External Evaluation: Establishment of Women’s Regional Center in Samtskhe-Javakheti, Georgia August 2005
Establishment of Women’s Regional Center in Samstskhe-Javakheti, Georgia
EVALUATION REPORT (Project ID: 000 12717)
Submitted to the United Nations Development Programme in Georgia
Mission Date and Venue
Ju ly 1 1 – 18 , 20 05
Tb i lisi, Samstskhe-Javakheti Region : Akhaltsikhe, Aspindza, Akhalkalaki districts
External evaluator
Guissou Jahangiri-Jeannot Consultant on Women in Development, Human Rights and Civil-Society Capacity-building 12, Rue Victor Letalle 75020 Paris, France Telephone: +33 147 97 32 97 E-mail: [email protected]
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TABLE OF CONTENTS
TITLE PAGE
Map and Data on Samtskhe-Javakheti Region 4 Acronyms 5
1. Executive Summary 6 1.1 Successes 7 1.2 Future Programming Opportunities 9
2. Purpose, Approach and Methods of Evaluation Mission 12
3. Country Context and Project background 14 3.1 Country context 14 3.2 Samtskhe-Javakheti Region 15 3.3 Government of Georgia : Plan of Action for Improving Women's Conditions 2001-2004 17
4. Project Description 18 4.1 UNDP Objectives and Frame-work of Action 18 4.2 The UNDP Samtskhe-Javakheti Integrated Development Programme (SJIDP) 19 4.3 Establishment of the Women's Regional Center in Samtskhe-Javakheti, Georgia 19 4.4 WRC Project Objectives 29 4.5 Planned Sub-projects 20 4.6 Planned Project Outcomes 21
5. Findings Concerning Project Design and Strategy 23 5.1 Project Design 23 5.2 Risks Anticipated 25
6. Findings Regarding Project Implementation, Results and Sustainability 27 6.1 Overviews of Findings 27 6.2 Organization and Management of WRC 27 Building the Women Regional Center NGO 27 NGO composition and organization 28 Sustainability of the institution 30 Sustainable financing 31 WRC cooperation with external actors in the region 32 Role of UNDP 33 6.3 Sub-project Implementation and Results 34 Small-scale rehabilitation component 34 Research and analysis 36 Policy advisory service 38 Establishment of the training center 39 …/… External Evaluation: Establishment of Women’s Regional Center in Samtskhe-Javakheti, Georgia August 2005
TITLE PAGE
Public awareness campaign 41 Micro credit component 42 Job creation Income generation 43
7. Lessons Learned 44
ANNEXES 46
ANNEX 1: Itinerary for Project Evaluation Mission 46 ANNEX 2: Materials consulted for project evaluation 47 ANNEX 3: Terms of Reference 49 ANNEX 4: Structure of WRC 52 ANNEX 5: Extract from: International Federation of Human Rights (FIDH), Ethnic Minorities in Georgia, International Fact-Finding Mission, April 2005 54 ANNEX 6: Samtskhe-Javakheti NGO's hold their first Public forum-INTEGRATION, NOT ASSIMILATION 55
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Map and Data on Samtskhe-Javakheti Region
4 External Evaluation: Establishment of Women’s Regional Center in Samtskhe-Javakheti, Georgia August 2005
Acronyms
CC – Computer Center in Aspindza
ICCC – International Centre for Civil Culture in Tbilisi
IPS – Institute for Policy Studies in Tbilisi
NGOs – Local Georgian non-governmental organizations
SIDA – Swedish International Development Agency
SJIDP – Samtskhe-Javakheti Integrated Development Programme (UNDP)
UNDP – United Nations Development Programme, specifically the Country Office in Georgia
VACH – Violence Against Children
VAW – Violence Against Women
WRC – Women Resource Center in Samtskhe-Javakheti
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EXTERNAL EVALUATION OF the UNDP PROJECT: Establishment of Women’s Regional Center in Samstskhe-Javakheti, Georgia
1. EXECUTIVE SUMMARY
In July 2005 an external consultant contracted by the United Nations Development Program in Georgia evaluated the UNDP project: Establishment of Women’s Regional Center in Samstskhe-Javakheti, Georgia. The evaluator focused on the extent of progress made toward the project’s expected outcomes. This report is a product of the evaluation.
As background, the United Nations Development Programme in Georgia (UNDP) in cooperation with the office for the OSCE High Commissioner on National Identities joined efforts to provide support to the Samstskhe-Javakheti region in order to encourage improved governance, alleviate poverty and reduce isolation. In June 2002 the Samtskhe-Javakheti Programme Formulation Mission conducted in Georgia conceived the Samtskhe-Javakheti Integrated Development Programme (SJIDP). Extended to all six districts of the region: Adigeni, Akhalkalaki, Akhaltsikhe, Aspindza, Borjomi and Ninotsminda, the programme was developed to support and integrate efforts toward building a peaceful multiethnic society. The programme envisaged two major objectives: 1) contribute to conflict prevention and overall development through a wide range of programme activities notably in socio-economic development, governance and capacity building and 2) facilitate coordination among implementing agencies, donors, stakeholders on various programme initiatives and information and data-sharing.
Within the frame-work of the SJIDP, a project in the area of gender mainstreaming and social and economic empowering of women in Samtskhe-Javakheti aiming at reducing conflict potential by promotion of the role of rural women in social, political and economic life was developed. In June 2003 the UNDP signed a trust-fund agreement with the Swedish International Development Agency (SIDA), which allocated the equivalent of 613,000$ for the Project entitled “Establishment of the Women’s Regional Center in Samtskhe-Javakheti”. Being the first project to have received financing within the SJIDP, the 24 month-project was launched on 1 September 2003.
The immediate objectives were to:
Address the gender needs for the data collection and analysis in the region; Raise awareness among public; Strengthen the capacity of the local government through designing policies for gender development; Support and economically empower women throughout the region.
The “Women’s Regional Center” (WRC) was founded by UNDP in September 2003 as a local NGO according to Georgian law and was registered in Akhaltsikhe, the administrative center of Samtskhe-Javakheti. The WRC board selection involved local governmental and civil society counterparts from each district of the region. The Project took the form of an NGO as it was judged that there was no institutional capacity at that time within the local government structures to accommodate the gender-mainstreaming programme.
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The Project “Women’s Regional Center” originally planned seven independent sub- projects which were meant to cross-refer and complement each other:
. Research and analysis . Advocacy . Policy advisory services, . Training . Micro-credit . Job creation/Income generation . Small-scale rehabilitation
These were and are not easy tasks to achieve in the challenging environment of contemporary Georgia and in the specific region of Samtskhe-Javakheti. Some divergences from certain planned activities and shortcomings in effective service delivery were to be expected.
However, the Women’s Regional Center (WRC) is visible, functioning, carrying out its core tasks, and has achieved satisfactory results for a number of its sub-projects. These accomplishments are due to the efforts of the WRC NGO Board of Trustees and staff and the UNDP and the Samtskhe-Javakheti Integrated Development Programme (SJIDP) teams both in Tbilisi and in Samtskhe-Javakheti, as well as generous funding provided by the Swedish International Development Agency (SIDA). Moreover the project has enjoyed the moral support of the local government in the region despite changes in leadership. At this time, further investments are warranted to improve the quality of service and strategic planning of the Women’s Regional Center in order to have a greater impact on gender awareness, strengthening the capacity of the local government through designing policies for gender development and be able to contribute to further women’s human development by supporting and economically empowering women throughout the region and in Georgia in a durable manner.
The present evaluation has identified both successes and future prospects for program development for the UNDP/Women’s Regional Center and detailed them in the report. They are summarized below.
1.1 Successes
Project design
. The project was generally well designed and coherent, and the public awareness and integration components provided direction for the implementation of project activities.
. UNDP/SJIDP played a particularly central role in the management of project formulation, financial contribution and management and support to implementation of the project. UNDP ensured coherence and its support at the national level was significant.
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Partnership and visibility
. The WRC has been relatively successful in responding to country needs and institutional priorities of the Government of Georgia, regional governmental institutions and civil society actors.
. The WRC enjoys excellent working relations with local government notably the Governor of Samtskhe-Javakheti.
. The WRC has achieved strong relations with a number of partner NGOs at the national level and has taken steps in identifying and creating bonds with regional organizations.
Positioning and global impact
. The WRC has been relatively successful in respecting ethnical balance both in its internal composition and outreach activities in all six districts of the region.
. The WRC has had a visible impact on the Integration process in the region through well-designed activities such as inter-ethnic pupil and student exchanges in families from different regions and cultural activities and manifestations.
. The UNDP/SJIDP supported WRC has been effectively able to reach different layers of society in Samtskhe-Javakheti due to various sub-projects in gender mainstreaming with a strong integration component it has conducted in the region. The WRC is highly visible and well-regarded.
Specific project-actions
. The WRC has successfully led well-targeted small scale rehabilitation in the areas of health, education and culture with significant bearing for the targeted users and public opinion.
. The WRC has launched one of the most ambitious and novice researches on gender in the region, and been able to collect until-then unavailable gender- disaggregated data and statistics. The findings are available in a report: “Gender and Society in Samtskhe-Javakheti, Georgia” which has been published in English.
. The WRC as been able through high-profile cultural and artistic manifestations, television broadcasting, publishing of newspaper and public debates expose gender issues, contribute to introducing the issue of gender inequality and raise awareness among local elites, policy makers, youth, civil society and the public at large.
. The WRC possesses a well-trained team of trainers specialized in gender assertiveness, human rights protection, political and civic participation, reproductive and sexual health, organization of vocational training, business and financial planning, marketing, management and communication skills. The WRC team has effectively launched training courses for a small professional audience including local government, NGO members, teachers, Women heading large families.
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. The WRC has prepared components for a contribution to capacity building in local government in designing long term action in the form of a Three-year Strategic Plan on Gender Policy in the Samtskhe-Javakheti region in order to further gender equality.
. The WRC has been relatively successful in managing sub-projects implemented by partner NGOs despite challenges notably that of Micro credit to male/female beneficiaries.
The tangible achievements made by these novel subjects in the region justify the pursuit of the Project. At the beginning of this new stage of activity and in order to ensure future viability, the WRC will need to make transformations in its shape, mandate and strategy. This will reinforce impact, strengthen human capacity and drive towards financial sustainability.
1.2 Future Programming Opportunities
In the area of internal NGO/WRC capacity building
. The WRC, based on its past two years experience as a “pilot” project could strengthen the scope of its activities and reach sustainability as an institution by rethinking and making significant modifications in its charter, mandate, and internal power system, and short and long term strategic planning. This will allow defining its organizational culture and identity, strengthening the democratic process inside the NGO, determining relations with UNDP and Government and building and clarifying scope of action in terms of in-house existing and potential capacity and expertise.
. The WRC could engage further building of staff capacity concerning gender mainstreaming standards and courses of action available to promote gender equality and woman’s human development. Additional recruiting could broaden the base of staff selection to include short-term highly specialized “coachers” in two areas: grass-roots women in development and NGO/Association building and business planning, adapted to the region. This would set basis for long-term financial sustainability of the organization once donor fatigue hits the area.
. The WRC could now fully utilize research findings and gender-disaggregated data and statistics as a strong tool to identify priorities in tune with local needs and capacities, shape strategy and define action areas, conduct advocacy and dissemination actions and produce policy advisory services.
. In-house capacity could be developed to carry out most of the activities launched by WRC rather than exclusively contracting out the service. The WRC could encourage and seek collaboration with social and political science departments at the University and mobilize a team of young researchers and activists.
. The WRC as a whole could be more strategic in creating effective links between the sub-projects and activities it pursues and build on successful inputs, through
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monitoring, planning and information-sharing both internally and with governmental and non-governmental institutions and the public.
In the area of services and capacity building
. The WRC could seek and establish strong relations with International organizations active in the region. The WRC could become the main gender Center in the Region with capacity to offer expertise and services in training, project implementation and planning to all international counterparts.
. The WRC could publish a weekly newsletter in English/Georgian/Armenian reporting on humanitarian and development activities both by international and national NGOs. The Newsletter could become a coordinating activity and generate income for the WRC.
. The WRC could go beyond its functioning as office space and computer training center. Through better advertisement it could increase usage by women, civil society and general public. The Center could actively stimulate networking and in response to the region’s need create premises for a coalition of NGOs, associations and CBOs active in gender, civil society, human rights, youth and development, minorities. This federating function will strengthen civil society, become an important integration activity, create premises for strong lobbying and action with government and assist local NGO capacity.
. The WRC could develop training strategies and better target beneficiaries on gender assertiveness; human rights protection etc. and could include all levels of local government officials, prosecutors, police, military personnel, teachers, journalists and students. The WRC could respond to the needs of the new governmental institutions by creating training modules on governance.
. The WRC could use Computer Centers and premises as WRC activities outlets, for various mobilizing and dissemination activities. The Akhalkalaki SJIDP Center could become an operational second WRC in the region. Promote and make available internet access for researchers, activists, international organizations and general public.
. The Center could make available tangible services for women and their families, and the youth with health consultancy facilities, child birth control, and anonymous support to victims of domestic violence, cultural and leisure activities and clubs. The WRC could encourage creation of associations such as teachers’ association, student clubs (young political scientists), feminist clubs and youth circles and facilitate their gatherings.
. The WRC could ensure that appropriate follow-up with trainees are defined and carried-out in regular intervals. This would allow to measure impact and create premises for further action with the group.
. The WRC could pursue well-targeted small-scale infrastructure rehabilitation.
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. The WRC could go beyond mechanic balancing of activities in each district of the region and identify intervention action based on priority needs especially in the extremely isolated areas of the region such as Javakheti.
In the area of public gender awareness-building and dissemination
. The WRC could make ample use of the findings and recommendations made by the “Gender and Society in Samtskhe-Javakheti, Georgia” report conducted for the Project by IPS and design well-targeted campaigns.
. The WRC could be creative in using existing outlets for public awareness campaigns by building long term partnerships with the most active civil society components which have multiplying potential in such sectors such as media (especially due to the fact that the majority of journalists in the country are women), academic circles, students, youth etc. The WRC could actively mobilize and court media actors and regional and national political parties and groups both Georgian and Armenian by make available free of charge regular contributions to the press and radio on gender issues.
. The WRC could conceive training targeting specifically rural women in areas directly linked to their needs (better use of land, seeds, farming, marketing products etc). It could follow up by concrete projects contributing to capacity building in those areas.
. The WRC could expand low-cost public-dissemination activities. It could set up a regular Debate Club at university. It can over a one-year renewable program determine a series of 12 themes with a speaker and moderator on 12 priority issues (culture, society, politics etc) and disseminate debates through the press.
. The WRC could create a resource/debate forum web-site in Georgian/Armenian/Russian/English and use it as a visibility and dissemination tool. This could allow linking with similar programmes inside the country and neighboring regions. This could contribute to strengthening the resource/documentation center specialized in gender, women and human rights and seek and make available documents available inside the country in local languages.
. The WRC could publish findings and the “Gender and Society in Samtskhe- Javakheti, Georgia” report (presently in English) in Georgian and Armenian/or Russian so that all the interested populations could read it. The WRC could publish a shortened version of the Report during a period of time in the most popular public newspapers both at the national and regional level, organize radio programmes to create debate and disseminate findings.
