1. Gender Diagnostic Are government wide Monitoring and Evaluation Systems Gender Responsive? Comparative case studies from South Africa, Uganda and Benin By AGDEN

2. 1. Background The study is part of a multi-country collaboration of the Twende Mbele Programme that aims to strengthen the National Evaluation Systems of the three countries. To safe guard the empowerment of women and ensure the needs, views and experiences of those that have been excluded and previously discriminated. This diagnostic study was set to assess the Gender Responsiveness of the National Monitoring and Evaluation Systems of South Africa, Uganda and Benin. The assessment seeks to explore how the African countries can strengthen their efforts in making gender equity and equality reality in the National Monitoring and Evaluation Systems. The Africa Gender and Development Evaluator's Network (AGDEN) was commissioned by The Regional Centre for Learning on Evaluation and Results (CLEAR) to conduct the study.

3. 2. Objectives of the study  Investigate the extent to which the countries’ evaluation policies and internal frameworks/procedures relate to what ought to be characteristic of an effective national gender responsive monitoring and evaluation system;  Identify the potential barriers and enablers to having a well-functioning gender responsive M&E system;  Propose concrete strategies for strengthening each country’s system.

4. 3. Data collection and Analysis ScoreScore values 0non existent 1 Partial existence = no written national policy but evaluations undertaken either sectorally or for some key programmes, policies or projects 2 Full existence = Written national policy but not (yet) legislated & parts of which are in practice 3Full existence = Written national legislated Policy and/or guidelines being actively used i.e. implemented a.Desk review b. Engagement with key informants of stakeholder groups C.Rating scale or Dash Board

5. Samples The following were included during data collection: South AfricaUgandaBenin Documents reviewed (Policy and government documents) 931211 Interviewees715 Other sources2 meetings of Twende Mbele (MPAT and CSO)

6. Criteria assessed under Policy and System CriteriaPolicySystem Gender equality √√ Public policy evaluation & decision making √ √ Participation √ √ Review and revision √ Sustainability √√ Gender Budgeting √

7. Part A: National Evaluation Policy (NEP)

8. Criteria 1 - Gender Equality National Evaluation Policy: Gender Equality SAUganda 1.1Number, quality and context of mentions of Gender equality in the NEP policy/statement01 1.2Number, quality & context of mentions of Equity/human rights/women’s rights in NEP10 1.3 Degree to which the NEP proposes/ engages/reflects or refers to fighting, reducing or eliminating poverty 11 1.4 Number and degree of implementation of named national laws which guarantee gender equality & women's empowerment in M&E 31 1.5 Number and stage of legislations awaiting passage which protect or guarantee gender equality and or social protection in M&E n/a1 1.6 Number & types (names) of International human & Women’s rights conventions, declarations, signed, ratified & domesticated. 32 1.7 Nature of national response to International human & Women’s rights conventions, declarations etc e.g. BPfA, AU’s Maputo Protocol 22 1.8 Number & type of reference made of International human & Women’s rights conventions, declarations in NEP and /or National Strategy/ies 10 1.9Type & quality of advocacy in support of a gender responsive NEP02 1.10 Degree to which the legislature, govt, donors, VOPEs champion and advocate for gender responsive national evaluation practice 02 1.11The NEP is legislated and in full implementation32 1.12The NEP provides/includes a results based framework for tracking public policy performance32 1.13The NEP provides/stipulates gendered indicators/indices for tracking public policy performance10 1.14 The degree to which the NEP provides/includes a results based framework which includes gender responsive indicators 00 CRITERION SUB-TOTAL SCORE18/3916/42 Percentage achievement46%38%

9. Criteria 2 – Decision Making National Evaluation Policy: Public Policy Evaluation Decision Making SAUganda 2.1The NEP addresses when, what and how to evaluate public policies31 2.2The NEP stipulates gender responsive evaluation of public policies00 2.3The NEP provides guidelines for the use of evaluations22 2.4 The NEP stipulates how evaluation of public policies can be used to improve gender equality & women's empowerment 00 2.5The NEP stipulates mandatory segregation of data by sex01 CRITERION SUB-TOTAL SCORE5/154/15 Percentage achievement33.3%26.7% “Decision making” was rated the lowest of the five criteria when assessing the NEP of both countries. In South Africa the policy itself is well developed, yet gender responsiveness is not evident. In Uganda there was a more prominent reference to sex disaggregated data stated in the NEP itself. The gender responsiveness was as low as South Africa.

