Test doc
There are a number of rationales for analyzing gender issues in the context of National Communications (NCs) and Biennial Update Reports (BURs). Initially, it is important to note that the UNFCCC and the CoP Lima Work Programme on Gender recognize that all aspects of climate change have gender dimensions. The UNFCCC encourages countries to integrate gender considerations into specific areas of work on the Convention. This includes NCs, BURs and National Adaptation Programmes (NAPs). Not all aspects of NC or BUR reporting will require detailed action related to gender, but situations vary from country to country. An initial gender analysis across all areas—and inclusion of stakeholders who understand gender issues in relation to their sectors—will allow each country to assess where deeper gender analysis and action is required to make the overall NC or BUR report more credible, realistic and sustainable. Figure 1 provides examples of the steps that can be taken and the types of information needed to incorporate gender into the various stages of NC and BUR preparation processes. The section of the document on ‘Making the Links’ will elaborate on specific approaches that can be used in relation to the points highlighted in Figure 1. Key rationales for incorporating gender issues into NCs pertain to increased transparency, improved planning, enhanced effectiveness and better results. Some of these are immediately apparent as benefits documented in the NC reports; and some will be more apparent as downstream benefits flowing from gender-responsive NCs and related policies and plans. INCREASED TRANSPARENCY Understanding how both men and women are involved in managing their environments, including what they know, how they work and how they participate in decision-making, helps to clarify the overall picture of the effects of climate change on different countries and groups of citizens. Figure 2 provides an indication of how information on different gender roles and gender dynamics across social levels are like pieces of a puzzle; and as puzzle pieces are put in place it is easier to see the bigger picture. Gender-responsive National Communications (NCs) and Biennial Update Reports (BURs) are those that involve a wide range of male and female stakeholders (not just gender specialists) and include the integration of gender analysis at every stage and in every sector. This approach creates a more complete and accurate picture of how climate change is affecting a country. Striving for clarity and transparency is a demonstration of good governance, as it fosters the accountability of NC processes to all citizens. Gender analysis can also enrich broader social analysis components of NCs. Depending on whether surveys such as Demographic and Health Surveys, those on population and housing, or agricultural censuses have been done nationally or locally, gender analysis methodologies can be adapted to show more detailed information about groups of men and women by age, ethnicity, geographic area and economic status.4 Box 1 provides an example of how different data sets can be combined to support climate initiatives and how it can add value and clarity to NCs, making them more useful for planning and budgeting. To illustrate how gender-related data and analysis from various sectors can enrich evidence related to NCs, consider health data and gender analysis compiled in Demographic and Health Surveys (DHS). These surveys often provide information on how women and men share decision-making, what their workloads are with respect to caregiving, and how much time they spend in accessing health services. The data is further disaggregated by age and geographic location so it can be used to identify which groups are most likely to be impacted by different climate change factors and what health risks they face. As such, it can support the planning of cross-sector outreach initiatives, such as in the management of insect vectors and/or inundations caused by sea-level rise or flooding. Combining age, geographic and sex-disaggregated information may also show that informing men and women of health and climate risks and mitigation efforts may need to be targeted to different health facilities or programmes, offered at different times of day, and in combination with different incentives. A number of climate change gender action plans, both national and across sectors, identify indicators that require cross-referencing and disaggregating data by age, sex, geographic location and income levels. For example, Nepal’s Climate Change Gender Action Plan identifies the need for data banks that specifically include sex-disaggregated information to clarify women’s and men’s roles, knowledge and responsibilities and inform water management, forestry and agricultural programmes. It is important to keep in mind that climate change is also considered to be a human rights issue. National climate change commitments are therefore also linked to commitments such as those made through the Convention on the Elimination of All Forms of Discrimination against Women (CEDAW).5 NCs that include men and women at all levels of the process, and which incorporate analysis of sex-disaggregated data and gender issues, will be better able to demonstrate linkages between fulfillment of human rights commitments and results of adaptation and mitigation efforts. Further, bringing together human rights commitments and gender considerations in the context of NCs will support both environmental sustainability and social development. Reflecting the links between climate change and human rights, the Human Rights Council has made multiple resolutions and statements on human rights and climate change, and on the duty of states to protect men and women, girls and boys from its devastating impacts. On 6 March 2015, the Council held a full-day discussion on climate change and human rights. Two in-depth panel discussions noted that impacts of climate change are now, in some cases, exceeding the ability of states to protect their people and that there is a need for international shared responsibility to protect people from drought, sea-level rise and climate-driven conflicts. Participants called for human rights dimensions to be integrated into future outcomes of the Conference of Parties and for improved reporting on climate It is important to keep in mind that climate change is also considered to be a human rights issue. National climate change commitments are therefore also linked to commitments such as those made through the Convention on the Elimination of All Forms of Discrimination against Women (CEDAW). NCs that include men and women at all levels of the process, and which incorporate analysis of sex-disaggregated data and gender issues, will be better able to demonstrate linkages between fulfillment of human rights commitments and results of adaptation and mitigation efforts. Further, bringing together human rights commitments and gender considerations in the context of NCs will support both environmental sustainability and social development. Reflecting the links between climate change and human rights, the Human Rights Council has made multiple resolutions and statements on human rights and climate change, and on the duty of states to protect men and women, girls and boys from its devastating impacts. On 6 March 2015, the Council held a full-day discussion on climate change and human rights. Two in-depth panel discussions noted that impacts of climate change are now, in some cases, exceeding the ability of states to protect their people and that there is a need for international shared responsibility to protect people from drought, sea-level rise and climate-driven conflicts. Participants called for human rights dimensions to be integrated into future outcomes of the Conference of Parties and for improved reporting on climate change issues to the Human Rights Council. All of these considerations have specific gender dimensions. Women and girls are particularly vulnerable to both the negative impacts of climate change, and violence related to the stress