FINAL REPORT

A Review on Gender Mainstreaming and Action Plans of the SIDS IUCN ORO Energy Projects ‐ Managing the Ecosystems and Livelihood Implications of Energy Policies in the Pacific Island States ‐ Palau, Samoa, Tonga, Tuvalu and Vanuatu

Report prepared for the Pacific Energy and Gender Network (PEG) hosted at the Economic Development Division of the Secretariat of the Pacific Community

December 2010

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Acknowledgments

Pacific Energy Gender Network (PEG) kindly acknowledges the financial support of both the International Union on Conservation of Nature Oceanic Regional Office (IUCN ORO) and ENERGIA International towards the implementation of this project but more so the guidance on the process of gender mainstreaming in the energy projects.

The time and support is also acknowledged for the following people;  Ms Ana Laqeretabua – Gender Consultant  Ms Clarinda Ziegler, Commercial Loan Officer/Program Manager of the Palau Home Loan energy efficiency programme implemented by the National Development Bank of Palau  Ioane Solailai, Assistance CEO – Renewable Energy Division and Program Manager of the of the Greenhouse Gas Abatement through Energy Efficiency in the Land Transport & Electricity Sectors, Managed by the Ministry of Natural Resources and Environment  Ofa Sefana, from Tonga, Mango and Mo’unga’one Photovoltaic Rehabilitation Project, managed by Ministry of Lands, Survey, Natural Resources and Environment  Mafalu Lotolua, General Manager of Tuvalu Electricity Corporation and Program Manager of the Tuvalu Photovoltaic Electricity Network Integration project (TPVENI)  Kennedy Kaltavara, Vanuatu Renewable Energy Project Coordinator  Ms Koin Etuati, Programme Assistant – Energy and Gender, Economic Development Division of the Secretariat of the Pacific Community  Ms Salote Sauturaga, Project Officer‐ IUCN ORO

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Acronyms and Abbreviations

CEDAW Convention for the Elimination of All Forms of Discrimination Against Women CROP Council of Regional Organisations of the Pacific CTA Technical Centre for Agricultural and Rural Cooperation EESLI Energy, Ecosystems and Sustainable Livelihoods Initiative ENERGIA International Network on Gender and Sustainable Energy GHG Greenhouse Gas Emissions HA Housing Authority IUCN ORO International Union for Conservation of Nature Oceania Regional Office MDG Millennium Development Goals NDBP National Development Bank of Palau PEG Pacific Energy and Gender Network PEGSAP Pacific Energy and Gender Network Strategic Action Plan PEMM Pacific Energy Ministers meeting PIEP Pacific Islands Energy Policy PIFS Pacific Islands Forum Secretariat PIGGAREP Pacific Islands Greenhouse Gas Abatement through Renewable Energy Project (GEF) PV Photovoltaic Rehabilitation Project RE Renewable Energy REEP Renewable Energy and Energy Efficiency partnership REM Regional Energy Officials meeting SEPPSIS Sustainable Energy Programme for the Pacific Small Island States SIDS Small Island Developing States SOPAC Pacific Islands Applied Geoscience Commission SPC Secretariat of the Pacific Community SPREP Secretariat of the Pacific Regional Environment Programme UNFCCC United Nations Framework Convention on Climate Change UNDP United Nations Development Programme

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Gender and Energy Concepts

Gender refers to the differences between women and men within the same household and between cultures that are socially and culturally constructed and that change over time. These differences are reflected in roles; responsibilities, access to resources and basic services, constraints, opportunities, needs, perceptions, views, etc, held by both women and men (Moser 1993).

Gender versus Sex. Gender is created by society (socially constructed), while sex pertains to the natural/biological and physical differences between women and men.

Gender relations, like gender roles are socially determined and are influenced by the same social, cultural, political and economic expectations. Gender relations are shaped by a range of institutions such as the family and legal systems. Gender relations exist both within households (private sphere) as well as within the community and workplace (public sphere). An analysis of a given situation based on gender relations differs from one based on gender roles because it gives more focus to power relations and the connections between men and women’s lives.

Gender Equality pertains to equality of opportunity, including equality of rewards for work done, equality in access to productive resources (social and economic) to basic facilities such as medical and health care, education and employment. It also implies equal opportunity to participate, make decisions, influence and contribute to the development process (World Bank 2001) It does not mean that women and men have to become the same, but that their rights, responsibilities and opportunities will not depend on whether they are born male or female.

