ARE GENDER-BLIND INDICATORS NOT ENOUGH?
By Tamar Hayrikyan, Managing Partner at Técnicas Rudas
Supported by the Water and Open Government Community of Practice
Globally, women and girls take on a grossly disproportionate burden in the work of securing water for their communities. Yet they remain dramatically underrepresented in water management at all levels.
This leaves them vulnerable to and dependent on men for their water and sanitation needs – despite distinct menstrual, pregnancy, and child-rearing needs – and effectively deepens their economic marginalization. Gender-blind indicators don’t make these issues appear and that’s a big problem.
In Open Government co-creation processes, including those related to water and natural resource governance, we often talk of mainstreaming gender to address these issues more systematically.
At Técnicas Rudas, we’re proposing that to do this and take the next step in advancing gender-inclusive governance, we need to mainstream the use of gender indicators.
Why gender indicators?
To measure impact, to observe change, or to detect differences in characteristics across populations, policy makers, social scientists, and project managers make use of indicators. The feminist perspective calls our attention to two dangers of relying on easily accessible, simple indicators of well-being like GDP per capita, literacy rates, access to healthcare etc. First, the assumption of relative homogeneity obscures significant, systemic disparities within a given population along these indicators. A second and deeper danger is that the indicators generally neglect to take into account the systematic exclusion of marginalised populations from data collection efforts, which further exacerbates the fact that women’s and minorities’ realities are made invisible.
These dangers have significant consequences at the design, implementation, and evaluation stages of open government commitments related to Natural Resource Governance (NRG).
At the design stage, the blind spots mean that policy ideas and “theories of change” might be much less relevant and far-reaching in practice than they appear on paper.
At the implementation state, implicit discriminatory practices can go entirely unnoticed.
At the evaluation stage, the same blind spots mean that skewed or counterproductive impacts might go undetected and uncorrected.
Gender has been part of human rights and development sector discourse for years! In that time, many have come to realise that relying on feminist intuition or focusing on getting people of diverse backgrounds “at the table”, is simply not enough. For gender to be taken into account, it needs to count, and be counted. That’s why we’re proposing gender indicators.
New research to show impact of gender-based approach
In 2019, the Feminist Open Government Initiative invited organisations to present proposals for action-oriented and evidence-driven research to support the adoption of a gender perspective in Open Government.
As a feminist organisation that works a lot on issues related to transparency and extractive industries, and one that relies on open data and grassroots participation, this call for proposals made us think.
What does having a gender perspective look like in practice? Does a gender-based approach have observable consequences? For example, do policy priorities change? Do strategies change?
In 2019, my colleagues and I embarked on a year-long, action-driven exploration of the practical potential of gender indicators within the Open Government Partnership. We adopted a specific focus on commitments related to natural resource governance (NRG) and the differential impacts of the extractive industries on women.
Our case study countries were Mexico, Colombia and Peru – contexts where land rights movements and socio-environmental conflicts persistently challenge both traditional and sustainable development logic, and where NRG commitments feature frequently in National Action Plans.
Our research took a detour almost as soon as we kicked off. Because the open government discourse is so embedded in the Sustainable Development Agenda, our original layout also integrated the SDG framework.
However, we quickly realised that in the contexts where NRG challenges are most extreme – where indigenous communities face off against multinational corporations to keep toxic spills from contaminating bodies of water, and where open-pit mines threaten to displace entire villages – the development agenda doesn’t quite resonate. Instead, we turned towards the international human rights framework to help us think strategically and ethically about where we need gender indicators most.
We proceeded with an intensive period of literature review, interviews, and round-tables with specialists on the extractive industries, open data, and feminism in Mexico, followed by workshops with women land rights defenders in Peru and Colombia, with whom we worked together to test methods for creating and using gender indicators in the context of the challenges and needs of their communities.
Gender indicators highlight the harmful impact of extractive industries in terms of human rights
According to front-line land rights defenders who participated in this research, the differential impact of decisions about how natural resources are exploited or safeguarded is most apparent in connection with the impact of extractive industries on human rights.
In particular, when it comes to the right to water and sanitation, we see a very dangerous chain reaction of impacts. For example, a mining project has a dramatic effect on a community’s ability to exercise its right to water (due both to pollution and scarcity), which has cross-cutting consequences, by affecting the health of the entire community, which disproportionately burdens women due to traditional roles as caregivers, and thus in turn also lead to a drop in their ability to participate in the labor market, a subsequent reduction in livelihood, and further deterioration in access to health.
Meanwhile, fewer clean water sources translate to more time dedicated to household chores and supporting agriculture production, further reducing time available for rest, education, and remunerated work.
Where there is resource extraction, there is violence
We also discovered that using gender indicators in the process of co-creating Open Government Commitments brings issues to the forefront that we rarely see in conversations, let alone in action plans, on open natural resource governance. One of these issues is violence.
Across the board, where there is resource extraction, an increase in the threat of physical violence appears to be ubiquitous. This includes forced displacement, forced labor, domestic violence, sexual violence, sexual extortion, human trafficking, militarization, intimidation and attacks against community leaders and land rights defenders, and more.
Natural resource governance strategies need to confront head-on the violent consequences of opening communities and the environment to extractive industries.
Beyond specific indicators, committing to the process
Our research illustrates what using gender indicators can accomplish, which is to:
make visible what has been invisible for many up until now
assign value to what is normally taken for granted – issues that have traditionally been viewed as secondary or only indirectly related to natural resource governance – and put it center stage; and, finally,
serve as guideposts for designing much more inclusive and impactful natural resource governance strategies that have respecting and protecting human rights as one of their primary objectives.
We now have an extensive menu of gender indicators, which, for the water sector, includes for example disaggregated data on water quality and perceptions on water availability. But the most relevant result of this research is not the indicators, but the process. We created a replicable process to develop gender indicators and published two short, simple guides (in Spanish) to help stakeholders design gender indicators for evaluating long-term impacts as well as short-term results of Open Government commitments.
Overall, it’s important to recognise we don’t have to wait for sweeping reforms or for the next national action plan to start using gender indicators. They can be incorporated from the word go, in implementation. That said, and as far as OGP on the international level and on the country level is concerned, there are key moments where we can start to plan and integrate gender indicators: during co-creation, as part of the processes, at the conclusion of a national action plan – specifically in the self-assessment and in the independent reporting mechanisms methodologies- and, ultimately, at impact evaluations.
We should think of indicators not just as evaluation tools but also as guideposts that can help us ensure – from the moment of co-creation – that what we’re trying to achieve and the path we’re taking to getting there takes into account gender and gender minorities.
The emphasis on process is in line with one of the final takeaways that I am left with as this project comes to a close: One doesn’t “have” a gender perspective in a passive state; a gender perspective is, or should be, the active, collective and continuous undertaking of a deliberate process. Keeping this in mind will be key if the OGP is to transform into a genuinely inclusive platform.
About the author
Tamar Hayrikyan, Managing Partner at Técnicas Rudas, a Mexico-based organization that aims to contribute to social movements and human rights defense through strategic research, technology, creative alliances and organizational strengthening. Prioritising grassroots initiatives, our approach integrates an intersectional gender lens and digital security. Tamar has an academic background in political economy and human rights, as well as professional expertise in corporate accountability, transparency in the extractive industries, documenting human rights violations and protecting human rights defenders.
Image: Sincerely Media on Unsplash