. As a follow up on the research programme, the WRC could identify areas which still need further investigation and could launch a detailed qualitative and quantitative survey on Domestic Violence and Violence against women and children as a pilot project in the region and use methodology to expand to other regions of the country. The WRC could use successfully-tested methodology piloted in other Transition countries such as Tajikistan.
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2. PURPOSES APPROACH AND METHODS OF EVALUATION MISSION
This report is the result of a project evaluation mission undertaken by an external consultant contracted by the United Nations Development Program in Georgia. The consultant was to objectively assess the relevance of the UNDP project: the Establishment of Women’s Regional Center in Samstskhe-Javakheti, Georgia including the capacity-building and public awareness components, and make recommendations to ensure that future activities of this and similar institutions, build on results and achievements. The evaluation took place at the end of the two-year project that began in August 2003. The mission was carried out by Guissou Jahangiri-Jeannot on July 11 – 18, 2005 in Tbilisi and in the cities of: Akhaltsikhe, Aspindza, and Akhaltsikhe in Samstskhe-Javakheti region in Georgia.
According to the Terms of References formulated by UNDP, the principal aims of this mission were to see how the UNDP-assisted project contributed to the development of the WRC as a strong local NGO to address the regional needs for collection, analysis and sharing of gender-disaggregated data and statistics; to raise awareness (among policy makers, civil society, media representative, and public at large) about importance of gender inequality in the region, and strengthen the capacity of governments to design policies from a gender perspective as well as advance those policies to further women’s human development. The mission was also to evaluate other focus areas of the Project namely economic empowerment of women through micro-credit programme and how its sub-projects were implemented by the NGO and other partner agencies. The outcome evaluation would determine whether the UNDP Project is contributing to raise awareness on gender in the region and how regional and local governments were supported to integrate gender issues into their corresponding policy.
The mission’s objectives were to evaluate the following:
. Project design and strategy: the relevance of the project in terms of approach, objectives, modalities of implementation with regard to the prevailing context;
. Project’s execution and implementation arrangements: relevance and efficiency of implementation, including the suitability of the ways and means selected to the current situation and the specific conditions in the country;
. Project objectives and achievements: actual project results relative to the planned end-results and the effectiveness of the approach used to produce these results;
. Project impact and contribution to sustainability: review of project impact in order to assist the country office in analyzing impact of the project on Samtskhe- Javakheti women;
. Project performance overall: distil lessons learned and make recommendations to help ensure that future activities in the sector will build upon assessments of previous progress and assessment of implementation of similar projects for other regions of Georgia.
When I arrived in Tbilisi, the above TORs and the scope of the mission were discussed with UNDP. I was also briefed about the other activities of UNDP and the general
12 External Evaluation: Establishment of Women’s Regional Center in Samtskhe-Javakheti, Georgia August 2005 situation in the region. Two strategic issues were of prime concern for the UNDP management: the future direction the WRC would take as an NGO and its sustainability beyond the present funding.
During my mission I followed the time table organized prior to my arrival by WRC (itinerary of my mission is attached as Annex 1) and was able to have in-depth exchange with the UNDP/ Samtskhe-Javakheti Integrated Development Programme (SJIDP) management and staff in the region, the WRC staff and Board of Trustees and hold discussions with the Samtskhe-Javakheti Governor and Deputy governor. I was able to visit several project sites. I met all WRC implementing partners which had been involved in shaping and supporting WRC activities. It was also possible to exchange with one international development organization active in the region and learn about development programmes of one Oil company. I was able to participate in one gender-awareness and integration cultural activity organized by WRC which allowed for direct observation of the event and meet a large number of participants. Finally I met with one Parliamentarian and member of the newly-established Gender Equality Advisory Council in order to be informed about the political and institutional developments in regards gender mainstreaming inside the country. The short duration of the Mission imposed clear limitations as to the number of beneficiaries it would be possible to encounter. Further, short notice made it impossible to meet other International organizations such as UNIFEM and OSCE based in the capital and the region active in similar domains.
Prior to the mission I examined several reports and materials related to the project and during my mission to Tbilisi and Samtskhe-Javakheti and upon return I was able to review project, planning and progress reports on the various activities of the WRC during the last two years which were kindly made available by UNDP/SJIDPWRC. These are listed in Annex 2.
Acknowledgements
I am indebted to Beka Mikautadze, Angel Dimitrov, Natia Cherkezishvili, Marina Gachechiladze and Ruben Chomarian for their invaluable support, information and insights. I am grateful to the WRC Board of Trustees and team and all the UNDP/SJIDP staff for their support, information-sharing and kind hospitality. I thank all persons I met who willingly expressed their views and concerns about the WRC and generously shared their experience with me.
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3. COUNTRY CONTEXT AND BACKGROUND
3.1 Country Context
Georgia became an independent state in 1991, after the break-down of the Soviet empire. The country has been marked by internal strife: two armed ethno-territorial conflicts in South Ossetia (1990-93) and in Abkhazia (1992-94) and the overthrow of its first President, as well as total collapse of the economy. The political situation has been stabilized since 1995 albeit a peaceful political take-over in November 2003. The period has been marked by severe economic decline, massive unemployment and (labor)- emigration and growing inequality whereby 54% of the Georgian populations live below the poverty line and approximately 15-17% are extremely poor.1 The Government has privileged economic and social reform and development and reform of the public administration. However, rule of law remains weak, privatization of state assets has taken place in a piecemeal and generally non-transparent manner, the legal framework for small and medium enterprise development is inadequate, there is no reliable financial system in the rural areas and the current tax regime is blocking rather than promoting private enterprise. Formal employment is still dominated by the state sector and the very low level of salaries has forced many qualified people, such as teachers and health workers, to abandon their jobs in pursuit of more lucrative activities. The country has attempted a transition to democracy notably in legislation, existence of free and independent press and emergence of numerous associations and NGOs. Georgia has become a party to the major international human rights instruments notably the Convention to Eliminate all Forms of Discrimination against Women (1994), Convention to Eliminate All Forms of Racial Discrimination (1997) and the Convention on the Rights of the Child.2 Georgian women, despite equal rights enshrined in the constitution and active participation in all walks of life have a scant representation at high level of authorities and barely hold leading positions countrywide.
Georgia not only presents differences in living standards across regions and seasons, but also between rural and urban population.3 Women are in a particularly disadvantaged position as they have witnessed a 30% drop in their economic activities4. At the same time, during internal conflicts, the rural women in particular started actively looking for additional sources of income as some lost their husbands or were confronted with their absences. Many were restricted in their movements because of persecution, or
1 60% of the population live below the poverty threshold according to the Report of the Public Defender of Georgia: On the Situation of Protection of Human Rights and Freedoms in Georgia (#10578), 2002. http://www.ecoi.net/doc/en/GE/content/1/2273-2285. However two other sources estimate the percentage as less and stress differences from region to region. See: Georgia Humanitarian Situation and Strategy, 2005, United Nations Office for Coordination of Humanitarian Affairs (OCHA), Georgia, 19, November 2004. http://www.reliefweb.int/rw/RWB.NSF/db900SID/JMAN-66VJFR?OpenDocument and Progress Report Economic Development and Poverty Reduction Program, World Bank, Tbilisi, January 2005, siteresources.worldbank.org/ INTPRS1/Resources/cr05113-Georgia.PDF 2 Other UN treaties have also been ratified by Georgia including the International Covenant on Civil and Political Rights (ratified in 1994), International Covenant on Economic, Social and Cultural Rights (1994), Convention against Torture and Other Cruel, Inhuman or Degrading Treatment or Punishment (1994) and the Convention relating to the Status of Refugees. 3 See UNDP, National Human Development Report, Georgia, 2001/2002 4 Sumbadze, N and Tarkhan-Mouravi, G, Gender and Society in Samtskhe-Javakheti, Georgia, Institute for Policy Studies, UNDP/SIDA, Tbilisi, 2004
14 External Evaluation: Establishment of Women’s Regional Center in Samtskhe-Javakheti, Georgia August 2005 migrated to Russia and other countries to look for work. Through small trading, tailoring, selling of surplus home-grown produce in the markets, small husbandry, etc., the women from the remote areas are trying to make ends meet for their families. Besides, small scale food production on kitchen-gardens and small private plots is mainly undertaken by women.
3.2 Samtskhe-Javakheti Region
Situated in the South on the Turkish-Armenian boundary, the Samtskhe-Javakheti region has an area of 6,068 km2 (9.3% of Georgia territory) and consists of two sub-regions and six districts with Akhaltsikhe as the capital. As a frontier region or “border zone” with special security regime during the Soviet era and isolated from the rest of the country, Samtskhe-Javakheti has seen many movements of population in the past, both forced and voluntary. The total population, according to the 2002 census, is 207,5985 (4.4% of the country’s population). It is the most ethnically non-homogeneous region of the country with clear-cut ethnic boundaries (except in the capital) between the 113,347 Armenians and 89,995 Georgians (respectively 54.5% and 43.35%), but also Greeks, Russians and Jews.6 In the districts of Akhalkalaki and Ninotsminda (Javakheti) Armenians make up more than 90% of the population, whilst the other regions are made up almost entirely of Georgians (Borjomi up to 84%, Adigeni up to 96%38), and the district of Akhaltsikhe is mixed.7 The fact that Javakheti is part of Georgia has been challenged by Armenian political groups, even though the authorities in Yerevan have been careful since independence not to make any claims to it. Yerevan could however be tempted to intervene in favor of its co-ethnic Georgian nationals (like Baku did in Kvemo-Kartli), and the Armenian political organizations are extremely active at local level, which is badly received by the Georgians. In particular, disputes of a symbolic nature (opposing historical accounts, repeated debates on whether such and such a church is Armenian or Georgian, etc.) feature regularly in the public domain. At the start of the 1990s, due to the chaos which reigned in Georgia, Javakheti managed to a certain extent to avoid being controlled from Tbilisi. The stereotypes arising out of historic rivalries remain undying, stimulated by the geopolitical situation in the Caucasus.
Several other factors have contributed to a raise of inter-ethnic tensions in the region: affirmation of Georgian nationalism after independence, the impact of the Karabakh conflict on Armenian populations in the Georgian region, the language law whereby Georgian is now the unique official language for the until-then Russian (and Armenian) speaking minorities, religious proselytism, political power-sharing or lack of it and what is considered as discriminatory economic development. The issues above are highly political and complex as can be seen in the resolutions produced in December 2004 by the first Public Forum in Akhalkalaki initiated by the Council of Armenian non- governmental organizations (NGO) of the Samtskhe-Javakheti region to discuss socio- economic issues of the region, culture and self-governance (see Annex 5). As a result “the Georgian government and some international organizations have been reluctant to initiate projects that could be perceived as aimed at preventing ethnic conflict and would thus lead the local population to believe that there are indeed reasons to start a conflict. While most of the assessments suggest that these fears are largely ungrounded and the
5 The total population of the region has also been evaluated at 235,000 by various other sources. 6 For a detailed report on ethnic minorities and the specific situation in Samtskhe-Javakheti see International Federation of Human Rights (FIDH), Ethnic Minorities in Georgia, International Fact- Finding Mission, no. 412/2, April 2005, pp. 13-17
15 External Evaluation: Establishment of Women’s Regional Center in Samtskhe-Javakheti, Georgia August 2005 population does not perceive itself as an endangered minority, yet recent statements made by some ethnic Armenian nationalistic groups residing mostly outside Georgia call for some kind of autonomy and the splitting up of the province of Samtskhe-Javakheti.”8
Samtskhe-Javakheti suffers like the rest of the country from economic decline and high unemployment in urban areas. Civil society in this region is poorly developed and unable to exercise public control. The population and the youth especially have little opportunity for leisure and there is a growth of juvenile delinquency, trafficking and drug-use9. Despite great agriculture potential, like many other rural communities in post-Soviet Caucasian and Central Asian republics, rapid land distribution and land fragmentation into small plots, “as a consequence of privatization coupled with lack of mechanization, problems with irrigation and production do not allow for full-fledged commercial farming.”10 This mainly rural region is now characterized by an only agriculture- subsistent economy with little access to credit, markets and food-processing industry. The region shares widespread poverty (highest rate of stunting i.e. retarded child growth due to chronic malnutrition) and lack of resources with the rest of the country and general isolation especially in the Armenian districts of Javakheti. Work emigration among the male population is widespread leading to a growing number of female- headed households with women as prime earners.
The potentiality for ethnic tensions and other political, economic and societal security threats in Samtskhe-Javakheti, have led various international organizations and donors to the region. The construction of the 1,770 km US-backed Baku-Ceyhan pipeline - known as BTC, as one of the world longest and the most expensive - crosses this region making it into a strategic zone.
The increase in the number of local NGOs has been associated with activities of the above organizations, which have often initiated and/or created community-based organizations (there are 12 CBOs). There are 236 NGOs registered in the region (two- thirds only after 2001-2002), not all are active and 96 are based in Akhaltsikhe, the capital11 (there are an estimated 600 active NGOs throughout the country from among more than 4000 registered). One quarter of the Samtskhe-Javakheti organizations are led and administered by women whereas only six are active in women’s development in the region (there are a total of 70 women’s organizations at the national level). The proportion of women in administrative and managerial posts is less than 10% although women make up 53 % of the total population of Samtskhe-Javakheti. 12
8 UNDP Project Document, Support to the Formulation and Implementation of the Samtskhe- Javakheti regional development Programme, July 2005 9 In 1989, in Akhalkalaki there were 91.3% of Armenians, 4.3% Georgians and 2.5% Russians. In 2002, there were 94.2% Armenians and 5.5% Georgians. The demographic countryside of the Akhaltsikhe region is clearly distinct from that of Javakheti, and is characterized by a huge ethnic heterogeneousness. In 1989, there were 46.8% Georgians, 42.8% Armenians, 6.2% Russians and 4.2% other ethnic groups. Today, 61.71% of the population is Georgian, 36.58 % Armenian. 10 Idem, p.8 11 34 are domiciled in Adigeni, 21 in Aspindza, 42 in Borjomi, 32 in Akhalkalaki, and 11 in Ninotsminda. See Sumbadze, N and Tarkhan-Mouravi, G, Gender and Society in Samtskhe- Javakheti, Georgia, Institute for Policy Studies, UNDP/SIDA, Tbilisi, 2004, p.64 12 SJIDP Survey, March 2003 quoted in the Project Document: Establishment of Women’s Regional Center in Samtskhe-Javakheti, Georgia (application No. 003-03), UNDP/SJIDP.
16 External Evaluation: Establishment of Women’s Regional Center in Samtskhe-Javakheti, Georgia August 2005
3.3 Government of Georgia: Plan of Action for Improving Women’s Conditions 2001-2004
On February 1998 by the Order of the President of Georgia “The State Commission for Elaboration of State Policy for Women’s Advancement” was established. The Commission was instructed to draft the Action Plan for Improving Women’s Conditions (1998-2000) which was approved by the President. Within the 12 priorities of the Beijing Platform (1995) seven priorities were chosen in Georgia: 1. Institutional mechanisms for the advancement of women; 2. Women in power and decision-making; 3. Women and the economy; 4. Women and poverty; 5. Women and armed conflict; 6. Women and health; 7. Human rights of women.
