OUTCOMES MAPPING - December 2004

Section II: Outcomes Mapping

11. Outcomes in the District

NGO Associations | Results with Government

11.2.2. Reach to other NGOs in the district

PNGOs also reached other NGOs through different CNGO program components. District NGOs learned gender concepts and analysis from the PNGOs in training organized through the NGO associations and gender allies. The gender allies were a platform for NGOs to collaborate around gender equality. NGOs participated in the district gender conference. The DDC/NGO committee for collaborative relations helped all district NGOs. Some NGOs participated on the GEC also.

11.2.3. Gender Allies

Gender Allies Outcomes Women benefited from advocacy in violence cases - domestic violence and witchcraft accusations, for example Relationships built among stakeholders with a focus on gender equality Gender awareness training conducted among members Communities benefited from allies advocacy - chhaupadi, dowry, early marriage

Several years ago, some PNGOs expressed an interest in forming a pressure group to advocate for gender equality and take up cases of violence against women such as witchcraft and domestic violence. CNGO supported this idea and gender allies was conceptualized as a platform for a diverse set of stakeholders with an interest in gender equality to come together to share experiences, coordinate in programming, conduct advocacy and address cases of abuse. PNGOs of each district were to collaborate to form this pressure group, with minimal guidelines from CNGO. This was to test their mobilization and linkage building skills, and be seen as an initiative rooted in needs expressed at the local level. Funding support for some training and networking events, including a district conference, supported the PNGOs to activate the allies. The allies was thus process oriented to support PNGO capacity building as well as output oriented to create the allies and have impact. Both PNGO capacity building and allies impact are important for purposes of outcome mapping, and are discussed below.

PNGOs found the process challenging as local NGOs and government officers assumed this was yet another donor funded network that would last only as long as the donor was there to fund it. They assumed the PNGOs motive was "program delivery". In most districts though the formation phase was productive, and provided a platform for sharing and planning. Several districts became caught in debates whether to formalize the allies by registering as an NGO or remaining as a loose forum, as proposed by CNGO. Poor relations between PNGOs of a district, as in Mahottari and Doti, hampered efforts to form allies, as well as the acrimonious relations among NGOs of Mahottari. However in the other districts, allies helped the PNGOs gain recognition as a GRO and contributed to their capacity building.

Over a two year period, 2002 and 2003, allies were active in some form in all districts and outcomes were achieved for women. Many cases were brought to the allies and assistance provided to victims. Under the allies banner, gender audits were conducted. In the far west, the chhaupadi campaign, launched as a action learning set, brought together allies, PPNGOs and community groups to advocate for women's right to a safe clean place during menstruation. The CNGO Semi-Annual reports have documented these successes. Some examples are mentioned here to illustrate these outcomes:

• In Doti, the committee members were motivated to take on gender issues, such as the journalist member training other journalists on gender concepts, and airing gender issues on a regular local radio program. Members said that now they try to include both women and men in groups.
• Surkhet gender allies was first to be launched, and WAM used the allies to promote their work to bring forward domestic violence cases. From a time when women were ashamed to admit abuse, now women are demanding justice. The allies conducted a gender audit of several organizations and circulated the report, and allies were credited with helping to raise gender issues. Through the collective voice, the allies (and PNGOs) encouraged DDC to allocate funds for gender.
• Dadeldhura gender allies worked on a gender equality booklet, published a gender manifesto after the gender conference, and for a time, held regular meetings to share and coordinate. They collaborated on the chhaupadi campaign.
• In Bara, the allies held gender workshops and a conference that influenced members to think about gender equality in their work, and solved cases of abuse. They campaigned on child marriage and dowry.
• In Sarlahi, the allies solved cases of witchcraft and domestic violence. They formed sub-committees at community level which are still functioning to bring pressure on cases.
• Mahottari was handicapped by the poor relationship between the two PNGOs, and a lack of follow through by the PNGO staff. However despite this difficulty, the seeds were planted demonstrating the usefulness of an allies. A recently re-activated pressure group may survive.