it introduces into families and societies. In Fiji, the Red Cross observed that rates of violence against women, by their husbands or intimate partners, increased after several severe weather events happened in 2011 and 2012. During this time, many families suffered from the loss of their livelihoods and homes, and they faced health crises that escalated household stress. Further research revealed that women and children faced increased risks of sexual violence when staying in shelters for those displaced by flooding and high winds. The Red Cross worked with regional specialists to train communities to address violence against women as part of disaster response. This example illustrates that gender equality and rights to security and health—along with rights to participation, education, water, food and development—are needed to inform analyses of the interrelations of climate change, human rights and sustainable development. IMPROVED PLANNING The UNFCCC specifies that National Communications (NCs) are intended to function as both reporting and planning documents. NC findings and recommendations can guide planning for adaptation measures and the reduction of greenhouse gas emissions through mitigation efforts. As planning tools, gender-responsive NCs can provide comprehensive background and baseline information on population groups across sectors. They can also inform the planning and design of effective implementation processes for INDCs, particularly in relation to disaster preparedness and climate change adaptation. This gives a better understanding of socio-economic and political contexts and supports priority-setting (Figure 3). Additionally, gender-responsive planning frameworks are linked to improved implementation of policies and programmes and higher levels of sustainability. As plans become more informed and specific, budget accuracy also improves—for example, more information makes it easier to assess allocations for i) capacity-building on gender, ii) the participation of men and women in climate change actions, and iii) sex-disaggregated data. ENHANCED EFFECTIVENESS IN IMPLEMENTATION Involving women and men together in climate change responses supports effective implementation; and recognizing their different perspectives, concerns and interests serves many purposes. It helps raise awareness of women’s strategic but often invisible and unpaid roles, across sectors. Recognizing women’s roles and engaging them in climate change initiatives can then also bring more information and human resources to bear on problems related to climate change. Gender analysis can reveal nuances in climate change impacts. The range of factors contributing to increased implementation effectiveness is illustrated in Figure 4. It can also help identify critical indicators and monitoring points. Women and men often notice different things about water, crops, and plants and animals in the ecosystem because they use resources and interact with natural systems in different ways. They can therefore be complementary informants when tracking changes caused by human use of the environment. Women and men may also notice different impacts related to emissions. Their combined knowledge about energy producing and consuming activities will support more informed decision-making and efficient adjustments in programme priorities and cycles. This will in turn make reporting on outcomes and impacts of National Communication (NC) recommendations more accurate. Sex-disaggregated data and gender-linked indicators can also highlight gaps in capacity or knowledge and facilitate involvement of the right people with the right skills in programmes. Clarifying this information can lead to more collaboration and coordination with existing gender-specific initiatives—particularly those with the potential to incorporate climate issues into their designs—and result in cost savings for government and development partners. Consequently, while there are some additional upfront costs related to capacity development and facilitating inclusion of stakeholders and technical analysis, expenses for gender-responsive NCs will be offset by more effective implementation of the next generation of programmes. NCs that strive to present and analyze sex-disaggregated data from censuses and surveys, and which explain how gender dynamics impact national circumstances, create a road map for more sustainable development. Similarly, NCs that use sound information and analysis will resonate more effectively with stakeholders. They will be more relatable to planned actions and their time, knowledge and energy are more likely to be invested into quality inputs. They are then also more likely to become informed advocates that can hold decision makers accountable to their commitments. Including both men and women as advocates for gender-responsive climate change response will increase ownership of initiatives and foster more efficient and effective programmes. BETTER RESULTS ACROSS SECTORS In summary, there are many ways countries can benefit from gender-responsive National Communications (NCs) and Biennial Update Reports (BURs), as shown in Figure 5. They provide more comprehensive information and analysis as well as more relevant reflections of the overall status of climate change work in each country. They involve men and women more equitably in assessments, reporting and action on climate change issues, and provide more specific guidance for future climate change initiatives. The success and sustainability of climate change actions depends on the full and equitable participation of all people— male and female, rich and poor, educated and uneducated. When climate change initiatives are targeted at the right level, with adequate resources and information, there is more long-term commitment to outcomes. Including women’s knowledge, experience and views into the decision-making process, empowering them to become leaders in climate adaptation, in the use and production of renewable energy, and in green jobs and businesses will reduce poverty, improve local economies and ensure better and more equitable local, national and international governance models. Moreover, producing gender-responsive NCs is a sound economic investment because it can reduce poorly conceived, incomplete and unfocused programming that wastes human and financial resources. MAKING THE LINKS: TOOLS FOR INTEGRATING GENDER AND CLIMATE CHANGE INTEGRATING MEN’S AND WOMEN’S PERSPECTIVES AND KNOWLEDGE INTO CLIMATE CHANGE PROCESSES Effective integration of gender issues into National Communications (NCs) and Biennial Update Reports (BURs) is grounded in the principle of inclusivity and ensuring a complete stocktaking of sector issues and other national circumstances. This does not mean starting from zero to collect and analyze gender and climate issues. In all countries, work on gender equality has been ongoing and there is a wealth of existing information and knowledge. However, much of this information has not been shared across sectors, and progress in the engagement of women in decision making on climate change has been slow. When striving to make NCs more gender-sensitive, a key challenge is bringing together the right combinations of people and putting them on a common footing so they can appreciate their shared interests in sustainable environments and livelihoods. Developing coordinated problem-solving approaches to social, economic and environmental problems and factoring in the potential contributions of men and women can be critical to identifying successful adaptation and mitigation strategies. The following subsections outline criteria and approaches for stakeholder engagement, taking stock of current circumstances, promoting analysis of gender issues related to climate change and clarifying what is missing and what needs to be done to support more gender-responsive reporting in NCs and BURs. STAKEHOLDER ENGAGEMENT What is it? There are many complexities related to stakeholder engagement in National Communications (NCs) and Biennial Update Reports (BURs). Lessons learned show that