Gender Mainstreaming has been defined as a strategy for making women’s as well as men’s concerns and experiences an integral dimension of the design, implementation, monitoring and evaluation of the policies and programmes in all political, economic and societal spheres so that women and men benefit equally and inequality is not perpetuated.

Gender sensitive language takes into account the special needs of women and men. Male‐ biased language does not differentiate between women and men.

Gender aware – The recognition of gender differentials with little or no translation of this in practice.

Gender Blind – The lack of recognition of gender differentials. This usually includes a bias in favour of existing gender relations.

Gender equity means fairness of treatment for women and men, according to their respective needs. This may include equal treatment or treatment that is different but which is considered equivalent in terms of rights, benefits, obligations and opportunities. Gender Equality, ILO, Geneva, 2000, p.48

(Adapted from ENERGIA except where otherwise stated)

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Table of Content

Acknowledgments ...... 2 Gender and Energy Concepts...... 4 Table of Content ...... 5 Executive Summary ...... 6 Background ...... 8 Objectives of the Study ...... 10 Expected Results of the Study ...... 10 Study Approach and Methodology ...... 11 Study Findings ...... 12 Palau ...... 13 Project Review ...... 15 Gender Action Plan ...... 17 Institutional Assessment ...... 18 Samoa ...... 21 Project Review ...... 23 Gender Action Plan ...... 25 Institutional Assessments ...... 27 Tonga...... 30 Project Review ...... 32 Gender Action Plan ...... 34 Institutional Assessment ...... 36 Tuvalu ...... 39 Project Review ...... 40 Gender Action Plan ...... 42 Institutional Assessment ...... 44 Vanuatu ...... 46 Project Review ...... 48 Gender Action Plan ...... 50 Institutional Assessment ...... 51 Conclusions and Recommendations ...... 54 Key References ...... 57

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Executive Summary

Since the establishment of the Pacific Energy and Gender Network (PEG) in 2003 by SOPAC and key stakeholders, considerable progress has been made in understanding the importance of integrating a gender sensitive approach into energy policies and practices in the region. This commitment is reflected in the recognition of gender equality/equity as a cross cutting issue necessary to be addressed in the implementation of the Tuvalu Energy Policy (2009) and it is also reflected in the Vanuatu Government’s Energy Policy Framework endorsed in 2006.

The three other countries reviewed for this project, Samoa, Tonga and Palau, do not make specific mention of gender equality in their guiding policy documents on energy, but further investigation reveals different levels of staff exposure to mainstreaming gender into the energy sector, particularly in Samoa and Tonga. This has been in the form of staff attending training sessions, direct assistance with the production of DVD’s on energy and gender and through the sporadic references to learning material from sources such as ENERGIA and the PEG Network. Out of all of the countries reviewed, Palau in the Northern Pacific has not had the same level of exposure to the discussions on energy and gender which is reflected in the review. Palau and Tonga are two of the three countries in the region who have not ratified the Convention for the Elimination of All Forms of Discrimination against Women (CEDAW), also known as the Women’s Bill of Rights and ratified by 19 of the 22 countries in the region. Adopted in 1979 by the UN General Assembly, CEDAW consists of a preamble and 30 articles which define what constitutes discrimination against women and sets up an agenda for national action to end such discrimination. By accepting the Convention, States commit themselves to undertake a series of measures to end discrimination against women in all forms, including:  to incorporate the principle of equality of men and women in their legal system, abolish all discriminatory laws and adopt appropriate ones prohibiting discrimination against women;  to establish tribunals and other public institutions to ensure the effective protection of women against discrimination; and  to ensure elimination of all acts of discrimination against women by persons, organizations or enterprises

Despite extensive lobbying by Civil Society Organisations particularly in Tonga, the Tongan Government continues to uphold its decision not to ratify CEDAW and disputes its relevance for the Tongan context given what is considered the highly esteemed position of women in society. CSO’s continue to maintain that women in Tonga are faced by subtle layers of discrimination.

