face. Out of the 270, 2% respondents were advised and warned to stay away due to the hazels involved in it and also due to the unaffordable expenses involved in it. From the survey we find that 66 O h of the working h women, 74 O of the students and 67 %of the housewives share with family members the sexual harassment and violence they face. All the 5 divorcees in the survey did not share their experiences with family members. 64 % of the respondents were motivated to take up any situations they face. Discussions on how to deal such situations were taken up within 60% of the families. Around 13 % were blamed for the institution and their mobility was restricted .

Focus Group Discussions (FGDs)

n Thiruvananthapuram, 7 and in Kozhikode 3 FGDs where conducted with nine groups (Domestic Workers, Women Conductors, Kudumbashree garbage collecting women, Women Journalists, Students, Men, Sex Workers, Nurses, Blind Women)who frequently use public spaces as part of their day to day life. Altogether 7 FGDs in Thiruvananthapuram and 3 in Kozhikode were conducted. The following is the summary of the feedback given by

b Irrespective of any age or socio-economic status, women

experience such instances of physical and mental violence. b Exhibitionism is common in buses, byroads b Vulgar comments, physical harassments are common b Harassments by drunkards in the evening trips are common. Liquor and narcotic users are always threat to women in public places. b Men's attitude towards women as a sexual object is the major reason for the occurrence of violence. b At present safety in public places is one's own responsibility. To ensure their safety they carry safety pin or blade etc while traveling. b Usually women do not support or respond if a co-passenger is being harassed. b The negative response of the general public as witness, to sexual harassment or even to an accident, need to be changed. b They never ever complained or discussed their experience of sexual harassments with family members because all of them believe that it would lead to restriction in their mobility. b One of the usual comments by men is"why you women take up the job of men? b Have to be careful not to hurt male ego. b Women don't want to react or complaint even to the women conductors because of shame. b Identity as employed and uniform gives some kind offeeling

of security. b Any incidents encountered are not shared with the family because of the fear of restriction in their mobility and even may lead to resignation of their job. b Harassment on women is more after dark. So they prefer not to go out after 7 pm. Anti-social groups are always actively watching women walking in the street after dark. Even during festival seasons and at public markets, women do not feel safe while going out. b Most harassers are men above 35 yrs. b Lack of sufficient, safe and clean public toilets for women in pubic spaces and work place. b Police are not able to help women and they are easily viable t o bribery and political influence. But some feel they are very approachable and supportive, whenever a complaint was filed. But they are afraid of giving written complaint to Police. Moreover they have to give up a working day and remuneration and also they fear it may cause shame t o their family later. b Mobile phonesareaffecting the lifeoftheirchildrenespecially their sons' very badly. Misuse of mobile and information technologies have to be tackled. b Bus conductors and auto-rickshaw drivers are very uncooperative and have a negative attitude towards women. Those who have night shifts face various problems like reluctance by auto-drivers to take them to their destinations; men in the street very often make obscene comments etc. b Lack of public resting spaces. b Men also have fear and face safety problems in the city, but they accept that the dimension i s different from what women

in public transports. Conductors also are reluctant to help them. Deliberately harassed and exploited knowing that they are blind. b The perpetrators have many excuses for exploiting girls that the bus is too crowded to stand untouched or they are enjoying being touched. b Students generally respond to harassments if they are with friends but if with a family member they keep silent. b Usually family members discourage girls from raising their voice loudly in a public space especially in matters like sexual harassments.

wo safety audits were conducted in Trivandrum city and one a t Kozhikode, based on the information received through the survey about the most unsafe places. Following are the places chosen for safety audit, based on different

consolidatedas foilow;:

The design as well as maintenance of both cities are very

to discover new aspects of safety other than the usual

()pen space urination by men at East Fort in front of

...

are both a few minutes walk fr0.m East Fort.'