the large number of subprojects and activity areas to be covered by the report result in confusion, a shortage of representation for all groups, and onerous time requirements. Finding suitably qualified individuals who can dedicate the time required without causing burnout or fatigue can be an ongoing challenge. This is especially true with the integration of gender into NC and BUR processes. First steps. Management of stakeholders is a task that is often overlooked or not adequately financed. In many cases it is assumed that stakeholders will just become ‘part of the process’. In fact, processes such as development of NCs and BURs will be much more effective and produce higher quality results if i) stakeholder engagement is explicitly supported with a dedicated manager, ii) commitments on all sides are monitored, and iii) progress in participation is tracked and reported on. If the person or team responsible for stakeholder involvement is not familiar with social- and gender inclusive criteria, maintaining a gender-responsive process will require budgeting for technical assistance. Making it work. To make NCs and BURs gender responsive, it is critical to engage a cross-section of stakeholders, including men and women from different sectors, interest groups and socio-economic levels. Roles and responsibilities for thematic working groups and public consultations need to be specified in advance; individuals need to know when they will be required to participate and how much of their time will be taken up by the process. To clarify all these issues, initial meetings should focus not only on sharing information about the report preparation process. Rather, they should take the time to clarify and consider the interests of stakeholders and make sure everyone is clear about what the NC or BUR process is for, what it can do to meet their interests and what it cannot do. Taking the time and spending the money to do this initial step will help avoid misplaced expectations that can undermine development of the NC or BUR later in the process. What are the challenges? Many government agencies responsible for gender equality are marginalized in terms of budget and staff allocations and are overburdened by their own national commitments. Many women’s empowerment or gender equality non-government organizations have targeted mandates and may not have the confidence or experience with climate issues that they think is required to participate in the development of UNFCCC reports. Careful assessment of existing, and available, gender expertise needs to be done at the outset of the process. The ministry or institution responsible for gender equality cannot be expected to manage this and it must be a responsibility of the NC National Coordination Committee or equivalent body. Where technical assistance for gender is needed, the senior managers of the NC process should budget for external assistance or seek support from donors, multilateral agencies, or international NGOs. Men and women do not always have equal opportunities to be heard in consultation settings. Introducing approaches to ensure that everyone is heard is an ‘equity measure’ acknowledging cultural, social, work related or educational barriers to women’s equal participation and developing special measures to facilitate their contributions. There are many different approaches to support women so they are able to share their knowledge and expertise. Women’s NGOs and the government ministry responsible for gender equality will be able to provide advice on nationally specific approaches, but some examples include: • In formal workshop settings, if there is concern that women will be intimidated to speak freely in front of men, breaking participants into separate male and female working groups to discuss issues and then reporting back to share information may highlight additional gender issues. • Using lessons learned from related processes to demonstrate gender issues by sector—e.g., using National Adaptation Programme of Action (NAPA) or Nationally Appropriate Mitigation Action (NAMA) reports or documentation from Reducing Emissions from Deforestation and Forest Degradation (REDD+) initiatives to bring forward gender dynamics by sector. • In community settings, holding meetings at times identified by women as convenient, that is, when they are most likely to be able to free up some time (e.g., from subsistence activities, cooking, caregiving or paid work). • When working with women’s organizations that have little previous experience with climate issues, a pre session can be held to brief them and allow them to discuss key issues in advance of a main meeting, including how these issues relate to policy, programme or community priorities for gender equality. • In areas where populations have low levels of education, rapid appraisal techniques can be used to discuss and graphically explore climate change issues and how they differ between women and men. TAKING STOCK OF MEN’S AND WOMEN’S DIFFERENT KNOWLEDGE, SKILLS AND NEEDS What is it? Stocktaking is an exercise of scanning and documenting the broad range of information, data, institutions and situations relevant to the UNFCCC reporting requirements. Stocktaking for the National Communication (NC) or Biennial Update Report (BUR) processes takes place during the early preparation phase. Stocktaking objectives are to assess and identify climate change–related activities that are underway, planned or recently completed. Stocktaking is also a preliminary opportunity to build partnerships across sectors and with multiple interest groups, and to gain an understanding of what is going on with climate change at different levels, in different sectors and with different social groups. Where are stakeholder and stocktaking linkages? Initial stakeholder engagement and cross-sector collaboration is useful during stocktaking because it facilitates the sharing of data and information on women’s and men’s knowledge in relation to i) natural resource management, ii) energy production and use, and iii) impacts of climate change. This information helps to set priorities for the NC or BUR and identify areas where there is a need for further study, better collection of sex-disaggregated data and improved institutional coordination. Partnerships established during the stocktaking phase can be the basis for further integration of gender issues into different sections of the report. These can, for example, include tackling issues related to risk and vulnerability and recommendations for adaptation approaches that specifically target women, men or mixed groups. What to look for? Building evidence about men’s and women’s risk factors and relative vulnerability to climate change and disasters requires qualitative and quantitative sex-disaggregated data. The stocktaking phase of the process should include documentation of where sex-disaggregated information exists and where there are gaps. National and international organizations have for many years been documenting anecdotal and qualitative information and conducting analysis of existing quantitative data and women’s experiences. Exercises like the NC or BUR stocktaking processes can boost these efforts and concurrently support more comprehensive and credible work on climate change impacts and responses. Identifying the building blocks of the NC or BUR report.Using the stocktaking phase as an entry point for stakeholders from ministries responsible for gender and for NGOs working on gender equality will help identify the extent of cross sector capacity. Many gender specialists are not fully aware of issues related to climate change impacts and responses. The stocktaking phase of the NC or BUR can be a preliminary step for assessing where interests overlap; where capacity exists for gender analysis, environmental management and climate change; and which groups have particular technical skills and material assets. Careful management and tracking of these issues during stocktaking can be useful later in the process to inform indicator development, monitoring approaches and programme