In Palau, there are currently inadequate policies and legislation to address social and gender concerns which is linked to Governments non ratification of CEDAW.i All the countries reviewed have endorsed and recognised the Millennium Declaration and the MDG’s as a key focus for national level development with progress towards Goal 3‐ Gender Equality and Women’s Empowerment assessed for the purposes of compiling national reports. Whilst not all countries recognise the significance of gender equality in achieving all of the Millennium Development Goals, most National Development Strategies make some reference to gender equality and women’s empowerment, though this commitment is not sustained at a sector and project level. The successful mainstreaming of gender sensitive interventions across all of government continues to be a challenge in the region.

Within the energy sector, as used by ENERGIA, gender mainstreaming is a process of helping energy projects and their stakeholders (1) identify their gender goals (what they aim to achieve from a gender standpoint and (2) develop a strategy on how these gender goals can be met, measured and tracked so that both women and men can benefit from energy projects and inequality is reduced or eliminated.

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The focus on women in gender mainstreaming is attributed to the overwhelming evidence that women and girls are more disadvantaged than men and boys, both across societies and at all income levels. Gender analysis includes the situation of men and boys but interventions often attempt to strengthen women’s position and hence the focus on women. ii

The review of the SIDS IUCN Energy projects reveals challenges with gender mainstreaming. Countries which highlight gender equality as a cross cutting issue in the implementation of energy policies, do not reflect this in the development of subsequent project documents which remain gender blind. This failure to recognise the gender differentials in the communities they serve usually includes a bias in favour of existing gender relations, which is often the dominance of men. In the case of Palau, which has matriarchal societal structures, the recognition given to women as key decision makers at a communal level is not reflected in the formal governing structures and policies. None of the projects have been informed by a gender analysis which would highlight the gender differentials within the communities and allow the project planners to develop better informed interventions.

The institutional assessment highlights a significant lack of capacity to identify gender differentials and subsequent gender sensitive interventions across the project due to the technical nature of the projects; limiting the focus to the installation of hard ware and equipment for the supply of energy services. While the documents recognise the economic and social impact the projects will have on the communities, these impacts are defined broadly as community impacts again not recognizing the gender differentials within one community and the different ways which women and men respond to the renewable energy options provided and or proposed. The commitment to mainstream gender equality interventions is present but the ability to successfully do this and to recognise key entry points to introduce the interventions is lacking. The projects range from the provision of energy efficient home loans, transport fuel substitution with coconut bio‐fuel, promotion of non‐motorised transportation, rehabilitation and building of solar systems, in rural communities, wind monitoring and a hydro project:

Given the varying nature of each of the projects and the different country contexts, each project has been reviewed separately with some key action points to integrate a gender sensitive approach included and highlighted within the existing work plans. It is hoped that this approach will remove the view that gender mainstreaming is an added burden to the project, when in reality the incorporation of gender sensitive interventions will lead to sustainable projects and increased ownership at a community level.

Interventions have been identified for mainstreaming gender into the five SIDS IUCN Energy projects whilst recognising the varying stages of implementation. A key set of indicators from the ENERGIA handbook on Gender Mainstreaming in Energy projects has been included which can be re‐visited each year by project coordinators to assess progress. The indicators can be factored into IUCN ORO energy projects and should be part of the Terms of Reference during planning processes.

The review commends the work done by the PEG Network to date which has mainly focussed on the production of communication material on how renewable energy and energy efficiency can improve livelihoods of rural communities, particularly women, youth and children, conducting sub regional training on the mainstreaming of gender into energy planning and policy development as well as participating at national, regional and international forums. However as stated in the TOR for this Project, it is time to operationalise gender approaches in energy projects. It is expected that this review will serve as a starting point for operationalising gender sensitive interventions into the five

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SIDS IUCN Energy projects in Tonga, Samoa, Vanuatu, Palau and Tuvalu that will be built upon to bear fruit for the women and men of the region in the years to come.

The findings have been presented in a table formats by project for ease of reference by country project coordinators and staff. A checklist is included for reference purposes by Project staff when reviewing gender mainstreaming efforts.

Background

The Pacific component of IUCN’s Energy, Ecosystems and Sustainable Livelihoods initiative is part of the Sustainable Energy Programme for the Pacific Small Island States (SEPPSIS) funded by the Italian and Austrian Governments.

