66034 EAST ASIA AND PACIFIC REGION Social Development Reports Making Everyone Count Gender-sensitive Monitoring and Evaluation in a Community-Driven Development Project: The Case of the Philippines’ KALAHI-CIDSS GAP funded gender equality as smart economics A World Bank Group Gender Action Plan Making Everyone Count Gender-sensitive Monitoring and Evaluation in a Community-Driven Development Project: The Case of the Philippines’ KALAHI-CIDSS © 2011 The International Bank for Reconstruction and Development / THE WORLD BANK 1818 H Street, NW Washington, DC 20433, U.S.A. Telephone: 202-473-1000 Internet: www.worldbank.org/eapenvironment/sea-asia E-mail: feedback@worldbank.org All rights reserved. November 2011 This volume is a product of the staff of the International Bank for Reconstruction and Development / The World Bank. 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Photo credits: Cover photos by the World Bank and KALAHI-CIDSS. iii Table of Contents Acronyms and Abbreviations . . . . . . v Acknowledgments . . . . . . vii Executive Summary . . . . . . ix 1 InTroduCTIon . . . . . . 1 Legal and Policy Framework . . . . . . 3 The Context of Gender and Development in the Philippines . . . . . . 4 Community-Driven Development in the Philippines . . . . . . 6 2 ThE KALAhI-CIdSS ProgrAM . . . . . . 9 Project Background and Objectives . . . . . . 9 Performance Highlights to Date . . . . . . 11 KALAHI-CIDSS’s Gender Strategy and Main Achievements . . . . . . 12 3 M&E FrAMEworK And IMPACT EvALuATIon . . . . . . 15 Objectives of the KALAHI-CIDSS M&E System . . . . . . 15 Monitoring of the KALAHI-CIDSS . . . . . . 16 The Impact Evaluation: Objectives and Design . . . . . . 16 4 how wAS gEndEr InTEgrATEd In ThE M&E FrAMEworK? . . . . . . 19 Lessons from Project Monitoring . . . . . . 19 Survey Findings and Gender Impact Evaluation Results . . . . . . 22 5 ProPoSAL For InCLudIng gEndEr IndICATorS In KALAhI-CIdSS . . . . . . 23 Introduction . . . . . . 23 Methodology . . . . . . 23 Toward Draft Gender Outcome Indicators . . . . . . 23 Pilot Testing Draft Indicators . . . . . . 24 Proposed Gender Indicators . . . . . . 27 Political Empowerment Indicators . . . . . . 27 Economic Empowerment Indicators . . . . . . 30 Social Empowerment Indicators . . . . . . 31 iv Making everyone Count AnnExES . . . . . . 35 Annex 1. KALAHI-CIDSS Results Framework and Monitoring . . . . . . 35 Annex 2. GAD Checklist for Project Management, Implementation, and Evaluation . . . . . . 39 Bibliography . . . . . . 42 LIST oF TAbLES Table 1. Summary of Key Challenges to Women in the Philippines . . . . . . 5 Table 2. Breakdown of Subprojects, as of August 2010 . . . . . . 12 Table 3. Survey of Municipalities . . . . . . 17 Table 4. Summary of Data on Women’s Participation in KALAHI-CIDSS Processes . . . . . . 20 Table 5. KALAHI-CIDSS Monitoring Tools with Gender Dimension . . . . . . 21 Table 6. Sampling for the Field Test . . . . . . 25 Table 7. Summary Information on the Proposed Indicators . . . . . . 33 LIST oF boxES Box 1. Gender Checklist for Policy Implications of Gender Analysis . . . . . . 20 Box 2. Political Engagement: Virgie Niebres, Barangay Rawis, Pio duran . . . . . . 26 v Acronyms & Abbreviations ACT Area Coordination Team ADB Asian Development Bank BA Barangay Assembly BaBae Barangay monitoring and advocacy team BAPA Barangay Power Association BA Barangay Assemblies BGA Baseline gap analysis BRT Barangay representation team BSPMC Barangay Sub-Project Management Committee CDD Community-driven development CEAC Community empowerment activity cycle CEDAW Convention on the Elimination of All Forms of Discrimination Against Women CFA Community Fund Agreement CIDA Canadian International Development Agency CIDSS Comprehensive and integrated delivery of social services DSWD Department of Social Welfare and Development EC European Commission ECD/ECCD Early childhood care and development FGD Focus group discussion GAD Gender and development GEM Gender and empowerment measure JSDF-SIP Japan Social Development Fund- Social Inclusion Project KALAHI-CIDSS Kapit-Bisig Laban sa Kahirapan – Comprehensive and integrated delivery of social services LCC Local community contribution LGU Local government unit vi Making everyone Count LPRAT Local Poverty Reduction Action Team M&E Monitoring and evaluation MDC Municipal Development Council MDG Millennium Development Goals MIBF Municipal Inter-Barangay Forum MIC Monitoring and inspection committee MIVF Municipal Inter-Village Forum MIS Management information systems MIT Monitoring and inspection team MLGOO Municipal Local Government Operations Officer MPC Multipurpose cooperative MPDC Municipal Planning and Development Coordinator MPDO Municipal Planning and Development Office MSWDO Municipal Social Welfare and Development Office NCRFW National Commission on the Role of Filipino Women NEDA National Economic and Development Authority NGO Nongovernmental organization NSCB National Statistics Coordination Board NSO National Statistics Office ODA Official development assistance O&M Operations and maintenance OMC Operations and maintenance committee OP Operational policy of World Bank POEA Philippine Overseas Employment Agency PSA Participatory situational analysis RHU Rural Health Unit SIP Social inclusion project UNESCAP United Nations Economic and Social Commission for Asia and the Pacific UNIFEM United Nations Development Fund for Women UNPFA United Nations Population Fund WB World Bank Note: All dollars are U.S. dollars unless otherwise indicated. vii Acknowledgments T his report was led by the World Bank’s Sustain- able Development Department in the East Asia Region in collaboration with the KALAHI- CIDSS national office, which is part of the Department of Social Welfare and Development in the Philippines. tating the fieldwork and making project monitoring data available. From the World Bank, Kathleen G. Beegle, Nora Dud- wick, and Janmejay Singh peer-reviewed the document. Malu Padua from the World Bank Philippines and The World Bank’s Task Team included Nina Bhatt Edgar Pato, Lourdes Turiano, Benilda Redaja, Cicero (Task Team Leader), Helle Buchhave, Julien Labonne, Juan Aguilar, and Alexander Glova of the Department and Ian Parker. Carolyn Sobritchea, Rachel Aquino, of Social Welfare and Development peer-reviewed Lourdes Turiano (KALAHI-CIDSS Gender Coordi- early and final drafts. Views and comments provided nator), Gerry Bajaro, and Teresita Chua conducted by World Bank colleagues are gratefully acknowledged, surveys in the provinces of Albay and Capiz that including from Sean Bradley, Anne Kuriakose, Andrew provided data on gender-responsive indicators for Parker, and Susan Wong. During the early stages, the the project. Invaluable support was provided by the report also benefited from comments provided by the KALAHI-CIDSS national office within the Depart- World Bank Gender and Development Board during ment of Social Welfare and Development. In par- a presentation of preliminary findings. Specific inputs ticular, Director Camilo Gudmalin, Lourdes Turiano, were provided by Bob Livernash (editing support) and Alex Glova, Anthony Ong II, Egdar Pato, Jojo Aguilar, Nina Queen and Florian Kitt, who coordinated the Eileen Maloy, and Sareth Tingson provided techni- report production. cal guidance and made documents available for desk review. Special thanks are also due to the provincial This report was made possible with the financial sup- KALAHI-CIDSS offices in Albay and Capiz for facili- port of the World Bank Gender Action Plan. This report describes efforts made to incorporate gender within KALAHI-CIDSS as a globally significant CDD initiative and proposes steps that could be taken to strengthen the project’s gender responsiveness. © Edwin Huffmann / World Bank ix Executive Summary Gender and Community-Driven prevent women from achieving equal social status and Development in the Philippines compensation in most career tracks in the Philippines. This report is intended to assist development practitio- Importantly, the government of the Philippines in ners, gender specialists, and social scientists. Its goal is recent years has prioritized the promotion of gender to encourage discussion and improve project interven- equality. For instance, the Constitution contains spe- tions. It describes recent efforts to incorporate gender cific provisions on gender, reflecting the Philippine’s within a specific community-driven development proj- key role as one of the earliest signatories to the Conven- ect—the Philippines’ KALAHI-CIDSS—and proposes tion on the Elimination of All Forms of Discrimination steps that could be taken to strengthen the project’s gen- Against Women (CEDAW). The country also signed der responsiveness. The report provides an overview of the Millennium Declaration, in which gender equality the project’s key features and describes its methodology plays an integral role in the achievement of the Millen- and achievements from 2002–10. It then outlines ele- nium Development Goals. On top of its international ments of a monitoring and evaluation framework used commitments, the Philippines has successfully imple- to measure the effectiveness of community interaction and selected indicators. It emphasizes important lessons mented laws and policies promoting gender equality. learned through implementing the KALAHI-CIDSS Yet, despite these gains, challenges remain: Women in across the Philippines, especially in terms of gender the Philippines face a cycle of disadvantages perpetuated and development issues. The report provides a toolkit of potential gender-based M&E indicators developed by gender-ascriptive institutional, cultural, and social through field research in 2009. Monitoring and evalu- environments. The extent of women’s participation in ation specialists and those familiar with the context of economic and political life is hindered by everyday sex- gender in the Philippines may skip introductory sec- ism and inequities vis-à-vis men. Regional disparities are tions and focus on the section on indicators (5), as well also evident; with the combined effects of gender differ- as results from the impact evaluation and surveys (3,4). entials, these disparities compound the challenges facing women in an environment of poverty. While the Philip- The current status of women in the Philippines is both a pines takes pride in achieving important milestones for cause for celebration and a reason to redouble efforts at advancing Filipino women, much work remains. Both empowerment. Women have benefited from improved women and men should be seen as active participants in educational opportunities, better maternal health care, determining the nation’s socioeconomic fate. organizational support, and newly enacted policies for empowerment. But women also suffer from high mater- The KALAHI-CIDSS offers the promise of poverty nal mortality rates, pervasive physical and emotional reduction through building governance and institu- abuse, and numerous economic disadvantages, such as tions at local levels throughout the country. While its discrimination at the workplace, challenges of migrant initial design did not contain a specific gender program, life, lower land ownership rates, and displacement there are a number of key areas for implementing gen- brought about by civil unrest (Barron 2010). Wide dis- der-based project interventions. This report is part of crepancies also exist in political representation and the an ongoing dialogue to support more targeted, gender- judicial system, where few women are legislators, judges, disaggregated indicators that can be included across a and executives. Negative gender stereotypes continue to range of development projects. A day-care center funded by the KALAHI-CIDSS project in municipality La Castellana, Visayas region. The KALAHI-CIDSS project is showing impressive impact evaluation results on women’s labor force participation. © Sean Bradley / World Bank 1 Introduction 1 T he Philippines has made significant prog- ress in empowering women and in advancing gender equality. The government’s policy on gender equality and women’s empowerment has pri- oritized women’s economic empowerment, advanc- sion on Human Rights responsible for women’s rights concerns. The Magna Carta of Women demands repeal of laws discriminatory to women; ensures women’s equi- table participation and representation in government, political parties, international bodies, civil service, and ing human rights and enhancing gender-responsive the private sector; affords equal opportunities to women local governance. All these priority concerns are in relation to education, employment, livelihood, social integral components of poverty reduction programs protection, and the military; and mandates access to in the Philippines. information and services pertaining to women’s health. The Philippines has made significant progress in This act provides critical infrastructure for the road empowering women and in advancing gender equal- ahead. However, bureaucratic challenges, lack of ade- ity. Since the government introduced a Constitution in quate finances, staff training, and institutional coopera- 1987 affirming the equality of women, it has pursued a tion hamper immediate change. This report will outline number of initiatives to mainstream gender concerns a few key areas where women continue to be disadvan- in national policies and programs. A Development taged compared to men, and will then describe how Plan for Women was launched in 1987, followed by a community-driven development projects are working Plan for Gender-Responsive Development, 1995–2025, to shift the dynamics of inclusion. coordinated by the National Commission on the Role of Filipino Women. In 2004, the commission drafted a Poverty is experienced differently by men and women. Framework Plan for Women that identifies three prior- The inclusion of gender-sensitive development strate- ity concerns to meet the objectives of gender equality gies contributes significantly to economic growth, as and women’s empowerment: economic empowerment well as to equity objectives by ensuring that all groups of women, protection and fulfillment of women’s human of the poor share in program benefits. Yet, differences rights, and gender-responsive governance. Projects that between men’s and women’s needs are often not fully support these priorities will facilitate more equitable implemented across development projects. It is essen- development across the Philippines, including support- tial to integrate gender analysis into poverty diagnosis ing the full participation of women in political processes and to ensure that participatory consultation and plan- and governance in the international and national local ning processes are specifically designed to give voice to level, strengthening gender-sensitive and inclusive pro- all sectors of society—women and men, as well as dif- grams and mechanisms with civil society, and increas- ferent age, ethnic, and cultural groups. ing women’s access to economic resources such as capi- tal, technology, information, markets, and training. Promoting gender equality and the empowerment of women supports a foundation for effective devel- Passed in August 2009, the Magna Carta of Women opment (World Bank 2002a). The mainstreaming of (Republic Act 9710) consolidated and greatly expanded gender issues as a core focal area for development has national polices for supporting women’s social, political, increasingly been implemented among multilateral and and economic rights. Specific developments include the international financial organizations. For instance, the creation of a gender ombudsman under the Commis- World Bank’s 1994 Operational Policy on Gender and 2 I m pa c t o f c o m m u n I t y- D r I v e n D e v e l o p m e n t p r o j e c t s o n G e n D e r A key provision in the CEDAW is to “Institute affirmative action mechanisms so that women can participate meaningfully in the formulation, implementation, and evaluation of policies, plans, and programs for national, regional, and local development.