Gender
Equality Architecture and UN Reforms[1]
For
submission to the UN Secretary-General’s High Level Panel on System-wide
Coherence by the Center for Women’s
Global Leadership (CWGL) and the Women’s Environment and Development
Organization (WEDO)
This paper
briefly outlines the successes and failures of the current UN system in
addressing gender equality and women’s rights, and puts forth several principles
and characteristics that are critical to reforming the gender equality
architecture in order to deliver consistent positive gender equality
outcomes.
I.
Introduction: In the last decade,
efforts to make the development, human rights and peace/security ‘mainstreams’
work for women have resulted in impressive gains as well as staggering failures.
In the 10 years since the adoption of the Beijing Platform for Action (PFA), a
number of strategic partnerships forged between women’s movements and policy
reformers have placed equity and women’s human rights at the heart of global
debates in areas such as the International Criminal Court, Security Council
Resolution 1325 on women, peace and security, and in the Millennium Project Task
Force on Gender Equality. In some regions, women have made striking gains in
elections to local and national government bodies, and in entering public
institutions; girls’ access to primary education has increased and women are
entering the labor force in larger numbers; access to contraception is much more
widespread; gender equality has been mainstreamed in some countries into law
reform processes and statistical measures; and violence against women has been
recognized as a human rights issue and made a crime in many countries.
However, gains for
women’s rights are facing growing resistance in many places and too often
positive examples are the exception rather than the norm. They usually occur
because an individual, a network, an organizational champion, or a unique
confluence of ‘push’ factors is responsive and receptive to change. Even then,
these changes only come about when women’s rights advocates invest extraordinary
interest, time and effort and, where required, take significant risks. For instance, it took nearly five
years of advocacy by women with support of a small number of donors to get
II. Identifying the
Gaps and Problems: Ten years after Beijing and 30 years after the first world
conference on women in Mexico City, gender equality has a growing number – but
still too few – advocates in the corridors of power at international, national
or local levels where critical decisions are made. For decades, women
have relied on the United Nations as an important venue for the promotion of
human rights and social justice, demanding that the UN set global norms and
standards in these areas. Just last year at the World Summit, governments
reaffirmed that gender equality is critical to the achievement of all Millennium
Development Goals, and re-committed to its promotion in Goal #3. But too often there is insufficient
implementation of these commitments, as demonstrated by the failure to achieve
universal primary education in 2005 - the first MDG
target.
Many women’s rights
advocates now fear that the political championship at a global level for social
justice and women’s rights is eroding. Evaluation after evaluation shows that
countries, bi-lateral donors and the multilateral system consistently fail to
prioritize, and significantly under-fund, women’s rights and equality work[2].
Money talks, and in this case, it has voted with its feet. Equally worrying is the fact that new
aid principles stressing national ownership and their accompanying aid
modalities such as budget support and sector wide approaches, while laudable in
some ways, make it even harder to specifically resource and track gender
equality goals.
Current state of
Gender Equality and Gender Mainstreaming at the UN:
The present phase of UN reform provides an opportunity to take gender equality
from the realm of rhetoric to the practice of reality. Most women’s rights
advocates agree that the normative frameworks for gender equality and women’s
human rights – legal frameworks, constitutional guarantees for equality, and
gender equality policies – have advanced considerably in many countries as well
as within the UN system. However,
the lack of implementation and accountability repeatedly undermines these
commitments.
“Gender
Mainstreaming”, promoted widely in the UN after the Beijing Fourth World
Conference on Women, was transformatory in its conception. But it has been extremely limited in its
implementation. Gender mainstreaming has often only been reluctantly adopted by
“mainstream” agencies because top leadership has not adequately supported this
agenda; it has too often become a policy of “add women and stir” without
questioning basic assumptions, or ways of working. It has been implemented in an
organizational context of hierarchy and agenda setting that has not prioritized
women’s rights and where women’s units usually have limited authority to
initiate or monitor gender equality work, and no authority to hold people and
programs accountable.
Gender mainstreaming
is sometimes even misused to simply mean including men as well as women, rather
than bringing transformational change in gender power relations. At best, it has meant such things as
adopting a gender policy, creating a gender unit to work on organizational
programs, mandatory gender training, and increasing the number of women staff
and managers. In the worst cases, gender mainstreaming has been used to stop
funding women’s work and/or to dismantle many of the institutional mechanisms
such as the women’s units and advisors created to promote women in development,
in the name of integration. Both
national and international institutions have had this experience.
The UN system is
replete with examples of structures and personnel mandated to do gender equality
work that are under-resourced and under-prioritized. They constantly must fight
an uphill battle as a result of their low place in organizational hierarchies,
small size, limited mandate, and the lack of autonomy and connection to key
constituencies. Currently, there are
several under-resourced agencies focused exclusively on women’s issues
(United Nations Development Fund for Women (UNIFEM), International Research and
Training Institute for the Advancement of Women (INSTRAW), the
Secretary-General’s Special Advisor on Gender Issues (OSAGI), and the Division
for the Advancement of Women (DAW)). For example, UNIFEM, the only unit with a
(limited) field presence, is a fund, not an independent operational agency, that
reports to the UNDP administrator, which means that it doesn’t have a seat at
high-level decision making tables. Gender units – from OSAGI to those in the
specialized agencies – have limited ability to provide critical feedback or
speak out on gender equality performance; too often these special advisor or
gender focal points in the UN are used to defend the status quo rather than
change it. Their limited budgets, their limited access to decision-making, and
their limited terms of reference do not position them as critical players in
their own entities.