recommendations in various sections of the NC or BUR. GENDER-EQUITABLE DECISION-MAKING APPROACHES Why is it important? Evidence presented by environment organizations and development partners has led to the UNFCCC direction that all international bodies established to pursue work on the Convention or the Kyoto Protocol should have a balance of male and female representatives.13 Further, the report of the Conference of the Parties at its twentieth session, held in Lima in December 2014, adopted the ‘Lima Work Programme on Gender’, which explicitly directs national parties to advance gender balance and the participation of women in decision-making about climate change and to “achieve more gender-responsive climate policy in all relevant activities under the Convention”. These recommendations include balancing the participation of men and women in the work of parties when they develop their National Communications (NCs) or Biennial Update Reports (BURs). Who needs to be involved? In addition to striving for equal representation of women and men in high-level forums and NC or BUR processes, there is also a need to ensure equity between rural and urban priorities and across different socio economic groups. This means the involvement of women and men living in poverty and other vulnerable situations, either directly or through advocacy organizations. Women in rural areas tend to be more marginalized than urban women and yet they are often key natural resource managers with particular insight into indicators and the impacts of climate change. They are also often among those who have begun their own experimentation with adaptation approaches. Consequently, it is important that their knowledge is brought into policy and decision-making arenas. In many cases, cultural barriers and social norms dictate that men should act as spokespeople for villages, clans, landowners or families. This is a constraint that needs to be addressed sensitively but proactively. Where do these issues fit in the NC or BUR report? The gender dynamics of decision-making must be discussed in the National Communication or BUR section on national circumstances along with measures to address barriers to women’s participation as stakeholders in ongoing climate change responses. Auxiliary reports on specific climate change topics can elaborate in more detail on gender equality in decision-making and methodologies used to facilitate equity. In addition, reports can contain an annex to explain efforts to achieve gender equality in decision-making and identify key issues and indicators by sector. A number of international non-government organizations have been working to reduce gender barriers to women’s participation in climate change and they can be requested to share lessons learned and act as facilitators to increase women’s leadership in policymaking and priority-setting. What are the Benefits? The Global Gender Climate Alliance draws on evidence in UNDP’s 2011 Human Development Report to demonstrate connections between i) women and men equitably sharing household resources, ii) subsequent investment in education and health of families, and iii) national economic development. In addition, there is evidence that having women in leadership benefits environmental policy. Data shows that countries with more women in parliaments are more likely to set aside protected areas and ratify environmental treaties. Further, data shows that countries with high levels of gender inequality have higher rates of environmental degradation, including forest depletion and air pollution.14 Recommended steps to achieve gender-equitable decision-making for the NC are shown in Figure 8 and Table 3. COORDINATING GENDER AND CLIMATE CHANGE MAINSTREAMING EFFORTS What is it? Mainstreaming—the function of integrating a cross-sectoral issue across the whole of government and into the work of the private and non-government sectors—is used to promote gender equality and action on environmental management and climate change. Cross-sector issues, including environment, climate change response and gender equality, all need integrated, coordinated implementation approaches to be effective. What are the challenges? Environmental sustainability and gender equality are both linked to cultural and social norms, and both are difficult to value and quantify. Consequently, there is a need to develop clear evidence about their benefits, the real costs of environmental exploitation and gender inequality, and how they are connected to climate change. Ensuring that sector specialists, the public and decision makers are aware, well informed, and motivated to act in an integrated manner is a serious challenge. Coordinated mainstreaming of climate change and gender equality can provide economies of scale, support improved results on multiple objectives, promote cost savings at many levels, and provide unanticipated benefits and synergies. However, if not carefully planned, coordinated mainstreaming can also create overwork, be confusing for decision makers and cause duplication of effort. Therefore, sound management and planning on how to coordinate is critical. Figure 9 identifies key points where coordination will produce the highest level of value added. UNDERSTANDING GENDER ISSUES BY CLIMATE CHANGE TOPIC Reporting to the UNFCCC involves providing information on national circumstances as well as recommendations for action on specific topic areas including vulnerability and adaptation, mitigation, greenhouse gas inventories, and technology needs. It is important to recognize that while these topic areas are often discussed separately, they are in fact interconnected elements of climate change response. This section is intended to illustrate how gender issues cut across climate change topics by giving examples from the programme and project level. The examples below could all be included in National Communications (NCs) or Biennial Update Reports (BURs) to demonstrate how gender dynamics shape national circumstances and affect climate change impacts and responses. VULNERABILITY AND ADAPTATION Climate change exacerbates inequalities. The poor and disempowered become more vulnerable because they have less influence on decision-making and less economic resources to cushion them from shocks and disruptions to their immediate environment. There are more women than men among the poor, and globally, women have less political, social and economic power than men.21 For these reasons it is very important to understand, in each national and local context, how women are marginalized, how their risk factors differ from men’s, and how women and men can work together to change social, political and structural norms that contribute to vulnerability. . In many cases, women and men have similar levels of awareness about climate change. However, because women and men have different gender roles in agriculture, forestry or fishing, and within the home, they may feel and be impacted by these changes in different ways. For example, women may be more concerned about the health impacts of clean water shortages or the difficulty of finding affordable household fuel, and men may be more concerned about a lack of employment caused by flooding or drought. Depending on the country, women and/or men may be impacted by higher workloads in agriculture. In terms of social perception, women’s and men’s knowledge and experience tend to be valued differently. Women’s skills, expertise and knowledge of household management, human resource development and food security are often considered to be ‘natural’ attributes, and of lesser value because they are acquired as a process of socialization and cultural learning. On the other hand, men’s skills and expertise (for example in construction, forestry or fishing) are seen as ‘acquired’ through education and employment and are attributed a higher value. Consequently, in climate change adaptation, there is a risk that women are less likely than men to be recognized as key actors with knowledge assets. This is exacerbated by the fact that in many societies men are also