'

Mananchira square, the recreation center.Therefore, a large number of people from all walks

by book shop reported that exhibitionism i s yet another nuisance. Many of the interviewed complained the presence of beverage outlets and nuisance by drunkards. b Generally these areas are crowded with both men and women; but as soon as darkness set in, the number ofwomen dwindles. However at Medical College junction during dark, many women were walking through the streets, waiting for bus, shopping etc. Scene of group of sales girls in their uniforms rushing towards buses were seen. b Condition ofthe footpathsfor pedestrians wasvery bad.They were broken or encroached by street vendors or vehicles in the three audited areas. b Zebra crossings are limited in numbers, in some areas not so visible. b The street lightsare insufficient. Street lightsare there but the coverage of lighting is insufficient. Some were not burning as the corporation do not change fused bulbs in time. At the same time lights from the shops lit some areas well. b Women street vendors reported harassments from men after darkness. b Open drainage, dislocated slabs, wrecked pavements, hanging down wires, lack of sign boards, construction materials left after completion of work (empty telephone cable box, wires etc) were limiting the scope of safety in all areas were safety audit was done. b Vehicles are parked in non parking areas.The sign boards are very rare and the few displayed are not so visible. Beverage shops are also located in the nearby streets in two of the three streets audited. The narrow roads are encroached by vendors. b KSRTC's enquiry booths with officials are located in both the areas. b Bus stops were located here and there without shelter facility. Absence of seating amenity, no signage to show route maps, lack of lights, lack of cleanliness as well as lack of timely maintenance etc. were adding up the issue in both areas. The people who were interviewed reported the occurrence of sexual harassment irrespective of time. Many

at bus stops and buses.

Public Toilet:
There is no ~ u b l i c toilet in Trivandrum Medical Collese area. East Fort has one at the back side of the bus stop. i h e passage to the public toilet is dark and fully occupied by men mostly smokers. Men are using women's public toilet even though it has two side separate entry for gents and ladies.There is no dust bins inside and could see remains of cigarettes inside the toilet. A rope with fire hanged in front of women's toilet to lit cigarette wasa shocking scene.The male caretaker of the public toilet pointed out that since women are not using it, it is utilized by men. The only toilet seen in Kozhikode city is the one located on the way to L.1.C corner which is meant for both men and women. But in effect it is used only by men. It is littered with cigarette pieces, match sticks and other filthy things so the women are unable to use it.

Street light Street vendor

Parking two wheelers

No parking Encroachment area

[PARKING]

'
m u

Parking
m
0

Parkiing 2 & 4 wheelers

L 2

)? $

Shoping complex

0
0

Non working trafic light

Transformar

0 0

Toilet Tree Taxi booking Taxi stand

rn
b!/
,~'&*?i-j~"~T .=-:?-a:?CL

Masjidh

Shopes uncrosed foot path

W F o o t path

rn

Brockn foot path

The major portion of the road has been encroached upon by the street vendors Road is everkept busy with heavy trafic and people

#
7

% i . I "

I Police man
Temple

Shop encroached to foot path Sign bord Open sewage

The Illegal parklng of the two wheelers and four-wheelers at the non parklng points

Capacity Gap Analysis

apacity gap analysis was undertaken to understand and to analyze the policies, programmes and budgets put in place by governments to address safety and security of women in the public places and to counter violence experienced by them. It aims to look at awareness about various types of violence faced by women, the available data, the existing legislirtions, budget allocations and various institutional mechanisms to address violence Through the last 15 years, unlike the rural local self government institutions which succeeded to develop strong gender component through many years work, urban bodies are still encountering problem in addressing the needs of women. urban women are a diverse groupworking women, elderly, women living in areas with minimum basic facilities like the coastal areas, women who come to city for various purposes. Their needs are also diverse. When urban Local Government's plan city development, do they think of these women? Do they ever think that these women too have specific needs and expectations? Urban planning in India is done by men for men and women hardly matters. The analysis of the JNNURM City development Plans(CDP) and the development plans under decentralization points to this b lnfrastructuredevelopment especiallyof roads gets top priority and greater funds.This is mainly for maintaining existing roads and building new roads. A good and safe road with proper street lights and proper pavement is users of public roads and transport are major gaps.

consideration while giving assistance.

addressed effectively.

aspects of the cultural life.

