GenCap Experience Document # 4:
Facilitate and Coordinate the Initial
Implementation of a Joint Programme
Overview of GenCap
Established in 2007, GenCap is a standby roster of gender experts managed by the Inter-Agency
Standing Committee (IASC) Sub-Working Group on Gender in Humanitarian Action and the
Norwegian Refugee Council. GenCap Advisors are deployed to humanitarian situations for six to
twelve months to provide support to information collection and analysis, programme planning,
capacity building, coordination and advocacy on gender equality programming, using the IASC
Gender Handbook: Women, Girls, Boys and Men – Different Needs, Equal Opportunities and the IASC
GBV Guidelines to guide and inform their work.
Content:
What is the purpose of this experience document?
How can a GenCap Advisor to a Joint Programme benefit from this experience document?
Background Information- the context and the terms of reference
Coordination in a Joint programme – What does this mean?
Case study: UN Government Joint Programme in Liberia
Lessons learnt
This document was written by
Dr. Madhumita Sarkar
GenCap Advisor to
Liberia
July to December 2008
GenCap Experience #4 –Joint Programming
-1-
What is the Purpose of this EXPERIENCE DOCUMENT?
The purpose of this experience document is to enable and to guide future
GenCap Advisors deployed to GBV/Gender Equality/Women’s
Empowerment Joint Programmes by reflecting on and documenting the
experiences and the lessons learnt from the GenCap deployment to Liberia
from July to December 2008.
No two GenCap Advisor deployments are the same even if two GenCap Advisors
follow one another to the same country. Sri Lanka and Liberia are two examples
from my own experience; in the former, I was followed by a second GenCap Advisor
and, in the latter, I was preceded by one. The experiences of GenCap Advisors are
polychromatic. Every deployment has its own unique features; each GenCap Advisor
faces a different set of challenges, has the opportunity to innovate and, in his/ her
own way, to contribute to a programme, make a difference to the work of a
colleague or the life of a programme participant. GenCap Advisors often find
themselves faced with the problem of finding a niche in challenging coordination and
management structures of GBV programmes. A meaningful way of facing such
challenges will involve engaging and negotiating with all key stakeholders including
the Government, district authorities, UN agencies, INGOs and LNGOs.
The Joint Programme signed between the Government of Liberia and the
United Nations is helping address the issue of wide-scale sexual exploitation
and abuse cases, and sexual gender-based violence (SGBV), and prevent and
respond to their occurrence in Liberia.
The Joint Programme has been designed in line with the security and
protection component of the Government’s Poverty Reduction Strategy. It
offers a comprehensive and integrated approach to reducing SGBV in the
country, is designed to support Liberia’s National GBV Plan of Action (POA),
minimizing GBV by 30% by 2011, while providing appropriate care and
services to survivors of GBV in Liberia.
The experience document endeavours to demonstrate the key steps and actions that
need to be taken and the approach to challenges faced by the short-term
deployment of a GenCap Advisor tasked with initial implementation of a Joint
Programme.
Vital to this deployment was establishing sustainable mechanisms and building local
capacity to continue the work after the deployment had ended and the long-term
Programme Manager was in place.
The purpose of this particular experience document is to describe the processes by
which, in a multi-sectoral approach, the GenCap Advisor can ensure smooth
GenCap Experience #4 –Joint Programming
-2-
coordination with multiple stakeholders during the initial implementation phase of
the programme.
How can the Gender Advisor to a Joint Programme benefit from this
Experience document?
Joint Programmes are significant and provide strategic support to the Government
to facilitate the operationalisation of National Plans, directly respond to national
priorities and address national priorities through the United Nations Development
Assistance Framework (UNDAF). This experience document describes the steps taken
to coordinate a multi-sector, multiple agency coordination effort to enhance
response and prevention work on GBV in a post conflict situation as ONE
PROGRAMME, ONE TEAM. It is anticipated that lessons learnt from these
experiences will prove valuable for all Programme Managers and Gender Advisors
who will be leading other Joint Programmes including GBV and Gender Equality and
Women’s Empowerment.
After reading this experience document, GenCap Advisors should be able to:
Develop and manage a Joint Programme team.
Establish mechanisms and structures to implement the Joint Programme
Facilitate the strategic cooperation and collaboration between Government,
Ngo/INGO and UN agencies
Build local capacities and strengthen structures in order to ensure the
effective functioning and sustainability of the group after the GenCap Advisor
has left.