Based on recommendations in 1999 by the UN Committee on Elimination of Discrimination against Women Commission an Order by the President of Georgia “On Strengthening the Protection of Human Rights of Women in Georgia”, was approved on August 28, 1999. It was followed by a Plan on Combating Violence against Women (2000-2002). Both created solid legislative base for promotion and implementation of the Plan of Action for Improving Women’s Conditions in Georgia. The 2001-2004 Plan13 resulted in the establishment of a department in the Presidents chancellery and a Gender Equality Advisory Council under the Chairperson of the Parliament of Georgia was created in 2005 and facilitated by UNDP Georgia in order to improve the level of awareness of gender problems and introduce gender factor in state policy and legislation.
The above plans are yet to be fully effective in the country. Assertive specialists in the domain of gender inequality believe that currently gender is mostly absent from national policymaking agendas and that the “State has failed to implement its National Action Plan”.14
13 Plan of Action for Improving Women’s Conditions in Georgia for 2001-2004, approved by Order No. 1406 of the President of Georgia, December 29, 2000. 14 See Institute for Policy Studies, First project report, Sub-project : Gender-Related Research and Analysis in the region of Samtskhe-Javakheti, n.d.a
17 External Evaluation: Establishment of Women’s Regional Center in Samtskhe-Javakheti, Georgia August 2005
4. PROJECT DESCRIPTION
4.1 UNDP Objectives and Frame-work of Action
The United Nations Development Programme’s (UNDP) core practice areas are based on priorities outlined by the 1995 Beijing Platform for Action focused on poverty, human rights, the impact of micro-economic policy and globalization, HIV/AIDS, and access to information and communications technologies. They also include directives out-lined by the Millennium Summit, highlighting the need for governments “to promote gender equality and the empowerment of women as effective ways to combat poverty, hunger and disease and to stimulate development that is truly sustainable.”
The UNDP Regional Cooperation Framework 2002-2005 for the countries in transition highlights the situation of women as one of the most critical areas for development interventions. It stresses that women and their children suffer the most from ways in which overall human development lags in the country: low life expectancy, lack of access to safe water, lack of access to health services and education, and a rate of growing poverty. The major constraints to the advancement of women and their empowerment in overall development have been identified as:
. The inequality between men and women in the sharing of power and decision- making at all levels;
. Insufficient mechanisms at all levels to promote the advancement of women;
. The lack of awareness of and commitment to internationally and nationally recognized women’s rights;
. Inequality in women's access and participation in the definition of economic structures and policies and the productive process itself;
. Insufficient use of the mass media for the promotion of the positive contribution of women to society.
Within this context, the Establishment of Women’s Regional Center in Samtskhe- Javakheti project has been an attempt to address some of the above constraints and thus promote gender equality in the region.
UNDP has also provided support to the Government of Georgia in realising the Plan of Action for Improving Women’s Conditions in Georgia (2001-2004) notably in responding to defined priorities such as the Establishment of Institutional Mechanisms, Increase Women’s Role and Participation in the Decision making Processes and Women’s Rights (legislation and gender discrimination) through the various capacities of the Women in Development Project (WID)15. Moreover UNDP has been supportive of the Gender Equality Advisory Council under the chairperson of the Parliament of Georgia for the “purpose of introduction of gender equality principles in society and to facilitate dialogue
15 Plan of Action for Improving Women’s Conditions in Georgia for 2001-2004, approved by Order No. 1406 of the President of Georgia, December 29, 2000
18 External Evaluation: Establishment of Women’s Regional Center in Samtskhe-Javakheti, Georgia August 2005 and cooperation between the government and non-governmental structures working on gender issues”.16
4.2 The UNDP Samtskhe-Javakheti Integrated Development Programme (SJIDP)
According to the UNDP/SJIDP Project document, the UNDP in Georgia in cooperation with the office for the OSCE High Commissioner on National Identities joined efforts to provide support to the Samstskhe-Javakheti region in order to encourage improved governance, alleviate poverty and reduce isolation. In June 2002 the Samtskhe- Javakheti programme Formulation Mission conducted in Georgia conceived the Samtskhe-Javakheti Integrated Development Programme (SJIDP). 17 Extended to all six districts of the region: Adigeni, Akhalkalaki, Akhaltsikhe, Aspindza, Borjomi and Ninotsminda, the programme was developed to support and integrate efforts toward building a peaceful multiethnic society. The programme envisaged two major objectives: 1) contribute to conflict prevention and overall development through a wide range of programme activities notably in socio-economic development, governance and capacity building and 2) facilitate coordination among implementing agencies, donors, stakeholders on various programme initiatives and information and data-sharing. The programme has been able to identify a number of community-priority projects in its inception phase; empower the Women’s Regional Center (WRC), promote access to information and regional networking through extensive use of ICT technologies; and begin to support organic farming in partnership with a local NGO and the Global Environmental Facility (GEF). Through the implementation of its Integrated Development Programme, UNDP has acquired knowledge of Samtskhe-Javakheti, and fostered partnership with stakeholders active in the region. Its operations have been supported by well equipped/staffed and functional offices in Akhaltsikhe and Akhalkalaki.
4.3 Establishment of the Women’s Regional Center in Samtskhe-Javakheti, Georgia
Within the frame-work of the SJIDP, a project in the area of gender mainstreaming and social and economic empowering of women in Samtskhe-Javakheti aiming at reducing conflict potential by promotion of the role of rural women in social, political and economic life was developed. In June 2003 the UNDP signed a trust-fund agreement with the Swedish International Development Agency (SIDA), which allocated the equivalent of 613,000$ for the project entitled “Establishment of the Women’s Regional Center in Samtskhe-Javakheti”. Being the first project to have received financing within the SJIDP, the 24 month-project was launched on 1 September 2003.
4.4 WRC Project Objectives
According to the UNDP/SJIDP Project document, the overall objective was to reduce the conflict potential through promoting local governance, poverty alleviation and the active
16 Chairperson of the Parliament of Georgia, Order number 105/3/27/10/2004 in establishment of the Gender equality Advisory Council Under the Chairperson of the Parliament of Georgia. 17 Project Document: Support to the Formulation and Implementation of the Samtskhe-Javakheti regional development Programme, UNDP, July 2005.
19 External Evaluation: Establishment of Women’s Regional Center in Samtskhe-Javakheti, Georgia August 2005 participation of rural women in regional development: social and political and economic life and to promote women’s participation in the decision-making process. The project aimed at addressing gender inequality in Samtskhe-Javakheti Region through different activities outlined below.
By establishing a Women’s Regional/Resource Center in Akhaltsikhe, the regional capital, the methodologies to address the gender inequality were to be designed in order to strengthen the capacity of the local governments to promote gender balance. The project’s immediate objectives would pursue the following development strategies:
. Build and strengthen the women’s capacity to collect, analyze and share gender- disaggregated data and statistics;
. Raise awareness among policymakers, civil society, media representative, and public at large about the importance to address the gender inequality in the region;
. Enhance the capacity of the local governments to analyze and design policies from a gender perspective to further advance women’s development in the region;
. Support and economically empower women through the region.
4.5 Planned Sub-projects
The Project “Women’s Regional Center” originally planned seven independent sub- projects which were meant to cross-refer and complement each other and considered as substantive spheres of activities18. An extra component of Integration-related activities was added per request of the Governors office during the second year of the project:
1. Research and analysis: collecting, analyzing and sharing data and statistics on the condition and status of the women in the region;
2. Advocacy: disseminating the results of the research and analysis through publications, through work with the media, via contests and other public outreach strategies, through networks, and through the strategic use of information and communications technologies; using the results of the research and analysis as a starting point for social dialogue, particularly between governments and civil society; and building sustainable networks (among civil society actors as well as government representatives) as engines to drive the advancement of women and the promotion of equality;
3. Policy advisory services: providing gender policy advice (advice that will be based on the Center’s research and analysis) to governments; promoting gender mainstreaming across sectors; and building the capacity of institutions and decision-makers through training in gender analysis and gender-sensitive budgeting, programming and policy-making;
18 Semi-annual Project Report, December 2004
20 External Evaluation: Establishment of Women’s Regional Center in Samtskhe-Javakheti, Georgia August 2005
4. Training: providing training to women in the region based on needs and requests in the areas of political participation, leadership, vocational training, ICT, skill development and others. Collaboration with UNIFEM as organizers of seminars on women and peace building and UNFPA as organizers of seminars on reproductive health issues;
5. Micro-credit: providing small loans to mainly women and training in business and credit education, and developing programme for strengthening the entrepreneurial activities of women;
6. Job creation/Income generation: creating jobs for women and recede the unemployment rate;
7. Small-scale rehabilitation: to empower the Women’s Center and the Board of Trustees of Trustees decision making capacity, small scale rehabilitation works on selected sites in all the six districts focusing on the social service for women/children, mainly health, education and culture through a participatory process.
8. Integration: In 2005, upon request by the regional Governor in the frame work of Integration project, the WRC added a new sub-project to its activities. Organising and facilitating a series of four Student/Pupil exchanges between different districts (Armenian-Georgian).
4.6 Planned Project Outcomes
The Project document envisaged the end of project situation as follows:
At the end of this project, a Regional Women Center will have been established19 in Akhaltsikhe.
The center will be registered NGO and financially sustainable due to implementation of the micro-finance and income generation programmes.
Small-scale rehabilitation works of the premises that will focus on social service and serve vulnerable mothers and children will have been completed.
The center will have a trained core staff and an established Board of Trustees of Trustees that will have a decision-making power.
It will have developed the capacity to identify and prioritize needs of rural women in their areas and to design project proposals to address these needs.
They will have established a revolving micro credit line for women, organized business training workshops for female entrepreneurs and implemented projects that promote income and employment generation for rural women.
19 The underlined emphasis is mine.
21 External Evaluation: Establishment of Women’s Regional Center in Samtskhe-Javakheti, Georgia August 2005
The Women’s Center will have an established training capacity with the technical facilities and expertise in place.
And finally, the Women’s Center will be a resource and clearing house, with elaborated data bases, capacity for research and analysis, advocacy and policy advising and long- term gender-mainstreaming scheme for the region and the country wide.
More over the Project document envisaged that through strong training the Center would end up with skills and experience in the following areas of expertise:
. the functions and levels of government and the context in which policy decisions are taken . gender analysis . advocacy/media/communications . statistics . economics . training approaches and methodologies . the management of networks of experts and institutions . the capture, packaging, and dissemination of information and lessons learned . database management . website management/ICT . leadership training
The center will be able to conduct research and field studies concerning women’s status in the region as well as collect, analyze, and publish data, indicators and statistics on women’s economic, social and political conditions based on the above mentioned expertise, therefore this component is a vital and inviolable part of the project.
22 External Evaluation: Establishment of Women’s Regional Center in Samtskhe-Javakheti, Georgia August 2005
5. FINDINGS CONCERNING PROJECT DESIGN AND STRATEGY
5.1 Project Design
The project documented a well-designed and coherent project concept. It responds to several priority areas outlined by the Georgian Government’s Action Plan for Improving Women’s Conditions and Institutional mechanisms for the advancement of women20. The overall design is sufficiently clear and detailed to provide direction for the prescribed project activities within the UNDP Regional Cooperation Framework 2002-2005 for the countries in transition which highlights the situation of women as one of the most critical areas for development interventions. Without direct reference to the “pilot” and novice aspect of WRC and its mandate, the project document in fact envisaged that the WRC Project - as a means for gender empowerment and balance in the region” - would in turn “facilitate” the gender mainstreaming process and lay grounds for similar process country wide. The project responded to needs formulated by women representatives of the regional and district governmental and non-governmental organisations which had met on 14 March 2003 requesting support in establishing a Women’s Regional Resource Center.
The ambitious objectives of the Project foresaw a series of complimentary actions to address the issue of gender equality in the region. The collection and creation of a data base and qualitative research and analysis on gender and the status of women in the region was a crucial step and a necessity in the context of the region and the country as a whole. It corresponded to empowering women in general and the WRC more specifically in strengthening its resource capacity and creating premises for strong awareness-raising and advocacy strategies and Policy advisory potential. It is still too soon, merely two years after the launching of the Project, to measure the impact of this general mobilisation in favour of gender equality among different strata of society. Introducing the concept of gender equality and more importantly implementation of policies by governments is not a one-time activity and requires active long-term commitment by social actors and advocacy groups working in this field. The creation of the WRC, as both an objective and tool for promotion of gender equality, is a strategic response to the above need.
The overall objective to reduce the conflict potential through promoting local governance, poverty alleviation and the active participation of rural women in regional development: social and political and economic life and to promote women’s participation in the decision-making process was an innovative input to introduce change in a globally depressed setting in the region. The Project design and strategy could go further towards addressing the specific needs of each of the various ethnic groups namely Armenian and Georgian populations. They need to develop corresponding strategies to deal with their needs. The original Project aims at addressing gender inequality regardless of ethnicity in Samtskhe-Javakheti Region through a series of different activities. Armed with novel research on the region carried out by the project, the second phase of activities of WRC can only benefit from acknowledging the differences. The WRC is considered as one of the components of the Samstskhe-Javakheti Integrated development programme and inherently pursues a strategy based on conflict-prevention and promoting integration in the region. The Governor of Samtskhe-Javakheti considers
20 See above under Country Context heading: Government of Georgia: Plan of Action for Improving Women’s Conditions 2001-2004 and UNDP Objectives and Frame-work of Action.
23 External Evaluation: Establishment of Women’s Regional Center in Samtskhe-Javakheti, Georgia August 2005 for example the inter-ethnic pupil/student exchange sub-project led by the WRC as one of the most positive and appreciated actions led by the WRC as it responds to one of the priority areas in the region. It is a challenging endeavour to be able to marry both components: gender equality and integration into complimentary and meaningful actions in the region, without creating new grounds for inter-ethnic tension. Cultural manifestations organised by the WRC in the frame-work of its awareness-raising activities have been either strong in promoting gender-equality or in easing inter-ethnic relations where the awareness raising component is less visible. The Project as it stands lacks concrete strategy in creating premises for sound strategy in regards gender and conflict-prevention.
The Project emphasised poverty alleviation and the need to empower women in a regional setting whereby poverty, unemployment and female-headed households have been on the rise. The economic crisis touches all the population and especially rural women. The Project foresaw various activities: revolving Micro Credit line for women, promoting job creation and income generation activities for rural women as one of its substantive activities. However the need for expertise and training necessary to strengthen inexperienced staff to deal with such substantive domains which require both institutional and professional capacity (operational team, management system, documentation) may have been underestimated, making the project overly ambitious.21 Moreover the general approach of the Project and modalities of implementation, especially during the first year of activities, favored out-sourcing and launching tenders for the various sub-projects the WRC did not have in-house capacity and resource persons to perform. The organizational “culture” of the WRC and its objectives had yet to be shaped. The Project omitted to clearly define the degree of implication of WRC Board of Trustees and staff and modalities in launching and managing tenders. The process and choice of WRC-team implication in project implementation by partner organizations seem to have been lacking in strategy. A more defined strategy based on assessment of in-house capacity and needs would have strengthened the process of transfer of know- how to the WRC in formulating tenders especially in two major priority domains: research and analysis and economic empowerment of women. As an example the WRC Gender Policy Specialist/Governmental Liaison in charge of developing a three-year strategic working plan was not involved in the Gender-related research and analysis team led by the Institute for Policy Studies (IPS) in the “Gender and Society in Samtskhe-Javakheti, Georgia” research.