The project titled Managing the Ecosystem & Livelihood Implications of Energy policies in the Pacific Island States is aimed at accelerating the transition to ecologically efficient and socially equitable national energy sectors, by:  Supporting beneficiary countries in the development and implementation of environmentally sound, sustainable energy policies and  Implementing a number of renewable energy pilot projects focusing on ecosystem conservation and livelihood enhancement

The expected output is the implementation of pilot projects in five (5) Pacific SIDS1 that demonstrate sustainable energy technologies and management systems suitable for wider dissemination in other Pacific SIDS. The participating countries are Palau, Samoa, Tonga, Tuvalu and Vanuatu.

In November 2009 a Memorandum of Understanding was signed between IUCN ORO and SOPAC to implement a project which would ensure that gender sensitive considerations were factored into the EESLI. SOPAC has established a lead role in facilitating the integration of gender sensitive considerations and awareness within the energy sector in the region since 2003 when a regional workshop on Gender, Energy and Sustainable Development was convened leading to the establishment of the Pacific Energy and Gender network (PEG).

The work of PEG has built momentum since 2003 with the development of the first Strategic Action Plan PEGSAP 2006 – 2008, consistent with the Pacific Islands Energy Policy and endorsed by regional energy officials in December 2005. A number of communication tools were developed under the guidance of the PEGSAP including posters, flyers, newsletters and DVDs in line with the focus on improving and strengthening information and communication on ways which renewable energy and energy efficiency can improve the livelihoods of rural communities, particularly for women, youth and children. An online discussion group was also activated and continues to be a source of discussion and an avenue for sharing information amongst energy officials, women’s focal points, non state actors, gender experts and other key stakeholders on gender interventions in energy.

The main objectives of the PEG network are to mainstream gender into energy and policy planning that will i) Improve networking at national and regional level with relevant stakeholders ii) Strengthen information dissemination in order to increase awareness of energy and gender issues iii) Provide technical assistance iv) Improve gender and energy training and v) Capacity building at different levels

1 The RMI project is not included in the gender mainstreaming project as it is for public street light retrofitting not involving the communities, therefore only five projects included.

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A review of the PEGSAP conducted in early 2009 highlighted a number of issues with the implementation of the Action Plan. Issues included a i) mixed awareness of PEGSAP 2006 – 2008, ii) the need for direct technical assistance to national energy offices, iii) the need for capacity building to develop monitoring and evaluation frameworks for rural energy projects; iv) confusion regarding the understanding of gender mainstreaming and v) lack of human resources and technical expertise at national and regional levels.

The review made the following key recommendations which were endorsed by PEG members at the PEG Regional Strategic Planning workshop in Tonga in April, 2009 and subsequently endorsed during the Regional Energy officials meeting (REM) and referenced in the Pacific Energy Ministers meeting (PEMM) Communiqué.

 A clear definition of gender mainstreaming is articulated in the 2009 – 2014 PEGSAP and on the PEG web page; a starting point would be either adopting or adapting the ENERGIA approach provided as a contribution to the on‐line discussion. (Definition of gender mainstreaming in box below).  Gender mainstreaming in the energy sector be targeted as direct technical assistance to national energy offices to provide “hands on” technical assistance. This will in turn build the capacity of staff at the national level and set‐up simple frameworks to ensure sustainability of gender mainstreaming.  Publications and materials be produced specifically demonstrating the application of gender mainstreaming approached and these resources be produced in consultation with PEG members.  PEG members are consulted when developing proposals for funding of specific PEGSAP initiatives to ensure buy‐in and awareness.

As defined by ENERGIA, Gender Mainstreaming in Energy Projects is a process of helping energy projects and their stakeholders: Identify their gender goals (what they aim to achieve from a gender standpoint and to develop a strategy on how these gender goals can be met, measured or tracked so that both women and men can benefit from energy projects and inequality is reduced or eliminated.

Following the review, the 2009 – 2014 PEG Strategic Action Plan was endorsed with the following overarching strategies

Strategy 1 – Build national capacity to ensure gender is mainstreamed into national energy policies and energy projects. Strategy 2 – Conduct research and analysis on energy and gender linkages and gender mainstreaming of the energy sector at the national and local levels. Strategy 3 ‐ Strengthen networking and cooperation with relevant international, regional and national institutions.

The PEG network has successfully contributed to heightened awareness of the different energy needs of men and women, youths and children and the need to address these gender dimensions in policy, planning and project implementation. The review on the status of gender into the energy sector noted that gender mainstreaming has made inroads into the energy policies and strategies of Pacific Island Countries however there is a need to operationalise gender approaches for energy projects at the national and local level and the effective dissemination of data, in line with the strategies of the PEGSAP 2009 – 2014.