considered to be the family and community members who interact more with development professionals and ‘outsiders’. In this role they are likely to assume that their experiences are representative of their households; this can result in women’s knowledge and skills remaining undocumented. The combination of these social power dynamics and climate-related changes in labour patterns and gender dynamics can increase inequalities. Figure 10 identifies some factors that can contribute to the disadvantage and vulnerability experienced by women. Gender-responsive adaptation approaches seek to identify and redress existing and potential inequalities by ensuring women are engaged in all levels of climate change response. Adaptation measures include finding the best ways to cope with changes that have already happened, reducing risks associated with severe weather events, and incorporating different technologies to avoid additional negative climate change impacts. Reporting on existing and forthcoming initiatives is a component of the National Communication (NC) and Biennial Update Report (BUR) stocktaking process, which can be supported through, for example, the engagement of stakeholders and the review of NAPAs or NAPs, sector and organizational gender action plans to address climate change, private sector initiatives, and urban or community plans. Existing gender situation analyses can assist with valuing women’s knowledge, skills and expertise. They can also provide evidence and sex-disaggregated data on men’s and women’s education levels, labour force participation and engagement in specific industrial sectors. Knowing these facts helps demonstrate why women and men need to be equitably involved in adaptation initiatives. Women’s active involvement in planning, implementation and monitoring of adaptation initiatives will result in more efficiently implemented, positive and sustainable results. Bringing all of the above issues to light in NCs and BURs is critical for multiple reasons. It is important to share information and experiences so that i) trends and responses can be identified, ii) evidence on gender and climate change can begin to be collated on a global level and good practices can be identified, and iii) key indicators of risk and triggers of vulnerability can be agreed on and used to inform improved planning for gender-responsive adaptation capacity across sectors. LESSONS LEARNED AND GOOD PRACTICES IN ADAPTATION NCs are intended to bring together all available information about efforts to implement the UNFCCC. This information can be drawn from more specific reports and programmes focused on either sectors or topic areas such as adaptation, mitigation, financing, technological innovation, etc. It can also be drawn from urban or rural initiatives developed by subnational actors. The examples here show good practice in adaptation initiatives as a primary focus. They also show how climate change initiatives can have a multiplier effect across sectors. MITIGATION Climate change mitigation refers to efforts to reduce or prevent the emission of greenhouse gases using new technologies and renewable energies, making older equipment more energy efficient, changing management practices, or changing consumer behaviour. It can be as large scale as urban planning and infrastructure development, or more basic and targeted to household-level changes in water or energy use. Mitigation is relevant across many sectors, including agriculture, forestry, fishing, transport, tourism, infrastructure, industry, foreign investment and business, housing and land management, and waste management. The questions shown in Figure 12 related to men’s and women’s control of resources are influenced by variables such as social norms about gender roles, differences in education levels, economic status, levels of national development, geography and culture. As a result, situations will vary from country to country and sometimes even from region to region within countries. Local gender specialists can support gender analysis of mitigation information, plans and recommendations. Where local gender specialists are not comfortable to engage in in-depth discussion on technical mitigation issues, national or international gender and environment specialists can provide coaching and mentoring and bolster the scientific, environmental and gender analyses. While there are upfront time and cost implications for the inclusion of gender analysis in mitigation initiatives, gender-responsive planning, programming and implementation will have long-term benefits and cost savings that more than offset initial investments. These will include more accurate monitoring, reporting and verification (MRV) outcomes as well as better tracking of social and environmental co-benefits. The measuring and monitoring of the results and benefits of mitigation efforts is a critical aspect to better understanding how a country’s interventions are producing the desired effects. In this context, the design of MRV systems will help countries develop social context around emission measurement. A contextual explanation of socio-economic factors such as education levels, poverty and gender dynamics can inform criteria for sex-disaggregated data on emissions and mitigation strategies across sectors. Where data is not available it should be identified as a specific gap and priority area for action. Without sex-disaggregated data it will be impossible to measure if gender-responsive mitigation initiatives are having an impact and to evaluate, adapt and improve those initiatives. Data and indicators in Figure 13 are just a few examples of data that can support more accurate mitigation assessment LESSONS LEARNED AND GOOD PRACTICES IN MITIGATION Lessons learned in gender and mitigation are closely linked to the intersections of men, women, technology needs and greenhouse gas inventories, as discussed in following subsections. These examples from West Africa and Bhutan show how gender considerations in mitigation can be addressed at regional and national policy levels. Attention to gender issues in mitigation financing, policy and programme design is demonstrating that well-planned, gender-responsive initiatives are realistic and can deliver improved results across multiple sectors. Coordination between development partners and high-level political commitment to ensure gender-specific criteria are in place are important factors for sustainability. Having indicators and sex-disaggregated data are critical to monitoring results from a gender perspective. MONITORING, REPORTING AND VERIFICATION As noted in the previous section, Monitoring, Reporting and Verification (MRV) is linked to mitigation efforts and the reduction of GHG emissions. The end purpose of MRV is to determine how well a country is progressing toward implementation of the UNFCCC. One aspect of the MRV process is collecting information on co-benefits—instances where one initiative produces benefits across sectors or at multiple levels. Co-benefits may be linked to one or more areas, including social, gender equality, economic, and institutional benefits. The combination and interlinking of these co-benefits contributes to sustainable development. To date, most of the available documentation on gender-responsive MRV processes is in the area of reducing emissions from deforestation and forest degradation (REDD) and in the analysis of mitigation finance. The United Nations REDD+ programmes and implementing partners have developed guidelines and indicators for women’s full participation as stakeholders, beneficiaries, and specialists, including in MRV processes26. REDD+ initiatives are also emphasizing that the engagement of women in measurement, reporting and verification exercises would increase MRV accuracy and facilitate better ongoing monitoring of co-benefits. It is important to note that other programmes and mechanisms have the potential to capture similar information for the transport and energy sectors. Reporting processes such as National Appropriate Mitigation Actions (NAMAs) and Low Emission Development