Background Information- the context and the Terms of Reference of
the GenCap Advisor
The GBV Joint Programme in Liberia states specifically “the joint programme will
derive from the national GBV multi-sectoral plan of action and build on existing
interventions in a more complementary and comprehensive manner to ensure
judicious use of resources and eliminate duplication”
The goal of the Joint Programme is to reduce GBV in Liberia through a multi-sectoral
and multi-dimensional approach. This stated goal is directly in line with the GBV
National Plan of Action that has an overall goal to minimize SGBV by 60% by 2011
and to provide appropriate care and services to survivors of SGBV in Liberia. It is also
in line with the deliverables of the UNDAF as well as the priorities enshrined in the
Poverty Reduction Strategy (PRS). The key actors of Government are the Ministry of
Gender and Development, the Ministry of Justice, the Ministry of Health & Social
Welfare and the Judiciary Branch of Government. The key UN partners in this
programme are UNDP, UNFPA, UNHCR, UNICEF, UNIFEM, WHO and UNMIL.
GenCap Experience #4 –Joint Programming
-3-
The ToR of the GenCap Advisor to Liberia included the following key tasks:
Coordination
• Assist in the overall coordination of the Joint Programme components of the
participating agencies and their national and international counterparts.
Liaise closely and forge relationships with the GBV Unit of the Ministry of
Gender and Development, the National GBV Taskforce, other UN Joint
Programme Managers and other stakeholders concerned with SGBV. Ensure
regular monitoring and evaluation including field visits and participation in
meetings. Facilitate the establishment of a Joint Programme Steering
Committee including the development of a ToR and programme committee
Advocacy
• In collaboration with Pillar Coordinators, contribute to the harnessing of
effective partnerships and competitive selection of partners for
implementing projects.
Capacity Building
• Support capacity building of National Counterparts
Information and Analysis
• Ensure timely reporting against plans and articulate progress reports
• With the support of Pillar coordinators, oversee the work-plan and budget of
all agencies. Regularly monitor the progress against indicators
Coordination in a Joint programme – What does this mean?
A Joint Programme requires the careful design and construction of a robust structure
that considers coordination as the foundation and as the core cross-cutting factor
that weaves together multi-sectoral and holistic approaches in a GBV programme,
such as the psychosocial, health, legal, security/protection components, to achieve
the objective of ‘One Programme, One Goal’. Accordingly, in order to achieve
sustainable results, it is extremely important that the coordination forum is
encouraged to gather their allies, organise themselves, coordinate their work and act
collectively to maximise efforts. However, different agencies have different
mandates and this has a direct bearing on lowering the status of representation,
participation in joint efforts, reporting, work planning and in meetings. The
GenCap/Programme Advisor should seek the support of Heads of Agencies to
provide leadership and ensure commitment of representatives to drive the Joint
Programme. In addition, at the very outset the GenCap/Program Advisor should seek
the support of the HC/RC to direct agencies to commit resources to a common pool
for joint monitoring, organising meetings, strategic assessments and other logistic
needs for a Joint Programme.
GenCap Experience #4 –Joint Programming
-4-
Case Study: UN Government GBV Joint Programme in Liberia
After fourteen years of brutal conflict, Liberia is gradually recovering from its
national nightmare. Gender based violence (GBV) is not only prevalent in Liberian
society; it is unfortunately accepted as something that is an integral part of gender
relations. The various forms of violence include child marriage, forced marriages,
female genital cutting (FGC), and child rape. In 2007, 46% of reported rape cases to
the Liberian National Police involved children under age 18.
During the conflict, the perpetrators were mainly fighting forces (89.2%). However,
after the conflict the perpetrators include not just ex-combatants, but community or
family members, teachers, husbands or partners.
Several studies show that ten out of the fifteen counties indicate a high prevalence
of violence which is embedded in the cultural beliefs and behaviour acquired during
the prolonged conflict. The Joint Programme is the UN Support to the GBV National
Plan of Action and builds on existing interventions in a more complementary and
comprehensive manner. The GenCap Advisor was deployed to provide the initial
support for the implementation of the Joint Programme that began in July 2008.
The existing strategies and mechanisms for gender equality programming that was
directly relevant to the joint programme were:
•
•
•
•
•
The Poverty Reduction Strategy (2008 – 2011)- The PRS recognises that
strengthening the legal and judicial institutions with human and institutional
capacity building as crucial in contributing positively on the Rule of Law. PRS
also refers to the National GBV Plan of Action in addressing gender inequities.