Other larger
agencies, including UNDP, UNFPA, UNICEF, UNESCO, the High Commissioners for
human rights and refugees and others, sometimes do important work on gender
equality, but it is only a part of their mandate, and often receives low
priority. According to a 2002
UNIFEM/UNDP scan, of the 1300 UN staff who have gender equality in their terms
of reference, nearly 1000 of these are gender focal points that are relatively
junior, have little substantive expertise, no budgets, and who deal with gender
as one element of a large portfolio. In other words, these structures are
designed to fail or falter.
Funding for gender
equality work within both mainstream agencies and women’s specific mechanisms
such as UNIFEM is grossly inadequate for the task at hand. In 2002, UNIFEM’s
resources totaled $36 million. In comparison, UNFPA’s budget for the same year
was $373 million; the Office of the High Commissioner for Human Rights’ budget
was $64 million and UNAIDS’ budget was $92 million. UNICEF’s budget in the same
year totaled $1,454 million. The message is clear: investment in women is of the
lowest order. Most mainstream agencies cannot even track how much money they
spend on women rights and the achievement of gender equality.
With decades of
experience and in view of the challenges ahead, there is ample knowledge of how
the UN system can be better organized and structured to facilitate positive
change for women and families. Currently there are a variety of options that are
being discussed. We see some as a
backward step, such as the absorption of UNIFEM into a larger agency such as
UNDP, while others would bring only cosmetic change, such as simply combining
current mandates, activities and budgets of UNIFEM, DAW, OSAGI and INSTRAW.
These we reject.
We believe that the
current system is no longer acceptable.
Therefore, we have focused on the approaches that have the greatest
potential to bring about coherence and positive systemic change. Our preferred approach would be the
creation of a well-resourced independent entity with normative, operational and
oversight capacity, a universal country presence and led by an Under-Secretary
General. An alternative approach
would be the creation of a specialized coordinating body with similar functions,
drawing on the UNAIDS model.
III. Recommendations
for Transforming the UN Gender Equality Architecture: There are many ways
to carry out these approaches, which this paper does not spell out in
detail. However, whatever approach
is taken, the principal functions and characteristics that we believe are
essential to an effective gender equality machinery are described below. Such an
entity must be a strong, women-specific entity mandated to work across
the whole UN system – one that has the capacity to lead, monitor and to act as a
driving force, or catalyst, for the advancement of gender equality and women’s
rights, at both the global and country level.
This system-wide
women-specific entity must perform three critical functions. It must have policy-setting
responsibilities on substantive issues of gender equality and women’s
rights. It must have the capacity
to monitor, with the authority to ensure accountability, on gender
mainstreaming throughout the UN system.
Finally, it must have a field presence to conduct and shape UN
operational activities to ensure that gender equality and women’s rights
programming are carried out effectively. This universal country presence is
essential to bridge the biggest gap between commitments to women’s human rights
norms and the realities of implementation.
In order to function
effectively, this entity must be backed up with several critical components or
characteristics. It must have
autonomy; it must be adequately and sufficiently resourced
(financially and in terms of personnel with high levels of substantive
expertise); and it must have the authority and clout necessary for the
entity to function as a substantive and political leader for gender equality at
the global and national level.
Women-specific lead
entity: Realizing women’s
rights and gender equality needs clear leadership on both the policy and the
operational side and we believe that a more explicit and synergistic
relationship between normative and operational work can best be achieved under
one umbrella. Without a lead
entity, gender equality continues to be everybody’s and nobody’s responsibility.
Gender mainstreaming will work best only when it co-exists alongside a strong
women’s agency that can demonstrate leadership and advocate at the highest
levels and hold the system accountable.
An entity with system-wide reach will improve the sharing of information, expertise and
follow-up between the normative and operational arms. The artificial
separation between the normative and operational does not work in practice,
leaving the normative function isolated from work on the ground where real
conditions inform policy and program requirements. Moreover, policy advocacy has
too long eclipsed the equally important business of institutional and
operational change needed to deliver development benefits to women.
Despite the arguments
of some critics, having a strong women-specific entity will not “ghettoize”
women’s issues. Just as other
issues have clear leadership (e.g., ILO for labor, UNICEF for children, and
UNHCR for refugees), gender equality issues also needs a driving force. This is
not a contradiction. The ILO does not ghettoize issues of labor. Just because
UNICEF focuses on children doesn’t mean that World Food Program should not
distribute food to children or that ILO cannot deal with child labor. At the same time, making it the mandate
of every agency should not preclude resourcing a specific entity with a mandate
to lead, catalyze and monitor the work. Every agenda needs a political driver to
lead it and the gender equality agenda is no exception.