Thiruvananthapuram, women fish vendors are a major category but their specific needs of market spaces in different

locations is not given due importance Lack of concern over specific women's health issues and public sanitation facilities are a striking gap in the gender component and outlook adopted by the decentralization programme in Kerala. Recently a women's organization, 'Penkootu' (Women's Friendship) in Kozhikode staged a strong agitation 'Right to pee'by organizing sales girls in the city demanding public toilets in the shopping complexes, markets and other public places in the city. Sanitation is given high priority in local planning from the beginning of decentralization process in the state. Yet in the Cities, safer and cleaner public toilet for men and women is a major Many projects underWCP can easily be included under other sectors. Toilets for girl students are a basic infrastructural requirement to be addressed either from education or from infrastructure sector. Lack of vision on women's practical needs and its linkages with basic physical planning is a clear be held with women from various sectors(organizedand unorganized sector workers, women from different age groups)to identify women~s specificneeds. b More efforts and money allocation to activate Jagratha samithis in all local governments, including urban bodies must be a priority. Various stakeholders like the police, health personnel etc need to collaborate with this initiative. The Kudumbasreemovement in Kerala has great potential to makewomen conscious oftheir safety public places in and to work towards educating young women to learn self defense mechanisms The biggest lacuna is in addressing men. The attitudes, mindsets of rr~enbelonging to various categories and professions have to be addressed. Specific gender training be given to male professionals likedoctors,police, judiciary, transport employees (TTRs of trains, conductors in buses), ~tban planning Officialsetc b More public toilets with safe and clean environment, sufficient water and lighting are to be built and made

Lack of awareness to adopt technically supported advanced waste management methods without harming the health of women is a gap to be bridged. b Physical planning of the city at present is not considering the gender specific aspects or the special groups like children, aged and disabled. b There is a comparable positive shift seen in approach of designingWCP projectsinthe last year.Anattempt toaddress gender specific needs in work and prevention of violence against women were made.

,
,

Recommendations:
Integratinggender mainstreamingin urban planning process is an important step towards working for safer citiesfor women and children. City planningshould considerwomen residents and the women visiting the city for various purposes. b Collect gender disaggregated data on the status of urban women, identify their needs in the urban environment for nclusive urban planning

available to women all the day in shopping complexes, markets, parks, bus stands, places of worship, beach and other public places. b Sufficient restrooms (toilets, changing facilities, breastfeeding spaces wherever needed) for women in all public offices and educational institutions b Ensuring safety of women and girls in public vehicles, in bus stands and railway stations and in public gathering places has to receive priority. Trained police personnel have to be deployed in trains. b Physical planning of the city to be improved considering gender specific needs and needs of the special groups like aged and disabled. Pedestrians need to be given due importance while planning roads. Now many public buildings and structures deny or restrict accessibility to groups like physically challenged and senior citizens. Considering the fact that Kerala is fast 'graying'special care has to be given to such issues. b Effective implementation of police help lines and gender sensitization of police and other implementing officers who have responsibility to protect women should receive utmost priority. The helpline numbers need to be widely disseminated. b Special attention and more projects needed for single women and women headed households; joint ownership of titles should be made mandatory in all housing schemes to ensure women's right over property and residence. b Ideas and plans for building maximum number of houses with the minimum available land needed. New patterns of dwelling and houses to be developed. b Women commuters who are stranded in the cities a t night be offered safe overnight accommodation. New bus stations being built by Kerala transport corporation

(KSRTC) should include this in their plans

b More attention needed to develop safe and quality learning

environment for child care services. More programmes for adolescent girls to enhance their confidence, mobility, physical &nutritional profile and self esteem needed. Special focus and trainings to be given for the issues of women with disability. b Multiple and combined issues of social security, disability, poverty and healthofwomen are to beaddressed in Planning. These aspects to be included in the trainings for planners. b Care and support for terminally ill women is an urgent concern considering their lack of economic independence and property rights. b An efficient waste management programme with improved technology and less drudgery to women cleaners is to be implemented. b A detailedoccupational profile of women has to be prepared to help effective planning in the local economic growth sector. b Women's role as beneficiaries as well as care givers to be considered while planning the projects in health, social security and local pconomy. b A comprehensive plan for disabled to be developed rather than distributing few support measures. b Lack of database and understanding on people's skills and potential of the area makes a major gap in planning for local economic growth. b Integrationand linkage with major institutions (for example IIM and NIIT) and sectors to be developed. Gender specific planning to be initiated to involve more women and to enhance the working conditions of those who are already working.

Way Forward:
Towards Possible Interventions

number of suggestions have been put forward by the 1500 respondents to make the city safe for women.