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Objectives of the Study

In line with the strategic direction of the PEG, this project is focussed specifically on developing the capacity of IUCN ORO’s energy project managers, planners, energy project coordinators and communities on integrating gender sensitive interventions into energy projects or gender mainstreaming. This process has been defined by the PEG as a process of incorporating, at all stages of a project cycle and also at a strategic policy level, the implications and benefits of energy project activities and interventions on men, women and children whilst recognising their differences in an effort to improve livelihoods and standards of living. The current project will run alongside other planned projects in the Pacific which have an energy and gender component including:  CTA/PEG – Gender Equality in Energy and Rural Development in the Pacific;  UNIDO/SOPAC – Development for electricity generation and production uses in selected Pacific Island States.

Specific objectives outlined in the TOR are:

 To conduct a literature review that maps the gender, energy and development nexus situation in the individual countries.  To conduct a gender review of the project document that identifies gender issues and goals for the 5 SIDS IUCN ORO Energy Projects.  To conduct an institutional assessment of the 5 SIDS IUCN ORO Energy Projects’ capacities and those of their key partners to implementation engendered projects, using interviews, email correspondences and questionnaires.  Develop a final report on the action plans for mainstreaming gender into the 5 SIDS IUCN ORO Energy Projects’ applicable for the Pacific Region. Meeting with PEG and IUCN ORO to discuss the findings of the assignment and the draft action plan.

Expected Results of the Study

The findings from this work are expected to assist the IUCN ORO, PEG network and the project teams to develop a common view on the gender sensitive interventions within the energy sector(s), on potential stakeholders and partners, and identify missed opportunities for gender mainstreaming in individual energy projects sub‐sectors.

Through reviewing the project documents covering all the 5 SIDS IUCN ORO Energy Projects the report analyses the current status of project implementation and highlights specific strategies or indicators in place which could be built upon or used as entry points for the introduction of gender sensitive interventions. Where the project documents are gender blind or where they lack specific mention of interventions which recognise the specific differences of women and men, youth and children that transcends into their use, application and assimilation with the renewable energy options proposed, recommendations are made on how these can be addressed to meet the objectives of gender mainstreaming. The PEG network recognises that whilst many energy projects have some general statements about women or gender, they often lack the clear identification of specific gender goals with gender sensitive interventions and activities to operationalise these statements.

In a practical handbook for Gender Mainstreaming in Energy projects, ENERGIA highlights the considerable evidence which exists to confirm that the consideration of the different needs and situations of women, girls and men and boys in a community results in more effective projects and more benefits for women and men. ENERGIA provides the following guidance to Energy Project staff seeking responses to the question:

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Why Mainstream Gender in Energy projects?

 To improve quality of life, by reducing women and men’s drudgery in activities such as fuel wood collection and processing, water lifting, agricultural labour etc, and improving their health. Energy has been identified as a major input for achieving the Millennium Development Goals (MDG’s), with linkages to time saved in cooking, food processing, fuel collection, lighting and media enabling higher access to reading and public information by women, and clean cooking energy reducing female and child mortality due to indoor air pollution.  To increase productivity and income by providing women and men with the energy access needed to work more efficiently or for new opportunities for income generation. Increasing women’s independent income is a key indicator for MDG#1 on hunger, and also may be necessary in order for women to be able to invest in more efficient energy appliances and fuels. Energy enterprises also offer opportunities for women as well as men.  To ensure project efficiency and sustainability because unless men’s and women’s needs are properly understood, project interventions may be wrongly targeted and thus fail. Energy projects with poverty reduction as a goal recognise that women are the majority of the target group. Household energy technology projects need women’s participation as consumers and often in maintenance, repair, promotion and extension in order to meet dissemination targets and sustainability goals. Energy projects that already target women may want to explore gender mainstreaming because they hope that by following a more systematic process of gender mainstreaming this may make their activities more effective and able to extend benefits from women’s practical needs to strategic needs.  To promote gender equality and to empower women, that is to help them participate in activities and decision making which they have traditionally been excluded from, and to contribute strategically to the transformation of gender relations. The 1976 Convention for the Elimination of Discrimination Against Women (CEDAW) and the Beijing Platform for Action approved at the Fourth World Conference on Women in 1996, have influenced many donors and governments, who have mandated gender equality goals for programs and projects.iii