10. Criteria 3 - Participation National Evaluation Policy: Participation SAUganda 3.1 To what degree does the NEP mandate the participation and inclusion of women, men, girls and boys in the design and implementation of public policy evaluations 00 3.2 To what degree does the NEP provide for the participation of VOPEs and other stakeholder groups in public policy evaluations? 31 3.3 To what extent does the NEP recognize/support/stipulate the use of 'Champions' 22 3.4 The extent to which the NEP anticipates and allows the participation of professional evaluators, gender & human rights activists & specialized VOPEs in evaluations? 12 CRITERION SUB-TOTAL SCORE6/125/12 Percentage achievement50%41.7% Participation of stakeholder groups (including the local VOPE, SAMEA) were high in South Africa when assessing the M&E system, however participation of women’s groups were low, especially regarding the design of public policies. In Uganda, participation is also low participation of VOPEs.

11. Criteria 4 - Policy Review and Revision The National Evaluation Policies were relatively new and not yet set for any review in any of the two countries. There is however provision for revisions by different stakeholder groups National Evaluation Policy: Review & Revision SAUganda 4.1 Does the NEP provide for reviews and or revision based on national and international gender mainstreaming best practice? 11 4.2 To what extent does the NEP provide for reviews by different stakeholder groups especially women, feminist & gender equality groups 21 4.3 Has the current NEP undergone a review, assessment or evaluation since it was created? n/a CRITERION SUB-TOTAL SCORE3/62/6 Percentage achievement50%33.3%

12. Criteria 5 - Sustainability The sustainability of the NEP and associated policies seem to be relatively low. It was not clear what the lifespan of the current policies are, as it is not stipulated in the documents itself. Sufficient measures are in place to extend the NEPs in both countries. National Evaluation Policy: Sustainability SAUganda 5.1 How adequate are the measures to integrate the current NEP with gender mainstreaming best practices and or the elements from the national gender policy or guidelines? 00 5.2What is the lifespan of the current NEP?n/a 5.3 How developed are the efforts/measures to extend the life & effects of the NEP beyond the life of the current NEP? 22 CRITERION SUB-TOTAL SCORE2/6 Percentage achievement33.3%

13. Part B: Government-wide Monitoring and Evaluation System

14. Criteria 1 – Gender Equality National Evaluation System: Gender Equality SAUganda 1.1 To what extent does the National Evaluation system identify an adequate/optimal structure or architecture for gender responsive evaluation? 11 1.2To what degree does the national gender machinery play a role in national evaluations?01 1.3 To what degree does the main Ministry/agency responsible for national evaluations engage or involve others e.g. VOPEs and gender equality advocates? 22 1.4 To what extent have the key ministries mainstreamed gender (analysis, responsiveness etc.) in their routine operations, programmes & projects? 12 1.5 How gender sensitive is the institutional culture in the ministries & agencies with responsibility for national evaluations 01 1.6To what extent do these ministries and agencies undertake institutional gender audits21 1.7 How adequate is the gender analysis, gender responsive evaluation, social & poverty analysis knowledge of relevant staff in these ministries? 01 1.8How gender responsive is the procedures & guidelines for national evaluations?02 1.9To what extent is the procurement process for national evaluations responsive to gender equality?01 1.10How effective has the advocacy for gender responsive national M & E system been to date?01 CRITERION SUB-TOTAL SCORE6/3013/30 Percentage achievement20%43.3% The gender equality of the M&E system was significantly lower in South Africa. This was mostly due to lack of culture and knowledge of gender in the system. Uganda’s NES was rated more consistently on a partial existence level.

15. Criteria 2 – Gender Budgeting Gender budgeting was perceived to be more adequate in Uganda than South Africa. The item scores were more consistently high in Uganda, while the South African scores indicated that there is gender budget available, but that it is inadequate. National Evaluation System: Gender Budgeting (financing gender equality) SAUganda 2.1How adequate is the national budget allocated to the NES?22 2.2 How adequate is the budget for the national gender machinery to play a supporting role in national evaluations? 01 2.3 To what degree are gender equality & women's rights VOPEs funded from/by the national budget i.e. government to support national evaluations 01 2.4 How adequate is the budget for upgrading relevant skills in gender, social & poverty analysis for staff in key NES agencies? 11 2.5 How adequate is the financing of the National Statistics Office to produce gendered statistics? 12 2.6 How adequate is government funding for producing, publishing and distributing guidelines, manuals etc. for integrating gender in national evaluations? 21 2.7 To what degree do others i.e. donors, private sector, NGOs, etc. supply the funds for integrating gender in national evaluations 01 2.8 To what extent are the guidelines for financing gender responsive evaluations adequate and appropriate? 02 CRITERION SUB-TOTAL SCORE6/2411/24 Percentage achievement25%45.8%