The project took into account the importance of small-scale rehabilitation as a component of its overall activities without it being central in the overall objectives of the Project. Nonetheless beneficiaries and local government have considered these inputs as highly appropriate and attribute a large part of the success of the project to these activities. “Visible” actions such as small-scale rehabilitation, cultural manifestations (exhibition, concert) and the innovative Integration inter-ethnic pupil/student exchange have been generally considered as the main achievements of the Project.
21 Some WRC staff benefited from short-term training sessions led by ABCO, a partner organization. For more debate concerning the complex issue of micro-credit See : Micro Credit for Poor Women – Miraculous Solution or Trojan Horse of Globalization?, Elisabeth Hofmann and Kamala Marius-Gnanou (Le microcrédit pour les femmes pauvres – Solution miracle ou cheval de Troie de la mondialisation ?) in Etat du débat: Regards de femmes sur la globalisation :approches critiques sur la mondialisation, (dir.J.Bisilliat), Karthala, 2003. http://chaireunesco.u- bordeaux3.fr/pdf/genre2003.pdf
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One way in which the project design would have been improved would be to include professional in-house NGO development assistance from the very beginning beyond punctual short-term training sessions with little follow-up. It would have also been useful to expose the WRC Board of Trustees and project staff to the functions and culture of a Gender in Development NGO or Institution.
5.2 Risks Anticipated
Members of the UNDP country team who designed the SJIDP/Establishment of the Women’s Regional Center in Samtskhe-Javakheti project anticipated risks that could interfere with the achievement of the outcomes and efficiency of the project from their perspective. They identified one risk as a sudden deterioration of the political situation in the target areas. The choice of Akhaltsikhe as Center of operations which has proven to have experienced few security incidents despite the regions potential for ethnic conflicts, was a wise option. This risk has not materialized.
Second the project had anticipated as a risk that the Women Center would not become financially sustainable and thus not survive after the project completion. The development and implementation of long-term funding strategy would mitigate this possibility as credit, sub-projects and training as in the case of Women Centers in countries in a similar situation would guarantee its sustainability. The risk was underestimated and proved to be a major obstacle in the long term survival of the center. Perhaps on one hand it was ambitious to expect the Center to be financially viable in a two-year period in a regional setting with a highly depressed economy. On the other the fact that the Micro-credit component of the project was carried out by a partner organization (WORLD VISION International /Credo Foundation), did not allow transfer of know-how and full ownership of the activity by the WRC. It had not been anticipated as a risk that WRC would decide (while the evaluation mission was taking place) to put an end to its working relationship with its partner due to its shortcomings in detailed reporting, weak accountability and incapacity in fully meeting target female population. Although it had been planned that the second year of the project life possible long-term sources of funding such as sub projects and training were to be identified and evaluated for feasibility by producing a detailed strategic plan and mechanism, this objective was not met. Income generation activities, which were probably the most sustainable financially, were not launched during this period and soft activities such as charging fees for publications, language and computer courses did not materialize.
Thirdly, narrow opportunities for capacity building, especially in the region where civil society is not well developed and institutional capacity as a whole is weak was considered as a risk. The creation of a vigorous, empowered and capable civil society was seen as a powerful agent of change and a potentially valuable partner to government in promoting sustainable human development. The WRC has certainly been able to create good working relations with the local government. However its dual position both as a UNDP/SJIDP-created Center and independent NGO with little in- house strategic planning and initiative-taking capacity has hampered the process of it becoming a full-fledged and vigorous member of civil society. Also the scarce number of NGOs dealing with women’s issues and rare civil society initiatives involving the different ethnic groups of the region in the region have meant that the WRC lacks the natural backing, exchange and networks it could enjoy in a more developed setting with stronger civil society actors.
25 External Evaluation: Establishment of Women’s Regional Center in Samtskhe-Javakheti, Georgia August 2005
Finally three other risk areas have been defined by the project:
Lack of impact on policy action made by the research/analysis. While this evaluation was taking place the Policy Advisory Service of the WRC was in the process of finalising a three-year strategic working plan to determine the role of gender policy in the region and promote achievement of gender equality through recommendations to the government. It is thus impossible to evaluate this risk. The fact that the WRC Gender Policy Specialist is also the Government Liaison person (she works for the Governor’s office) has certainly been a positive factor in that she is aware of the capacities of the local government and has been able to establish an on-going dialogue with the officials contributing to a practical approach in policy recommendations which will be made to the government. However the risk of lack of impact on policy action is inherent to all initiatives, notably those related to gender equality preaching major changes in old practices and depending on the level of permeability of current institutions in Georgia;
Ineffectiveness due to lack of experienced core staff. Modifications made in the team have strengthened the capacity of the WRC. The project presently employs eight core staff including a project coordinator (NGO specialist), Government Liaison/Senior gender Specialist, project assistant and maintenance staff. The support given to the WRC through part time backing of the SJIDP including the international CTA/SJIDP programme Manager, Infrastructure specialist, data analyst and programme assistant have meant that the WRC has been able to benefit from the technical and coordinating experience of its team.
And finally a loss of Capacity that is built in the government due to staff turnover. The governor and some local officials have in fact changed during the two-year life time of the project. The continual presence of the Government liaison person and the strong working relations between UNDP/SJIDP/WRC as development partners for the local government have nonetheless persisted.
No project design can anticipate all risks that may arise. In hindsight, other risks could have been added to this list. As an example, factors that were not explicitly identified as a risk to the sustainability of the project was the very limited experience and exposure to the concept of gender mainstreaming, civil society building, creating and managing an NGO, feminist theoretical and grass-roots experience on the part of most members of the WRC Board of Trustees and staff on one hand and local governmental and public institutions on the other. Granted, the project identifies this as a need to be addressed through capacity building activities notably in-house and public training and awareness- raising activities but the extent of this absence of experience means it would have been advisable to characterize it as a challenge to successful capacity building and other outcomes and give it more attention within the project design.
26 External Evaluation: Establishment of Women’s Regional Center in Samtskhe-Javakheti, Georgia August 2005
6. FINDINGS REGARDING PROJECT IMPLEMENTATION, RESULTS AND SUSTAINABILITY
6.1 Overview of Findings
The Project has been able to develop the basic premises: the creation and establishment of the “Regional Women Center and NGO” in Akhaltsikhe in order to carry out the various long term objectives it has set itself and mobilise external partners and specialists to provide services in the presently limited in-house capacity. However the internal organisation and expertise of the NGO still require fine-tuning both in terms of role and power of the Board of Trustees and core staff, budget control and decision- making process. A second issue is that of strategic direction and scope of activities. Should the WRC strengthen its capacity as a full fledged independent NGO or remain as an interface between UNDP and the local government? Without UNDP support and international funding the WRC cannot at the present stage function at anywhere near its present capacity.22
As regards sub-projects, demonstrable progress towards the project outcomes has been notably in “small-scale rehabilitation works of premises that focus on social service and serve vulnerable mothers and children”, “establishing training capacity with the technical facilities and expertise in place” and activities in “raising awareness among policymakers, civil society, media representative, and public at large about the importance to address the gender inequality in the region”. The WRC has been able to carry out its essential objective of “gathering and analysing gender-disaggregated data and statistics” but has yet to a make full use of its potential as to set up a “resource and clearing house, with elaborated data bases, capacity for research and analysis, advocacy and policy advising and long-term gender-mainstreaming scheme for the region and the country wide”. The WRC has contributed in a visible manner to the integration process in the region and created excellent working relations with local government notably the Governor who is the assigned National Project Director and oversees Project implementation and monitoring. Apart from the Micro-Credit component undertaken by a contracted partner organisation with mitigated results, the expected output of “promoting income and employment generation for rural women” has not been met.
As regards sustainability the WRC has not been able to meet one of its major expectations, that of “financial sustainability” by implementation of the “micro-finance and income generation programmes”. Despite noteworthy achievements, at this stage the WRC will need crucial strategic support in order to maintain its present capacity and improve its in-house competence to become a strong civil society actor and government partner involved in gender awareness-raising.
6.2 Organization and Management of WRC
Building the Women Regional Center NGO
According to the Project document, the initiative of establishing the Women’s Center also came from the “bottom”, as a request from women in the region. A group of representatives of the regional and district governmental and non-governmental
22 See Findings Concerning Project Concept, design and Strategy.
27 External Evaluation: Establishment of Women’s Regional Center in Samtskhe-Javakheti, Georgia August 2005 organizations had met on 14 March 2003 and discussed the issues of gender imbalance and the importance of gender mainstreaming in the region. They had submitted their concept on gender issues to the programme Manager of the SJIDP and officially asked for assistance in establishing a Women’s regional resource center. Following, the SJIDP experts had conducted a survey on gender status (in the absence of any available research on the region) which fuelled into a proposal leading to the creation of the WRC NGO within the framework of SJIDP.
The NGO was officially registered in Akhaltsikhe in October 2003, a month after a trust- fund agreement for the project “Establishment of the Women’s Regional center in Samtskhe-Javakheti, Georgia” was signed between UNDP and SIDA as a “Union “ named as the “Women’s Regional Center in Samtskhe-Javakheti” 23 according to the current NGO law. According to several accounts, the NGO is perhaps among one of the most visible and active local NGOs of the region. Its presence, mandate and scope of activities have been ground-breaking in the secluded Samtskhe-Javakheti region throughout the Soviet era.
NGO Composition and Organization
The five founding members included two Georgian and one international UNDP collaborator, one member of the Akhaltsikhe District Gamgebeli 24 and an Armenian director of a local Women’s NGO. A three-member management board was set up and included an Advisor to the State Commissioner of the President of Georgia in the Samtskhe-Javakheti region, and two of the founding members: one the Gamgebeli and two the Armenian founder-member heading her own NGO. An NGO was founded, as the Project at that time considered that local government structures lacked capacity to accommodate such a structure and the gender mainstreaming programme. The institutional character of the NGO was indeed unique and experimental as it was an interface between government and civil society as the local Board of Trustees and management was made up of both governmental representatives and NGO representatives backed by UNDP. The Project document defines the new institution as one that “straddles between government and civil society, it is a regional, non- governmental institution, giving it independence, but its Board of Trustees is made up of governmental and non-governmental representatives. These women will be members of the organization and will participate in the implementation of the project”. 25 This a- typical conception was certainly useful in the given context of the region and rapid political and institutional changes the country has been undergoing. It however weakened the possibility of stronger involvement of civil society actors in building the Project. It should be noted that the Regional Governor is the National Project Director of the SJIDP/WRC. Modifications to the Charter of the NGO were made in winter 2004 to broaden the Board to include a total of seven members (six representing each Rayon or district of the Region and one person representing the Center). The change was also a response to what I consider as an unanticipated “sluggishness” in the capacity of the
23 Charter, Union Women’s Regional Center in Samtskhe-Javakheti, registered by the Akhaltsikhe Regional Court, No. 5/2-112, October 2003 24 Gamgebeli is a representative of the executive at the district level under the region, appointed by the President, he/she is chosen in terms of loyalty and influence in the region generally from the local society. 25 Project Document. p. 11
28 External Evaluation: Establishment of Women’s Regional Center in Samtskhe-Javakheti, Georgia August 2005
WRC as a regional NGO26 ; only a few months after the NGO had been set up. It did however allow for better and more balanced coverage of all districts and was a positive step towards integration. The changes however omitted to make significant impact on the culture of the NGO as a civil society player.
As stipulated in article 5.4 of the NGO Charter the Management board is elected for the post for an indefinite period of time.27 The NGO presently boasts a membership of 61 members, 25 active members (three representatives in each Rayon) and 36 associated members who have been mobilised during out-reach activities of the WRC. The role, rights and duties of these members are not clearly identified. A group of women I met in Akhalkalaki, who were all members of the NGO, told me that they had never seen the NGO charter for example. This I understood meant that they had not been solicited to vote nor participate in the shaping of the NGO. The NGO is yet to fully function in a democratic manner based on its present mandate. The “life-long” position of the Board needs to be modified allowing for new members of the NGO to have the possibility of electing and being elected and making their Board accountable for the actions pursued by the NGO. On the other hand if the NGO wishes to evolve into a specialized development Agency, it no longer needs to expand its membership base but could instead create a network, platform or club in order to mobilize women and men activists, associations and NGOs as one of its sub-activities.
The position of Chairman is presently occupied on a 4-month rotation system. Despite my understanding of obvious motives behind the decision, I believe that this form of management weakens decision-making processes, responsibility and accountability. A professional manager could be named or elected on a yearly renewable basis based on his/her managerial capacities to supervise the diverse activities of the NGO.
Five directions are now headed by NGO Board of Trustees members who are assigned with one or two sub-projects within the Project frame-work28. They support/are supported by the eight-member WRC staff which include Project Coordinator, Governmental Liaison/Senior Gender Specialist, Project assistant, Driver, House keeper and three guards. The SJIDP personnel including the international CTA-SJIDP Programme manager, Infrastructure Specialist, data Analyst and Programme assistant ensure Programme consistency and coordination on a part-time basis. The Board of Trustees members have received some training in NGO management, leadership, skill development and have attended training sessions led by the ICCC, which was implementing the sub-project on training. It is generally agreed that the trainings undergone by the Board have been successful in creating capacity in NGO management.
Some shortcomings are inherent in the manner the NGO was formed. In the nature of the Project, the NGO was to act both as an implementing partner for the UNDP/SJIDP and function as a semi-governmental agency with an ambitious agenda: advocacy, governance, gender mainstreaming, policy advisory, poverty alleviation and job creation. The challenge today is to better define the strategic departure the NGO could take in regards continuing needs in the region and concrete and potential capacity in its possession.
26 Progress report, January-February-March 2004 27 Charter, op.cit. p. 7 28 See ANNEX 4 for WRC Structure
29 External Evaluation: Establishment of Women’s Regional Center in Samtskhe-Javakheti, Georgia August 2005
Sustainability of the Institution
It was planned in the Project that the NGO would in term have concrete decision-making capacity in shaping its policies and conducting projects. This outcome was perhaps an ambitious demand put on the WRC and an optimistic prediction in the context of the region and the novelty of the institution. Nonetheless the NGO has taken steps in the direction of creating human capacity as portrayed above but has been lacking in building fiscal resources to carry out its operations. The staff was recruited based on its expertise and experience. The Board members, coming from different walks of life: academia, journalism, agriculture, governmental positions were not generally highly skilled in gender development nor did they in the majority of cases have any experience in running a non governmental organization. They have, like most newly created NGOs in transition countries learned the task by accomplishing it.