Strategies (LEDS) could readily engage women in MRV exercises and report on gender-related co-benefits if appropriate gender indicators were built into policy design and sex-disaggregated data was collected. Research done by UNEP in 2013 examined the sustainable development benefits for eight NAMAs. This was also done for Clean Development Mechanisms (CDMs). Both these mechanisms are intended to align with national priorities and policies, and as such they should reflect national commitments to gender equality. The UNEP analysis of NAMAs shows that only one of eight reports specifically highlighted gender equality as a sustainable development co-benefit that could be included in MRV reporting. However, social benefits were listed for six of the other seven reports and could be sex-disaggregated to identify and measure gender equality co-benefits.27 Social co-benefits included improved transit, reduced pollutions levels, improved health, and increased employment and education opportunities. Steps to increase the gender responsiveness of MRVs are included in Figure 14 below. These can be elaborated on and linked to national priorities for gender equality and sustainable development. LESSONS LEARNED AND GOOD PRACTICES IN MRV As noted, there is limited documentation on good practices in MRV, but where analysis has been done, key lessons are emerging. Two prerequisites for gender-responsive MRVs are i) awareness of how development policies, social and gender dynamics, mitigation programmes, and technical processes such as MRV are linked, and ii) analysis of climate change and social/gender policy priorities to optimize GHG reductions and concurrently realize social benefits and gender equality. When these two factors are in place they can drive sex-disaggregated data collection, analysis of issues and co-benefits, and the design of gender-specific indicators linked to MRV reporting. Demand can be generated at many levels, separately or simultaneously. For example, development agencies can provide guidelines for integrating gender into MRV; mitigation-programme funders can create incentives by linking financing for mitigation with reporting on gender co-benefits across sectors; national ministries for planning and for gender equality can promote gender equity in MRV training; and local-level projects can be analyzed to demonstrate gender issues and pinpoint where monitoring and reporting can make gender issues more transparent. GREENHOUSE GAS INVENTORIES There has been limited analysis of how gender issues link to greenhouse gas inventories. Greenhouse gas inventory processes are highly technical exercises that measure units of emissions and chart projections for future climate change implications. The GHG emission inventory methodologies are seemingly divorced from the socio-economic drivers and impacts of emissions. However, in looking at where emissions actually come from and who benefits from the industries, the technologies and sectors that produce greenhouse gases are an aspect of economic and social justice, sustainable development, and mitigation efforts. Assessing methodologies to capture GHGs is also a technical exercise but in this case gender issues come to the surface more readily. For example, it has been shown that men and women, when fully informed on policy options, can have differing viewpoints on risks, costs and projected benefits associated with GHG emission reduction technologies. Depending on the male/female balance of power in GHG policy and decision-making forums, those views are taken more or less into account.28 Basic analysis of GHG inventories should provide cross-references to social variables including gender and poverty, if possible. It should also highlight how development is burdening or benefiting men and women in different socio economic population groups. This can, in turn, identify or clarify correlations between types of industrial and/or technological development and gender-equitable, sustainable development. At the sector level, for example in urban planning and housing policy, the analysis of work and transport patterns, waste management, energy and water use, time use by women and men, usage of different physical spaces, and gender roles can identify distinct emission and mitigation issues. Understanding these differences and integrating them into policy and planning discussions in National Communications (NCs) and Biennial Update Reports (BURs) will lead to a more accurate assessment of the priorities, costs and benefits of specific technological or infrastructure changes, and investment decisions. Finally, because there has been limited gender analysis of GHG inventory processes it is not possible to say whether there is or is not a need for more in-depth consideration of gender issues. However, making commitments to bring more gender balance to scientific teams, raising awareness on GHG inventories among scientists and stakeholders, and making the inventory process more comprehensible to the public will help identify issues of importance at national and international levels. The primary consideration is to check for gender-differentiated impacts and ensure that they do not cause or perpetuate inequalities. LESSONS LEARNED AND GOOD PRACTICES IN GHG EMISSIONS TRACKING Gender analysis of the greenhouse gas inventory processes used to report in NCs and BURs are scarce, but those that exist are using interesting analytical approaches. Good practice exists in the exploratory research, trialing and testing of hypotheses and engaging women and men in debate. For example, research is being done on i) how men and women contribute to climate change through both work and consumption, including through the examination of gender indicators linked to green industries, and ii) male/female employment, leadership and influence in green industries.29 Exploration of how gender roles are related to emissions in transportation and energy use vary from country to country but gendered patterns of use are emerging. Men and women use energy for different activities but reliance on specific emission-producing industrial or agricultural sectors is challenging to disaggregate, as households are the typical unit of measurement. For example, studies have been done on emissions created from using biomass for cooking, although women cook, all household members eat, so definitive statements about gender are difficult to make. While the examples below from Nepal and Macedonia are more related to gender analysis of mitigation initiatives, they can provide a perspective of GHG inventory work with a gender focus. These examples show that women can have a role in both mitigation and GHG inventory initiatives, as they are the direct beneficiaries of mitigation actions while also having a potential function in the GHG inventories of the relevant GHG emission sources. TECHNOLOGY NEEDS ASSESSMENTS Technology needs assessment is a process of examining and prioritizing the introduction of adaptation and mitigation technology in line with national development goals for socio-economic and environmental sustainability. It incorporates consideration of technology management, including the development, transfer, adoption and diffusion of technologies to offset emissions and reduce risks and vulnerabilities. Technology needs can be very different for men and women because of social norms about who does what work. In agriculture, the levels of mechanization, the balance of cash crops versus subsistence crops grown, the use of fertilizers from different sources and waste management from livestock are all issues linked to emissions and types of technology. These are also examples of agricultural activities where men and women can have specifically assigned roles, have different levels of control over income and different levels of power to make decisions about investing in technological change. Household use of energy for cooking, heating or cooling is more strongly associated with women’s labour than men’s because of expectations that women will be responsible for the care and management of the