� Photo: Edwin Huffman/World Bank Development (OP 4.20) emphasized reducing gender capacity to perform multiple tasks and responsibilities disparities and increasing participation of women in (Asian Development Bank et al. 2008). To date, the Phil- economic development across a range of project areas. ippine government’s policy on gender equality and wom- The Bank’s gender policy is based on empirical evidence en’s empowerment has prioritized women’s economic that suggests that the persistence of gender inequality empowerment, advancing human rights and enhancing lowers women’s overall welfare, creates inefficiencies gender-responsive local governance (National Com- in labor allocation in households and the general econ- mission on the Role of Filipino Women, n.d.). All these omy, and hurts project outcomes. priority concerns are integral components for poverty elimination programs in the Philippines. These gender- A lack of access to adequate and regular income, basic specific priorities are also included in the government’s social services, and a lack of access to new technologies Medium Term Development Plan (2004-2010).1 disproportionately impacts women in impoverished regions. Women suffer from malnutrition, pregnancy, 1See: http://www.neda.gov.ph/ads/mtpdp/MTPDP2004-2010/PDF/ and maternal health problems, thereby reducing their MTPDP2004-2010.html I m pa c t o f c o m m u n I t y- D r I v e n D e v e l o p m e n t p r o j e c t s o n G e n D e r 3 Legal and Policy Framework out of 116 countries surveyed in a 1995 Gender and Empowerment Measure (GEM); in 2007, the nation had Increased gender responsiveness has led to measur- moved to 6th out of 129 countries worldwide (UNDP able results. In 1995, the Philippines ranked 28th 2008). Nevertheless, despite many gains in efforts to out of 116 countries surveyed in a 1995 Gender and advance women’s welfare in the country, serious gender Empowerment Measure (GEM); in 2007, the nation disparities persist. For instance, The Philippines contin- had moved to 6th out of 129 countries worldwide. ues to have one of the highest maternal mortality rates Yet despite many gains in efforts to advance women’s (MMRs) in Southeast Asia. Its MMR of 172 in 1998 was welfare in the country, serious gender disparities about four times that of Thailand and about twice that persist. of Vietnam (Asian Development Bank 2004). In South- Over the past three decades, the Philippines has pursued east Asia, the Philippines not only has one of the highest gender equality programs in accordance with principles population growth rates, but in the period from 1995 to established by the Convention on the Elimination of all 2000 had the second highest number of total births per forms of Discrimination Against Women (CEDAW) year—four times that of Malaysia and about twice that and action plans of the Women’s World Conferences of Thailand. This can partly be explained by a low con- in Nairobi (1985) and Beijing (1995). Amendments to traceptive use rate across the country. Filipino women the 1987 Philippine Constitution also include provi- also do not control and often do not have freedom sions that underscore the country’s recognition of the to decide whether and when to have children. Many importance of promoting equality between the sexes women are therefore susceptible to specific health risks and advancing the rights of marginalized communities.2 arising from complications related to pregnancy; this Consequently, a number of key laws have been enacted creates an additional burden by reducing opportunities since 1987 to protect women from gender discrimina- for women to participate in the labor market. tion in economic, political, and cultural life.3 The 2009 Magna Carta of Women represents an impor- In 1994, following the National Commission on the Role tant law for eliminating discrimination against women of Filipino Women (NCRFW), the Philippine govern- by recognizing, protecting, fulfilling, and promoting ment prepared a Strategic Plan for Gender Responsive the rights of Filipino women in all spheres of society. Development. This provided a foundation of principles The introduction of legislation on women’s rights has for advancing the status of women, as well as a compre- been under discussion in the Philippines’ Congress hensive approach for government agencies to respond (the bicameral parliament) for the past seven years and to gender issues. A series of analytical tools for main- has been supported by UNIFEM through its CIDA- streaming gender considerations in program planning, funded CEDAW South East Asia Program since 2006, implementation, monitoring and evaluation were devel- as well as by UNFPA, UNICEF, UN Habitat, UNDP, oped and widely disseminated to all government agen- UNAIDS, and ILO through the UN Joint Program to cies. Supplemental tools included budget guidelines Facilitate the Implementation of the CEDAW. The law and tools for preparing responsive gender action plans. contains extensive provisions that promote women’s Periodic training of government officials and person- rights, including the right to nondiscrimination. Key nel from across the legislative, executive, and judicial provisions include:4 branches of government has combined with the strategy 77 Ensure that the state will review and, when nec- to bolster gender responsiveness among public officials essary, amend and/or repeal existing laws that (Asian Development Bank et al. 2008). But much more are discriminatory to women within three years can be done to scale up gender mainstreaming efforts to from its enactment. nurture the growth of a paradigm change. 77 Institute affirmative action mechanisms so that Increased gender responsiveness since 1987 has led to “women can participate meaningfully in the measurable results: in 1995, the Philippines ranked 28th formulation, implementation, and evaluation of policies, plans, and programs for national, re- 2 For instance, Article II, Section 14 “recognizes the role of women in gional, and local development.� nation-building, and shall ensure the fundamental equality before the law of women and men.� 3 See: http://www.neda.gov.ph/ads/mtpdp/MTPDP2004-2010/PDF/ 4See http://www.unifem-eseasia.org/Governance/Women_Legal_Rights MTPDP2004-2010.html .html. 4 Making everyone Count 77 Ensure mandatory human rights and gender 2. NCRFW lacks the means to train government sensitivity training to all government personnel agencies regarding their GAD budgets, specifi- involved in preventing and defending women cally how they could use their GAD budgets from gender-based violence. in more strategic ways to contribute to gender 77 Encourage local government units (LGUs) to mainstreaming, gender equality, and women’s develop a gender and development (GAD) code empowerment. in their respective localities based on consulta- 3. Enhancing the capacity of DBM to enforce the tion with their women constituents. GAD budget policy. 77 Increase womens’ representation in third-level 4. Enhancing capacity of DBM to monitor GAD positions in government to achieve equal gender budget implementation of national agencies, and balance within the next five years while the com- the capacity of DILG to monitor implementation position of women in all levels of development at the local government level. planning and program implementation will be at least 40 percent. 77 Provide equal access and elimination of discrimi- The Context of Gender and nation in education, scholarships, and training Development in the Philippines and outlaw “expulsion, non-readmission, prohib- In 2002, the women’s and men’s labor force partici- iting enrollment, and other related discrimina- pation rate as a proportion of the total labor force tion of women students and faculty due to preg- was 51.7 percent and 80.8 percent, respectively. In nancy out of marriage.� 2009, women’s labor force participation was 49.3 77 Promote the equal status of men and women on percent compared with 78.8 percent for men. the titling of the land and issuance of steward- ship contracts and patents. Persistently high population growth has contributed significantly to decreasing employment opportunities While the legal and regulatory framework for pro- for able workers in the country. This is reflected in the moting gender equality and women’s empowerment persistence of relatively high unemployment and under- is strong, weaknesses remain in the implementation employment rates in the Philippines. For instance, the and monitoring of existing laws and policies, which are country’s official unemployment rate averaged 10.6 uneven across government agencies. This is a widely percent during 1997–2003, and the underemployment acknowledged weakness in Philippine governance. rate was 17.1 percent in 2003. The women’s labor force The full implementation of the gender and develop- participation rate lags behind that of men. In 2002, the ment (GAD) budget policy could unleash a tremendous women’s and men’s labor force participation rate as a amount of resources to support women’s empowerment proportion of the total labor force was 51.7 percent and promote gender equality. Lota Bertulfo recently and 80.8 percent, respectively (Bertulfo 2010). In 2009, highlighted four gaps with regard to the GAD policy womens’ labor force participation was 49.3 percent (Bertulfo 2010): compared with 78.8 percent for men (National Statisti- cal Coordination Board 2010). 1. Most government agencies do not know what ac- tivities could be covered under the GAD budget. During the 1990s, the labor participation rate for women increased significantly because the govern- ment adopted a more open trade policy. This policy contributed to the growth of the service sectors and According to NEDA, the of the garment and electronics industries, where KALAHI-CIDSS project female employment has traditionally been strong. is helping to increased knowledge about women’s Most of the women employed within these sectors are rights and gender equality. employed as home-based workers, leaving them with Photo: © KALAHI-CIDSS few social safety nets, including insurance, pensions and other social benefits. Women who are unable to find formal sector employment end up in the infor- mal economy, where wages are low and working con- ditions remain unacceptable. Making everyone Count 5 While women suffer the majority of gender-related Fewer than half of Philippine students graduate from discrimination, men also experience gender dispari- high school. By the end of Grade 6, 35 of every 100 ties in the Philippines. This is especially clear within have left, 57 drop out before the end of high school, primary and secondary education. In 2006, only 69 and only 2 enter college.6 Young men suffer lower percent of boys, compared with 78 percent of girls, retention rates, lower overall literacy, and lower enroll- persisted to the last year of primary school. In 2008, ment in college than women. They are less likely than 634,743 school-age boys were not enrolled, compared women to continue with their education—a challenge with 480,634 girls.5 From 1995 to 2002, total school for high-skilled, technically demanding careers of the enrollment grew by almost 2 percent a year. In 2003, future. Reversing this trend will be critical to achieving the trend reversed, and enrollment has since decreased gender parity in education. by about 1 percent annually. 6 UPI, “School Enrollment dropping in Philippines� June 18 2008. Online. Available: http://www.upi.com/Top_News/2008/06/15/School- 5World Bank Data Indicators: http://data.worldbank.org/indicator/ enrollment-dropping-in-Philippines/UPI-94331213509617/. (Accessed SE.PRM.PRSL.FE.ZS/countries/1W-PH?display=default December 5, 2010.) TAbLE 1 Summary of Key Challenges to women in the Philippines Key MTPDP Key and PPA Areas of Strategic Areas Capability Gender Issues in Development Macroeconomic Productive • Higher domestic unemployment for women than men at ages 15–34 years stability and capability • Gender segregation in domestic employment by industry, occupation group, and class of worker equitable growth • By industry, female employment more likely found in wholesale and retail trade and in agriculture; by occupation group, as laborers and unskilled workers; and by class of worker, as unpaid family workers • Female employment significant in industries that are mainly informal (i.e., agriculture, manufacturing, and wholesale and retail trade) • Gender segregation in domestic employment replicated in overseas employment; women’s domination as laborers and unskilled workers by occupation group overseas Agricultural Productive • Less access by women to productive resources in agriculture, such as land, extension services, modernization capability and credit with social • Gender-ascriptive environment and practices that favor men as owners of land equity • Land redistribution through the Comprehensive Agrarian Reform Program, which has benefited men more than women Comprehensive Basic • Higher participation and completion rates for females in elementary, secondary, and tertiary human functional education not reflected in better performance of women in professional examinations; more development capabilities men than women pass the examinations of the Professional Regulations Commission and protecting • Women’s functional literacy rates higher than men in all regions, except in ARMM, and the rates the vulnerable for both women and men in ARMM are way below the national average • High maternal and child mortality rates, specifically in all regions of Mindanao, higher than those elsewhere in the ASEAN region • High fertility rates for women, higher than those elsewhere in the ASEAN region • Gap between desired and actual number of children • Increasing gender-based violence as a serious threat to personal security Good and Political • Advocacy for women-specific and gender-responsive legislation and related implementing rules effective capability and regulations governance and • Increasing number of women participating in electoral politics, but males still overwhelmingly rule of law dominate electoral participation as candidates and winners • Higher voter turnout among females, but transforming this into a constituency for a gender agenda/gender-responsive platform is in its infancy • Higher number of women in government, dominating the second-level positions, but more men in the third level (managerial positions) Source: ADB 2004. 6 makInG everyone count Community-Driven Development in the Philippines Using a community-driven development (CDD) approach, where communities identify priorities and manage subproject implementation, the KALAHI- CIDSS Project has financed more than 5,300 small- scale investments in infrastructure and other facili- ties in 184 of the poorest municipalities. As a general principle, CDD operations are designed to promote inclusion and voice of vulnerable and excluded groups such as women. Community-driven development (CDD) gives control of decisions and resources to community groups, by viewing margin- alized, impoverished, and underrepresented popula- tions—including women—as assets and partners in the development process. It is a process for building on their institutions and resources to support more inclusive community groups, facilitating community access to information, and promoting an enabling environment through policy and institutional reform. CDD fills a critical gap in poverty reduction efforts by achieving immediate and lasting results at the grassroots level and through complementing mar- ket economy and government-run programs. With these powerful attributes, CDD programs can play an important role reducing poverty for women in the Philippines and abroad. At the national level, the Philippine government has approached CDD programs through a few key mech- anisms. Firstly, the Philippine Constitution provides for strong citizen’s participation in development. The Local Government Code also espouses participatory local development processes. Over the last decade, the Department of Social Welfare and Development (DSWD) has encouraged close cooperation with non- governmental organizations and intergovernmental bodies such as UNIFEM in broadening linkages to new methods for developing gender-sensitive proj- ect interventions, policies, and analytical frameworks. Advocates from across these organizations continue to work with the Philippine Commission on Women (still known as NCRFW) and other gender and development advocates in government. One result is that the cur- The gender gap in education has reversed and it is now rent Medium-Term Philippine Development Plan has boys and young men who are disadvantaged. © World Bank adopted CDD as a core approach for poverty reduction. The KALAHI-CIDSS is one of the major pillars of the convergent social protection programs under DSWD’s social welfare and development reform agenda. Making everyone Count 7 At the local level, the Philippine government is promot- ing greater community empowerment in the Philip- pines through participation, accountability, and trans- parency in local decision making, especially for poor and disadvantaged groups. Using a community-driven Standpipe financed by development (CDD) approach, where communities KALAHI-CIDSS in barangay identify priorities and manage subproject implementa- Carawan, Visayas region. tion, the KALAHI-CIDSS Project has financed more KALAHI-CIDSS project than 5,300 small-scale investments in infrastructure monitoring and evaluation data indicate that women and other facilities in 184 of the poorest municipalities. have regularly contributed Local government units (LGUs) provide technical sup- to participatory situational port and counterpart funding with responsibility for analysis, mobilization and operation and maintenance being shared between com- development of volunteers, munities and LGUs. Two similar CDD projects—the and to municipal or inter- Autonomous Region in Muslim Mindanao (ARMM) barangay forums to prioritize Social Fund and MRDP2—both focus on Mindanao, and develop subproject one of the poorer regions still experiencing conflict. In proposals © Sean Bradley / addition, the World Bank has helped to establish and World Bank get off the ground a multi-donor Mindanao Trust Fund. This report describes efforts made to incorporate gender within KALAHI-CIDSS as a globally signifi- to measure the effectiveness of community interaction cant CDD initiative and proposes steps that could be and selected indicators, and briefly emphasizes impor- taken to strengthen the project’s