The extent of the need to build staff capacity about complex issues of gender, women in development and the standards and action to promote and empower women in society was underestimated when the project was launched. The formal education received by WRC Board neglected the development of analytical skills. Board members of the NGO underwent training and in my opinion still need to be coached in order to strengthen their capacity in strategic planning. Exposure to working methods used by grass-roots organizations which may function with limited budgets but use creative means to enhance their programmes may be of use. Experiential training assisting the Board and the staff to take the concepts they learn and apply them in their work is still needed. Introduction of performance review of staff and Management need to be reinforced. The reviews should instill a sense of responsibility and accountability for the quality of their work.
Moreover, the Board was not completely empowered in terms of decision-making and strategic planning. Effective strategic planning may not have been realistic when the WRC was establishing itself over the past two years. The project was shaped within the SJIDP, which allowed a rapid “take-off” of the WRC. During the second year of its activities more investment was made to strengthen the NGO expertise and managerial skills. Procedures for decision-making however are yet to be clarified both from outside and within the NGO. As regards daily implementation of work-plans the NGO Board and Staff seem to have a freehand in organizing their work even if some decisions are made on an “ad-hoc” basis according to one Board member. Most projects function and are implemented in a top-bottom fashion, between UNDP/SJIDP and the WRC on one hand and between the WRC Project Coordinator hired for both his NGO management skills and English language capacity and the Board. One example put forward by a Board member was the little say the NGO had in formulating tenders for the sub-projects. According to this Board-person, some omissions in the text of the tenders and agreements signed with partner organizations meant that the NGO board and staff were not actually implicated in the actual process of implementation by those organizations (such as in the Micro-Credit project or the gender-related Research project). In the two cases crucial opportunity for transfer of know-how was neglected. Involvement in the Micro-credit activity would have allowed the WRC to learn how the mechanism functioned, monitor the choice of beneficiaries (an issue which became problematic with the implementing organization), and learn about the needs of the target groups and link
30 External Evaluation: Establishment of Women’s Regional Center in Samtskhe-Javakheti, Georgia August 2005 them to other on-going sub-projects of WRC. Greater participation in the gender-related Research would allow WRC to learn about research methodology, meet a large array of respondents and fully furnish the team with elements for the Policy advisory and the long-term action plan on Gender Policy in Samtskhe-Javakheti towards which the WRC is working. The two processes would have been a suitable capacity-building occasion and contribute to the sustainability for the WRC.
The roles of UNDP/SJIDP and their relationship with WRC and modifications in the planning and decision-making mechanisms within the WRC are needed. These could be fine-tuned based on the level of independence the NGO would be able to develop and the direction it will take.
Sustainable Financing
Although the Project plan foresaw that the WRC would reach financial sustainability by implementing micro-finance and income generation programmes, this was not achieved during the two-year lifetime of the project. The Project envisaged that specific attention was needed to ensure long-term viability of the Center but not as a focus area on par with the four substantive areas29 of focus in terms of resources required.
The creation of WRC was based on one source of funding (approximately 613,000 US$) from SIDA, managed by the UNDP/SJIDP project. 30 The Project designed the WRC as an out-sourcing fund-distributing agency. Three major activities conducted by WRC namely Micro-credit, Research and initial Training were implemented by other NGOs and institutions (the last two were granted through tenders). From the launch of the project the Micro-credit component was to be implemented by World Vision/Georgia/Georgian Entrepreneurs Fund (WV/GEF)31 a micro-finance program of World Vision International in the country. It is estimated that an organization requires at least five years of experience in order to be able to soundly manage and conduct micro- credit loans. In this sense it was ambitious to expect the newly-found WRC to have the capability of conducting micro-loans. The WRC, in the absence of clear design in terms of income generation for the Center was not able to devise and implement income generation activities.
The WRC approach to resource mobilization should be to diversify. The WRC could establish more viable working relationships with and benefit from the expertise of major development and human rights organizations present in Georgia. UNIFEM, UNFPA and the EU have already been approached by the SJIDP/WRC for various components of the projects. The WRC has in some cases suffered from general low interest by funders
29 Addressing gender needs for data collection and analysis; Raise awareness among public, Strengthen capacity of local government through designing policies for gender development and Support and economically empower women throughout the region. 30 Swedish support to the South Caucasus began in 1991 in the form of humanitarian assistance. Long-term development cooperation started in 1996 with a project in Georgia. From 1998 onwards, Armenia was incorporated and, to a limited extent, so was Azerbaijan. During the period 1996-2002, development cooperation has included the fields of democratic governance, the social sector, trade and industry, infrastructure, agriculture and forestry and the environment. A geographical breakdown of the projects gives the following: regional projects (39 per cent), Georgia (39 per cent), Armenia (20 per cent) and Azerbaijan (2 per cent). 14,554,162 SEK (approx 1,930,260 $) were allocated to Human rights and democratization in Georgia in 2003. http://www.sida.se/Sida/jsp/polopoly.jsp?d=662&a=7764 31 The WV/GEF was transformed in spring 2004 into a locally-registered foundation VF Credo.
31 External Evaluation: Establishment of Women’s Regional Center in Samtskhe-Javakheti, Georgia August 2005 in gender programmes in Georgia. Other UN agencies such as UNICEF and WHO and the OSCE may however be solicited especially in supporting research and regional survey concerning Violence against Women (VAW) and Violence against children (VACH) as they have supported similar programmes in countries such as Afghanistan and Tajikistan. WRC coordinating field activities (publishing a weekly bulletin of humanitarian/development programmes in the region) could be planned and supported by OCHA. The BP/BTC Field Social Coordinator expressed interest in exploring future activities in the domain of gender mainstreaming during my meeting in the field. Common projects can be formulated and funding sought in collaboration with National NGOs and Centers the WRC has built working relations with notably the IPS and the ICCC. Finally the WRC, as an institutional partner of the local government, could in the long term expect contribution by the government for its project budget.
Ideas for small income generating activities such as sale of publications cannot obviously cover the projects engaged by the NGO. Strengthening service-providing activities of the NGO which the Project had originally envisaged such as “establishment of small enterprises for example sewing centers, bakeries, rental shops for dresses, English and computer classes, trainings courses on business management, market analysis, book-keeping, sale of women’s handicraft production” or other possibilities closer to the mandate of the Project such as a functional Resource center, publication of a weekly humanitarian/development newsletter, policy advisory, research and translation services among other forms of generating income can be planned and built with the assistance of a business planning consultant.
Given current and potential interest in supporting the Samtskhe-Javakheti region it is crucial for the UNDP to continue its assistance to the WRC on three fronts: as an implementing partner in the framework of the SJIDP, in seeking funds for projects led by the WRC and finally in promoting its achievements at the national level and inside the development community.
WRC Cooperation with External Actors in the Region
The WRC was planned “not only to be training and resource Center but also the forum for non-governmental representatives32. The WRC, according to the Project plan “would emerge and encourage other NGOs and will play a catalytic role in promoting the organization of rural women and their participation in local social, political and economic life”. It had also been envisaged that apart from income generating activities, the WRC would take on activities such as music and drawing classes for children, seminars on human and women’s rights, health, hygiene, psychological counselling services” which would allow to activate the Center and make it a focal meeting point for the community. The annual project Report in August 2004 stipulated that following successful completion of major-sub-projects during the first year, the second year other than implementation and monitoring of sub-projects would allow the WRC to “establish the NGO network in the region as well as strengthen the relations between non-governmental and governmental structures”. This would reinforce good relationships and effective collaboration and ensure not only gender mainstreaming, but “security and socio-
32 Semi-annual Project Report, December 2004, p.4
32 External Evaluation: Establishment of Women’s Regional Center in Samtskhe-Javakheti, Georgia August 2005 economic prosperity of the Samtskhe-Javakheti region and integration of this remote area wit the rest of Georgia”.33
Given the broad range of sub-activities and the initial phase of in-house capacity building, the WRC has yet to actively create a local NGO network and become a federating point in order to enforce collaboration between government and civil society. This has been a rather challenging endeavour in almost all Transition countries due to competition between NGOs due to scarcity of resources and “monopoly” of development areas. The dispersion also roots from the nature of the drive to rapidly “fabricate” fund- driven NGOs, which over-night, are supposed to act as civil society actors without any grass-root impetus or experience. The creation of forums or strong networks needs to be encouraged but can only take shape around common objectives when actors are convinced about its necessity.
I received contradictory messages to as why the WRC had not become a “lieu” of federation. One opinion was that the WRC could have more effectively mobilized the large group of resource persons, mainly women, who had gathered with enthusiasm around the project. They had not been directly solicited in the following phases of constructing the project and had not been able to immediately find much-needed income through their collaboration with the WRC. A second opinion was a firm belief that society was in general open-minded as to the existence of a “Women’s” Center in the region, as in the Soviet era similar structures such as the Jenski-Soviet (Women’s Council) had existed. The problem being that the women’s expectations of the WRC in response to a large array of socio-economic, health and employment needs exceeded the real capacities of the small organisation. A third opinion was on the contrary one which believed the Center suffered from its name which does not reflect its principal concern and activity i.e. that of gender inequality and awareness-building and not only promotion of women. It was suggested that “Gender” or “Citizen’s” Center would be a more appropriate name and send a clear message to both men and women. The choice of name is a strategic decision. It is linked to the nature of activities and needs to be locally-adapted. The word Gender is in itself a relatively new concept and not fully understood in many countries of the world including France. Many languages do not even have an equivalent for the word and use the English term. Depending on the nature of actions pursued by the WRC a name-change could be considered.
The WRC possesses the capacity but perhaps has lacked incentive and underestimated the importance of creating strong networks with other local NGOs. This strategy could prove to be extremely fruitful in the specific context of Samtskhe-Javakheti and within the framework of the organisation’s mandate. It can enable the WRC to act as an intermediary between the local actors and the International aid and development community; thanks to its established links with the UNDP/SJIDP and the local government. One practical step in this direction could be WRC’s assistance to local Government’s coordinating capacity by publishing a weekly “humanitarian” report reflecting on-going projects led by civil society and international organizations in the region. The model of such weekly reports and their utility can be solicited from UN/OCHA. It will strengthen local government in much-needed coordination, be useful for aid organizations, create dialogue and give visibility to local NGO actions.
Role of UNDP
33 Annual Project report, August 2004, p.12
33 External Evaluation: Establishment of Women’s Regional Center in Samtskhe-Javakheti, Georgia August 2005
The UNDP played a consequential role in the management of project formulation, financial contributions, coordination and implementation, as well as the provision of technical assistance and advice concerning implementation of the sub-project projects. UNDP has demonstrated strong commitment to providing support to the WRC as an institution, has assessed overall needs, and emphasized capacity building within the WRC and facilitated strong relations with local government. It has played a role of catalyst for promoting the WRC and strengthening the institution by making available best practice standards, methodology and networks at the national and international level.
The UNDP has coordinated the Project implementation with the Swedish International Development Agency, the unique donor to this project. SIDA has thus counted on UNDP to take the necessary steps in designing and supervising the Project.
The UNDP support has enabled the WRC Project to become perhaps one of the only actors in Samtskhe-Javakheti engaged in public gender awareness while ensuring opportune actions contributing to integration and confidence-building among the various ethnic groups living in the region.
The UNDP/SJIDP management in Samtskhe-Javakheti is regarded as extremely helpful and knowledgeable by the WRC team and project staff. Continuation of the role played by UNDP to date to a similar standard will be important since the efforts of the WRC have the potential to attract additional donors and partners.
At the end of this two-year project, which I consider as a successful Pilot, UNDP is in a position to draw concrete lessons from this experience. Albeit challenges the Project has encountered, the “reformed” WRC model can be replicated in other regions of the country and could find its place in the long term strategies the UNDP will be advising to government and pursuing in Georgia.
6.3 Sub-project Implementation and Results
I have chosen to start with sub-projects which have had the most impact or have been perceived by my interlocutors as being the most visible and successful projects carried out by the WRC. Despite the Projects ambition to create strong links between the sub- projects, the process has yet to forge practical inter-connectivity between the sub- projects.
Small-Scale Rehabilitation Component
The project aim was the rehabilitation of selected social services sites for women and children, mainly in the areas of health, education and culture. This sub-project was the second project to be implemented after the Micro-Credit component with a budget of $90,000.34 The Sites were identified through a participatory process based on a small survey on priority identification in each one of the districts in the region by the end of January 2004. The results were approved by Rayon level officials and WRC representatives from each district drew up proposals targeted at improving social conditions of the population. The strategy for the sub-projects and TORs for the
34 Progress reports, January-February-March 2004/ August-October 2004
34 External Evaluation: Establishment of Women’s Regional Center in Samtskhe-Javakheti, Georgia August 2005 rehabilitation works were developed in cooperation with SJIDP staff. Documentation for Construction companies to participate in tenders, were prepared. Local tender Committees were set up to evaluate bids and to ensure community participations and transparency. The companies were contracted by UNDP. The various equipments were locally advertised and purchased through bids.
Regular Progress reports produced by WRC account the launching and implementing process of each of these projects.
Six projects in every district have been successfully completed35 by the Project and are functioning:
. The Diagnostic laboratory in the Policlinic of Akhaltsikhe, where the laboratory rooms were renovated and equipped The laboratory was officially inaugurated on 14 May 2004 during the WRC public event “’Tamaroba’’; . The Children’s ward at the Akhalkalaki District Hospital was renovated ; . The Maternity ward at the Ninotsminda District Hospital was repaired; . Women’s Consultation Rooms in Maternity House of Borjomi was renovated and equipped with ultrasound equipment, the only one in the entire district; . A Computer Center in Aspindza was established; . A Computer Center in Adigeni was established. 36
The six sub-projects have been widely acclaimed in the region and have been considered as extremely useful by the population. When asked what they considered as achievements of the WRC almost all my interlocutors immediately pointed out to the above rehabilitation activities. This sub-project has given strong visibility to the WRC.
I was able to visit only on of the above sites during my mission: the Computer Center in Aspindza which has been equipped with seven computers and two printers including one which is also a photocopying machine and new desks and chairs. It is housed in an orphanage of 45 permanent orphans and 95 children from precarious families ranging from 4 to 17 years of age. The head of the Orphanage whom I did not meet is said to participate in WRC activities. I met with the in-house salaried trainer. The Computer Center (CC) which has no Internet connection offers training sessions to a public of students, accountants and medical personnel. The CC is open to the public has had a total number of 53 trainees in the last six months, 15 of whom are still under training. Access is free for government workers, women with multiple children, and the orphans above the age of 14 (the age limit has been set by the director). The CC sends a monthly report to local UNDP/SJIDP/WRC.
The CC as it stands does not generate enough income to pay the salary of the trainer which is presently covered by the Orphanage with a percentage on income from the computer center. It has not envisaged how to cover expenses in case of material break- down. The CC has not publicised the facility, due to absence of newspapers but has advertised a one page flyer inside governmental buildings. The CC has not been in contact with High schools in the district.
The WRC project could assist the CC in raising its capacity including business training enabling the center to be more pro-active in seeking customers, developing advertising
35 Four projects had been completed by the end of the first year of the project life in 2004. 36 This last sub-project was completed in spring 2005.