Assessment of Results

The outcome mapping team interviewed gender allies members and PNGO members to assess the current status of the allies and the outcomes achieved to date. Interviewees report that as CNGO phased down, and funds were less available for activities (training events, campaigns, gender audits), there was a decline in the allies outcomes and activities. In addition, other factors contributed to the allies decline. Most of the PNGOs tried to spread ownership among other NGOs by rotating the leadership to other individuals or NGOs, including their PPNGOs. However these organizations lacked the experience and commitment to sustain the work. In addition, other donors had launched networks that competed with the allies for members and activities. Also the PNGOs were turning their attention to CBI Fund implementation and other project work that provided paid employment rather than devote time to the volunteer commitment of the allies.

Thus by the time of the outcome mapping mission, the prognosis for sustainability was less positive. Although all the interviewees agreed that positive work had been done by the allies, such as women assisted to attain justice in abuse cases, and a more open environment created for discussions on gender and violence against women, the momentum has eroded. In most districts some form of allies remains in the P/PNGO members and community groups (VDC level), and women are benefiting from that support. At district level, the committees are less active and trying to find their way forward, or dormant. However most people interviewed for the allies believed that the concept is good, and that for most districts gender allies was one of the first times that many people had come together with this focus. This in itself was an achievement, they felt, and they expressed interest to know how they could re-activate the allies.

Many interviewees mentioned that the lack of resources constrained allies. People needed travel money for example, or small funds to assist the victim in the legal system with court fees. NGOs that don't have gender as a main focus -instead, the cross-cutting approach - in fact meant that they didn't take gender equality seriously enough to participate in the allies, according to several interviewees. The allies needs to awaken that commitment to gender equality yet is hampered to find enough strong, committed organizations to start to support that work. In addition, PNGOs were confused on whether to include LA representatives. As they generally expect allowances to attend meetings, government officials are not usually motivated to participate. Some WDO were active in supporting the allies, especially where there is a strong relationship with the WDS, but still it was a challenge to engage them in most districts.

"LA's and other organizations view gender equality as peripheral to their substantive work so they have little interest in participating. Even NGOs that profess to include gender in their programs take gender "lightly" and gender is lost in implementation" Narayan Subedi, SG.

Gender allies were intended to nurture a supportive environment for collaboration on gender equality in the district. With the PNGOs taking the lead role, they were able to advocate and show gender as an important issue. Having a bilateral partner probably helped raise their status in this work.

Gender allies contributed to changes in gender awareness among members, and directly helped in addressing abuse cases. It was also a mechanism for PNGOs to take leadership and gain visibility in their role as GROs. This recognition happened and the PNGOs were "marketed". If there is a future for allies, it will need to rebuild, and work from the core of the PNGOs and the PPNGOs. Also important is support from the LDO and WDO.

11.2.4. NGO Associations

NGO Associations Outcomes NGO associations mobilized from dormancy in several districts and tensions reduced among competing association in other districts Limited gender training provided and gender perspective introduced Progressed building NGO collaboration

At CNGO baseline, in most districts, the NGO associations were either inactive or engaged in destructive competition rather than performing a useful role representing an NGO voice for good development. NGOs were not accustomed to actively participate in common forums nor collectively advocate for development issues. Thus CNGO embarked slowly into the area of NGO association strengthening, and tried to move at the pace of the associations rather than pushing implementation. This strategy was necessarily adopted even though CNGO recognized that an effective NGO voice would be an important counter to the tendency of local government to want to control NGOs rather than cooperate, and that an association would be a valuable stakeholder on the DDC/NGO committee.

With the guidance of a senior consultant, the CNGO coordinators and the PNGOs began by assessing the potential for collaboration and brought stakeholders together to discuss their roles and responsibilities. Over a two year period, several meetings and workshops were held, and the PNGOs facilitated local meetings to move forward. Also, over the past year or two, the NGO Federation had funds to rebuild their district chapters, and Doti and Dadeldhura benefited from this attention especially.

Assessment of Results

The outcome mapping team held interviews with an NGO association executive member(s) in each district. In Doti and Dadeldhura, the PNGOs played important and effective roles to bring NGOs together, but they are also caught in the district NGO politics and so appeared to gain less recognition from interviewees for their contribution. In Surkhet, several associations function, and CNGO support was used to clarify roles and reduce tensions among associations. The PNGOs were useful in supporting this work. Mahottari is the most difficult district for NGO collaboration, and while CNGO mediated among the stakeholders, and some agreement was reached, the associations are not yet an effective voice. Sarlahi associations appear to be doing more effective interaction with the DDC and bringing NGOs together. There was receptivity to CNGO support, and PNGOs were able to be proactive in the associations and also in bringing in some gender concepts. Similarly in Bara, the PNGOs were credited with raising gender issues and supporting NGO collaboration.