gender responsive- tant lessons learned since 2002 through implementing ness. It first provides an overview of the project overall the KALAHI-CIDSS across the Philippines, especially and describes key features of its methodology and its in terms of gender and development. The report also achievements from 2002 to the present. It outlines ele- provides a toolkit of potential gender-based M&E indi- ments of the monitoring and evaluation framework used cators developed through field research in 2009. This flood control wall in barangay Carmen, Visayas region, is one of the 5,300 community subprojects financed by the KALAHI-CIDSS project. © Sean Bradley /World Bank 9 The KALAhI-CIdSS Program 2 Project Background ect cost is $182.4 million, including $100 million from and Objectives the World Bank, $31.4 million from the national gov- ernment, and villagers and their local governments con- The KALAHI-CIDSS project is implemented by tributing $51 million as cash or in-kind contributions. the Philippines’ Department of Social Welfare and When it was launched, the project was part of the over- Development, with the World Bank providing finan- all KALAHI framework, which was the government’s cial support. KALAHI-CIDSS focuses on strength- program for a focused, accelerated, convergent, and ening local communities’ participation in barangay expanded strategy to reduce poverty. The KALAHI pro- governance and developing their capacity to design, gram aimed to provide interventions on asset reform, implement, and manage development activities that human development services, capacity building, and reduce poverty. participation in governance. The KALAHI-CIDSS is a community-driven develop- The KALAHI-CIDSS project adopts features of two ment (CDD) project that aims to empower communi- successful community development projects: (1) the ties through their enhanced participation in community Philippines’ Comprehensive and Integrated Delivery projects that reduce poverty. It strengthens community of Social Services (CIDSS), and (2) Indonesia’s Keca- participation in local governance and develops local matan Development Program. CIDSS was a CDD pro- capacity to design, implement, and manage develop- gram in the Philippines that focused on three villages ment activities. Community grants are used to support per target municipality, particularly on the most disad- the building of low-cost productive infrastructure such vantaged families within these villages. It stressed the as roads, water systems, clinics, and schools.7 Since convergence of various agencies and their social ser- 2002, the project has benefited 1.1 million households in vices. The World Bank-supported Kecamatan Devel- 4,229 barangays (villages),8 covering 184 municipalities opment Program (KDP) in Indonesia provided inspira- in the country’s 42 poorest provinces. It has financed tion for the CIDSS program. Participating kecamatans over 5,300 community subprojects, including basic (subdistricts) across the archipelago received block social services facilities, such as water systems, school grants ranging from $55,000 to $85,000 each year. Vil- buildings, health and day care centers; access roads and lages in participating areas then submitted proposals small bridges; and environmental and disaster control for subprojects (World Bank 2005a). In 2006, Indo- infrastructure. nesia’s President Yudhoyono expanded on the path- breaking work of the KDP by announcing the National The project is implemented by the Philippines’ Depart- Program for Community Empowerment—or Program ment of Social Welfare and Development, with the Nasional Pemberdayaan Masyarakat (PNPM)—as World Bank providing financial support. The total proj- the policy and operational umbrella for all community empowerment programs in the country. PNPM builds 7 http://www.philippineembassy-usa.org/news/584/299/President- directly upon the Kecamatan Development Program’s Aquino-lauds-KALAHI-CIDSS-member-beneficiaries/d,phildet/ local-level focus on supporting development from 8 A barangay is the smallest administrative division in the Philip- pines and is also the Tagalog term for “village� or “local settlement.� a grassroots level. As an expansion of earlier CDD It is the level of political representation closest to the people and is programs, Indonesia’s PNPM has become a flagship governed by barangay officials headed by an elected barangay cap- community-driven poverty reduction program. With tain and barangay councilors. 10 Making everyone Count World Bank technical and financial assistance, PNPM bilization, effective community ownership of currently covers all villages and cities across the vast investments, and induce the type of behavioral archipelagic country. change required for long-term sustainability of such investments. KALAHI-CIDSS focuses on strengthening local com- munities’ participation in barangay governance and In September 2010, The World Bank’s Board of Execu- developing their capacity to design, implement, and tive Directors approved an additional $59.1 million to manage development activities that reduce poverty. This increase the scale of KALAHI-CIDSS toward a nation- objective establishes a strong link between improved wide community-driven development (CDD) program local governance and poverty reduction. This goal is through May 31, 2013.9 Within the provinces already pursued through three interlinked activities: covered, the additional financing will expand the proj- ect’s reach to 220 municipalities that have a poverty i. Empowerment of communities. This involves incidence of 50 percent or greater. participatory planning, implementation, and management of local development activities. It Secretary of the Philippines’ DSWD Corazon Juliano- fosters an engagement with government at all Soliman welcomed the approval of additional financing levels to access, influence, and manage resourc- for the KALAHI-CIDSS, stressing that the project sup- es to meet community priorities. ports President Benigno Aquino III’s platform of people ii. Improvements in local governance. Strategies empowerment, transparency, and poverty reduction: to improve local governance include strength- “When local residents come together to discuss their ening formal and informal institutions to be- own problems and find solutions to these common come more inclusive, accountable, and effective. challenges, programs and projects are sustained and iii. Provision of grants for community invest- implemented effectively and in the most transparent ment programs. By matching needs with lim- manner. That’s the advantage of community-driven ited resources in a competitive manner, com- development approaches like the KALAHI-CIDSS.�10 munities and local government units (LGUs) will be engaged in a demand-driven process The additional financing supports two enhanced imple- of problem solving. The limited project grant mentation modalities, including: resources will trigger better local resource mo- 77 An LGU-led community-driven development (CDD) approach that would support a more devolved, cost-effective implementation, and give greater responsibility and authority to mu- nicipalities over program implementation while retaining the DSWD’s monitoring and oversight functions. 77 The piloting of KALAHI-CIDSS in eight selected urban poor communities that would respond to their specific concerns—such as land tenure, Barangay Rawis in housing, resettlement, livelihoods, urban sanita- Pio Duran, Albay. tion, and other environmental issues. Portions of the barangay road that are not yet paved 9 The World Bank Philippines. Media Release no. 11/08. Accessible at: show knee-deep http://go.worldbank.org/FB1WOQRIU0. mud during rainy 10 Secretary Soliman said the CDD approach supported by the KA- days prior to the LAHI-CIDSS is one of the “three legs of convergence� for enhancing installation of the capacity of the poor to escape poverty. The other two are a con- concrete by the ditional cash transfer program (called Pantawid Pamilyang Pilipino Program) and a sustainable livelihoods program. See: “Remarks with KALAHI-CIDSS. Philippine President Benigno Aquino III At Millennium Challenge Photo: Rachel Aquino/ Corporation Signing Ceremony,� September 23, 2010. (Retrieved World Bank. September 27, 2010.) Accessible at: . Making everyone Count 11 Additionally, the United States recently signed a $434 million economic compact with the government of the Philippines through its Millennium Challenge Corpora- tion (MCC). Of this amount, $120 million will enable the financing of KALAHI-CIDSS among 21 provinces, composed of about 190 of the poorest municipalities, and an estimated 4,000 barangays by the end of 2015. The $120 million grant includes an incentive fund for gender responsive community initiatives and a mecha- nism for implementing social and environmental risk assessments in project areas.11 Performance highlights to-date12 Launched in 2003, KALAHI-CIDSS has evolved to become a novel and most promising approach to involve Truck and motorbike being loaded in Barangay Rawis in Pio Duran, Albay. This communities, women, and men in efforts to eliminate portion of the barangay road has been concreted with support from KALAHI- poverty in the Philippines. From six pilot communities CIDSS and is offering quite extended opportunities for transport than the pervious in 2003, the project has greatly expanded its geographic muddy alternative. Photo: Rachel Aquino/World Bank reach. It has covered 4,429 of the poorest villages in the country and completed 5,326 subprojects.13 These sub- projects include the following:14 77 Skills training and capability building subprojects. 77 Basic social services. Construction of water sys- These include lighthouse/ecotourism subproj- tems, school buildings, daycare centers, village ects (almost one-half percent of all grants). (barangay) health stations, electrification, and tribal housing/shelter (which account for 45 per- The project has: cent of all grants obligated). 77 Basic access infrastructure. Construction of ac- 77 Attained full-scale implementation in 2006 with cess roads, small bridges/footbridges and access coverage of 4,229 barangays (villages) in 184 trails (38 percent of all grants). municipalities of the poorest 42 provinces, with 77 Community production, economic support, and almost all barangays committing to sustain the common services facilities. This area includes participatory processes introduced by the project. community economic enterprise training, equip- 77 Completed 99 percent of initial subprojects. ment and materials support subprojects, pre- Approximately $121 million has been invested and post-harvest and multipurpose facilities, in community subprojects, leveraging more small-scale irrigation, and community transport than $38 million in local counterpart contribu- (over 8 percent of grants); tion equivalent to 31 percent of the total sub- 77 Environmental protection and conservation. Sub- project cost. In addition, about 17 percent of projects include drainage, river/flood control, the barangays have accessed funding from oth- sea walls, soil protection (rip rap), artificial coral er sources to support their priority subprojects. reef sanctuaries, and sanitation facilities (almost 77 Achieved a high level of sustainability indicated 8 percent of all grants). by a sustainability evaluation that showed 96 percent of a sample of 611 completed subproj- 11 “Philippines Receives $434 Million Poverty Reduction Compact.� ects were rated excellent or satisfactory. In addi- MCC Press Release., September 23, 2010. Retrieved 26 September 26, 2010. Accessible at: . of 3,882 completed subprojects, of which 87 per- 12 See World Bank (2010). cent were rated functional. 13 The World Bank Philippines. Media Release no. 11/08. Accessible at: http://go.worldbank.org/FB1WOQRIU0. 14 The World Bank Philippines. Media Release no. 11/08. Accessible Initial positive results of the use of CDD approaches on at: http://go.worldbank.org/FB1WOQRIU0. social capital and local governance were documented by 12 Making everyone Count TAbLE 2 breakdown of Subprojects, as of August 2010 Total Sub- Released # of Direct HH Project Cost KALAHI-CIDSS Major SP Category # of SPs Beneficiaries (PHP) Grant LCC Delivered Basic Social Services 2,652 580,292 2,357,632,780 1,665,709,660 691,923,120 Basic Access Infrastructure 1,466 313,127 1,956,644,172 1,365,774,679 590,869,494 Community Production, 628 156,283 497,567,433 355,002,940 142,564,493 Economic Support, and Common Service Facility Environmental Protection and 545 142,182 505,781,638 352,910,770 152,870,868 Conservation Light House/Ecotourism 3 845 7,206,816 3,331,101 3,875,715 Skills Training/Capability-Building/ 32 5,043 19,050,809 12,075,575 6,975,235 Community Library Grand Total 5,326 1,197,772 5,343,883,649 3,754,804,725 1,589,078,924 Source: DSWD, Government of the Philippines. Accessible at: http://kalahi.dswd.gov.ph/index.php?option=com_content&view=article&id=51&Itemid=25. Funds listed are in Philippine Pesos. Current exchange rate, Jan 19, 2011: 1 US dollar = 44.4800 Philippine pesos). an impact evaluation of KALAHI-CIDSS (Labonne and In 2003, the World Bank conducted a gender review of Chase 2009). The participatory processes applied have its 21 lending projects in 2003, including the effects of led to positive changes in villages’ social and institu- KALAHI-CIDSS on women’s status and gender rela- tional dynamics. In particular, frequency of interaction tions in the six pilot communities (University Center between villagers and local officials has increased, sug- for Women’s Studies Foundation 2003). The results of gesting an increase in the level of trust and accountabil- the assessment demonstrated the value of community ity in local authorities. The main gender results from the participation to support opportunities for women to endline studies for the impact evaluation are described participate in development projects. The study results in section 4. subsequently formed the basis for an initial integration of gender considerations into project design and M&E indicators in ongoing projects. In early 2004, KALAHI- KALAHI-CIDSS’s Gender Strategy CIDSS staff participated in a gender and development and Main Achievements (GAD) training program, and a gender mainstreaming In 2003, the World Bank conducted a gender review plan was developed and approved thereafter. The project of its 21 lending projects in 2003, including the itself has recently been classified as a gender-responsive effects of KALAHI-CIDSS on women’s status and project based on the NEDA Harmonized GAD Guide- gender relations in the six pilot communities. The lines (World Bank 2010). A 2009 project performance results of the assessment demonstrated the value of review of completed subprojects also noted positive community participation to support opportunities results for women, including: for women to participate in development projects. 