OUTCOMES MAPPING - December 2004

Section II: Outcomes Mapping

10. PNGO Outcomes

Contribution of Community Based Initiatives Fund to PNGO Capacity
| Community Based Initiatives Fund Implementation |
PNGO Potential to Sustain as a GRO

10.4.3. Linkages

Linkages Outcomes Total number of linkages made by PNGOs varied from a minimum of 10 (Seto Gurans) to a maximum 40 (EDC) organizations Linkage were aimed at promoting gender equality as well as other issues PNGOs have matured to be able to focus on cooperation and collaboration level linkages that are effective at promoting gender change; they continue to scan and make new linkages as opportunities arise that extend their influence They have established linkages at national level for cooperative gender action

Linkages were integral to the PNGO capacity building so that they could advocate for gender equality, link to local resources and generate the demand for gender equality services. When the partnership began, most PNGOs had a limited number of linkages, mostly with already existing funding partners or some of the NGO associations in their district, and didn't see the value of nurturing linkages except with possible fund providers. Also, PNGOs previously did not think of linkages in stages, nor develop any strategy to maintain these linkages.

Assessment of Results

During the outcome mapping, PNGOs recorded their linkages and discussed the why's and how's of linkage building using a Venn diagram. By categorizing the linkages in the different stages, progressing in a sequence from introduction, to trust-building, awareness, cooperation and finally collaboration¹⁸, PNGOs could visualize where they spend their time and how it furthers their organizational mission. More linkages at the cooperation or collaboration level suggest that the PNGO is more effective in reaching out to stakeholders to advance gender equality.

All PNGOs have extended their linkages with a wider range of organizations. Each PNGO listed from 2 to 18 collaboration linkages (an average of 9 per PNGO), and 3 to 24 cooperation linkages (average 14 per PNGO). These are the more relevant linkages to sustain the gender equality work or the livelihood of the PNGO.

Some PNGOs were less active in linkage building such as WDS. This is in part due to the status of key members as teachers, and they lack time to attend meetings. Other PNGOs more haphazardly made linkages as opportunities emerged, rather than in a strategic way. Since several PNGOs suggested that they should be more structured in their linkages, such as forming committees and guidelines, and involving more members, especially women, there is recognition of the need to improve.

PNGOs report that they are more consciously working with government than previously, in order to influence them, to access resources and to link with the technical services provided by the LA. However several DDC and LA interviews indicated that PNGOs have a haphazard or irregular approach to linkages and some PNGOs say they lack sufficient time to devote to the work.

For example, JJA was well known in the offices visited by the outcomes mapping team. At DDC, they are represented on the Local Development Fund, are in regular contact and have successfully advocated for funds for gender programming from DDC. WDS organized a health camp with the District Health Office, building on the relationship, after identifying the community need. WAM and WCDC realized they needed working relationships with the police and CDO to address domestic violence cases, and now they receive good cooperation. RWUA worked with the Federation of Journalists to publicize and influence public opinion on witchcraft and dowry.

PNGOs were encouraged to sustain relationships with the Women Development Officer (WDO), a natural linkage partner for gender work. There are many success stories of collaborative relationships. PNGOs had contracts to deliver training (JJA) or conduct gender audits (WCDC), jointly organize International Women's Day celebrations (most PNGOs) etc. However rebuilding the relationship with the new WDO and ensuring that the WDS organizational memory of the PNGO -WDO relationship is retained is a challenge. And each WDO brings her own interests and perspective on the value of working with NGOs from her past experience in another district.

Most PNGOs recorded improved linkages with the community/target groups which encouraged them to better understand issues and collaborate on ways to move forward together. Target community members were invited to join the PNGO, although the PNGOs retain the founding member caste domination.

Factors that challenge linkage building success include the absence of local bodies and the competitive environment among NGOs. The absence of local bodies has made the continuity of relationships with DDC more challenging, as the LDO has the major development responsibility. Since the senior LA staff are regularly transferred, new relationships must be continuously made. Although it is also useful to work with the local staff or those staff less frequently rotated, there is still a need to respect the hierarchy and work through the senior in-charge. During the interviews, there were several occasions when the team were reminded that PNGOs had not used "the proper channels" or the acting in-charge denied knowledge of the PNGO activities. Several PNGOs noted that it is difficult to obtain meeting time from the government offices. As a Dalit NGO, EDC faced particular challenges to establish their credibility; people initially avoided EDC programs because they are a Dalit organization.

In addition, district NGOs are notorious in their competition for scarce (donor) resources, which inhibits collaboration in other spheres of mutual interest. Also, good relationship building skills are needed when Kathmandu based I/NGOs come to the district to collaborate with PNGOs, since the PNGOs feel that the national level I/NGOs take credit for the work of the local NGO.

Some I/NGOs and donor projects include a gender expert in the district or region, and the PNGOs need to collaborate with these people. Very often there seems to be a gap in requirements of donors and the status of the local PNGOs, which mostly relate to language skills (English) and communication expertise.

The gender allies has not played enough of a role to inform others about PNGOs' capacity and thus, PNGOs are left with a challenge to market themselves within an unhealthy competitive environment of power and politics.

In addition, whether the person making the linkage was a man or woman indicated how the organization mobilized people and the internal gender dynamics. In most cases, men took the lead for linkages in the mixed PNGOs, although women may have joined the men and also done some linkage building on their own, especially with WDS. Some notable exceptions of women taking an active role were in JJA where the president is a woman, and in VCDC. Men tended to visit the government offices while women were more likely to visit other NGOs and the community. In part, the post held dictates who makes the linkages. Government officers are status conscious and prefer to meet with the senior people of the PNGO. Since most of the government officers are men, it is also easier for men to initiate and nurture the relationship. PNGO men seem to have more time available than the women and men's mobility is less restricted. At district level, they can hold evening meetings with men which is not feasible with women-led PNGOs because of socio-cultural and location barriers.