System-wide
responsibility for gender equality: Effectiveness of such
a high level women-specific entity is contingent not only on its own
vision and capacity but also on the strengthened commitment (as measured through
prioritization, resourcing and results) of existing agencies in the whole United
Nations system toward gender equality goals. Women’s lives around the world are
touched by decisions ranging from small arms trade, climate control and
macroeconomic policy to water and sanitation, health and education. The task is
too broad and nuanced to be addressed by any one agency alone. In the case of
HIV/Aids for example, the whole UN system is mandated to address it with the
support of UNAIDS (including a well-resourced global fund for HIV/Aids) and
similarly the whole system is mandated to address human rights with the support
of a recently expanded OHCHR. So, too, for gender equality, system-wide
responsibility is critical.
B: The Key
Functions
Policy Development
and Advocacy: The entity should have a comprehensive mandate dedicated
to the full range of women’s rights and concerns, derived from CEDAW, the
Beijing Platform for Action, and other relevant policies. It must be able to
create and set coherent global policy for gender equality across the UN system
and advocate for necessary changes at both policy and institutional levels.
While the primary change must focus on implementation and accountability for
commitments that exist, gender discrimination is still embedded in many legal
and policy frameworks at all levels and normative work must continue to be a
priority.
Operations:
It
is critical for this entity to work at the country and regional levels on
strategic thinking, constituency building and programming. To enhance its
leadership role, this entity must provide high quality substantive
expertise buttressed by research and practice on the gender dimensions of a
range of substantive areas from macroeconomic policy and governance to violence
against women and sexual and reproductive rights. It should implement programs,
facilitate innovation, share lessons learned and enable institutional learning
throughout the system. This work must be done in close collaboration with
women’s organizations and networks.
Monitoring and
Accountability: Along with policy
development and operations, the lead entity must be able to develop a corresponding action plan and set of
performance indicators that are consistently tracked. It must have the capacity to monitor and
the power to ensure accountability, in the form of a mechanism that would
function at all levels of the UN system.
Developing partnerships with NGOs and women’s rights networks at
global, regional and country level is a critical part of the governance
structure of this accountability mechanism.
High-level systems at the
country and regional levels need to develop and implement specific
accountability mechanisms, incentives for promoting work on gender equality, and
take action for non-compliance. The institutional architecture at the country
level must be held accountable for gender equality goals using agreed-upon
benchmarks not only for the process of gender mainstreaming but for progress
toward women’ rights and equality goals.
Incentive systems are key as well as hiring more women in shaping the way staff
responds to these issues.
Agency Autonomy:
In order to ensure accountability for
gender equality and women’s rights efforts, there needs to be an independent
lead entity with the authority to take responsibility to tackle these issues and
promote gender commitments effectively.
Such an entity cannot be subsumed under another agency and must have its
own governance structure.
High-level
Leadership: The formation of a
strong entity with the potential to drive and affect change requires a major up
scaling of power, authority and resources. To guarantee this organizational
stature and a voice for women at the UN decision-making table, it should be led
by an Under Secretary General with substantive expertise in gender
equality. In addition, this entity
must participate in high-level decision-making bodies, such as the Chief
Executive Board for Coordination (CEB), High Level Committee on Programmes
(HLCP), and the Executive Committee on Peace and Security (ECPS).
Universal Country
Presence: Every
UN Country Team, every regional center, every UN peacekeeping mission needs to
have a gender equality expert or team that is represented at the heads of agency
level where decisions are made and must have an independent budget.
Adequate Resources:
The
lead entity must have substantial, regularized and predictable resources
adequate to implement the mandate.
This also includes well-trained substantive personnel at all levels of
the UN system, and at the global and country level.
An
expansion in resources for work on gender equality, as well as concrete tracking
mechanisms for allocations and expenditures in every UN organization and every
UNCT is a necessary component of reform. All UN agencies must also do gender
budgeting to make transparent the resources they are allocating to gender
equality goals. Funding for gender equality goals must come out of regular
budgets and not extra-budgetary sources alone and new ways of leveraging funding
for this work will need to be explored. For example, the United Nations should
consider allocating a percentage of all voluntary contributions to operational
activities for gender equality.
Donors
need to reinforce implementation of these principles rather than create escape
hatches for them. Too often, while
donors are calling for gender mainstreaming, they provide cost-sharing resources
to mainstream agencies, in spite of the fact that these agencies consistently
fail to allocate core resources to gender equality. This takes funds away from
women’s rights advocates and encourages mainstream agencies to ‘hold out’ on
investing their core resources.
[1] This
paper was prepared
by Aruna Rao, Founder-Director, Gender at Work, and edited by the Center for
Women’s Global Leadership (CWGL) and Women’s Environment and Development
Organization (WEDO).
[2] UNIFEM Assessment: A/60/62 –
E2005/10; UNDP Evaluation of Gender mainstreaming, available at http://www.undp.org/eo/documents/EO_GenderMainstreaming.pdf.