77 Increased participation in the project KALAHI-CIDSS supports the emergence of a more processes from subproject start-up through connected, increasingly equitable society throughout mid-term review the Philippines. Its emphasis on empowerment sup- 77 Emergence of women as leaders in the barangay/ ports increased capacity development as well as gender community equality. While the project was not explicitly designed 77 Increased knowledge about women’s rights and as a gender-specific initiative, there are a number of gender equality areas where the role of gender in development plays an 77 Increased availability of health services for preg- important role. nant women at health centers Making everyone Count 13 77 Changes to traditional practices, including a decrease in number of women/time spent fetching water 77 Support for married couples’ involvement in KALAHI-CIDSS activities (DSWD 2009a). In 2010 the National Economic and Development Authority (NEDA) and National Commission on the Role of Filipino Women (NCRFW) conducted a review of gender and development in KALAHI-CIDSS in terms of project management, monitoring and evaluation, and implementation (see Annex 3). This review indicates a strong commitment by the Philippine government to gender issues: the project evaluation accorded 19.25 points out of 20 available across five elements. Elements evaluated included: 1. Project Management 47 Supportive project management (max score: 2; for each item: 1.0) 47 Technically competent staff or consultants (max score: 2; for item: 0.67) Two young female KALAHI-CIDSS community volunteers 47 Committed Philippine government agency © Sean Bradley/ World Bank (max score: 2; each item, 1) 47 GAD implementation processes and pro- cedures (max score: 2; each item: 0.5) 2. Project Monitoring and Evaluation beneficiaries, and the close consultation with affected 47 Project monitoring system being used by people in the assessment of gender impacts of the proj- the project includes indicators that mea- ect (1.5 points of 2). sure gender differences in outputs, results, and outcomes (max score: 2; each item, 1 During the early stages of the project, it became point each) apparent that some of the more marginalized groups 47 Project database includes sex-disaggregat- did not participate fully in the project processes. This ed and gender-related information (max led to the design and implementation of the Japan score: 2; each item, 0.5 point each) Social Development Fund Social Inclusion Project 47 Gender equality and women’s empower- (JSDF-SIP), a three-year complementary grant to the ment targets being met (max score: 4) World Bank-funded KALAHI-CIDSS. The goal of 47 Project addressing gender issues arising the JSDF-SIP is to reduce poverty by enhancing par- from or during its implementation (max ticipation and addressing issues of exclusion of rural score: 2) women, indigenous peoples, and conflict-affected 47 Participatory monitoring and evaluation communities. The lessons learned and best practices processes (max score: 2; each item, 1) kit is based on a process documentation of eight case communities initiated by the JSDF-SIP, as part of its The review highlighted two areas of weakness. The proj- objective to draw relevant lessons from innovative ect implementation documents do not fully incorporate approaches undertaken to enhance participation of a discussion of GAD concerns, and subproject propos- poor and vulnerable groups, and disseminate these als may not fully detail explicit gender and development to KALAHI-CIDSS stakeholders. Two of the case objectives or thorough gender analyses (0.25 points of communities are indigenous peoples communities, 0.50). The second weakness concerned participatory another two are conflict-affected communities, and monitoring and evaluation processes, especially in the remaining four are a combination of the two. Six terms of adequate consultation with male and female of the eight case studies made specific mention of 14 makInG everyone count gender mainstreaming strategies and recommenda- tions that potentially have political, social, and eco- nomic empowerment aspects. Gender issues in the JSDF-SIP design included: 77 A few gender topics—including female/male ac- cess to income and decision making, as well as health concerns—were included in the baseline gap analysis (BGA) for the Social Inclusion Proj- ect. This project is being implemented in some KALAHI-CIDSS areas with funding support from other multilateral development organiza- tions. The baseline gap analysis is a research tool used to identify gaps and areas for improvement to enhance policy development and service de- livery in an effective way. It also addresses the needs of target beneficiaries for development intervention. Specifically, a BGA aims to mea- sure how policies reflect the level of concern and intervention of a service delivery agent (typically local government units) in addressing the needs of its constituent communities. 77 Reports on best practices suggest areas for increased gender focus. Two reports—Trials and Triumphs: Communities Fighting Poverty Through KALAHI-CIDSS (2009), and the Lessons Learned and Best Practices Kit (2008) published under the JSDF-SIP—indicate the potential for analyzing gender issues through monitoring data in non-SIP KALAHI-CIDSS operations. These reports are also useful for formulating more quantitative gender indicators for the future. 77 Gender sensitivity seminars and parenting classes for fathers have also been conducted in subproject areas. The KALAHI-CIDSS project monitoring framework includes measures for number and percent of women and men who are benefitting from the sub-projects, such as this hanging-bridge financed by KC in the barangay of Felica-Bernadette in Visayas. © Sean Bradley/World Bank 15 M&E Framework and Impact Evaluation 3 A results-based monitoring and evaluation frame- work for KALAHI-CIDSS has been designed to anticipate problems for subproject implementa- tion before they arise, to process the lessons learned for improving project design during implementation, and ity throughout the KALAHI-CIDSS implementation process.16 Objectives of the KALAHI-CIDSS to apply lessons to other projects or programs.15 M&E System The objective of the KALAHI-CIDSS M&E system is The KALAHI-CIDSS internal and external monitoring both to monitor ongoing, more short-term implemen- and evaluation system includes (a) tracking of project tation progress and provide project management and progress and monitoring of processes, including social other stakeholders with timely and empirical informa- accountability monitoring through monitoring of griev- tion, while also assessing the longer-term impacts of the ance reports and through external monitoring reports; project on poverty reduction, access to basic services, (b) results-based monitoring and evaluation of outputs and social capital to evaluate its overall performance. and outcomes; and (c) promoting NGO and civil soci- The project’s monitoring function supports periodic ety participation in KALAHI-CIDSS monitoring. This collection of information to determine if program activ- last activity seeks to share lessons learned from project ities are being implemented as planned. The monitoring experience and the use of KALAHI-CIDSS M&E data function focuses primarily on inputs and output levels. through an independent NGO monitoring of commu- It is important to stress that such monitoring is an ongo- nity processes and a research grant program for gradu- ing process that continues throughout the project cycle, ate students and junior faculty members from different from training and community mobilization, through to universities and colleges. planning, implementation, and maintenance. Results from monitoring efforts are then used to improve the Tracking the progress of KALAHI-CIDSS subprojects quality of implementation and to adjust planning. Proj- is accomplished through (a) on-site monitoring of pro- ect evaluations periodically assess results to determine curement aspects of implementation; (b) a progress whether the project is meeting its main objectives.17 review using the community empowerment activity cycle (CEAC) process and subproject progress moni- Based on KALAHI-CIDSS’ objectives and main out- toring forms; (c) monitoring actions on grievances puts, key performance indicators have been devel- reported by communities against violations of project oped and are tracked over time. These indicators principles and corruption; and (d) external monitor- are then reported through a field reporting system or ing conducted by NGOs. NGOs deploy their own field through other monitoring and evaluation activities, such monitors to selected KALAHI-CIDSS areas and submit as case studies, surveys, sectoral evaluations, and super- monthly progress and feedback reports to KALAHI- CIDSS management for appropriate action. NGO 16 The NGO monitor’s final report may be accessed from the KALA- HI-CIDSS website: www.kalahi.dswd.com.ph. field monitors also report their observations on com- 17 DSWD has prepared a revised M&E manual that describes and munity participation, transparency, and accountabil- provides overall guidance to operational teams on M&E processes and functions. Given the agreement under the additional financing mechanism to assess options for simplifying the monitoring func- KALAHI-CIDSS Logframe, DSWD National KALAHI-CIDSS 15 tion, a further revised M&E manual would be prepared within the Monitoring and Evaluation Office, May 2009. first six months of implementation of the additional financing. 16 Making everyone Count procedures described in the project’s various operations manuals. Government officials plan for more frequent support missions and field visits to project sites. Technical inspection of Regular reporting on the progress and results of KALAHI-CIDSS road KALAHI-CIDSS is vital to the success of the program. infrastructure is one of To be useful, data from reporting must be accurate, several components in reliable, and timely. DSWD has established a system the project’s extensive of monthly reporting from the community up to the M&E framework. regional and national office level. Newly announced © KALAHI-CIDSS additional financing should assist in simplifying and streamlining the reporting process, while ensuring that vision missions. The project management information core project management information is made widely system (MIS) also plays a critical role in capturing and available to project staff and external stakeholders, recording important information regarding results on a including through an upgraded project website. monthly basis. Financial reviews and audits. The Commission on Audit is responsible for auditing KALAHI-CIDSS finances annu- Monitoring of the KALAHI-CIDSS ally, which includes a 10 percent sample of subprojects. As KALAHI-CIDSS implements a range of different forms agreed under the Social Welfare and Development Proj- of monitoring: ect, DSWD will move to strengthen its own internal audit function, which will also cover KALAHI-CIDSS—for Community-based monitoring and evaluation. Com- which an initial assessment has already been conducted. munity groups are elected or assigned to oversee various stages of the program, such as planning, decision mak- ing, implementation, bookkeeping, procurement, and Impact Evaluation: operations and maintenance. Community monitoring is Objectives and Design18 operationalized through different project design features, The Philippine’s Department of Social Welfare and including information accessibility and transparency; Development (DSWD) and the World Bank are com- open public meetings that promote community partici- mitted to a careful impact evaluation of KALAHI- pation, transparency, and accountability; and a grievance CIDSS. The evaluation follows the “good practices� redress system through which community members and prescribed by experts in that it collects quantitative and the general public can channel complaints or inquiries qualitative baseline data in a representative sample of both with local government officials and project facilitators. intervention groups and matched comparison groups. The primary objective of the impact evaluation is to assess the Management information systems (MIS). Project impact and performance of KALAHI-CIDSS by examin- information related to process, outputs, and outcomes is ing the extent to which the project’s results concur with entered and organized in a computerized MIS, which con- its initial objectives. Wassenich and Whiteside (2004) have tains basic project information—such as project locations, stressed the need to identify knowledge gaps—including status and type of subproject activity, investment informa- gender, conflict and leadership issues, long-term sustain- tion, project staff, financial information, and complaints. ability of welfare impacts and infrastructure outcomes, and alignment of projects—with ex-ante beneficiary prior- DSWD staff play a critical role in monitoring and manag- ities. Notwithstanding these areas for further research, the ing overall project implementation. Government officials impact evaluation for KALAHI-CIDSS has proved invalu- at the national (National Steering Committee), regional able for informing policy makers and project implementers (DSWD field offices), municipal (area and municipal of the strengths and weaknesses of innovative strategies for coordination teams), and village levels are responsible for grassroots development supported by KALAHI-CIDSS. monitoring the program and ensuring that its objectives Its specific objectives were to: and principles are met. They also check to ensure that 18 http://siteresources.worldbank.org/EXTSOCIALDEVELOPMENT project activities are proceeding according to plan and /Resources/244362-1164107274725/3182370-1164201144397/CDD- in compliance with established operating principles and SoCap-Summary.pdf Making everyone Count 17 77 Evaluate the extent to which current and future In this regard, a qualitative evaluation tool was designed poverty is reduced in the target municipalities to explore the sociopolitical situation of communities 77 Evaluate the extent to which communities have been in intervention and comparison areas with an eye to empowered and governance has been improved understanding the main actors’ perception and inter- 77 Determine the impact of KALAHI-CIDSS on pretation of their lived situation. This process aimed poverty reduction, social capital, empowerment, to gather data that will help unveil societal processes and governance and perspectives of marginalized communities in order 77 Examine the processes by which poverty has been to understand the impact of KALAHI-CIDSS on their reduced and communities have been empowered. perception of participation, empowerment, and gover- nance (Alsop and Heinsohn 2005; Madhvani, Pehu, and As the source of ex-ante information for KALAHI-CIDSS, Birner 2010). a quantitative baseline survey was implemented in Phase 3 municipalities in the fall of 2003. It served as the first The qualitative baseline study was carried out in the round of a panel survey that tracked 2,400 households and Spring of 2005 and the endline study was implemented 135 villages in 4 provinces before, during, and after project in 2010. The provinces of Agusan del Sur and Albay implementation. Congruent with the project’s objectives, were chosen as primary places for analysis. These prov- the survey describes household and community condi- inces, and the chosen municipalities within each, repre- tions in the project areas, particularly characterizing the sent two types of KALAHI-CIDSS areas: (1) areas that degree of empowerment, quality of governance, and pov- are difficult to access, versus those are more accessible; erty level of intended KALAHI-CIDSS beneficiaries. This and (2) those with indigenous populations versus those provides benchmark data by which relative successes (and with homogeneous populations. Five barangays were failures) can be measured later on. chosen per municipality. These were matched based The quantitative instruments consist of household level on a few considerations, including distance from the and village official surveys. The survey instruments center, the presence of an indigenous population, and were designed in close cooperation with DSWD staff source of livelihood. to respond to the operational needs of KALAHI-CIDSS project management. A 2003 quantitative baseline pro- In order to draw out our data from the communities, vided the first input for evaluating KALAHI-CIDSS. EPCG staff designed an instrument using mainly focus- This was followed by a 2006 mid-term assessment and group discussions (FGDs) and key informant interviews. endline data collection completed in early 2010. Research teams spent approximately 15 days in each barangay and conducted at least four FGDs with women, In order to deepen the data of the quantitative survey, the the young, men, and individuals from a marginalized World Bank commissioned Empowering Civic Participa- ethnic group. The instrument was designed to encour- tion in Governance (ECPG) to conduct qualitative research age free discussion of informants’ perception of poverty, with the purpose of expanding the KALAHI-CIDSS’ infor- empowerment, and participation in governance, as well mation base and improving the understanding of the proj- as the state of social capital and its manifestations. ect’s impact on poverty reduction, social capital, empow- erment, and governance (Asia-Pacific Policy Center 2005). TAbLE 3 Survey of Municipalities The qualitative component was designed to: Intervention Comparison Province Municipalities Municipalities 77 Verify and explain some of the findings and re- Albay Pio Duran Oas** sponses coming out of the quantitative survey Libon* Polangui* 77 Provide richer, descriptive information regard- Capiz Ma-ayon Pontevedra ing the key poverty and governance themes of Dumarao President Roxas KALAHI, examining in greater depth the “hows� Zamboanga del Sur Dinas Tambulig and “whys� of local-level dynamics and context, Dumingag Dimataling as well as what villagers themselves consider to Agusan del Sur Esperanza* Bayugan* be important San Luis Veruela 77 Supplement the quantitative impact evaluation Notes. *Municipalities included in the qualitative survey. ** Baseline data was originally collected system with a qualitative system able to capture the in Malinao, which was later included in the PODER project which follows the KALAHI-CIDSS nuances of the real situation of the community. procedures. As a result, the team went back to the field to collect baseline data in Oas. 18 makInG everyone count Results from the impact evaluation of the KALAHI-CIDSS project indicate that the project led to a 5 percent increase in women’s labor force participation compared to what would have happened without the project. The project also had a positive but lower impact on men’s labor force participation. © World Bank 19 how was gender Integrated into the M&E Framework? 