A National Plan of Action for GBV launched on 30th November, 2006 as the
result of multi-level consultations between all key actors, (the Government of
Liberia, the UN system, local and international NGOs and communities) and a
crucial step towards the prevention of and response to SGBV.
A National GBV Task Force chaired by the Ministry of Gender and
Development, and comprising all stakeholders (National and International
NGOs, UN agencies and Representatives from the Government of Liberia)
The Gender Theme Group was established as a main conduit through which
UN support to the Ministry of Gender and Development and gender equality
programming is coordinated.
The Protection Core Group (PCG) under the cluster approach in Liberia
previously led by UNHCR and currently with the Ministry of Justice. The PCG
supports the coordination of activities on GBV, sexual exploitation and abuse
(SEA) and other protection related issues in the counties.
The various interventions under the PLAN OF ACTION (PoA) were not making
meaningful impact as they are fragmented and uncoordinated. The Joint Programme
is aimed at providing the framework for the implementation of the National GBV
PoA.
GenCap Experience #4 –Joint Programming
-5-
Analysis of existing mechanisms and structures
•
Signatories to the Joint Programme (agencies) often do not comprehend the
strategic importance of individual activities under the Joint Programme as
they are drawn from different individual projects that also involve reporting
to respective donors. This has direct consequence on individual and agency
commitment, reporting, participation and team work.
•
Poor and irregular participation and representation of key personnel,
especially of UN representatives at the monthly GBV Taskforce meetings at
the ministry
•
Taskforce meetings often used as a forum to report individual cases of rape
(the ministry presents consolidated report) rather than a forum to discuss
strategic issues.
•
Poor reporting and sharing of data by taskforce members affect the quality of
report produced by the GBV Unit at the ministry
•
The UN Gender Theme Group meetings are irregular and those who can
make contribution to the group are often excluded from the list because of
poor /incomplete mailing lists..
•
Little discussion and coordination amongst UN agencies on activities, support
to the ministries often resulting in same/similar efforts being supported by
different agencies
•
Coordination structures at the county level are weak and heavily dependent
on INGO/UN support. With many agencies pulling out (because the mandate
of these agencies was support to conflict affected regions, the country is
moving towards a reconstruction phase) the support to coordination will be
further weakened.
•
Gender is still understood as working with women for women by many
taskforce members
•
There is no comprehensive report on the root causes of rape, especially rape
of minors
•
No information on who was doing what and where
•
Little coordination on data collection thus resulting in duplication of GBV data
as many agencies collect data in the field, this could inflate statistics
Key Actions Taken
1. Identified common areas of work and agencies working in common areas,
and supported the formation of working groups to optimise synergies and to
avoid duplication of efforts. Three working groups were formed under the
Joint Programme on trainings, manuals and National SOPs.
2. Actively participated in UNDAF M&E group and ensured the monitoring tool
included GBV indicators and other indicators are gender sensitive
GenCap Experience #4 –Joint Programming
-6-
3. As co-chair of the Legal and Human Rights working group on GBV at the UN
Mission compiled and reported the outcomes of different components of the
Joint Programme that will address the UNDAF outcome 31
4. Co-Chaired the GBV Taskforce meetings along with the Deputy Minister, this
impacted the participation and representation of agencies and ministries at
meetings, improved collaboration and support for joint efforts like the 16
Days of Activism on Violence.
5. Supported and facilitated GBV Taskforce working sessions on the revision of
the Taskforce’s ToR and the Taskforce’s meeting format and frequency.
6. In order to promote transparency, accountability, to avoid duplication and to
promote collaboration, a Taskforce work planning session was organised at
the Ministry. A joint work-plan with budget of different agencies (NGO/INGO)
working on GBV was prepared and presented to the Ministry. There are now
two consolidated work-plans; one of the Joint Programme and the second of
other agencies other than the UN.
7. Enhanced visibility of the Joint Programme by using every opportunity and in
different forums to explain its relevance and impact on GBV.. For example;
while supporting capacity building efforts, meeting with key personalities at
the Ministry, it was important to always have information packets, brochures
(of the Ministry) that presented the links between the Joint Programme and
the GBV Plan of Action of the Government, including the support by the UN
to the government to improve collaboration by physically locating the
Programme Advisor at the Ministry.