Association strengthening was a small input from CNGO, and the results are correspondingly weak or difficult to attribute to CNGO's work. Some positive changes in the district NGO climate resulted from this work, and in some districts the associations benefited from PNGO gender training workshops, however other changes are not readily known.

11.3. Results with Government

11.3.1. Gender Equality Committee (GEC)

Gender Equality Committee Outcomes GEC formed in two pilot districts by CNGO and in two other districts by the PNGOs Meetings held and gender training conducted to raise level of awareness and generate commitment GECs contributed to supportive gender environment GEC lapsed due to lack of ownership by DDC/LA staff Gender Toolkit completed by MWCSW, to be distributed to all WDOs for implementation in all districts

The GEC was formed with the support of CNGO and the MWCSW in two pilot districts, Bara and Mahottari. Due to the more serious conflict situation in the west at the time, GEC were not formed there by CNGO. However in Surkhet and Doti, the PNGOs took the initiative to form GEC more recently. Both adopted the models from the terai, and used the GEC Toolkit developed by MWCSW.

In the pilot districts, central level Ministry officials facilitated the formation and follow-up in the initial phase. District GEC members included LA officials, DDC and NGOs.

Assessment of Results

According to some interviewees during the outcomes mapping, the GECs met several times, training was conducted for members that was appreciated, and they led gender audits. GEC could be a useful platform for coordination.

However, respondents said that leadership and authority for the GEC was not clear, therefore both DDC and WDS were seen as responsible but neither took up the role effectively. For example, in Bara the LA members challenged the legitimacy of the GEC, and demanded an authorization letter from MLD to form / enable this committee at DDC. The LDO is a significant contributor to the success of GEC, in the absence of local bodies, or with the newly appointed DDC members. As well, the interest of the WDO is crucial, and her capacity to motivate other LA/DDC to mobilize the GEC is generally weak due to WDOs lower status in the district LA hierarchy.

CNGO did not expect the PNGOs to take the major responsibility to continue the GECs however their active role contributed a positive benefit. JJA strongly promoted the GEC, yet overcoming male resistance was difficult. Although in Mahottari, where this PNGO advocacy didn't happen, GEC results were not much different.

Since the GEC was intended as a contribution to government's mechanisms for gender mainstreaming, the GEC needed to be owned by government officials or politicians. CNGO did not directly conduct ground-setting work with DDC or LA to sensitize them on gender concepts but rather relied on other agencies and the HMG policy directives that were to create the climate for gender work. In the absence of meaningful gender integration, the GEC proved difficult to systematize or internalize.

Due to the unclear current membership of GEC, members were not interviewed in the pilot districts, unless it was in some other capacity (e.g. as a CBI Fund partner). The GEC appeared to be a vague concept that has not been institutionalized or proving its usefulness to stakeholders that don't see gender equality as a priority. Government officers did not take the opportunity presented in the GEC to take action on implementation of national gender policy commitments, such as CEDAW or the Beijing Platform for Action. On the other hand, PNGOs together with other gender allies' members have the right to claim such obligations from the LDO, DDC and WDO. This also demonstrates inactiveness on the part of the NGO community. However the basic mechanism of promoting and sustaining GEC together with other agencies seemed to be difficult, as they could not develop a collaborative shared action plan.

That WAM in Surkhet took its own initiative (with some funds from CNGO) to form a GEC is demonstration of their commitment, however despite that work, the committee has met the same problems as described in the other districts. The Doti GEC was formed as part of the EDC CBI #3 project, as a way to network the LA stakeholders with NGOs for gender. As the DDC has not yet taken up the leadership, the WDO did not feel there was legitimacy to continue the meetings.

The positive outcome of the CNGO GEC work, even if the pilot committees are weak, is that the GEC Toolkit has been taken up by the MWCSW, and the DWD has brought the Toolkit into its own program implementation strategy. Now the Toolkit is expected to be promoted through the WDOs in all districts, and this strategy has the potential to both rebuild the GEC in CNGO working districts and replicate it in many other districts. While the outcome mapping mission was underway, several WDOs mentioned their recent training on forming a GEC (although the name and some terms are broadened). This hopefully will be sufficient legitimacy for WDOs to request the cooperation of the LAs.

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