16. Criteria 3 – Decision Making National Evaluation System: Decision MakingSAUganda 3.1 To what extent does the responsible ministry or agency determine national evaluation schedules? 31 3.2 How much authority does the national gender machinery have to determine the methodology for national evaluations 01 3.3 To what extent do gender equality advocates and VOPEs contribute to improving the gender responsiveness of national evaluations? 02 3.4 To what extent can the national gender machinery influence the budget of national evaluations to improve their gender responsiveness? 02 CRITERION SUB-TOTAL SCORE3/126/12 Percentage achievement25%50% Decision making was higher in Uganda. In South Africa decision making for evaluations were high, but non-existing for the National Gender Machinery (NGM), VOPES and gender advocates in determining gender responsiveness.

17. Criteria 4 - Participation National Evaluation System: Participation SAUganda 4.1 To what extent are other ministries & agencies involved with national evaluations? 31 4.2 To what degree does the main Ministry/agency responsible for national evaluations engage or involve others e.g. VOPEs and gender equality advocates? 12 4.3 How effectively do the institutions with responsibility or specialist knowledge in/for evaluations in the country collaborate? 32 CRITERION SUB-TOTAL SCORE7/95/9 Percentage achievement77.8%55.5% Participation was the only criterion that was rated high when assessing the South African and Uganda system. It was also high in Uganda..

18. 5. Sustainability & 6. Advocacy National Evaluation System: Sustainability SAUganda 5.1To what extent will the NES remain in the national budget?33 5.2 To what degree will next year's budget for improving gender responsive national evaluations increase or decrease 02 CRITERION SUB-TOTAL SCORE3/65/6 Percentage achievement50%83% Advocacy SAUganda 1 Type & quality of advocacy in support of a gender responsive NEP 02 2 Degree to which the legislature, govt, donors, VOPEs champion and advocate for gender responsive national evaluation practice 02 3 How effective has the advocacy for gender responsive national M & E system been to date? 01 CRITERION SUB-TOTAL SCORE0/65/6 Percentage achievement0%83%

19. Summary of Criteria CriteriaPolicySystem Policies Gender equality 46%38% Public policy evaluation decision making 33.3%26.7% Participation 50%41.7% Review and revision 50%33.3% Sustainability 33.3% System Gender equality 20%43.3% Gender budgeting 25%45.8% Decision making 25%50% Participation 77.8%55.5% Sustainability 50%83%

20. Contributing Factors Enabling Factors Stakeholder interest and commitment Political will Communication Other enablers Outcomes based system of the NDP especially in SA and the Development of evaluation guidelines Effective fund mobilization and Gender mainstreaming in budgeting Challenges Gender budget, capacity and skills Gender mandate and resistance Methodological issues Conflict between cultural and constitutional rights

21. Recommendations 1. Strengthen National Gender Machinery It is necessary to clarify the mandate, roles and responsibility of the NGM and all other stakeholders and clearly stipulate the levels of accountability. Coordinated efforts are needed that will need the commitment of all parties, including Civil Society and the private sector.

22. 2. Support Champions and Advocacy Champions are needed in both gender and M&E activities. The two issues need specific integration and champions to drive the process on all levels of the governments. The functions and authority of the GFPs need specific attention as these will play key roles in driving the agenda.

23. 3.Financial Systems and Budget Gender budgeting needs urgent attention. One way to lobby for this is through using existing financial accounting measures and linking gender mainstreaming to that accountability – Uganda. If completed activities and relevant data are linked to budget allocations gender activities will receive more attention.

24. 4.Driving Demand for Gender Data and Methods Any M&E system is data driven. A shift in focus from data for monitoring and accountability to learning could emphasize the importance of gender disaggregated data and information. This shift includes ensuring all evaluations are gender responsive.

25. 5. Capacity development There is a need for different types of skills. The GPF needs to be capacitated regarding both gender and M&E skills. Capacity gender and M&E skills, include: Monitoring gender mainstreaming efforts Skills Analysis skills Gender budgeting Skills

26. 6.Process of Revision According to the study, all the M&E policies reviewed in the three countries lacked gender responsiveness. It is therefore critical that these policies when revised need to include gender measures. These policies should be advocated for by the departments responsible for M&E in each government. Indicators need to be developed for gender programmes, and all indicators need to be revised to be more gender responsive

27. Charting a way Forward Implications for the evaluation community Implications for government M&E systems Implications for the national gender machinery Implications for civil society