In Infrastructure development
1. Provide more public transport to reduce the rush in buses and ensure safety inside the bus. 2. Provide school bus to all areas 3. Stop the competitive race of vehicles' especially private buses. 4. Ensure the safety of children inside buses 5. Increase the number of ladies compartment in trains 6. Provide accommodation at bus and railway stations for women passengers; Build restrooms for women in major bus and railway stations 7. Establish pre paid auto system in major areas. More women taxi and auto drivers have to be encouraged. Local bodies can take initiative t o bring in more such projects
8. Audio-Visual announcements/messages creating awareness among men should be shown at railway stations especially on TV. 9. Construction of sufficient, neat, safe and functional public toilets with sufficient amenities like clean water, light, bucket, mug, sanitary napkin disposal facility, doors which can be locked from inside, hooks or small shelves to keep

their handbags in public places. The design of public toilets should take into account the amount of privacy women need 10. Park exclusively for women, which can be used without any fear or questions Iike'why are you here at this time?' 11. Proper, regular and timelyfunctioning and maintenance of street lights is very crucial. Poorly lit areas pose a threat to the safety of women. 12. Proper and regular maintenance of public roads and waste disposal 13. Restrict beggars in public spams, trains and also people who sleep in bus stands 14. Setting up of free public telephone services. 15. Install complaint boxes at major points in the city. 16. Remove wrong sign boards and vulgar posters 17. Place more CCTV. 18. Help line numbers need to be shown were it is visible to all

In Strengthening of Manpower
19. Police need to be more active and more gender sensitive. They should not humiliate women coming to Stations. They should take the complaints about sexual harassment seriously

20. Increase the number of women police and depute them in bus stops, schools, buses especially in the early morning between 6AM to 8AM. 21.There is need to strengthen shadow police Deployment of women police in plain clothes in public spaces will help to catch the culprits and bring them under law 22. Caretaker of ladies public toilet should be a woman.

In Awareness Creation
23. Create and enhance awareness among the public, police and bus crews. 24. Provide gender awareness programme so that children can manage themselves 25. Women should be empowered to respond and take self 26. Women's help line numbers should be advertised effectively through big TV screens, bus tickets etc. 27. Empower all Women Police Constables and give them 28. Parents should build confidence in their children to deal issues positively. 29. Co-education for girls and boys, gender and sex education in school, promotion of mutual respect among children as human beings, children should be education

In Strengthening Institution
30. Strengthen Jaagaratha Samithi 31. Mechanism to control alcoholism and drugs 32. Fast settlement of cases and strict implementation of

Law and severe punishment 33. Special institutional mechanism to settle bus related complaints. 34. Government, both local and state level need to take stern actions to ensure women safety. 35. Conductors should ensure reserved seats are occupied by women 36. Safe city committees under the Corporation or police should be formed which can give focus and legitimacy to safety in the city for all and develop a policy document to build strategies to prevent violence against women, girls and the marginalised. 37. Urban planning process need to integrate the idea of security and safety in their planning process. A new planning philosophy has to be developed, with high level of democracy as well as quality. 38. Institutional mechanisms have to be built through community development approaches with a range of activities which can reduce the harassments faced by women and girls. 39. Women's police cell has to be more active and given power to take independent decisions. Certain amount has to be allocated to make the women's help line and cell more effective. The personnel managing these also have to be well trained 40. A mobile women's court would encourage women to register complaints and make the process easier. 41. Programmes like Maithri police need to be strengthened. 42. Gender Budget: Ensure that budgets of governments earmark adequate budget for implementing safe cities for girls and women and other marginalized

Annexure 1
Formation of Safe City Platform
W propose the need to form a Safe City Platform in the major e cities in Kerala under the leadership of DGP and the respective city police commissioners. Sakhi in Trivandrum, Anweshi in Kozhikode or other women NGO's will coordinate the Platform under the guidance of the DGP. The Platform can do timely review, monitor and facilitate actions which would make the city safer. The Platform has to constitute a panel-withheads of the various departments, NGOs, legal experts...etc. The Police department, Planning Board, Women's Commission, KELSA, Kudumbashree, Town planning, Traffic police, Women Police Cell, Corporation, Education Department, KSRTC, PWD, KSEB, NGOs, Residents Associations can be part of the platform. Functions of the Platform for a safe city: . Support the police department to implement gender friendly programmes more effectively . Coordination of various stakeholders . Monitoring of . Giving recommendations to the Government . Organizingworkshops, campaigns, trainings .
1091

2. Post more police force 3. Provide complaint box and forms 4. Display hoardings having helpline numbers and messages 5. Provide hidden cameras 6. Provide Pre paid auto rickshaws