By using as a starting point an analysis of the gender, energy and development situation in each of the 5 Project countries, the review will highlight the different country contexts, and the energy and gender issues by country and also by specific project situation as energy and gender issues differ by country, region and concrete situation. As outlined in the ENERGIA handbook, Gender mainstreaming also addresses the organisational, institutional and corporate environment in which energy projects and programs are developed and implemented. It includes a strategy to assess and build organisational readiness and capacity for gender mainstreaming and undertakes a thorough participatory process to create a consensus by stakeholders around a Gender Action plan.

Study Approach and Methodology

The study was approached through the collection and subsequent analysis of material, and publications on Energy and Gender produced by the PEG Network since its inception in 2003 as well as a review of the handbook developed by ENERGIA on Gender Mainstreaming in Energy projects. The handbook was used as a guide to the review process within the context of the current status of gender mainstreaming in energy in the region and the level of understanding of the concept of mainstreaming amongst project implementers. The definition of Gender mainstreaming has been referred to earlier in this document. The focus on women in the findings is based on the overwhelming evidence that women and girls are more disadvantaged then men and boys, both across societies and all income levels.iv

The literature review also included a review of the country commitments to international agreements such as the Millennium Declaration and the Millennium Development Goals and the

11 commitments to advancing the implementation of Human Rights in the Pacific in the context of specific commitments to Women’s Human Rights.

The Consultant also attended the Mid Term Review meeting of the IUCN Energy, Ecosystems and Sustainable Livelihoods initiative held in Nadi in November and conducted interviews with Project staff on their understanding of Gender Mainstreaming within their specific projects. The interviews were guided by a short questionnaire which was designed in line with the Institutional Assessment Module in the ENERGIA Handbook.

The Mid Term Review meeting provided an overview on the process of implementation of each of the projects which needed to be considered when recommending gender sensitive interventions. Project documents and progress reports were also reviewed by the Consultant using a gender lens to identify and highlight key opportunities for gender interventions, specific to the context of each project.

Interviews were conducted with SOPAC staff and discussions on the Gender Action Plan identified the need to have key actions aligned and integrated with the existing project work plans to ensure that the gender interventions were recognised as part of overall project delivery. It was also recognised that a separate action plan could overwhelm the project staff and lead to the actions not being completed. An extensive online search was done to research gender policies of IUCN and other relevant country documents.

Study Findings

The study findings in this section are reviewed by country and by specific project. In line with the Gender Policy statement of IUCN which highlights the context specific and changeable nature of gender relations and the differences and inequalities between women and men in activities undertaken, access to and control over resources as well as decision making opportunities, the study findings and actions recommended are designed to contribute to equity and equality for all through specific project implementation. Gender Policy statements endorsed by IUCN and SOPAC highlight the organisational commitment to the mainstreaming of gender equality commitments within all projects and programmes though there is consensus on the slow implementation and integration at a project level. This has been attributed to limitations in accessing funding opportunities, the lack of gender expertise in the Pacific regionv as well as a lack of a systematic approach to gender mainstreaming or the absence of a clear theoretical framework to underpin the need for the integration of gender sensitive interventions.vi Interviews conducted to assess the capacity within the specific projects to mainstream gender highlighted a commitment to gender equality but a lack of understanding on how to operationalise gender sensitive interventions in project implementation.

On a regional level the guiding regional document, the Pacific Plan, is a key mechanism that can be used to leverage gender considerations into regional planning for development and implementation. The Council of Regional Agency of the Pacific (CROP) gender strategy, which the 10 CROP agencies 2 have endorsed to demonstrate commitment to gender mainstreaming, supplements the Pacific Plan strategic objectives for gender. Both mechanisms are coordinated by the Pacific Islands Forum Secretariat (PIFS) in collaboration with the Secretariat for the Pacific Community (SPC).