Linkages in the women PNGOs of course are made by women. The women PNGOs do not have a significantly fewer number of linkages than the mixed PNGOs.

There are many challenges to linkage building. It takes time and skill to make useful relationships that provide benefit to both sides. Due to linkages, PNGOs have gained confidence, learned negotiation skills, expanded coverage of their programs, accessed new training opportunities, interacted successfully with multiple stakeholders (from LA staff and politicians to community members) and built their reputation.

10.5. Contribution of Community Based Initiatives Fund to PNGO Capacity

The PNGO-led design, implementation and monitoring of the CBI Fund projects had several purposes. The projects were intended:

• to strengthen PNGOs skills and capacity to be a GRO,
• to demonstrate their capacity and thereby strengthen their reputation among district stakeholders - for example, capacity for gender integration in projects, and
• to make linkages and learn how they could work with and through other organizations for gender change. (Target beneficiaries or partners were other NGOs/CBOs, communities, and local bodies/LA). For example, the training of LA extension workers to use a gender lens when implementing their work spreads gender impact.

The outcomes mapping assessed the CBI fund projects as a learning tool for PNGO capacity, and as a measure of their growth as GROs.¹⁹ Successful implementation was important but also necessary was their reflection and learning on their own successes or failures.

10.5.1. Community Based Initiatives Fund Implementation

CBI Outcomes PNGOs increased their capacity and confidence in gender integrated project design and implementation PNGOs strengthened their linkages with community and other district stakeholders PNGOs increased their district reputation as a GRO

The CBI Fund was intended to strengthen capacity of the PNGOs and contribute to their change process. The outcome mapping looked at the CBI Fund projects to assess how the projects contributed to the PNGO capacity building, and drew conclusions based on the project results. This analysis is also based on the insider knowledge of CBI Fund implementation.

Assessment of Results

The PNGOs practiced many skills and applied their knowledge with three different target groups - community, NGOs and government. Each target group required a different set of skills, knowledge and approach. PNGOs first needed to engage with these new partners and learn their needs, then design and deliver a project.

The first CBI projects needed more coaching support to design a manageable project, and data was often lacking on clear indicators, for example. Desired results were far grander than the small project could justify. By the third project, designs were more realistic, showing an improved capacity in project proposal writing. Monitoring strategies were included. During delivery, the PNGOs learned-by-doing how to solve problems and manage their time. They learned through mistakes as well as successes. Follow-up continued to be a challenge for them, and in the outcome mapping mission, some stakeholders were critical of the PNGOs for not maintaining the relationship.

Each of the three CBI Fund target group projects is discussed more specifically below.

Community development
The PNGOs designed and successfully completed the CBI #2 projects, and strengthened skills in PRA, gender analysis, community development, training with groups, and financial management. PNGOs working with their previous community groups were able to bring more benefit to them and deepen the relationship. PNGOs with less direct involvement in the community were able to develop these relationships. PNGOs developed training manuals appropriate to their target communities.

PPNGO capacity building
CBI #1 strengthened the skills of the PNGOs in conducting organizational assessments, responding to identified organizational needs with training and coaching, and generally managing the project. The PNGOs became the teachers of these PPNGOs and a relationship was forged that both sides want to continue. PPNGOs want more capacity building support from the PNGOs. The PPNGOs now are an informal grouping of gender aware program delivery NGOs, often based in the communities, which the PNGOs can work with in gender allies or as project partners.

Local government
Working with government staff (LA or DDC) brought PNGOs into new relationships with potential funding partners. As HMG shifts its program delivery to district NGOs, the PNGOs have begun to position themselves as contract partners. However, the PNGOs have learned that working with government has different challenges. Demands from participants are high, and PNGOs need to continue to learn and deepen their knowledge base, particularly sector knowledge. Meetings were held with a number of the LA in-charge for the CBI #3 projects. Overall, satisfaction was expressed with the training provided, and that trainees have a better conceptual understanding of gender and how it fits in their work. However, follow-up from the PNGOs as well as the in-charge was inadequate to fully assess the impact of the training.

Ramadar Kapar, RCDSC - "We were reluctant to approach LA for this partnership as we feared that the LA would not be interested or would be difficult for us to work with, but this has been a good learning experience for us and helped us to build good relationships that are useful in our work."

Because these CBI Fund projects were delivered during the conflict, the PNGOs were required to manage around these problems in creative ways. This has developed their confidence and helped establish unique rapport in the district as conflict dealing NGOs which could provide them strength to proceed on their mission of eliminating discriminatory values and practices.

The outcome mapping team concluded that CBI Fund implementation positioned them as GROs - capable to build capacity of others, and spread gender equality by working through other organizations

10.6. PNGO Potential to Sustain as a GRO

To help in understanding PNGO potential to sustain as GROs, the outcome mapping looked at the reputation of the PNGO - were they recognized as gender experts and as a GRO by others in their district? A good reputation is partly attributable to the impact of their work, and this credibility will help them to sustain their organization. Therefore a good reputation for gender equality work was regarded as an indicator of their likelihood to sustain as a GRO. Data was collected from the PNGOs and during district stakeholder interviews.

Also, PNGOs were asked to articulate their vision for their organization and their future plans, in order to assess whether the GRO concept will be implemented beyond the CNGO partnership. Data was collected in the PNGO interviews and in a questionnaire completed by each PNGO.

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