home while men spend more time in paid employment. In some cases, new technologies or ‘green responses’ require women to i) spend more time on household labour, for example in recycling, reusing materials or conserving a specific resource, or ii) use innovations that are less efficient, as is the case with solar stoves. In these instances women may not have the additional time to adopt the technology or to fully adopt the adaptation or mitigation scheme, and there can be negative health, nutritional or food security impacts for family members and women themselves. Additional gender-related considerations in technology needs assessment include i) the different levels of decision making power that men and women have to set public policy, ii) their relative abilities to influence national-level technology investments, and iii) their influence on who should be engaged to test new technologies in different sectors.30 For example, there may be sector-to-sector gender differences in the trialing of new technologies for power generation, transport systems, and food production and they may not accurately target women’s and men’s priority needs. For decision makers and programme designers, it is also important to consider that women and men have different amounts of time available to participate in community meetings as stakeholders and trainees in new technology. Specific efforts must be made to address gender-linked constraints and to bring women, or organizations representing women, into technology needs assessment discussions, decision-making forums and trainings. LESSONS LEARNED AND GOOD PRACTICES IN TECHNOLOGY NEEDS ASSESSMENT Introduction of appropriate technologies to assist communities to adapt to climate change, or the exchange of a high emission technology for a different, low-emission one, only works when the end user has the skills and willingness to use it. Technology needs assessments generally recognize this but do not always consider how gender roles and associated social norms will affect the uptake of each potentially effective technology, or how the benefits will affect men and women in different ways. Because socio-cultural norms are different from country to country, and between subnational levels, it is important that stocktaking for the National Communication (NC) or Biennial Update Report (BUR) provides explanations of gender issues so they can be applied in later phases, such as during technology needs assessments. It is also important to recognize that coordinated climate change and gender mainstreaming can be used to promote gender equality by opening doors for women to become more economically active, to benefit from new value chains, or to work in non-traditional fields and engage more fully in decision-making. INTEGRATING GENDER IN NATIONAL COMMUNICATIONS REPORTING National Communications (NCs) and Biennial Update Reports (BURs) are expected to report comprehensively on national progress in implementing the UNFCCC. Integrating gender considerations and analysis into these reporting mechanisms ensures they provide a holistic picture of socio-economic and environmental elements related to climate change. Mainstreaming gender into NCs and BURs requires commitment, technical capacity, and funding. Tracking progress over time in subsequent reports requires identification of gender-linked and/or sex-disaggregated indicators, as illustrated in Figure 17. The subsections below provide a brief discussion of these points as well as simple frameworks and checklists. BUILDING COMMITMENT FOR GENDER-RESPONSIVE REPORTING AT EACH LEVEL OF THE PROCESS A critical aspect of building commitment is to recognize that integrating gender considerations in National Communications (NCs) and Biennial Update Reports (BURs) is not just about women, it is about using all available information to the best advantage of all citizens. Consequently, the responsibility for gender-responsive NCs and BURs cannot be handed off to a single entity or working group. All working bodies and high-level individuals in the reporting processes will meet these requirements more readily if their terms of reference specifically include gender analysis and sex-disaggregated data collection; these can be further rationalized through reference to UNFCCC and CEDAW commitments to sustainable and just development. Guidance for developing the NC and BUR reports is extensive and spread out into many documents and handbooks, which makes drafting the reports a complex and sometimes confusing process requiring considerable time, human resources, funding and technical assistance. Participants in the survey done prior to developing this toolkit noted that it is difficult for countries to keep track of all the guidance and directives coming from the UNFCCC, the COP subgroup meetings, and the proceedings of subsidiary bodies. The survey also highlighted that there is a lack of awareness about UNFCCC direction on integrating gender into NCs. For reference, a list of COP decisions on gender is included in Figure 18 and links are footnoted here.33 NC and BUR coordination committees, the ministries providing oversight to each process, and thematic working groups can use this information to guide their decisions. Key stages to plan for gender-responsive reporting are during the development of institutional arrangements for stakeholder engagement, during budget development, and when planning the stocktaking, capacity-building and analysis processes associated with the NC or BUR. Development partners, who support governments as implementing agencies during report preparation, can also build capacity and make reporting processes more transparent by clearly articulating their own gender policies and identifying what technical and financial resources are available to make NCs and BURs gender responsive. They can also provide frameworks and/ or checklists to help ensure that the NC or BUR project proposal documents include budget and time allocations related to balanced stakeholder processes; sex-disaggregated data collection; and gender analysis of national circumstances, vulnerability and adaptation, GHG inventory issues, and mitigation and technology needs. In addition to alignment with UNFCCC directives for gender-responsive climate change and reporting, high-level commitment to gender-responsive climate change should be rationalized by practical facts. Foremost among these is that the integration of gender considerations into NCs and BURs will result in more transparent, effective and sustainable responses to climate change impacts. National governments have a key role to play as coordinators of climate change and gender mainstreaming. To be truly effective, leadership needs to come from the ministerial levels of central government agencies, and men and women in leadership need to speak out clearly on the benefits of integrating gender and climate change. Further, implementation and monitoring of gender and climate change integration and reporting needs to be linked to national sustainable development plans. High-level commitment is needed to drive and maintain momentum on gender and climate mainstreaming and to ensure national exercises like NCs and BURs have the support they need. But it is important to remember that commitment from all levels of sector ministries and from men and women at the community level is equally important. Conducting gender and climate change awareness and skill-building with local governments, faith-based organizations, and local civil society groups will develop an ongoing commitment to programmes and projects. It will also provide much-needed support for women to act as agents of change alongside the men in their families and communities. Figure 19 provides suggested steps for building and monitoring commitment to gender-responsive climate change across levels. BUDGETING FOR GENDER-RESPONSIVE NATIONAL COMMUNICATIONS Developing priorities and institutional arrangements for National Communications (NCs) and Biennial Update Reports (BURs) has numerous stages and takes place within different groups and subgroups. The