8. One of the key gaps under GBV coordination was the lack of information on
‘WHO IS DOING WHAT AND WHERE’. Accordingly, the GenCap Advisor
facilitated and prepared the Mapping Report on agencies working on GBV
with the support of ARC.
Key Steps to Initiate Implementation
1. Promote the optimal use of the Joint Programme document to understand
the programme, experience document programme implementation, to
present the rationale, to clarify perceptions and campaign for the
programme.
2. Negotiate with the receiving agency ( UNDP) and the RC/HC to include an
introduction of the GenCap/Program Advisor as an agenda item in existing
gender theme/GBV group meeting and UNCT meeting
1
UNDAF outcome 3 “Democratic, accountable and transparent governance advanced in a
participatory and inclusive manner and in accordance with human rights standards”;
Country Programme Output 3.3.4 “Gender equality advanced, and the rights of women and girls
promoted and protected, including a robust response to gender-based violence”
GenCap Experience #4 –Joint Programming
-7-
3. Use the gender group members to fix meetings with Heads of Agencies to
discuss the joint programme and identify agency representatives
4. If seated at the Ministry, ensure the receiving agency introduces you to the
Minister and the reporting line in the Ministry is clarified
5. Seek approval of your work-plan by both your reporting lines at the Ministry
as well as the UN
6. The UN mission in Liberia has a key role in security and protection, (which is
an important pillar of the Joint Programme in Liberia). In countries with UN
peace keeping missions, ensure that you are introduced to the DSRSG ( Rule
of Law) who is also the chair for the UNDAF outcome group 32
7. Once all representatives of the Joint Programme are identified, call for a
meeting and in the first meeting negotiate and fix a day for monthly
meetings, discuss the key objectives and actions of the programme and
receive inputs from members
8. By the end of the first month of implementation, prepare a work-plan format
with inputs from participating agencies, circulate the format and propose a
deadline for receiving the first draft of work-plans. Share and receive consent
from participating agencies on significant dates/deadlines for the first six
months for example; date of meeting, dates for submitting work plans,
budgets, reports, field missions, etc.
9. Draft the ToR for the Joint Programme Steering Committee and organise the
Steering Committee meeting after the first quarter of implementation of the
programme.
10. Present the work-plan of the Joint Programme at the GBV Taskforce meeting
at the Ministry to garner support, interest and improve collaboration with
agencies (NGO/INGO, Ministries)
Lessons Learnt
Comprehensive reading on the conflict and the context: it is extremely important to
have exhaustive information on the conflict; its causes, context, the
influence/impact on neighbouring countries, men’s, women’s, boys’ and girls’
different and changing roles and responsibilities during the conflict, the influencers
and chief negotiators of the peace process.
Respecting the culture and being sensitive to what underlies violence: the GenCap
Advisor before deployment must have a complete understanding of how culture
determines power relations, promotes and supports traditional practices and
determines women’s position in the society. It is important to analyse how conflict
often promotes and idealises high violence against women and how beliefs sanction
rape of children as a cure for diseases or for economic gains or power. The challenge
2
UNDAF 3.3.4 Gender equality advanced, and the rights of women and girls promoted and protected,
including a robust response to gender-based violence and human trafficking
GenCap Experience #4 –Joint Programming
-8-
for a GenCap Advisor is to identify key change agents from different stakeholders
including the community; to initiate dialogue; and to make them your allies. When
there are people around us who seem difficult or even impossible to work with,
seeking help to see things from their point of view that can make all the difference.’
Understanding Joint programmes: the Advisor must read as many joint programme
documents as possible and read the whys and hows of different joint programmes
developed by different countries.
Working with the government and being seated in the Ministry: is a challenge as
well as great learning experience. The GenCap Advisor must have clarity on
expectations of his/her role and responsibility as a Programme Advisor of the Joint
Programme and as the key support to the ministry. S/he must also have clarity on
the key areas of support (logistic and programmatic) that will be provided by the
Ministry and the UN agencies. What happens around us is largely outside our
control, but the way we choose to react is not.
Networking: on arrival the GenCap Advisor must identify all the key stakeholders in
the programme, interact with them, participate in different meetings, provide inputs
to key documents, conceptualise and initiate areas of cooperation. All changes are
difficult and sometimes costly, but if they are good changes, in the long run they pay
off. It always helps to meet over cup of coffee.
GenCap Experience #4 –Joint Programming
-9-