4 T he project has supported the development of gender-sensitive guidelines that ensure project designs submitted for funding must not harm women and children, as well as gender-disaggregated project data for gauging women’s participation in the KALAHI-CIDSS can come from two sources—a moni- toring system and an evaluation system (Kusek and Rist 2004). Monitoring typically involves the periodic collec- tion of information to assess adherence to time sched- ules, completion of required activities, and appraisal KALAHI-CIDSS processes. of progress. Monitoring entails measurement; what is measured is the progress toward achieving an objec- tive or desired outcome. In many instances, however, Lessons from project monitoring outcomes cannot be measured directly. They must first Gender inequality in decision making is a persistent be translated into indicators that provide information challenge to sustainable development in the Philip- about whether outcomes are being achieved. pines. For instance, gender disparities in political life continue to prevent the entry of more women into lead- Gender-responsive indicators have the special function ership positions in government and nongovernmental of identifying gender-related changes in a community. organizations. Such inequalities also inhibit poverty The usefulness of such indicators lies in their ability to reduction efforts. Designing project monitoring and point to changes in the status and roles of women or evaluation with an explicit gender focus contributes to men over time. The use of indicators and other relevant an improved understanding of poverty, enables better monitoring and evaluation techniques can lead to a and more effective targeting of the poor and vulnerable, better understanding of how results can be achieved, and maximizes stakeholder participation. A system so using gender-sensitive indicators can also lead to for monitoring gender outcomes is part of a feedback enhanced project planning and delivery (see, for exam- mechanism that provides information to improve pro- ple Alsop and Heinsohn 2005). gram interventions and make them more effective. Gen- der-based M&E emphasizes several goals, including: A rudimentary way of capturing gender differences involves the collection of sex-disaggregated data. Such 77 Ensuring that the gender effectiveness and qual- data capture differences—as well as similarities— ity of performance is monitored at each phase of between males and females and can be used to con- the interventions. struct indicators highlighting biases or (in)equitable 77 Providing rapid feedback to the poverty reduction project outcomes. Thus, sex- disaggregated data can be team and the sectoral leaders when problems arise. used to identify policies unfavorable to women or men 77 Communicating the gender results of the M&E to and to affect changes in policies or practices that are project managers and policy makers so that actions inequitable, and consequently hinder the development can be taken in a timely way to correct problems or the policies are intended to promote. promote what is going well (World Bank 2002b). More sophisticated quantitative gender analysis goes If gender equality requires access to resources, beyond disaggregation to capture other meaningful opportunities, and capabilities, it is essential to gen- information. This can include information on socioeco- erate gender-disaggregated data to assess the status nomic outcomes of particular importance for women, of and changes in these characteristics. Data inform- such as information on child care, reproductive health, ing the results of development interventions such as or time devoted to collecting water or wood for fires, 20 Making everyone Count and also data on women’s and men’s economic activities 77 PSA—results of community situational analysis and labor productivity. and assessment 77 Minutes of barangay (village) assembly meetings The project has accomplished the following with regard 77 List of community volunteers to targeting and monitoring women and gender issues: 77 Results/ and minutes of municipal inter-village (barangay) forums Development of gender-sensitive guidelines, which 77 Subproject implementation records and activities can ensure that project designs submitted for funding 77 Results of community based-evaluation. will not harm women and children (Kapit-Bisig laban sa Kahirpan 2007). Project monitoring and evaluation data indicate that women have regularly contributed to participatory situ- Development of gender-disaggregated project data, ational analysis (PSA), mobilization and development of which can be used to gauge women’s participation in volunteers, and to municipal or inter-barangay forums the KALAHI-CIDSS processes. Various reporting and to prioritize and develop subproject proposals.20 They monitoring tools—especially at the village and munici- have also participated in meetings to evaluate and plan pal levels—account for the numeric extent of female for the sustainability of completed subprojects.21 and male participation across the subproject cycle. These tools include the following:19 20 From field data shown by Leo Quintilla, M&E Officer of DSWD Region 6 (April 2009). 19Information provided by Leo Quintilla, M&E Officer of DSWD 21 These are reflected in the “Barangay Social Investigation Form.� Region 6. 22 With 71 percent women in FOX; 69 percent (IV-B); 58 percent( FO5); and 45 percent (VII). 23 With 78 percent in FO X; 49 percent respectively in FO5 and 7; and 42 percent in 4B. box 1 gender Checklist for Policy Implications of gender Analysis TAbLE 4 Summary of data on women’s 7 Has the different impact of public spending on men and women Participation in KALAhI-CIdSS been analyzed (“incidence analysis�)? Do public spending priori- Processes ties respond to the different constraints and opportunities of poor PARTICIPATION men and women? Have tools to improve the gender responsive- (based on ness of public spending, such as with gender and women’s budget PARTICULARS headcount) initiatives, been used in developing strategic budget priorities and orientation? 1. Women’s attendance in 51% 7 Has there been an attempt to identify and minimize short-term village assemblies and tradeoffs between the market and the household economies or consultation meetings building on externalities? 3. Women participating in 35% 7 Does the growth strategy consider the fact that men and women decision making through have different structural roles in economic production and that membership in the barangay different sectoral growth paths make different demands on men’s representation team (BRT) and women’s labor, with different implications for the division 4. Women participating in key 42% of labor and income? Are growth policies targeted to the sectors CEAC processes (project where poor men and women earn their living, such as food crops consultation, planning, and in agriculture and the urban informal sector? related activities) 7 Are the needs and priorities of men and women integrated into the PRS priority actions, implementation plans, and performance 5. Women reporting 20%, but 40% of indicators? To what extent have gender-specific targets, outputs, grievances reporting grievances and performance criteria been integrated into the PRS and its are anonymous implementation arrangements? 6. Women at the Regional 60%22 7 Does the selection of public interventions fully reflect the differ- Planning and Monitoring ent priorities, constraints, and opportunities of both men and Office women, as identified in the participatory consultations and pov- 7. Women at the ACT level 54%23 erty diagnosis? Source: DSWD National Office 2009; these data came from the 33 pilot Source: Adapted from World Bank 2002b. communities. Making everyone Count 21 TAbLE 5 KALAhI-CIdSS Monitoring Tools with gender dimension Gender Data included in KALAHI-CIDSS Monitoring Person/Office Responsible and Activity monitoring data Tool Monitoring Period Social investigation Number/ratio of women Barangay and Community facilitator (baseline data of to men in the community municipal Area coordination team the barangay and social Regional M&E officers municipality) investigation National M&E officers Barangay Assembly/ Number/percentage Barangay Community facilitator Municipal Inter- of women attending/ Assembly form Area coordinating team Barangay Forum participating in Bas and Regional M&E officers (consolidation of the MIBTFs MIBF form municipal-level data into regional data) National M&E officers (consolidation of the regional data into national data) Capability- Number/percentage Community Community facilitator building activities of women trained in volunteers form Area coordinating team for community various capability- and community Regional M&E officers (consolidation of the volunteers building activities training form municipal-level data into regional data) (throughout the throughout the CEAC Quarterly National M&E officers (consolidation of the CEAC process) narrative report regional data into national data) Selection of Number/percentage Barangay Community facilitator committee leaders/ of women leaders Assembly form Area coordinating team members during and members in KC (specifically Regional M&E officers (consolidation of the Barangay Assemblies committees the attached municipal-level data into regional data) minutes of the National M&E officers (consolidation of the meeting) regional data into national data) Community volunteers form and community training form KALAHI-CIDSS Number/percentage Payroll roster KALAHI-CIDSS Project implementation team subproject of female paid Community facilitator implementation “volunteers� engaged Area coordinating team phase during the KALAHI- CIDSS subproject implementation phase KALAHI-CIDSS Number/percentage Payroll roster; KALAHI-CIDSS O&M Committee (report to the subproject operations of female paid Quarterly O&M community facilitator) and maintenance “volunteers� engaged report Community facilitator (collection of barangay (O&M) during operations and data) maintenance (O&M) Area coordinating team (consolidation of stage barangay data into municipal data) End-of-Project Number/percentage of Project KALAHI-CIDSS O&M Committee (report to the reporting women using/ benefiting completion community facilitator) from the subproject/ report Community facilitator (collection of barangay infrastructure data) Area coordinating team (consolidation of barangay data into municipal data) Regional M&E staff (consolidation of municipal data into regional data) National M&E staff (consolidation of regional data into national KALAHI-CIDSS data) 22 Making everyone Count Survey Findings and Gender Impact gious organizations (Albay), parent teacher associa- Evaluation Results tions (Capiz), community organizations (Zamboanga del Sur), and cooperatives (Agusan del Sur). A baseline survey was initiated in 2003 that collected data on a representative sample of intervention groups Participation among official organizations contrasts with and matched comparison groups (Asia Pacific Policy a strong tradition of bayanihan (collective community Center 2005). The baseline survey was the first round action) in KALAHI-CIDSS municipalities in Mindanao. of a panel survey that will track 2,400 households Chase and Holmero (2006) report relatively limited par- and 132 villages before, during, and after implemen- ticipation in bayanihan in Albay and Capiz, and higher tation of KALAHI-CIDDS. participation in Zamboanga del Sur and Agusan del Sur. Communities tend to draw support largely from infor- The Asia-Pacific Policy Center conducted the baseline mal networks—composed of relatives, the church, and survey in each of the three geographical areas of the local government—that they access depending on their Philippines, covering four provinces included in an ear- needs. Formal groups and government officials are diffi- lier phase of KALAHI-CIDSS implementation: Albay in cult for the people to sustain and trust as systems of sup- Luzon, Capiz in the Visayas, and Zamboanga del Sur port, unless they are channels to reservoirs of resources. and Agusan del Sur in Mindanao. Formal leaders in the community are the barangay offi- The survey collected information on household and cials, purok heads, tribal chieftains, and elders and some village conditions, providing baseline information organization heads. They are mainly seen as persons who for an evaluation of the impact of KALAHI-CIDSS have the ability to take care of the people who are not able on poverty reduction, social capital, empowerment, to realize their own development. and governance. The data also make possible a deeper understanding of the areas in which KALAHI-CIDSS The impact evaluation was not designed to look at gen- operates. Together with lessons learned from project der issues, however available data allow for some gen- implementation to date, the baseline survey provides der-disaggregated analyses, especially on schooling and valuable information for project management. participation in the labor force. First, consistent with the argument that the project supported women’s eco- Field-based surveys indicate a context where poverty is nomic empowerment, results from the impact evalua- widespread, and facilities lacking, but where social insti- tion indicate that the project led to a 5 percent increase tutions provide for collective community action. Infra- in women’s labor force participation compared to what structure—including local roads, primary health care would have happened otherwise. Given that only 44.5 facilities, and access to waterworks—is severely lack- percent of working age women (in the KALAHI-CIDSS ing. For instance, Chase and Holmero (2006) note that municipalities in the evaluation sample) participated in “while Albay has the best road conditions, more than 60 the labor force in 2003, this is a large effect. Interest- percent of villages have roads of dirt or gravel, and only ingly, the project also had a positive but lower impact 56 percent of households are accessible by road all year on men’s labor force participation. long.� While most villages have access to local health stations, rates of access remain low. One bright spot is Second, the project also had an impact on school enroll- educational access: use of public elementary schools ment. Since only a limited number of barangays in the is particularly high, and enrollment rates are high as sample decided to use the project resources to build well. Post-secondary enrollment drops markedly. The school facilities, those impacts most likely material- most essential desire of most respondents has been for ized through improved incomes and a decreased cost improved opportunities to make a decent living. of going to school due to improvements in the road network The project had a negative impact on elemen- In terms of social capital, the survey reported relatively tary school enrollment, but a positive impact on sec- low rates of membership in community organizations. ondary school and college enrollment. Further research Groups and networks provide important forms of social is currently under way to understand this finding. The capital and are instrumental in disseminating informa- impacts are especially strong for girls. In particular, it tion, reducing opportunistic behavior, and facilitating led to about an 11 percent increase in the probability of collective decision making. Participation rates and attending secondary school and a 5 percent increase in types vary across regions, and include civic and reli- the probability of going to college. 23 Proposal for Including Gender Indicators in KALAHI-CIDSS 5 Introduction equality in East Asia. The initiative draws on and com- plements existing studies and CDD project evaluations Gender indicators embedded within a program (M&E) (World Bank 2008-add to references). KALAHI-CIDSS enable practitioners to identify better ways of deliv- management has engaged in this study to explore the ering their poverty reduction objectives. Yet, gender options for further strengthening gender mainstream- indicators are not widely used. The evidence from a ing and monitoring within KALAHI-CIDSS as the proj- wide-ranging review of CDD and CDF projects (World ect moves into a new phase from 2010–13. Bank, FAO, and IFAD 2009) suggests that the experi- ence of IFAD is typical in that “current information on gender aspects and impacts in the CDFs is superficial; Methodology assessments of CDD and CDFs have not measured gen- Toward Draft Gender Outcome Indicators der impacts or participation of women in the capacity- The KALAHI-CIDSS Project defines an empowered building activities.