previous sections of this toolkit repeatedly identify the need to ensure that all phases of report development include basic costing and budgeting exercises to ensure there is adequate financing for i) gender analysis, ii) equitable participation of men and women in working groups and stakeholder forums, and iii) specific technical assistance where it is required. NCs and BURs provide a road map for future work on climate change. Consequently, it is important that budgeting for gender-responsive report preparation be linked to longer-term planning and programmes. In discussions of the need to finance gender-responsive climate change reporting it is useful to identify criteria for gender-responsive climate financing arrangements that are in line with both i) international norms and standards to address women’s human rights, and ii) national priorities for gender equality and the empowerment of women in leadership, economic development and environmental management. Governments should discuss how to integrate gender budget considerations in applications to climate change funds, including for example the Global Environment Facility, the Green Development Fund, the Clean Development Mechanism, as well as clean technology funds, and forest development and coastal resource management programmes. Countries can consider that approaches beneficial to women are those that engage women as decision makers and simultaneously support multiple environmental, economic and social outcomes. These are often small-scale, locally driven projects, and those delivered by civil society groups with existing commitments to gender equality. All initiatives should be country-driven and linked to sustainable development policies and their existing indicators. BUILDING AND USING TECHNICAL CAPACITY FOR GENDER ANALYSIS OF CLIMATE CHANGE One of the major challenges for developing countries preparing National Communications (NCs) and Biennial Update Reports (BURs) is finding people with the technical capacity to bring together all relevant information, manage collaborations and institutional arrangements, undertake required analyses, and draft various sections of the reports. The preparation of these reports is time intensive and requires a major commitment by government staff, development partners and civil society. Integrating gender into climate change reporting is a particular challenge because many environmental specialists may not be familiar with gender analysis approaches and gender specialists may not have experience in climate change. In addition, gender specialists at the national level are often heavily committed by obligations to implement national commitments to gender equality, and to work on women’s economic empowerment and ending violence against women. Figure 21 highlights some potential entry points where cost-effective capacity development can be done to support gender-responsive climate change reporting. Using these entry points to deliver specific skills and competencies will support the sustainable implementation and monitoring of initiatives resulting from NC and BUR recommendations. Figure 22 identifies main focus areas for training and skill-building that can provide long-term support to climate change initiatives and also support broader social and gender analysis across sectors. It is important to note that capacity development can be done through a variety or combination of mechanisms, including workshops, secondments, coaching and mentoring. Capacity development is generally most effective when it is delivered over time or has some follow-up coaching or collaboration to ensure skills are practiced and polished. Collaboration between resource ministries and gender ministries can reinforce both coordinated mainstreaming and capacity development. INTEGRATING GENDER ANALYSIS INTO NC AND BUR REPORTING FRAMEWORKS Systematically reporting on gender issues throughout National Communications (NCs) and Biennial Update Reports (BURs) can be done in different ways. For example, gender can be incorporated as an integral consideration in each section of the report, subsections can specifically identify gender dimensions of each topic area or issue, and there can be a stand-alone section summarizing gender issues. To date, as countries have given emphasis to gender in their respective NCs and BURs, they have used a variety of methodologies to integrate gender issues in their reports. To make NCs and BURs truly gender responsive, to align with the directives of the UNFCCC to bring gender balance into all bodies, and to make processes more transparent in relation to gender issues, good practice indicates highlighting gender issues in relation to each aspect of report preparation. Gender can be integrated into each section based on feedback from stakeholders, thematic working group identification of specific issues, and analysis of available sex-disaggregated data. Table 5 provides guidance on how to include gender issues in a way that they can be easily referenced and linked to evidence and monitoring processes. IDENTIFICATION OF BASIC GENDER INDICATORS TO SUPPORT MONITORING AND REPORTING Gender indicators measure changes in men and women’s status, access to resources, participation in decision-making, and other similar variables. Indicators can measure quality or quantity and examples are provided below. Making sure to include gender indicators in National Communications (NCs) and Biennial Update Reports (BURs) allows these variables to be tracked over time, commitments to be monitored and changes in gender relations to be measured in the context of climate change topics such as adaptation, mitigation and technology transfer programmes. This, in turn, creates evidence that countries can report against in subsequent NCs and BURs, and in topic-specific reporting against the UNFCCC and other development goals. Further, the creation of evidence over time will help countries leverage financial support for future gender-responsive climate initiatives. Recommended criteria for gender indicators are shown in the figure below. As noted above, indicators can track different things, and they can also track change at different levels, including impacts over time, the effects of a specific intervention, performance levels of individuals or groups, or the efficiency of an intervention. For example, indicators on the sale of non-timber forest products can indicate the effects of gender responsive forestry projects on men’s and women’s economic status relative to each other. Concurrently, indicators measuring women’s overall agricultural income can show impacts of sea-level rise and the salinization of water tables in areas where women grow crops. In some cases, direct indicators may not be available and indirect or proxy indicators may be used as long as they are fully explained. For example, countries may not have data on how many women and men are business owners, but they may have census data on those who report being self-employed. This can be a rough indirect indicator of business ownership and can be used to assess capacity for entrepreneurship in the introduction of new energy technologies. The following figure outlines more sample indictors to demonstrate how they can vary and what they are intended to measure. There are a considerable number of resources available to support the development of gender-responsive indicators at different levels, including some that focus specifically on gender and climate change indicators. The ‘Additional References’ section at the end of this toolkit provides further information. Indicators on their own are useful, but to support strategic improvement in climate change responses, monitoring and evaluation of those indicators must be entrenched in project documents. They must appear in logical frameworks and be regularly monitored and reported on. Further, reporting on gender indicators should be linked to sector and national strategic plans and used to influence decision-making and financing for gender-responsive climate change. |
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