35 External Evaluation: Establishment of Women’s Regional Center in Samtskhe-Javakheti, Georgia August 2005 strategies, setting up contracting with schools and universities or private companies and offering other services such as typing lessons, accounting, language training, photocopying etc. The WRC could assist the CC in finding funds for Internet connection which would in turn attract a larger number of clients and users. The WRC could also empower the CC as a meeting place for its on-going activities, round tables, seminars in the district. Finally the WRC could use the CC as a dissemination point for its awareness raising activities and publications.
Research and Analysis
The WRC was expected to acquire the ability to conduct research and field studies concerning women’s status in the region as well as collect, analyze, and publish data, indicators and statistics on women’s economic, social and political conditions based on the above mentioned expertise. This was considered as a vital component and inviolable part of the project.
This component of the Project was put on tender, due to absence of in-house capacity and the UNDP/SJIDP/WRC project contracted the Institute of Policy Studies (IPS)37 that won the tender among five organisations to carry out the ambitious and in-depth “Gender Related Research and Analyses in the Region of Samtskhe-Javakheti” with a budget of US$15,000. The project task included the important element of collecting all available data and statistical information. It also aimed at identifying the status of women, and social, political and economic participation of women in the region; define gender roles in families and finally the causes of such gender-related problems as family violence and gender stereotypes. The analyzed materials were to be disseminated among the stakeholders, NGOs, and the public at large. The sub-project was officially launched on May 5, 2004 and by the end of the year IPS had finished implementation of the project. An English version of report is presently available.
The first goal of the study, according to the researchers was to gather basic qualitative and quantitative information on the situation of gender differentiation in Samtskhe- Javakheti in order to document gender segregation in public and private lives focusing on the existing cultures of the two dominant ethnic groups Georgian and Armenian, residing in the region38.
The qualitative research was carried out through the following methods and activities:
. Survey - The planned survey of the population of all six districts of Samtskhe- Javakheti region was carried out. A total 700 interviews were conducted. . Data entry - The filled questionnaires were entered into SPSS program. . Essay writing in schools - In one school of each of six districts, i.e. school No. 5 in Akhaltsikhe, School in Adigeni, school in Aspindza, school No 1 in Borjomi, Armenian school in Ninotsminda and school No 1 in Akhalkalaki 9th grade pupils were asked to write an essay on the topic “Me, in Ten Years”. Totally 126 pupils participated.
37 The IPS had also conducted for the Open Society a research on Development in Samtskhe- Javakheti. 38 Institute for Policy Studies, First Project Report, Sub-project : Gender-Related Research and Analysis in the region of Samtskhe-Javakheti, n.d.a
36 External Evaluation: Establishment of Women’s Regional Center in Samtskhe-Javakheti, Georgia August 2005
. Focus group meetings - In one school of each of six districts, i.e. school No. 5 in Akhaltsikhe, School in Adigeni, school in Aspindza, school No 1 in Borjomi, Armenian school in Ninotsminda and school No 1 focus group meetings concerning gender issues with school staff was held. . Translation of essays - the essays written by pupils of Akhalkalaki and Ninotsminda, were translated from Armenian into Georgian. . Content analysis of essays - The categories for the content analysis were identified, the file for the data entry prepared. . Statistical analysis of surveyed data
The survey was carried out by a team of 50 surveyors who were trained by the three- member IPS group. They included three surveyors selected among the WRC Board member and students it was able to mobilise from the region. Georgian, Russian and Armenian were used as working languages according to the districts. Two IPS researchers wrote the final report.
The survey results point out to critical areas which include the economic situation of rural women (land rights, female-headed households), the crisis-ridden youth and the great disparities inside the region. The survey findings do not fully address the issue of Violence against Women and children. The issues remain highly taboo among the Georgian and Armenian communities who were, according to the surveyors, otherwise easily accessible, receptive and ready to share information. The question of family and social Violence in the region has multiple facets like in all countries (domestic violence, honour rights, and state violence). This warrants specific survey designing and could become an important element incorporated in the public awareness raising activities of the WRC.
According to one co-author the strength of the project resides in the amount of information gathered which could be a useful for all policy makers. The WRC has been genuinely enhanced in terms of information it now possesses. Support at this stage to the WRC keep the data and information updated on a regular basis and to identify areas which need further investigation and research is paramount. The statistics and data gathered by the project and the outcome report are formidable tools made available both for WRC. The recommendations made by the Report create a strong base for policy formulation. The high quality of the research and analysis produced should enable the WRC to decipher the findings and turn them into strategy interventions in the scope of its mandate. These will direct and give substance to the advocacy and policy advising and awareness raising campaigns which can become well targeted and effective.
Two hundred copies of the survey in English were published, one year later in summer 2005 and in possession of WRC. The report was originally written in English (as the contract with ISP had not specified language). This means that almost none of my interlocutors (to the exception of some Board members) have been able to read the report and comment on its usefulness.39 It is crucial that a quality translation in Georgian and Armenian/Russian of the report be made available as soon as possible for all stakeholders and targeted distribution among the general public.
39 The few International organizations and active in the region which I met had not yet received the Report.
37 External Evaluation: Establishment of Women’s Regional Center in Samtskhe-Javakheti, Georgia August 2005
The WRC could seize the occasion to give the report and findings high profile through different stages40. The report findings or an abridged version of the report should be disseminated by WRC through Media and Internet. The UNDP/SJIDP/WRC could initiate with partners the organisation of a national/regional conference on gender in Samtskhe- Javakheti involving governmental and non-governmental actors and International organisations such as UNIFEM and OSCE and NGOs active in this domain and put to debate the findings and create premises for concrete action. This would also allow the WRC to seize the momentum to federate local NGOs around a regional platform for action.
The WRC could build on the research capacity of the students who had been mobilised from the region during the surveying phase of the project especially in updating the data base
Policy Advisory Service
The Sub-project, an important element of the Project aimed at providing gender policy advice based on research and analysis conducted by the center, to government; promoting gender mainstreaming among different sectors; and building the capacity of institutions and decision-makers through training in gender analysis. The project was launched in-house in January 2005. The WRC Senior Gender Policy Specialist/Governmental Liaison has been assigned to Policy Advisory Services in line with the action plan that was prepared in WRC. A three-year strategic working plan is in the process of completion. The Work Plan has the ambition of determining the role of gender policy in the region in promoting gender equality and making recommendations to the government to reach gender balance within governmental structures.
A series of thirty consultations for the “Creation of long-term Action Plan for gender policy in region”, were carried out and a questionnaire prepared by the Senior Gender Policy Specialist in consultation with WRC project coordinator and Board members, were filled out by individuals from five distinct groups: local government, media, local NGOs, Sacreboulo (Locally elected Assemblies) and Political parties. The interviewees were solicited for their opinion on what they thought were the best strategies for gender mainstreaming and what steps were to be taken in this direction.
Analysis of the findings was not available at the time of my mission. Hopefully it will also make abundant use of the findings and build on recommendations made by the previous comprehensive sub-project Gender Related Research and Analyses in the Region of Samtskhe-Javakheti. Due to the belated launch of the present project and the gender research the two projects were carried out separately and the WRC Gender Specialist had not been involved in the previous project. Coordination in marrying the two projects would have allowed the WRC to consult with larger number of persons and benefit from findings directed to policy.
The Action Plan will need to be strengthened through a second round of consultation with a smaller group of specialists and actors with a sound knowledge of the region and its “on-hand” and potential capacity and familiar with best practices in the domain of
40 The IPS has presented findings to the Governor of Samtskhe-Javakheti who has not yet read the report.
38 External Evaluation: Establishment of Women’s Regional Center in Samtskhe-Javakheti, Georgia August 2005 gender mainstreaming. The local government structures also have to be implicated in this process for feed-back and reaction.
Before presenting the final Plan a more receptive premise for the regional policy-makers should be made by WRC in order to build confidence and acceptance. Although the Governor frankly admitted that he needed “backing” in his work and condoned the necessity for a Gender Advisory role, he expressed worry about artificial mechanisms such as the quota system. Local government, in my opinion, still needs a large amount of convincing about gender-related activities in the region. One official I met during my Mission was convinced there was no gender imbalance in the region and that the issue is “automatically regulated by nature”. If the aim of the project is practical implementation of the recommendations, then it needs to accompany the decision-makers in this process based on the reality of their environment. The novice Governor’s team at this stage is convinced that women’s problems are similar to that of men in the region and that gender imbalance is not tangible in the public sector but only a problem in the rural areas. The WRC could play a determining role creating intellectual capacity at the official level to strategize its action in the region in terms of gender equality. This should be coupled with training/discussion/debate sessions with the local government to ensure that the concepts and premises become of common accord.
Training offered by the WRC in this process is best directed at Local decision and policy- makers, political parties and journalists. Awareness raising activities should target media both at the regional and national in order to trigger debate about this subject.
Establishment of the Training Centre
The International Centre for Civil Culture - ICCC won the tender to implement the sub- project on establishing the Training Centre within the framework of the WRC in order to provide training to women in the region based on their needs and requirements. ICCC in cooperation with two other Georgian NGOs - Centre for Training and Consultancy (CTC) and Association of Business Consulting Organizations of Georgia “ABCO-Georgia” each specialised in specific domains, executed the multi-profile training programme during one year for a total cost of US$ 22,024. The aim was to build capacity inside the WRC by training of trainers (TOT) in order to independently realize training service- programmes to promote gender awareness and enhance women’s political participation, leadership, vocational training, ICT, and skills development.
The project had been designed such that in term the activity could also become a source of income and contribute to financial sustainability of the WRC.
The training package included six major components:
1. Skills Development - Interpersonal Communication, Presentation, Leadership, Trainers’ skills/facilitation 2. Gender trainings - main concepts of Gender/Gender roles and stereotypes, Gender Analysis/Gender Mainstreaming, Gender Assertiveness 3. Human rights; Political participation 4. Reproductive Health 5. Business 6. Vocational Identification and organizing of vocational trainings, ICT
39 External Evaluation: Establishment of Women’s Regional Center in Samtskhe-Javakheti, Georgia August 2005
This sub-project was officially launched on 5 May 2004. The first phase included Training for trainers (TOT) and Basic Communication Skills, the purpose of which was to create capacity of provision of communication skills training among local human resources under the WRC. The criteria used to mobilise trainers was based on regional balance between districts. The WRC Board and staff also underwent training in the same group. Follow up trainings of the 1st component were also conducted in order to provide training participants with basic communication skills and also to give possibility to local trainers to gain practical experience. The role of the CTC was to coach and mentor the trainers during the conduction of the course).
Upon the completion of the training cycle, WRC had a locally based team of 17 trainers from all the regions’ districts and was in possession a package of the training manuals and handouts. However the training materials are not available in Armenian (to the exception of gender training material). A total of 123 women were trained during the process.
What would become of the trainers after the initial learning process was of concern for the ICCC. The last phase of the project included participation of the ICCC in defining WRC strategy for further development of the training component within the center. A WRC scheme for training direction forms and duration of trainings and ways to work in a sustainable manner were discussed with the WRC.
The WRC with its team of trainers have since the end of project conducted a series of trainings in gender and business planning for a group of 90 persons which include government officials, women with large families and teachers in several districts of the Region.
In the last six months the training and awareness-raising activities have complemented each other in a coordinated manner. This could be considered as a great achievement for the WRC in making fruitful use of the capacity it has acquired. It is also a good indicator that once incapacitated, the WRC is able to plan and implement its own activities. This is a promising start as until then some of the major sub-projects had been put on tender and carried out by other partners, which made it difficult to measure WRC in-house potential and initiative in formulating programmes.
At this stage the WRC could now better define and target the groups it seeks to train. Targeting groups in positions which can influence a larger number of persons (government officials, journalists, teachers) or whose work is in direct relation with the population (medical personnel, police, prosecutors, NGOs), allows measuring impact and making training an integral part of the Project’s awareness-raising component. Through a concerted effort several components of the activities led by the WRC can be mutually strengthened. Training and follow up with Government officials at all levels for example will be a useful input now that the WRC is presenting its three-year plan on Gender in its Advisory role. Closer collaboration with Credo in micro-credit allocations would have allowed the WRC to make available business training for beneficiaries and strengthen their capacity. Finally closer coordination with other NGOs and or International Organisations in the region would allow the WRC to not only come in with their expertise when needed (the CHF East Georgia Programme for example is working with more than 80 Community Development Centers that could make use of training packages the WRC has) but also generate income in exchange for training services.
40 External Evaluation: Establishment of Women’s Regional Center in Samtskhe-Javakheti, Georgia August 2005
The WRC is thus at a stage where it needs to create a strong work strategy to make the best use of its in-house training skills and experience. It may, in this process need more coaching in designing what steps to take next. This can come from an experienced organization such as the ICCC which was itself founded by a small group of people in Tbilisi only five years ago, but now has developed into a full-fledged NGO selling its services and expertise in Training.
I would like to conclude with one last comment about the training materials. All components would have to necessarily be translated into Armenian/Russian to be used with the Armenian community in the region.
Public Awareness Campaign
The aim of the project was originally to disseminate the results of the research and analysis through publications, media, via contests and other public outreach strategies. According to the Project, using the results of the research and analysis was a starting point for social dialogue particularly between government and civil society and building sustainable networks between these structures to support the advancement of women and the promotion of gender equality. This component of the project has yet to be realised. Now that the Gender-related findings and report are available, the WRC could respond to the above objective. I have made recommendations on the array of possible actions in the pervious section “Research and Analysis”.
During the year 2004, the SJIDP/WRC in collaboration with the Governor of Samtskhe- Javakheti (the National Project Director) had co-organised two high profile events as part of its awareness-raising activities on gender issues. On May 14, 2004, the public event “Tamaroba” in Akhaltsikhe - Queen Tamara Memorial Day was also the occasion to inaugurate the new premises of WRC. On November 26, 2004, a Forum on “Promotion of Gender Equality in Samtskhe-Javakheti” was held at Regional Governance’s office conference hall and hosted by the Governor of Samtskhe-Javakheti region, the UNDP Deputy Resident Representative, Representatives of International Organizations, SJIDP office officials, leaders of NGOs, representatives of executive power, mass media, members of WRC, students, and academics. Speakers presented papers and made recommendations on promotion of gender equality facilitation of the dialogue and cooperation on gender issues in Samtskhe-Javakheti.
In March 2005, a 5-month Gender Awareness sub-project was launched in-house by the WRC. The aim of the project was to popularize gender issues and to raise public awareness in Samtskhe-Javakheti. Project Activities included organisation of two workshops, four debates, exhibitions and concerts on gender issues. Four issues of the WRC newspaper were edited covering the various activities of the Center (special events and account of sub-projects) with a circulation of 1000 copies. The Newspaper includes two pages in Armenian although not all articles are translated from Georgian. The Newspapers have been distributed throughout the Rayons with the help of Members and during events organised by the WRC. Three special 25-minute long documentaries aired on local televisions and one transmitted by National TV were made portraying activities of the WRC. 450 Booklets describing gender equality and its importance were published in Georgian and distributed. The Report on “Gender equality in Samtskhe- Javakheti” was published by the WRC in summer 2005. The WRC has also organised a series of civil education projects including Student debates, workshops and regional exhibitions and contests in all districts of the region. This has been the occasion to raise awareness about issues such as gender imbalance, violence, trafficking and rights.