� community as one with the capacity to promote and Several governments in the World Bank’s East Asia and sustain their own development through the active par- Pacific Region have identified gender as an important ticipation of its members in the analyses of various eco- pillar in poverty alleviation strategies in the light of evi- nomic, political, and social issues, and in the selection dence suggesting that societies promoting more equal of viable remedies to solve development challenges. opportunities for men and women have higher growth, lower poverty, and better development outcomes Field-based assessments in 2009 supported the devel- (World Bank, 2011). opment of a series of indicators that could effectively assess the contribution of KALAHI-CIDSS subprojects The objective of this toolkit is to provide the in the Philippines in promoting women’s actions and KALAHI-CIDSS project with a set of tested and opportunities for actions within their local political, cost-effective gender outcome indicators for build- economic, and social spheres. ing a database that can help measure its impact on women’s opportunities for active engagement in Actions and opportunities within these spheres their local political, social, and economic context. includes: These gender indicators may also be useful for capturing the impact on gender of other community-driven devel- 77 Political sphere: Women’s participation and in- opment (CDD) projects in the Philippines. Its intended fluence on public financing and representation. audience is the government of the Philippines’ DSWD, 77 Economic sphere: Women’s opportunities for the KALAHI-CIDSS management and task team, and and actual access to economic capital and liveli- CDD donors and practitioners, including multilateral hood investments. institutions, nongovernmental organizations, advo- 77 Social sphere: The enabling environment that al- cates, and researchers. lows women to participate; social norms and the status of women. The toolkit emerges from a regional World Bank M&E pilot initiative launched to support CDD operations An initial review of KALAHI-CIDSS’ project goals, in building up evidence of projects’ impact on gender implementation strategies, and accomplishments 24 I m pa c t o f c o m m u n I t y- D r I v e n D e v e l o p m e n t p r o j e c t s o n G e n D e r indicated a number of opportunities to positively accounts for gender-related project inputs and encourage women’s active engagement in local polit- outputs. ical, economic and social issues. In fact, monitoring 77 Consultation meetings with KALAHI-CIDSS reports suggest that a number of female volunteers have project management and M&E personnel both improved their social status in the community through at the national and regional offices to get their active participation in the preparation and implementa- feedback and recommendations for possible tion of infrastructure projects (DSWD 2009). The cur- outcome indicators to track the progress of the rent initiative tested how this might be better captured project in improving the status of women. in the KALAHI-CIDSS results framework through the 77 The revised list of indicators was then validated integration of measurable and appropriate gender out- through a workshop held in April 2009 with the come indicators. KALAHI-CIDSS key officials and members of its national monitoring and evaluation office, repre- Following a review of potential linkages between key sentatives from the Social Development Unit of gender issues in the Philippines and outputs generated the Department of Social Welfare and Develop- by the project and its objectives, a set of research ques- ment (DSWD) units, and the KALAHI-CIDSS tions was derived that helped design a range of potential gender focal person. A final round of validation gender-specific monitoring and evaluation indicators.24 workshops was held in May 2009 with the par- ticipation of a World Bank mission. Team members selected and prepared a final list of indi- cators for field testing through the following steps: Pilot Testing Draft Indicators Pilot testing in the field provided a critical step to set- 77 A review of gender-related national documents, tling on and investing in a comprehensive M&E design including policy guidelines and action plans on (Kusek and Rist 2004). The pilot testing of draft indi- gender equality and women’s empowerment, cators supported an empirical approach to learn what types of gender data collected, and a system of worked and what did not in a local setting. By speaking monitoring and evaluating gender-related out- directly with people from a range of communities with comes and impacts. different perspectives, the team gathered invaluable 77 A review of KALAHI-CIDSS project design and data for improving initial design for a final series of cho- accomplishments and how they relate to the sen indicators. The pilot testing of indicators also identi- proposed women’s empowerment outcome in- fied data gaps for some indicators for which information dicators; assessment of the project M&E system remains spotty or data is too costly, time consuming, or in terms of the extent to which it reports on or too complex to obtain (Kusek and Rist 2004). 24 For a complete set of initial research questions, see Sobrechita (2010). Field studies tested a series of indicators following a mixed methodology approach. Two municipalities in the provinces of Capiz and Albay—Dumarao and Remelyn Monilla (40), Albey Albay—were selected to field test the indicators. These province. The first KALAHI-CIDSS cycle started in her village in areas were chosen due to their inclusion in the 2003 2004 where she was elected to baseline study, as well as their accessibility and relatively present and defend the villagers’ safe security context. The other criteria used for the proposed project—a road selection of the pilot villages were (a) the type of sub- rehabilitation project—during project activities to ensure the scoping of wide variation the Municipal Inter-Barangay of the KALAHI-CIDSS inputs; (b) the willingness of the Forum. The project was selected village leaders to have the study done in their commu- for funding and Remelyn explains nity and to provide support to the researchers; and (c) to the survey team how the the availability as well as accessibility of project-related rehabilitated road has brought community data. noticeable change to her copra business and family’s means of living. Photo: Rachel Aquino/ Field research was conducted in Dumarao, Capiz from World Bank. June 25–26, 2009, and in Pio Duran, Albay from July 7–9, 2009. I m pa c t o f c o m m u n I t y- D r I v e n D e v e l o p m e n t p r o j e c t s o n G e n D e r 25 Four research instruments were developed and used ing the results of the pilot survey. Overall supervision to test the indicators: (1) a household survey question- and coordination of the field study was directed by local naire; (2) a guideline for focus group discussions among consultants for the current initiative with the support of male and female KALAHI-CIDSS volunteers; (3) a the KALAHI-CIDSS gender focal person and the M&E community survey interview schedule; and (4) a guide- monitoring personnel of DSWD. line for semi-structured case study interviews. The household survey was designed to test indicators that In addition to surveys and focus-group discussions, could provide information about results or immediate case studies in each of the selected villages tested the impacts of subproject outputs at the household level, relevance of draft indicators to the realities of women and on female and male beneficiaries. Questions asked who had participated in KALAHI-CIDSS activities. in the survey questionnaire focused on issues, including Although they did not provide comparable quantitative the effects of construction of a farm-to-market road on data, the case studies provide a more personal glimpse the workload and income of family members. into people’s everyday experience. Two focus group discussions, one for male and another Prior to the field tests, the data collection instruments for female KALAHI-CIDSS volunteers, were also con- were pilot-tested in Barangay Bayog in Capiz on June ducted in each of the pilot villages. These discussions 24, 2009. Further revisions of the instruments were explored ways to gather more detailed feedback about done in accordance with the results of this activity.25 benefits derived from subprojects, especially regarding Some of the questions were rephrased to ensure that skills and knowledge acquired through volunteer work. they would be better understood by the respondents. Those who participated in focus group discussions were Other questions were deleted because they were found chosen according to the roles or tasks they performed not to be appropriate or applicable to the outcome indi- throughout the project cycle. cators being tested. A community survey interview schedule assessed the Project staff conducted case studies in each of the selected availability and quality of gender-related data coming villages to test the relevance of the draft indicators to the from village, municipal, and provincial offices. This sur- realities of women who had participated in KALAHI- vey was administered in each of the four villages. Such CIDSS activities, and to narrate potential impacts of the data can provide useful information for assessing the project on women’s engagement in their local political, results of the KALAHI-CIDSS subprojects when col- economic and social spheres. The case study data sup- lected before the start and sometime after the comple- ported the choice of gender indicators relevant for the tion of the subproject. M&E framework of KALAHI-CIDSS. Additionally, case studies provide valuable anecdotal evidence of project Field research coordinators supervised the household impacts that cannot be captured by quantitative data. survey and conducted, with the support of the local consultants, the FGDs with the subproject volunteers. 25 The research team was composed of a lead field researcher and four They also tested the guideline for case study interviews local interviewers (two females and two males) from each of the two of good project practices in empowering women. The provinces. Two consultants and the DSWD regional head for project monitoring and evaluation conducted a day-long training of the field interviewers, meanwhile, administered the question- researchers on the objectives of the field test and how to administer naires and assisted researchers with analyzing and writ- the instruments. TAbLe 6 Sampling for the Field Test Number of Province Municipality Village Questionnaires Respondents Rawis 20 20 household-based respondents, 10 females and 10 males Albay Pio Duran Poblacion 20 20 household-based respondents, 10 females and 10 males Codingle 20 20 household-based respondents, 10 females and 10 males Capiz Dumarao Guinotos 20 20 household-based respondents, 10 females and 10 males 26 I m pa c t o f c o m m u n I t y- D r I v e n D e v e l o p m e n t p r o j e c t s o n G e n D e r To this end semi-structured interviews were conducted Furthermore, the pilot testing suggests the potential on the following topics: value of using case studies as a data collection tool in documenting project outcomes. These stories can be (a) Personal information/background of the case used to supplement statistical data to monitor the effec- study participant. This included information on tiveness of project inputs and outputs as well as assess age, civil status, educational and training back- its immediate outcomes. Meanwhile, case studies are ground, family characteristics and relations, and by definition time-consuming; each of the case studies previous experiences in community develop- conducted during the pilot testing took between two ment work. and three hours to collect. Although data collection on (b) Nature and extent of involvement in subproject a narrower thematic topic would allow less time to be activities; reflections on the strengths and weak- spent for each case study, a larger number of case stud- nesses of the subproject; reflections on her role ies would more convincingly support statistically repre- in achieving the subproject goal and targets. sentative qualitative data. (c) Reflections on how KALAHI-CIDSS subproject activities affected her engagement in her local The results of the field tests generally showed that a economic, social, and/or political status. number of the outcome indicators developed are ade- quately measurable and appropriate for inclusion in The case studies collected during the field test clearly KALAHI-CIDSS M&E initiatives. However, the team confirm the overall relevance of the draft outcome found that some are easier to collect and less costly than indicators for measuring KALAHI-CIDSS’ impact on others. Overall, the attainment of these outcome indica- women’s engagement in their local political, economic, tors appears feasible given the importance of commu- and social spheres. nity empowerment to the project and due to the widely box 2 Political engagement: Virgie Niebres, Barangay Rawis, Pio duran Virgie Niebres is a 36-year-old resident of Rawis. She studied nursing at Bicol University but due to poverty was forced to end her studies after her first semester. Her husband is 37 and an elementary graduate. Together they have five children. Before the KALAHI project, their only source of living was from harvesting copra. The KALAHI Road project has paved the way for Virgie to purchase a motorcycle operated by her husband for “habal-habal� (motorcycle rental) and provided her with a more efficient way to transport copra to market. Vergie has directly benefited by working closely with KALAHI-CIDSS as project preparation team chairman and as a bookkeeper. She was then elected as chair of the Barangay Subproj- ect Management Committee. During project preparation, Virgie learned how to develop project proposals, and assisted with mapping impoverished regions. Her experience as a BSPMC chair also taught her various aspects of project implementation. She was able to overcome her shyness and enhance her public relations skills because she had to convince people in the barangay to attend barangay assemblies. She also gained the confidence to talk in front of a large crowd. Be- Virgie Niebres (36) of Pio duran, cause of KALAHI, she learned to participate in barangay affairs. Being a volunteer also paved the Albay Province. Photo: Rachel way for her to attend numerous training sessions and seminars. She has traveled not only within Aquino/World Bank the municipality, but even in other provinces. Her experiences resulted in a new career as center chief of Simbag sa Pag-asenso, a Catholic social action lending microfinance program. As center chief, she handles 52 members from four barangays. She is also the secretary of BAPA (Barangay Power Association), a local electrification association in charge of the maintenance of the barangays’ electrification. Among its activities is the collection of payments from each household. She is also in charge of the distribution of fertilizers and seedlings given by the Department of Agriculture in the municipality. She also takes part in decision making in the barangay. I m pa c t o f c o m m u n I t y- D r I v e n D e v e l o p m e n t p r o j e c t s o n G e n D e r 27 available array of inputs to encourage women and men Political Empowerment Indicators to participate in local community development efforts. Findings from the field test suggest that the women who directly participated in project activities—such Moreover, the field test showed that the collection of as those who volunteered for committee work includ- data to measure outcomes for women’s empowerment ing the preparation of project proposals, canvassing must rely on a combination of information sources and of materials, and the procurement of supplies—were data collection approaches. This study proposes the use able to use their new knowledge and skills for greater of different information generation tools and a combi- participation in community activities. Their visibility nation of both qualitative and quantitative assessments. in project activities enhanced the public acceptance of women’s participation in governance and politics. On KALAHI-CIDSS is currently making plans for evalu- the other hand, those women who did not participate ating the next phase. The development of this toolkit, in the community meetings or attended only a few of therefore, is timely and relevant, especially for design- the project activities could not easily articulate how the ing the next cycle of baseline surveys. While the toolkit project changed their attitude, perceptions, and behav- was being prepared, the project’s M&E unit reviewed ior about their role in community governance and poli- its results framework. The proposed list of new M&E tics. What these findings suggest is the need to use a indicators was then shared with the team. In addition, dynamic approach for generating outcome and impact consultation meetings among project partners and a data on political empowerment, where feedback from workshop were recently undertaken to review the over- direct female beneficiaries/participants of the project all gender policies of KALAHI-CIDSS. The DSWD has can be collected to complement information gathered already received funding support for the development from the general population (i.e. through household of gender analysis tools and training of project manage- surveys). ment and implementers on gender mainstreaming and monitoring of gender outcomes. INDICAToR 1 Percentage of female village residents who participate in: Proposed Gender Indicators 7 1a. project meetings In this section, we provide information on eight key 7 1b. barangay assemblies indicators that could easily be integrated into the KALAHI-CIDSS M&E framework. They would yield Data Collection valuable gender-related information. Table 7 presents Indicator 1a: Information for this indicator can be col- summary information on all the proposed indicators. lected through an MIS form that should be filled after each project meeting. Data should be collected on the Given the nature of the report, the emphasis is on number of women attending the project meetings. This women in the way the indicators are framed. For most number simply needs to be divided by the number of of them, the project team should incorporate similar women in the village (in the relevant age-group). indicators for men in the M&E system. Of particular importance, the team should ensure that the surveys Indicator 1b: Information for this indicator could be are set up to ensure a balance between female and male collected as part of the surveys set up for the impact respondents. The information necessary to compute evaluation. Respondents should be asked whether they some of the proposed indicators was already collected participated in barangay assemblies over a given time as part of the impact evaluation but it was not reported period (e.g., six months). in a gender-disaggregated way. To triangulate information, the project team could also An important step in designing a M&E system is the prep- collect data for indicator 1a through the household sur- aration of targets for each indicator. Given the baseline sit- veys set up for the impact evaluation. In addition to data uation and the expected project impacts, the project team on participation in project meetings, the household sur- should estimate the values of each indicator at the end of veys could allow data to be collected on participation the project. Such targets are not included in this report and in various stages of the subproject cycle: from planning they should be set if the project team decides to incorpo- to construction and operation phases. Again, this data rate the proposed indicators in the project M&E system. should be reported separately for men and women. 