Annexure 3
Understanding the concepts
Street harassment is something most women deal with year-round. The catcalls, leering, groping, stalking, public masturbationland anti-woman comments are demeaning, annoying, and sometimes threatening and scary. 1. Street harassment occurs when one or more unfamiliar men accost one or more women in a public place, on one or more occasion, and intrude or attempt to intrude upon the woman's attention in a manner that is unwelcome to the woman, with language or action that is explicitly or implicitly sexual. It can be through looks, words, or gestures, the man asserts his right to intrude on the women's attention, defining her as a sexual object, and forcing her to interact with him. 2. Physical violence is the intentional use of physical force with the potential for causing death, disability, injury or harm. 3. Sexual violence can be divided into three categories Use of physical force to compel a person to engage in a sexual act against his or her will, whether or not the act is completed. An attempted or completed sex act involving a person who is unable to understand the nature or condition of the act, to decline participation, or to communicate unwillingness to engage in the sexual act. Abusive sexual contact that includes intentional touching directly,orthroughtheclothing,ofthegenitalia,anus,groin, breast, inner thigh, or buttocks of any person against his or her will, or of any person who is unable to understand the

Development of campaign materials (both electronic and print)

Annexure 2
Red Alert Areas (RAA)
As part of the safe city initiative under taken by Sakhi,fourareas in Trivandrum namely Eastfort, Thampanor, Statue and Medical College have been identified as the most unsafe areas for women. We request the Police Department to consider these areas as Red Alert Areas (RAA). More attention and focused actions are needed to be taken. Suggested actions are; 1. Special help booths adjacent to the bus shelters.

nature or the condition of the act, to decline participation, or to communicate unwillingness to be touched. 5. Threat of physical or sexual violence, is the use of words, gestures or weapons to communicate the intent to cause death, disability, injury or physical harm. 6. Psychological or emotional abuse includes trauma to the victim caused by acts, threats of acts, or coercive tactics. 7. Psychological violence occurs when psychological or emotional abuse is accompanied by physical and/or sexual 8. Economic violence is perpetrated usually by an intimate partner or family member and includeseconomic blackmail, control over money a woman earns, denial of access to education, health assistance or remunerated employment and denial of property rights. 9. Sexual harassment is intimidation, bullying or coercion of a sexual nature, or the unwelcome or inappropriate promise of rewards in exchange for sexual favours. 10. Intimidation (also called cowing) is intentional behaviour "which would cause a person of ordinary sensibilities" fear of injyry or harm. It's not necessary to prove that the behaviour was so violent as to cause terror or that the victim was actually frightened. 11.Criminal threatening (or threatening behaviour) is the crime of intentionally or knowingly putting another person in fear of imminent bodily injury. 12. Sexual abuse, also referred to as molestation, is the forcing of undesired sexual behaviour by one person upon another. When that force is immediate, of short duration, or infrequent, it is called sexual assault. The offender is referred to as a sexual abuser or (often pejoratively) 13. Assault means a violent physical or verbal attack. 14. Sexual assault is an assault of a sexual nature on another person. It may include rape, inappropriate touching, forced kissing, child sexual abuse, or the torture of the victim in a sexual manner. Also it can be verbal, visual, or anything that forces a person to join in unwanted sexual contact or attention.

Rape is a type of sexual assault usually involving sexual intercourse, including vaginal, anal, or oral penetration, which is initiated by one or more persons against another person without that person's consent. 15. Public harassment is that group of abuses, harryings, and annoyances characteristic of public places and uniquely facilitated by communication in public. Public harassment includes pinching, slapping, hitting, shouted remarks, vulgarity, insults, sly innuendo, ogling, and stalking. 16. Acid throwing (acid attack or vitriolage) is a form of violent assault. 17. Groping, when used in a sexual context, is touching or fondling another person in a sexual way using the hands, and generally has a negative connotation and considered molestation in most societies. 18. The term 'frotteurism' may be applied when a person rubs up against another person, typically using their sexual parts. 19. Flashing is indecent exposure. The exposure of one's body, especially one's genitals, in a public place and in a way considered offensive to established standards of decency. 20. Stalking is a criminal activity consisting of the repeated following and harassing of another person. Reference: Heise, Pitanguay and Germain (1994). Violence Against Women: The Hidden Health Burden. World Bank Discussion Paper. Washington. D.C.: The World Bank. The Centre for Diseases Control in the U S Wi kipedia