41 External Evaluation: Establishment of Women’s Regional Center in Samtskhe-Javakheti, Georgia August 2005
Creating space for debates and open exchange of opinions has been a novelty and highly appreciated by participants who have asked for more such occasions. Cultural events like a recent Concert organised by the WRC have been formidable occasions for the public and the youth to gather and exchange in a region with now-limited facilities and occasions for culture, arts and leisure.
The issue of language is probably one of the most sensitive areas in any multi-ethnic setting and high on the agenda in the region. All publications produced by the WRC need to have an Armenian/Russian version for practical reasons in Samtskhe-Javakheti as most of the adult Armenian populations do not speak Georgian. A recent international fact-finding Mission led by the France-based International Federation for Human Rights on Ethnic Minorities in Georgia,41 rightly points to how the question is of major concern for the Armenians in Samtskhe-Javakheti. (Refer to Annexes 5 and 6 of this report)
Micro-credit Component
According to the Project plan micro-credit was specially integrated within the project framework from the start of the Project in order to economically empower the rural women in the region and support the entrepreneurial activities of small and medium businesses. The sub-project has works on providing small loans to mainly women, but not to the exclusion of men. World Vision International, with a good record in this sphere of activities in the country and the region as well, was identified at the outset of the project design as a partner organization. In January 2004 the World Vision (WV/GEF) started the project implementation along with already initiated activities in Samtskhe- Javakheti Region and took its full speed during the months of May-June 2004. At the end of the first year, over US$ 100,000 had been distributed as a loan.
According to WV/GEF has fully disbursed the available loan capital of USD 120,000: 202 loans have been disbursed to the target group. The total value of disbursement to the target groups was USD 159,250. 70% of the loans were issued to female entrepreneurs. 719 children have been positively influenced by the micro loans
The project goal was to support 130 businesses with a minimum of 60% female entrepreneurs. Both goals have been achieved. Total value of loans disbursed since inception of project is USD 159,250. A total of 202 loans have been disbursed: 141 of 220 loans were disbursed to female recipients. The remaining loans were predominantly agricultural loans, whose nature of activities involved the whole family. In these cases social conventions required the head of the family to sign the loan agreements.
41 Ethnic Minorities in Georgia, International Fact-Finding Mission, FIDH, April 2005
42 External Evaluation: Establishment of Women’s Regional Center in Samtskhe-Javakheti, Georgia August 2005
Percentage of Loans Disbursed in Samtskhe - Javakheti Region (Gender Balance)
0% 0% 100% 20% 38% 80%
60% 100% 100% Total Men 80% Total Women 40% 62% 20%
0% 1 2 3 4
The breakdown by sector reflects the local economy, i.e. agriculture and retail are the most common activities. In terms of economic development, production and service are valuable sectors as well but these typically require bigger loans and are not yet frequently managed by female entrepreneurs.
Breakdown of Number of Loans Disbursed by Sector in Samtskhe - Javakheti Region (2004)
75, 37% 94, 47%
13, 6% 20, 10%
Retail Production Service Agro
Job Creation/Income Generation
At the end of March 2005 the project which had originally aimed at creating jobs for women and decrease unemployment rate was postponed pending on analysis produced by the Micro credit component and IPS on analysis of the business development trends, comparative analysis and the risks evaluation in the region. These would assist the Project in correctly identifying the business deserving grant for further growth and expansion.
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7. LESSONS LEARNED
We can expand the definition of “Integration” in the frame-work of Samtskhe-Javakheti as all strategies aimed at reducing conflict potential between people who are objectively or subjectively different (sex, ethnicity, age, political vision etc.) and creating an acceptable frame-work in which each person can fulfill his/her basic human needs. This conception demands durable pursuit of actions which go beyond punctual International humanitarian intervention in any crisis-ridden geography or country. It especially holds true after nearly a decade and a half of upheaval and disruptions experienced by the populations of the region. Long term action in favour of a democratic environment embracing gender-awareness and peaceful cohabitation of diverse ethnic groups warrants long term vision and commitment and a need to move beyond symbolic gestures. In the face of this challenge, institution-building becomes a necessity, setting strong foundations to assure its consistence and stability, an obligation.
The Establishment of the Women’s Regional Center in Samtskhe-Javakheti is an important first step. It has been an experimental one due to its dual non governmental/governmental nature and function with vital links with an International institution. This has been both a constraint and advantage in that the NGO has yet to define its organizational culture and long-term strategy. It has been conceptualized not as an independent and “natural” initiative resulting from local civil society dynamics even though it responds to articulated needs of women in Samtskhe-Javakheti. It has been set-up owing to outside determination and availability of funds as a response to priorities set by the Government of Georgia, UNDP and SIDA but has to imagine its long term sustainability and efficiency without their support.
The NGO has also been under constraint as it has in both its composition and project implementation systematically been confronted with the issue of respecting evenhandedness or at least a balance among all six districts of the region and the Georgian/Armenian component, sometimes to the detriment of merit. The composition of the Board of Trustees/Management Board is a reflection of this process.
At the end of its two-year life, decisive restructuring and rectifications are however needed to reinforce WRC’s identity and ensure its future sustainability as a social actor in Georgia. A consultation between UNDP/SJIDP and directly involving the WRC Board members and the professional staff is needed at this stage to determine which component of its dual identity should be reinforced. If the WRC is to eventually become an inherent part of the local Governor structure then this would implicate creating the necessary premises at the government level including budgeting for the function and clear definition of the role and jurisdiction of the institution.
If the consultation results in a decision to enforce the institution in its NGO form, several concrete alterations are compulsory. In terms of human resources two options seem realistic. Option one: professional capacity of all or several Board members can be enhanced through intensive and extensive coaching to create total ownership and trigger coherent and independent functioning of the NGO.
Option two: not all board members can be committed to greater implication in management of the NGO. In this case a new body within the NGO such as an Honorary Board of advisors could incorporate the less active members and also include high
44 External Evaluation: Establishment of Women’s Regional Center in Samtskhe-Javakheti, Georgia August 2005 profile resource persons from the region. This board will give moral support and advice to the NGO.
In both cases the NGO chart and internal regulations need to be modified in order to include more democratic mechanisms such as elections and possibility for rotation, responsibilities and rights of members to elect and be elected, accountability, separation of powers etc. The scope and limits of decision-making power, fund management and formal relations with the UNDP have to be determined and clearly stipulated in form of a contract between the two institutions (this is especially necessary if the NGO diversifies resources and/or generates income). In both scenarios strong leadership and stable and qualified management and staff are a necessity.
If the consultation results in a decision to direct the institution as a professional Consultancy or agency then it would need to change its status and become a commercial entity according to current Georgian law.
In all three cases real in-house capacities and aptitude to mobilize resources have to be evaluated by all parties during the immediate next months. As a result the appropriate approach in compliance with form and function, life-time and strategy of the WRC could be determined. Support for the Women’s Resource Center Project should go to strengthening its ability to fully grasp the potential action opportunities it possesses. The Center and the NGO have achieved a large amount of experience during a short period of time in the absence of a strong civil society. They have raised expectations in the region both among the government and beneficiaries and need now to be incapacitated to be able to make best use of intervention opportunities in the region. Packaging specialization and services of the WRC in one or a combination of the following domains and functions such as advocacy, human rights, advisory services, coordination, research and surveying, training, development, capacity-building and rehabilitation will allow the WRG to better offer its services to international organizations and donors and concentrate on building towards financial sustainability.
The UNDP is in a firm position to ensure that a strategic approach is adopted and incorporated by the WRC. By continuing their support of the WRC and facilitating cooperation with national and international actors, the UNDP is strongly encouraged to continue to strengthen the Women’s Regional Center capacity and assist the young institution in seeking necessary funds to continue its activities in gender awareness, integration, and empowerment of women. By supporting local government and civil society, the WRC has the potential of fully becoming a social agent in the integration process and development of Samtskhe-Javakheti.
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ANNEXES
ANNEX 1: Itinerary for Project Evaluation Mission Monday 11 July 18:00 Arrival, Tbilisi International Airport Tuesday 12 July 10:00-13:00 Introductory meeting At UN House with UNDP/SJIDP/WRC management 14:00 Meeting with Member of Parliament and member of Gender Equality Advisory Council, Guguli Magradze Meeting with UNDP/Gender and Politics Programme in the S. Caucasus, Project Coordinator, Nino Lagvilava 17:00 Departure to Akhaltsikhe Wednesday 13 July 10:00-12:00 Meeting with WRC Staff members Meeting with WRC Project Coordinator, Beka Mikautadze Meeting with WRC Board of Trustees Member Marina Gachechiladze 13:00-16:00 Meeting with 7 WRC (NGO) Board of Trustees Members 16:00-17:30 Meeting with Deputy Governor of Samtskhe-Javakheti Region, Mr. Papuna Khachidze Meeting with the Governor of Samtskhe-Javakheti Region, Mr. Goga Khachidze 18:00-20:00 Participation at the end of project regional exhibition and Concert 20:00-22:00 Meeting with SJIDP/WRC management Thursday 14 July 13:00-15:00 Travel to Aspindza and visiting WRC Computer Center at Aspindza Orphan House. Meeting with Computer Trainer: Ketevan Muznishvili 15:00-18:00 Meeting with 4 Ninotsminda and Akhalkalaki NGOs and members of WRC Meeting with SJIDP director in Akhalkalaki, Ruben Chomaryan 18:00 Departure to Akhaltsikhe Friday 15 July 10:00-13:00 Meeting with Representatives from International Organizations working in the Region (BP/BTC Field Social Coordinator), CHF East Georgia Programme Director, World Vision) 14:00-15:00 Meeting with Credit Organization Credo 16:00 Departure To Tbilisi 18:30 Meeting with UNDP/ Special Advisor to the BRSP Directorate, Bureau for Resources and Strategic Partnerships, Peter Van Ruysseveldt Saturday 16 July 12:00-14:00 - Meetings at SJIDP Staff at Tbilisi office (TBD) 14:00-17:00 Meeting with WRC partner NGO – ICCC, Lela Khomeriki Meeting with WRC partner IPS, Nana Sumbadze Sunday 17 July 11:00-19:00 Meetings with UNDP/SJIDP/WRC management Monday 18 July 4:35 (Tbilisi Time) - Departure from Tbilisi International Airport
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ANNEX 2: MATERIALS CONSULTED FOR PROJECT EVALUATION
UNDP/WRC Documents and Publications:
Establishment of the Women’s Regional Center in Samtskhe-Javakheti, Georgia, UNDP Samtskhe-Javakheti Integrated development Programme, Application No. 003-03
Charter, Union Women’s Regional Center in Samtskhe-Javakheti”, registered by the Akhaltzikhe regional Court, 2003
Establishment of the Women’s Regional Center in Samtskhe-Javakheti, Georgia, Work Plan, January-February-March 2004.
Establishment of the Women’s Regional Center in Samtskhe-Javakheti, Georgia, Work Plan, April-may-June 2004.
Establishment of the Women’s Regional Center in Samtskhe-Javakheti, Georgia, Work Plan, August-December 2004.
Annual Project Report, Establishment of the Women’s Regional Center in Samtskhe- Javakheti, Georgia, August 2004.
Semi-Annual Project Report, Establishment of the Women’s Regional Center in Samtskhe-Javakheti, Georgia, December 2004.
Establishment of the Women’s Regional Center in Samtskhe-Javakheti, Georgia, Progress Report, January-February-March 2004
Establishment of the Women’s Regional Center in Samtskhe-Javakheti, Georgia , Progress Report, April-May-June 2004
Interim report for the first 3 months: 05 May 2004 -05 August 2004, Project Establishment of the Training Centre within the Framework of the Women’s Regional Centre in Samtskhe-Javakheti
Samtskhe-Javakheti: Realities and Perspectives, UNDP/SIDA/SJIDP/WRC, Tbilisi, 2004
Establishment of the Women’s Regional Center in Samtskhe-Javakheti, Georgia, Work Plan, January-July 2005.
Semi-Annual Project Report, Establishment of the Women’s Regional Center in Samtskhe-Javakheti, Georgia, August 2004-March 2005.
Structure of WRC, 2005
Project Document: Support to the Formulation and Implementation of the Samtskhe- Javakheti regional development Programme, UNDP, July 2005.
WRC Report on First Stage results of the Integration Project, 2005
WRC Reports on Gender Awareness Project (Stage 1 and 2), 2005
47 External Evaluation: Establishment of Women’s Regional Center in Samtskhe-Javakheti, Georgia August 2005
WRC Report About Civil Education Project, 2005
UNDP, National Human Development Report, Georgia, 2001/2002
Project Brief: Gender and Politics Programme in Southern Caucasus, UNDP Georgia. n.d.a
Other Reports and Publications
Annual report on the implementation of the UNDP micro-credit program for economically active women in the rural areas of Samtskhe-Javakheti, World Vision/Georgian Entrepreneurs Fund (WV/GEF), Draft, March 9, 2004.
International Federation of Human Rights (FIDH), Ethnic Minorities in Georgia, International Fact-Finding Mission, April 2005
Jashi, Charita, Gender Economic Issues: The Case of Georgia, SIDA/UNDP, Tbilisi, 2005.
Sumbadze, N and Tarkhan-Mouravi, G, Gender and Society in Samtskhe-Javakheti, Georgia, Institute for Policy Studies, UNDP/SIDA, Tbilisi, 2004.
Tsihistavi, Nina (Editor), Women: Profiling the Situation in Georgia, CWN/OSCE/ODIHR (Regional Project in Georgia: “Women’s Rights Awareness, Gender Equality and Women’s Participation in Society), Georgia, 2002.
Plan of Action for Improving Women’s Conditions in Georgia for 2001-2004, approved by Order No. 1406 of the President of Georgia, December 29, 2000.
Chairperson of the Parliament of Georgia, Order number 105/3/27/10/2004 in Establishment of the Gender Equality Advisory Council Under the Chairperson of the Parliament of Georgia. 27 October 2004
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ANNEX 3:
Terms of Reference
Impact assessment /evaluation of the project “Women’s Regional Center (WRC) in Samtskhe-Javakheti Region”
(11 – 18 July, 2005)
1. Purpose of the Evaluation:
The purpose of this outcome evaluation is to see how UNDP assisted project contributed to the development of WRC as a strong local NGO an entity that was established to address the regional needs for collection, analysis and sharing of gender-disaggregated data and statistics; to raise awareness (among policy makers, civil society, media representative, and public at large) about importance of gender inequality in the region, and strengthen the capacity of governments to design policies from a gender perspective as well as advance those policies to further women’s human development. Other focus will be on economic empowerment of women through micro-credit programme and how its sub-projects are implemented by the NGO and other partner agencies. The outcome evaluation will also determine whether UNDP project is contributing to raise awareness of gender in the region and how regional and local governments were supported to integrate gender issues into their corresponding policy.
This evaluation will attempt to assess systematically and objectively the projects’ relevance and performance to date. Given the interest of UNDP and other partners to consider future support to governance in Georgia, the evaluation should also be forward looking and include recommendations in order to ensure that lessons learned are included in future UNDP assistance in this sector.