28 I m pa c t o f c o m m u n I t y- D r I v e n D e v e l o p m e n t p r o j e c t s o n G e n D e r Responsible Party for Collecting, Processing, the project team could explore the possibility of record- and Analyzing the Data ing meetings. Content analysis of key project meetings Indicator 1a: The community facilitators should be could then be carried out to capture whether women responsible for recording attendance in project meetings influence final outcomes (see Ban and Rao 2009). Alter- and to transfer the information to the area coordinators. natively, the nature of participation could be captured They should then analyze and transfer the data to the through the community-based monitoring and evalua- national project team (through the regional office). tion (CBME), which KALAHI-CIDSS supposedly con- ducts every year. One of the focused CBME efforts could Indicator 1b: The external consultants contracted to be among women leaders and focused questions could carry out the household surveys should be responsible be about the possible shift in the nature of participation. for collecting, processing, and analyzing the data. They should then provide the national project management INDICAToR 2 team with the results. Percentage of female village residents who engage in Recommended Frequency community activities Indicator 1a: While data should be collected after each project meeting, aggregate information should only be Data Collection sent to the national office on a quarterly basis. Information for this indicator could be collected as part of the surveys set up for the impact evaluation. Respon- Indicator 1b: Data should be collected during each dents should be asked whether they participated in household survey set up for the impact evaluation community activities over a given time period (e.g., six (baseline, midterm, and endline). months). Potential extension Responsible Party for Collecting, Processing, A potential concern with this proposed indicator is that and Analyzing the Data it captures participation but not the nature of participa- The external consultants contracted to carry out the house- tion. Indeed, even if women attend meetings they might hold surveys should be responsible for collecting, process- be passive rather than active participants. As a result, ing, and analyzing the data. They should then provide the their presence might not affect decisions being made national project management team with the results. during the meeting. To try to capture such dimensions, Recommended Frequency Data should be collected during each household survey set up for the impact evaluation (baseline, midterm, and endline). Potential Extension The project might also affect the nature of women’s participation in such activities. Their involvement tends to be limited to activities traditionally associ- ated with women. For example, due to the common perception that they “have time,� they engage in time- consuming activities (e.g. cooking for the workers or community participation). To assess whether the proj- ect has any impact along those dimensions, the team could, for women who participate in community, col- lect information on the type of activities carried out. Those activities could then be classified as either “tra- ditional� or “non-traditionally� activities by women. This would allow the project team to track changes Time can be an important factor when deciding to participate in the percentage of women involved in activities that in community activities. Photo: Edwin Huffman@World Bank are not traditionally associated with women and, as a result, assess whether the project has any impact on I m pa c t o f c o m m u n I t y- D r I v e n D e v e l o p m e n t p r o j e c t s o n G e n D e r 29 the nature of women’s participation in community activities. Evidence from other Asian INDICAToR 3 countries shows that the Percentage of elected officials (village and municipal involvement of females in offices) that are women decision-making regarding public services can improve service KALAHI-CIDSS provides a wide array of opportunities to delivery at the community level. © KALAHI-CIDSS enhance the visibility of women and their chances of being elected as well as appointed into public office. Women can aspire to leadership posts in the village, including posts in the barangay Executive Council (i.e. council head, village appointed to a local government leadership post can be councilors, and head of the Youth Council); barangay Leg- supplemented by case study interviews and focus-group islative Council; and Legislative Council committees (i.e. discussions with selected women officials who had pre- Peace and Order; Appropriations, Finance and Ways and vious experience with KALAHI-CIDSS. This can coin- means; Education; Health; Agriculture; Tourism, Infra- cide with the collection of information for the midterm structure, Youth and Sports). Parallel positions are also and end-of-project evaluations and conducted by the present at the municipal/city and province levels. KALAHI-CIDSS M&E personnel at the municipal level. Alternatively, this work can be contracted out to a local Data Collection women’s NGO or a school-based gender researcher. A MIS form should be developed to gather data on the gender of local officials: barangay councilors, barangay captain, municipal councilors, vice-mayor, and mayor. INDICAToR 4 The data should be recorded separately for each posi- Percentage of people’s organizations with women in tion. While the project might have positive impacts at leadership positions the barangay level, it might be more difficult to achieve similar impacts at the municipal level. Data Collection An MIS form should be developed to collect data on the Results of the pilot test showed that the data to measure gender of leaders in community-based or people’s orga- the indicator is readily available in the municipal offices, nizations. These organizations include farmers’ groups, particularly the office of the mayor. They are updated livelihood cooperatives, faith-based or religious orga- regularly and may be verified by checking the duplicate nizations, and political parties. Leadership positions files from regional and national offices. include the board of trustees or board of directors, board president, vice president, secretary, treasurer, Responsible party for collecting, processing, and auditor. and analyzing the data The community facilitators should be responsible for Data on the number of women leaders in these organiza- gathering this data in collaboration with area coordina- tions are found in the Sangguniang Bayan, which is under tors. They should then aggregate the information and the direct supervision and management of the vice mayor transfer it to the national project team (through the of all municipalities in the Philippines. The data should regional office). be updated annually, in compliance with government regulations. The registration forms of people’s organiza- Recommended frequency for collecting data tions include information on female and male officers as The data should be collected and reported after every well as other members, plus brief descriptions of their municipal and barangay election. The last elections vision, mission, programs, and services. took place in 2010 and the next ones will take place in 2013. Case study interviews and focus group discussions may also be conducted to generate qualitative data on how Additional Information the participation in KALAHI-CIDSS activities enabled The outcome data on the number or percentage of the women to eventually assume leadership positions in women who have been elected to political office or their organizations. 30 I m pa c t o f c o m m u n I t y- D r I v e n D e v e l o p m e n t p r o j e c t s o n G e n D e r Responsible party for collecting, processing, ing this data in collaboration with area coordinators. and analyzing the data They should then aggregate the information and The community facilitators should be responsible for transfer it to the national project team (through the gathering this data on an annual basis during the social regional office). investigation/social preparation phase of the subproject Indicator 5b: The external consultants contracted to implementation cycle. They should do so in collabora- carry out the household surveys should be responsible tion with Area Coordinators. They should then aggre- for collecting, processing, and analyzing the data. They gate the information and transfer it to the national proj- should then provide the national project management ect team (through the regional office). team with the results. Recommended frequency for collecting data The data should be collected and reported on a yearly Recommended Frequency basis. Indicator 5a: Data should be collected and transmitted to the national project office at the end of each subproj- Economic Empowerment Indicators ect cycle. Feedback from the pilot test of household survey and FGD instruments underscored the difficulty in gen- Indicator 5b: Data should be collected during each erating information for assessing the contribution of household survey set up for the impact evaluation KALAHI-CIDSS to the economic empowerment of (baseline, midterm, and endline). women. Perhaps some of the problems encountered in Potential Extension generating the desired information stemmed from an inability of the respondents to give exact figures about The project might also affect the nature of women’s income derived from productive work. Many respon- participation in such activities. Their involvement dents had difficulty computing and recalling income tends to be limited to activities traditionally associ- they received from various sources. To address these ated with women. To assess whether the project has problems, the team adjusted the questionnaire to focus any impact along those dimensions, the team could, on information that would be easier to gather. for women who participate in non-project-related paid work, collect information on the type of activi- ties carried out. Those activities could then be classi- INDICAToR 5 fied as either “traditional� or “non-traditional� wom- Percentage of working-age women en’s activities. 7 5a. who received wage payments as part of proj- ect activities INDICAToR 6 7 5b. engage in non-project-related paid work Percentage of women who participate in Data collection livelihood groups Indicator 5a: An MIS form should be developed to gather information on the number of men and women Data Collection who received wage payments as part of subproject Information for this indicator could be collected as part implementation. of the surveys set up for the impact evaluation. Respon- dents should be asked, for all working-age women Indicator 5b: Information for this indicator could be col- household members, whether they are members of lected as part of the surveys set up for the impact evalu- livelihood groups. ation. Respondents should be asked, for all working-age household members, whether they were engaged in paid Responsible Party for Collecting, Processing, labor over a given time period (e.g. the last 6 months). and Analyzing the Data The external consultants contracted to carry out the Responsible Party for Collecting, Processing, household surveys should be responsible for collecting, and Analyzing the Data processing, and analyzing the data. They should then Indicator 5a: The municipal bookkeepers and com- provide the national project management team with the munity facilitators should be responsible for gather- results. I m pa c t o f c o m m u n I t y- D r I v e n D e v e l o p m e n t p r o j e c t s o n G e n D e r 31 Recommended Frequency Data should be collected during each household survey set up for the impact evaluation (baseline, midterm, and endline). Additional Information Current and future male and Data on livelihood programs and livelihood organiza- female community leaders can gain visibility by participating in tions proved to be superfluous and repetitive. Mem- the KALAHI-CIDSS project. bership in livelihood groups could thus be a proxy © KALAHI-CIDSS indicator for access to livelihood programs and pro- vides women with opportunities to access livelihood programs. 1. Yes Social Empowerment Indicators 2. No Field tests on social empowerment indicators focused 3. Don’t know/refuse to answer on the availability of credible data for gauging direct and indirect changes in women’s social status resulting Indicator 7b: Would you vote for a woman mayor ? from KALAHI-CIDSS interventions. Women’s social 1. Yes empowerment is best measured through an improve- 2. No ment in their decision-making roles and access to 3. Don’t know/refuse to answer health, educational, and economic benefits and new opportunities. While the presence of enabling struc- Case study interviews and focus group discussions may tures, mechanisms and policies are important to the also be conducted to generate qualitative data on how attainment of these empowerment outcomes, wom- the participation in KALAHI-CIDSS activities enabled en’s own agency and their personal resolve to improve the women and also the men to change their percep- their life situation are equally important determinants tions and attitudes about women’s capacity and poten- of social empowerment. In the Philippine context, the tial for community leadership and development work. appropriate indicators of women’s social empowerment should include both subjective and objective measures Responsible Party for Collecting, Processing, of change. The tools that were used to generate out- and Analyzing the Data come data included both proxy indicators to measure The external consultants contracted to carry out the the changes in decision-making status of women (e.g. household surveys should be responsible for collecting, access to health and educational benefits and opportu- processing, and analyzing the data. They should then nities), as well as changes in attitudes and perceptions provide the national project management team with the about women’s capacity for development work and results. decision making. Recommended Frequency INDICAToR 7 Data should be collected during each household survey set up for the impact evaluation (baseline, midterm, and Percentage of female and male village residents who endline). agree that it is acceptable to elect a woman as: 7 7a. Barangay captain INDICAToR 8 7 7b. Mayor Percentage of women making decisions regarding: Data Collection 7 8a. food purchases Information for this indicator could be collected as part 7 8b. asset purchases/disposition of the surveys set up for the impact evaluation. Respon- 7 8c. number of children dents should be asked the following questions: 7 8d. schooling of children Indicator 7a: Would you vote for a woman barangay These outcome indicators respond to the national pro- captain? gram of eliminating gender inequality in decision mak- 32 I m pa c t o f c o m m u n I t y- D r I v e n D e v e l o p m e n t p r o j e c t s o n G e n D e r ing, both in the public and domestic spheres of life. It 3. I am not involved. also relates to KALAHI-CIDSS’ interest in more active involvement of community women in decision making This question could then be easily modified to capture and in implementing development-oriented programs indicators 8b–8d. and services. Responsible Party for Collecting, Processing, Data Collection and Analyzing the Data Information for this indicator could be collected as The external consultants contracted to carry out the part of the surveys set up for the impact evaluation (see household surveys should be responsible for collect- Ashraf, Larlan, and Yin 2010). Respondents should be ing, processing, and analyzing the data. They should asked the following questions: then provide the national project management team with the results. Indicator 8a: Which statement best describes your power to decide on daily food purchase? Recommended Frequency Data should be collected during each household survey 1. It is my decision. set up for the impact evaluation (baseline, midterm, and 2. I decide jointly with my spouse. endline). I m pa c t o f c o m m u n I t y- D r I v e n D e v e l o p m e n t p r o j e c t s o n G e n D e r 33 TAbLe 7 Summary Information on the Proposed Indicators Data Collection Responsible for Responsible for Indicator Frequency Instrument Data Collection Data Analysis 1. Percentage of female village residents who participate in: • 1a. project meetings Yearly MIS form Project facilitators National project team • 1b. barangay assemblies Baseline, midterm, Household surveys External consultants External consultants endline 2. Percentage of female village Baseline, midterm, Household surveys External consultants External consultants residents who engage in community endline activities 3. Percentage of elected officials After each local MIS form Project facilitators National project team (village and municipal offices) that elections are women 4. Percentage of people’s Yearly MIS form Project facilitators National project team organizations with women in leadership positions 5. Percentage of working-age women: • 5a. who received wage payments Yearly MIS form Project facilitators National project team as part of project activities • 5b. engage in non-project- Baseline, midterm, Household surveys External consultants External consultants related paid work endline 6. Percentage of women who Baseline, midterm, Household surveys External consultants External consultants participate in livelihood groups endline 7. Percentage of female and male village residents who agree that it is acceptable to elect a woman as: • 7a. Barangay captain Baseline, midterm, Household surveys External consultants External consultants • 7b. Mayor endline 8. Percentage of women making decisions regarding: • 8a. food purchases Baseline, midterm, Household surveys External consultants External consultants • 8b. asset purchases/disposition endline • 8c. number of children • 8d. schooling of children 35 Annexes Annex 1. KALAHI-CIDSS Results Framework and Monitoring PDO Project Outcome Indicators* Use of Project Outcome Current Proposed Current Proposed Information Assist the borrower Communities in Current Project % of households that report better YR3 – Measure the in strengthening targeted poor Outcome Indicators access to or use of basic services achievement of the local communities’ municipalities are have been moved compared to KCAF initiation PDO participation empowered to to the intermediate in barangay achieve improved outcome level under % of households that report an governance, access to the AF increase in knowledge, skills, and and developing sustainable basic confidence to participate collectively their capacity to public services in community development activities design, implement, and participate compared to KCAF initiation and manage in more inclusive development LGU planning and % of members from marginalized activities that reduce budgeting groups** that attend barangay poverty assemblies % of legislated municipal budgets with at least 10 percent increase in allocation for community-identified priorities compared to KCAF initiation 36 I m pa c t o f c o m m u n I t y- D r I v e n D e v e l o p m e n t p r o j e c t s o n G e n D e r PDO Project Outcome Indicators* Use of Project Outcome Current Proposed Current Proposed Information Component 1: Component 1: Number of barangays % of barangays that have Assess whether the Community Grants Barangay Grants that have completed completed training on participatory barangay grants The capacity of the core training for situation analysis, planning, project are utilized to communities the KALAHI-CIDSS development, implementation, and enhance capacities to determine volunteers monitoring and evaluation of the target priorities, influence communities relative resource allocation Percent of non- % of barangays that have completed to the principles and and implement prioritized barangays specific raining on subproject processes of CDD community that have secured management and implementation sub-projects is funding per cycle Assess whether enhanced % of PSA identified priorities funded KC volunteers are with non-KALAHI-CIDSS sources prepared to manage and implement subprojects Assess whether other funding sources are mobilized to support community- identified proposals Subprojects % of barangays % of completed KCAF subprojects Assess whether implemented in with subprojects implemented in compliance with completed sub- a transparent, implemented at technical plans and within schedule projects comply participatory, timely technical standards and and budget with technical and cost-efficient within budget standards and are manner % of completed KCAF subprojects cost-efficient % of barangays with that meet basic financial standards subprojects that meet based on approved Finance and Assess whether basic financial reporting Administration Sub- Manual (inclusive completed sub- standards in FM&A of disclosure requirements projects comply manual with financial % of communities with KCAF management Percent of completed subprojects that have sustainability standards community projects evaluation rating of satisfactory or that passed the higher Assess whether sustainability evaluation completed sub- projects are functional or being used in accordance with the intended purpose and will be sustained in accordance with operations and maintenance plan I m pa c t o f c o m m u n I t y- D r I v e n D e v e l o p m e n t p r o j e c t s o n G e n D e r 37 PDO Project Outcome Indicators* Use of Project Outcome Current Proposed Current Proposed Information Component 2: Component 2: Percent of area % of barangays with community Assess whether Capacity Capacity coordination team (ACT) development plans prepared in KC builds capacity Building and Building and with satisfactory annual accordance with KC participatory for participatory Implementation Implementation performance based on process local development Support (CBIS) Support (CBIS) their work plan process Participation, % of LGUs that satisfactorily transparency, and Percent of barangays implement their participatory, Assess the accountability that have committed to transparency and accountability integration of strengthened in sustain the participatory (PTA) integration plans in accordance KC participatory, community and process as part of the with the KC MOA and committed to transparency, and LGU priority setting Barangay Sustainability sustaining the PTA as part of their accountability and planning Plan sustainability plans mechanisms in the LGU system that will Number of MLGUs that % of barangays with citizens, other ensure sustainability substantially comply than public officials, who participate with transparency in regular municipal-level resource Assess whether requirements per allocation forum there is broader memorandum of representation of agreement (MOA) % of Makamasang Tugon citizens at the MDC municipalities that have established other than elected Percent of MLGUs that expanded municipal development officials meet with barangay councils (MDC) for broader representatives for consultation with civil society Assess compliance inputs to the municipal representatives to obtain inputs for of MLGU to provide development plan the MDP technical assistance (MDP) that will ensure % of MLGUs that provide technical technical and Number of MLGUs assistance in SP preparation, financial soundness that provide implementation, and monitoring of subproject technical assistance based on the MOA in SP preparation, Assess compliance implementation, and % of municipalities that provide their of MLGU to support monitoring based on KCAF local counterpart contributions KC the MOA (LCC) based on their LCC delivery plan Assess whether the Number of MLGUs GRS is functional that provide, at least, None as one of the KC 80 percent of the mechanisms for counterpart based on Percent of registered grievances transparency and the MOA satisfactorily resolved in accordance social accountability with grievance redress system (GRS) Number of MLGUs with manual turnover MOAs Percent of registered grievances resolved in accordance with grievance redress system (GRS) manual 38 I m pa c t o f c o m m u n I t y- D r I v e n D e v e l o p m e n t p r o j e c t s o n G e n D e r PDO Project Outcome Indicators* Use of Project Outcome Current Proposed Current Proposed Information Note: In the Component 3: Note: In the original Pilot implementation guidelines Guidelines will original PAD, this Urban KALAHI- PAD, this urban developed ensure rational and Urban activity CIDSS activity was included systematic pilot was included Strategy for urban under Component 1 Pilot testing in four urban poor areas testing under Component CDD developed (community grants) completed (includes development of 1 (Community and refined based but there were no key performance indicators) Assess progress of Grants) on pilot testing KPIs specifically for pilot testing the urban activity Component 3: Component 4: None Multistakeholder oversight and Ensure involvement Monitoring and Project coordinating committees at all of multi-stakeholder Evaluation Management and levels are in place and functional in KC to draw Monitoring and in accordance with their respective expertise and Evaluation (M&E) terms of reference linkages with other Project oversight agencies & management, % of national & regional project teams local ownership of that meet performance targets set by Assess adequate the project, and project management performance of the project learning management teams strengthened Framework for mainstreaming KC policies and approaches into DSWD Provide direction operations adopted for ensuring institution-alization of KC in the DSWD in preparation for scaling up Notes: *In the original PAD (2002), indicators were developed using the old Logical Framework format. The AF will use the current Results Framework format. This has resulted in some adjustments in the level of indicators (Project Outcome and Intermediate Outcome) as highlighted above. ** As identified by the communities during social preparation activities. I m pa c t o f c o m m u n I t y- D r I v e n D e v e l o p m e n t p r o j e c t s o n G e n D e r 39 Annex 2. GAD checklist for project management, implementation and evaluation Response Score for Partly item/ Element and guide question No yes Yes element 1.0 Supportive project management 2 (max score: 2; for each item: 1.0) 1.1 Is the project leadership (project steering/advisory committee or management) supportive of GAD or gender equality goals? For instance, have they mobilized adequate resources to support strategies that 1 address gender issues or constraints to women’s and men’s participation during project implementation? 1.2 Has adequate gender expertise been made available throughout the project? For example, were gender issues adequately addressed in 1 project management contract and scope of services? 2.0 Technically competent staff or consultants 2 (max score: 2; for item: 0.67) 2.1 Are the project staff members technically prepared to promote gender equality or integrate GAD in their respective positions/locations? OR, is there an individual or group responsible for promoting gender equality in 0.67 the project? OR, has the project tapped local gender experts to assist its staff/partners in integrating GE in their activities or in project operations? 2.2 Does the project require the presence of women and men in the project 0.67 implementation team? 2.3 Does the project require its monitoring and evaluation team (personnel or 0.67 consultants) to have technical competence in GAD evaluation? 3.0 Committed Philippine government agency 2 (max score: 2; each item, 1) 3.1 Are regular agency personnel involved in implementing project GAD initiatives? OR, are agency officials or personnel participating in GAD 1 training sponsored by the project? 3.2 Has the agency included the project’s GAD efforts in its GAD plans? 1 4.0 GAD implementation processes and procedures 1.75 (max score: 2; each item: 0.5) 4.1 Do project implementation documents incorporate a discussion of GAD concerns? IF APPLICABLE: Are subproject proposals required to have 0.25 explicit GAD objectives and to have undergone gender analysis? 4.2 Does the project have an operational GAD strategy? Alternately, has the 0.5 project been effective in integrating GAD into the development activity? 4.3 Does the project have a budget for activities that will build capacities for 0.5 doing GAD tasks (gender analysis, monitoring, etc) 4.4 Does the project involve women and men in various phases of 0.5 subprojects? TOTAL SCORE FOR PROJECT MANAGEMENT 7.75 40 I m pa c t o f c o m m u n I t y- D r I v e n D e v e l o p m e n t p r o j e c t s o n G e n D e r Checklist for project evaluation Response Partly Total score for Element and guide question No yes Yes the element 1.0 Project monitoring system being used by the project includes indicators that measure gender differences in outputs, results, 2 and outcomes (max score: 2; each item, 1 point each) 1.1 Does the project require gender-sensitive outputs and outcomes? 1 1.2 Does the project monitor its activities, inputs, outputs, and results 1 using GAD or gender equality indicators? 2.0 Project database includes sex-disaggregated and gender- related information 2 (max score: 2; each item, 0.5 point each) 2.1 Does the project support studies to assess gender issues and impacts? Or, has sex-disaggregated data been collected on the project’s impact on women and men in connection with welfare, 0.5 access to resources and benefits, awareness or consciousness raising, participation, and control? 2.2 Has sex-disaggregated data been collected on the distribution of project resources to women and men, and on the participation of women and men in project activities and in decision making? 0.5 IF APPLICABLE: Does the project require its subprojects to include sex-disaggregated data in their reports? 2.3 Do project and subproject reports include sex-disaggregated data, or cover gender equality or GAD concerns, initiatives, and results 0.5 (that is, information on gender issues and how these are addressed)? 2.4 Are sex-disaggregated data being “rolled up� from the field to the 0.5 national level? 3.0 Gender equality and women’s empowerment targets being met 4 (max score: 4) 3.1 Has women’s welfare and status been improved as a result of the 2 project? (max score: 2) Examples: • The project has helped in raising the education levels and health status of disadvantaged groups of women. • Women’s access to productive resources, employment opportunities, and political and legal status has been improved. • The project has created new opportunities or roles for women and men. • Men and women have been sensitized to gender issues and women’s human rights. • The project has supported or instituted strategies to overcome any adverse effects on women. • The project has introduced follow-up activities to promote sustainability of its gender equality results. • There are project initiatives to ensure that improvements in the status of women and girls will be sustained and supported after project completion. 3.2 Has the project helped to develop the capacity of the implementing 2 agency to implement gender-sensitive projects? (max score: 2) I m pa c t o f c o m m u n I t y- D r I v e n D e v e l o p m e n t p r o j e c t s o n G e n D e r 41 Response Partly Total score for Element and guide question No yes Yes the element 4.0 Project addressing gender issues arising from or during its implementation (max score: 2) 2 2 Has the project responded to gender issues that were identified during project implementation or M&E OR has the project addressed gender issues arising from its implementation? Examples of gender issues: • Negative effect on gender relationship as a result of new roles or resources created for women • Additional workloads for women/men • Displacement of women by men • Loss of access to resources because of project rules 5.0 Participatory monitoring and evaluation processes 1.5 (max score: 2; each item, 1) 5.1 Does the project involve/consult with women and men implementers during project monitoring and evaluation? Does it involve women 1 and men beneficiaries? 5.2 Have women and men been involved or consulted in the assessment 1 of the gender impacts of the project? TOTAL GAD SCORE FOR MONITORING AND EVALUATION 11.5 TOTAL GAD SCORE FOR PROJECT MANAGEMENT (From Box 16) 7.75 TOTAL GAD SCORE FOR THE PROJECT IMPLEMENTATION PHASE 19.25 Interpretation of the Total GAD Score 0–3.9 GAD is invisible in project implementation (Project needs GAD technical assistance or advice in all areas) 4.0–7.9 Project implementation has promising GAD prospects (Project needs GAD technical assistance in some areas) 8.0–14.9 Project implementation is gender-sensitive (Project needs GAD technical advice in a few areas) 15.0–20.0 Project implementation is gender-responsive (Project to be commended) Source: DSWD, government of the Philippines, 2011 NEDA Harmonization Guidelines 42 bibliography Alsop, R., and N. Heinsohn. 2005. “Measuring Empow- Balisacan, A.M., and G.R. Edillon. 2003. 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