The evaluation report would be widely shared with the relevant stakeholders. It is envisaged to convene a meeting to specifically discuss the evaluation results.
2. Background of WRC Project:
Within the framework of Samtskhe-Javakheti Integrated Development Programme (SJIDP), a project in the area of gender mainstreaming and social and economic empowerment of women in the region of Samtskhe-Javakheti was developed in order to reduce conflict potential through promoting local governance, poverty alleviation and the active participation of rural women in social, political and economic life. The project is funded by Swedish International Development Agency with total amount of US$ US$ 613,000. The project was launched in September 1, 2003.
The project aims at addressing gender inequality in Samtskhe-Javakheti Region. Through different activities in the area of micro-credit, income generation, gender training and capacity building, public awareness and small-scale infrastructure rehabilitation, the project will promote women’s participation in the regional development and decision-making process. By establishing a Women’s Regional Centre in the regional capital - Akhaltsikhe, the methodologies to address the gender inequality will be designed and the capacity of the local governments to promote gender balance will be strengthened.
The Project “Women’s Regional Centre” is comprised of seven independent sub-projects, which refer to large spectrum of activities. These sub-projects cross-refer and complement each other.
In 2004, the Project envisaged focusing on the following substantive spheres of activities:
1. Research and Analysis 2. Micro-credit 3. Training 4. Small Scale Rehabilitation
49 External Evaluation: Establishment of Women’s Regional Center in Samtskhe-Javakheti, Georgia August 2005
5. Advocacy and Awareness Raising 6. Policy Advisory Services 7. Job creation/Income Generation
3. Objectives of the Evaluation Mission:
The evaluation will cover all-important aspects and components of the project as outlined in the project document, taking into consideration developments since the signing of the project document until now. The main tasks of the evaluation will be:
Project design and strategy: the relevance of the project (approach, objectives, modalities of implementation, etc.) with regard to the prevailing context; Projects’ execution and implementation arrangements; the evaluation should assess relevance and efficiency of the implementation; the modalities used and evaluate if the ways and means applied did fit the current situation and specific conditions of the country. Project objectives and achievements: the actual project results with regards to the planned end- results; the effectiveness of the approach being used to produce these results; Projects impact and contribution to sustainability: review project impact, assist the country office in analyzing the impact of the project on Samtskhe-Javakheti women. Lessons learned and recommendations for future assistance: recommendation to ensure that future activities in the sector will build up on previous progress achieved and assessment of implementation of similar projects for other regions of Georgia.
4. Scope of work:
Evaluation mission work shall be carried out during 11 – 18 July, 2005 including: Visits to the Women Resources Center in Samtskhe-Javakheti and evaluation of the WRC project implementation. Meet both with the project direct and indirect beneficiaries, in focus-groups as well as individually, to trace the change in lives of local population that were covered by the project. Assess the results/impact of trainings and other services provided during the project implementation stage. Provide with recommendations for future work at the grass root and local/regional policy level Consult with local Government representatives, NGO-s, media and etc. Provide with Evaluation Report.
5. Output:
The output of the evaluation is an evaluation report, containing the following sections: (1) executive summary; (2) assessment of the project concept and design; (3) assessment of the project implementation; (4) project results/ impact; (5) findings; (6) recommendations; and (7) lessons learned. A checklist for drafting of the evaluation report is provided in the UNDP Guidelines for Evaluators. The report should be submitted within two weeks after the completion of the evaluation mission.
The evaluation report should contain recommendations on the future follow-up Program in view of sustaining and further enhancing the strong impact of the contributions already made by the projects and considering the ongoing activities of other donors, provide recommendations on the sustainability of the established Institution to further continue its activities. The evaluation report should include recommendations on the design of future initiative in this area and advise to what extent the methodology used can be replicated and beneficial for the UNDP/Georgia Local Government for advancement of women in regions.
6. Methodology
The evaluation will carefully review all relevant documentation, including the original project document, the Audit reports, legal documents, training instruments prepared during the project implementation.
50 External Evaluation: Establishment of Women’s Regional Center in Samtskhe-Javakheti, Georgia August 2005
The consultant(s) will consult with the UNDP country office, the project team, officials from the Local Government, SIDA and other donors interested in these areas of work, as well as any other partner deemed relevant. The consultant will also take field visits to the project sites and consult with project beneficiaries
The consultant(s) will work under the overall guidance of the UNDP Resident Representative and relevant Program Analyst. The UNDP Office in Tbilisi as well as the Project Support Unit will provide facilities and logistics to support the consultant(s).
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ANNEX 4 Structure of WRC
WRC BOARD OF TRUSTEES
Economic Group Planning Group Social development PR-Group Civic Education Group Group
Economic Group
Credits Finance and Budgeting Income Generation Infrastructure development
Planning Group
Survey& Data Program Analyzing Monitoring
Social Development
Healthcare Sport Tourism Environment Protection
PR Group
Governmental Local and Foreign NGOs Media Culture Organizations
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Civic education Group
Training Youth Education Human Rights Center
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ANNEX 5: Ethnic Minorities in Georgia, International Fact-Finding Mission, FIDH, April 2005
EXCERPT:
Being able to speak Georgian has never been a prerequisite to obtaining citizenship. However, an inability to speak the language fluently is one of the greatest obstacles to the integration of the minorities and increases their isolation by contributing to their social exclusion. This problem is particularly acute in the districts of Javakhetia where non-Georgians live in small communities and have little contact with the Georgian populations. Not only is the population ignorant of written Georgian, but it is in addition, incapable of speaking in this language, even just understanding elementary words, which is not the case with the minorities we spoke to. The decline of Russian as the language of communication, which was spoken more by Armenians than by Georgians or the Azeris of Kvemo-Kartli for example, limits the possibility of exchanges, not to mention the chances of social or economic promotion. The representatives of the minorities are increasingly aware of the problem. Nevertheless, the minorities are still very attached to their linguistic rights and to the protection of their "mother tongue". The FIDH mission was able to assess, among the representatives of the minorities it met, the worries caused by rumors regarding a possible intensification of teaching Georgian in the "national schools", within the framework of a reform of the education system which is already underway. The fact that there is a network of "national schools" is having a detrimental effect, as the Georgian citizens who have studied in them are generally incapable of reading or writing in Georgian. In addition, the pupils from the minorities who have studied in the "national schools" often continue their studies in Russia or in the neighboring State, which contributes to a brain-drain.
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ANNEX 6: Samtskhe-Javakhketi NGO's hold their first public forum-INTEGRATION, NOT ASSIMILATION – First Public Forum
Samtskhe-Javakhketi NGO's hold their first public forum- INTEGRATION, NOT ASSIMILATION – First Public Forum PRINT CLOSE 13.12.2004
AKHALKALAK- (A-Info) - The first public forum initiated by the Council of Armenian non-governmental organizations (NGO) of the Samtskhe-Javakhketi region, organized by the Council of the NGO's, was held on December 11 in Akhalkalak to discuss the socio-economic issues of the region. The subsequent public forums are to discuss issues related to culture and self-governance.
The public forums are titled "Integration, not Assimilation," as the Armenians of the region do not oppose the integration within Georgia, but defy the "integration" policy of Georgia's central government leading to assimilation.
Representatives of the United Nations, the Organization for Security and Cooperation in Europe, the European Commission, the Council of Europe, foreign ambassadors, ethnic Armenian and Georgian members of the Georgian parliament as well as Georgian government officials were invited to attend the public forum.
Most of those high-ranking officials, however, did not attend the public forum. Only Beatrice Schulterier, the representative in Georgia of the OSCE High Commissioner on National Minorities, and Michael Hertoft, the Akhalkalak project manager of the European Centre for Minority Issues were present. Also attending were members of local self-governing bodies, local intellectuals and representatives of NGOs from the region, as well as from Tbilisi and Yerevan, Georgian parliament's ethnic Armenian members, elected from the region, also did not attend the public forum. Instead they chose to attend a convention of one of the Armenian political parties in Yerevan.
Nevertheless, the public forum vividly discussed the issues on its agenda. Two reports were presented by experts on the socio-economic issues of the region, Azat Shipaktsian and Artashes Palanjian, who stated that the region has found itself in a difficult socio-economic state due to the discriminatory policies of the central government of Georgia. They also noted that the funds donated by international donors were not evenly dispersed when it comes to the Armenian population of the region.
Following the reports, the participants expressed their opinions regarding the socio-economic problems of the region, in fact asserting the opinions expressed by the rapporteurs.
At the end of the discussions, the public forum adopted a resolution on the socio-economic situation of Samtskhe-Javakhketi (the resolution is attached), and recommended to the Council to establish a commission to work out a program for socio-economic development of the Samtskhe-Javakhketi region.
RESOLUTION
Adopted by the "Integration, not Assimilation" Public Forum on Socio-economic Issues of Samtskhe- Javakhketi, Akhalkalak, 11 December 2004
Aiming:
* To contribute to resolution of the socio-economic issues of Samtskhe-Javakhketi; * To contribute to the improvement of the socio-economic situation of Georgia through improvement of the socio-economic situation in Samtskhe-Javakhketi and mitigation of the demographic problems, and to emphasize the necessity of reforms and their equal implementation on the basis of regions and ethnicity; * To contribute to Georgia's internal integration, internal political stability and strengthening of democratic values through socio-economic reforms in Samtskhe-Javakhketi;
55 External Evaluation: Establishment of Women’s Regional Center in Samtskhe-Javakheti, Georgia August 2005
Based on a number of factual factors, such as the demographic picture of the region and the common borders with Armenia, to contribute to perceive the resolution of Samtskhe-Javakheti's socio-economic problems as the best possible model for regional integration and friendship between the nations; * To contribute to the real process of Georgia's and South Caucasus' integration into Europe, to participate in the fulfilment of Georgia's commitments before the international (European) community, and to make sure that every citizen gets a share of the positive results of the process; Taking into consideration the opinions and ideas expressed in reports and debates, the Public Forum states that:
* Samtskhe-Javakhketi falls considerably behind the country's other regions in its human development indicators; * The unemployment rate is way too high, resulting in emigration. There are no equal conditions in filling job vacancies; the region, and especially the Armenian-populated areas, are not included in any realizable social and employment projects; * The health system is deteriorated. There are no functioning medical ambulatories in the villages.
The few district hospitals are poorly equipped and are far from satisfying the minimum needs of the population; * The population's social security is on a low level. Salaries and pensions, which are significantly less than the consumer's basket, are not paid on time; * The escalating poverty is accompanied by rising social inequality; there is a sharp polarization of income; * There is no functioning stable system (fuel, heating, drinking water and other utilities) to support the population's livelihood. The issue of heating is especially acute in Akhalkalak and Ninotsminda; * Roads connecting the region with Tbilisi, with the coastal and other regions of Georgia, as well as with Armenia are damaged and in desperate shape. In even worse shape are the local and village roads. This situation creates insurmountable difficulties for the socio-economic development, as well as for the economic integration of the region; * The country's energy crisis is felt especially harsh in the region; the burden of these difficulties is not equally spread and Javakheti is again penalized. The fact that the region is distant and mountainous is neglected; * Except for one or two cases, there are no telephone networks in the villages. The situation is not much different in the towns. The situation is the same for the spheres of electronic communications and TV broadcasting; * The agricultural and the industrial sectors are paralyzed. In the economic and especially in the agricultural sector, many development possibilities are neglected, even though the region's agriculture plays an important role in Georgia's economy. The almost entirely agricultural region has no irrigation network. The break up of the economic infrastructure, the rarity or unavailability of fuel and energy supplies seriously hinder the processing and selling of natural resources and agricultural provisions. * The corruption that exists in the whole country is accentuated in the region. The reforms proclaimed in the country have not reached the region yet. As a result there is a public perception that corruption is not only allowed, but also encouraged; * The region is pushed to artificial demographic changes which could result in escalation of tension in ethnic relations and instability. It is odd, that the authorities organize the immigration of other ethnic groups to the region and provide them with socio-economic assistance, while the locals are deprived of such assistance; * The participation of national minorities in the public-political life of the country and in formulating socio-economic policies is not ensured.
The public forum, being concerned that: * The policies being realized by the authorities in the spheres of state-building, economy, social issues, national minority rights and demographic issues could undermine Georgia's image in the international arena and the development of democracy in the country; * Unresolved socio-economic and other issues could hinder the integration of the ethnic minorities; * The delay in resolving the accumulated problems could raise new and undesirable tensions; * The existing tense and explosive situation is aggravated by the nationalistic and intolerant propaganda by some media outlets and public-political organizations;
Considers it essential:
* To regard job creation, development of transportation and other infrastructure (gas pipelines, water lines, irrigation systems, telecommunications, etc.) as the main route to resolve the region's socio- economic problems;
56 External Evaluation: Establishment of Women’s Regional Center in Samtskhe-Javakheti, Georgia August 2005
* To completely repair – with internal and external resources -- all highways connecting the region to the coastal areas of Georgia, to Tbilisi and to Armenia, as well as the internal roads connecting the villages; * To equally distribute the burden of the energy hardships between the regions; to resolve the energy problems using local resources (Taparvan); * To expand the telephone network in the villages, ensure quality and affordable telecommunications; * To build a modern telecommunications transmitter; * To create conditions for processing the agricultural products in the region, implementing of new technologies in agriculture, resolving the irrigation problems; * To establish branches of large (including foreign) banks, financial and credit institutions and to extend loans by them to small and medium-sized businesses; * To restore the health system (hospitals, emergency rooms, village medical ambulatories); * To renovate and operate the Akhalkalak airport; * To take steps to create, empower and sustain a tolerant inter-ethnic environment; * To take measures to avert the artificial alteration of the demographic picture of the region, which would endanger the stability of the region; * To engage the local residents, workforce and potential in the international economic processes underway in the region; * To cooperate with international organizations dealing with democracy, human rights, human development and economic integration; to involve them actively in resolving the fundamental problems of Samtskhe-Javakhketi, to ensure fair distribution between regions of credit and grant funds provided by international organizations; The public forum resolves: * To recommend to the Council of Armenian non-governmental organizations (NGO) of the Samtskhe- Javakhketi region to form an expert group in charge of elaborating and presenting a comprehensive program for the region's socio-economic development based on the abovementioned imperatives; * To appeal once again to the Georgian central authorities and to the relevant local self-governing bodies, expecting a multilateral discussion of the issues in question and their resolution with state solicitude; * To appeal to international institutions, donor countries and organizations, expecting their input in drawing up and implementing concrete projects aimed at completely or partially resolving the issues raised; * To appeal to the Georgian non-governmental organizations and mass media expecting them to focus on the mentioned issues, to develop relevant public opinion, to contribute to the efficiency of the governmental bodies, as well as to assist in engaging the business community and individual businessmen in resolving the problems raised; * Based on the centuries-long friendship between the Armenian and Georgian peoples as well as the good neighbourly high-level relations between the two states, and aiming at furthering those relations with practical steps, to appeal to the Armenian non-governmental organizations to assist in involving the Armenian business community, as well as individual businessmen and other interested structures in resolving the issues raised.
SOURCE: http://www.a-info.org/eng/
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