SPC’s Human Development Program (HDP) manages a triennial process to consult with all stakeholders and build consensus on regional development priorities and emerging issues that are

2 Forum Fisheries Agency, Forum Secretariat, Secretariat of the Pacific Community, South Pacific Regional Environment Programme, South Pacific Applied Geosciences Commission, South Pacific Tourism Organisation, University of the South Pacific, Pacific Islands Development Programme, Fiji School of Medicine, South Pacific Board for Educational Assessment

12 related to gender equality. This is done with an understanding that gender equality is a prerequisite for development effectiveness as well as a human right. Based on this mandate and commitment, the SPC‐HDP works with major donors to provide coordinated technical support services for gender equality and towards women’s empowerment assisting both governments and national/regional non‐government entities. vii Within the energy sector, as defined earlier, gender mainstreaming is to ensure that all members of the community can benefit from energy projects and inequality is reduced or eliminated.

Interventions are often focused on women given the evidence that women and girls are more disadvantaged then men and boys. A thorough and rigorous analysis of the gender, energy and development situation within each context is necessary, rather than making assumptions about women’s roles and problems within the energy sectorviii, but this type of rigorous analysis has yet to be carried out within the region.

While gender is included in the high level policy and planning frameworks for the Pacific regional agencies, the 2007 stock take of CROP’s gender mainstreaming process highlighted that there are significant gaps between what is endorsed and what is happening.ix The PEG Network collaborates closely with PIFS in the implementation of gender commitments to Energy under the Pacific Plan and the CROP Gender Strategy.

Palau

Country Overview Palau is small in terms of both area and population (20,581 persons 2007 estimate)x Palau is comprised of over 250 islands, 8 of which are main centres. Government management is divided among 16 states. Palauan citizens make up 74% of the population and are primarily Micronesian with some Melanesian and Malay influence. The remaining 26% of non‐Palauans are mostly Asian laborers and domestic workers who represent more than 50% of the economically active labour force.xi

Energy, Gender and Development Context Palau is a matrilineal society which presumes that as women in Palau have a base of decision‐making power rooted in their matrilineal heritage and play a key role in household and clan decision‐making, they are not subject to the issues of gender inequality within their communities and society as a whole. However, a closer examination of the status of women in Palau reveals that women are severely under‐represented in the political arena with only 3 of 16 state governors are women and there are no female Congressional members. Also, as is the case in many matrilineal societies, women are largely excluded from public political power – undermining an initial impression of gender equality.

The Palau MDG initial report recognises that whilst the constitution guarantees women equality under the law, laws have been identified that discriminate against married women, one in relation to rape within marriage and the other in relation to inheritance. The MDG report also recognises that despite women’s high social status and generally favourable social and economic situation, Palau has not ratified the Convention for the Elimination of all Forms of Discrimination against Women (CEDAW). In economic life, women have achieved significant success through the ownership of many small and medium sized businesses with the report stating whilst women are less likely to be employed then men, those employed earn more than men. The median income in 2005 of legal residents employed full time was $8417 (males) and $9740 (females) (Palau Census 2005).

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In contrast to many Oceanic countries, the differential between rural to urban poverty lines for Palau is relatively small only $456 separates the two poverty lines. This reflects Palau’s compact geography, high GDP and relatively low level of subsistence production. The Household and Income Expenditure Survey (2006) reveal a small but significant gender differential in poverty incidence. While nationally 26.5% of households were headed by females, 31.3% of female headed households had expenditures below the basic needs poverty line.

Currently there are inadequate policies and legislation to address social and gender concerns in Palau. The government architecture for women’s empowerment is very weak with the Ministry of Community and Cultural Affairs managing gender issues through the Belau Women’s Resource Centre. There is no national gender equality strategy and there appears to be little if any mention of gender analysis in any government document. There are several specific areas not supported by policies including care for the elderly, child care, and domestic violence. xii

Palau is heavily dependent on imported diesel fuel for its power generation. Following a Energy Policy Development Working Group workshop in June 2009 a Joint Declaration on Energy Policy Priorities was endorsed reflecting the commitment of energy stakeholders to i) improved institutional arrangements for energy sector management ii)imported fuels and hydro carbons iii)electric power iv) transport and efficient energy use v) renewable energy. The declaration provided broad policy recommendations for consideration in the energy sector but does not make any specific reference to the differential impact of these considerations on men and women in Palau. As a long term solution, Palau has opted to promote energy efficiency programmes beginning with energy efficient homes. Placing energy efficient measures in new homes is projected to reduce electricity consumption to about 15%.

Summary of Intersection

Palau’s Millennium Development Goals initial report which was published in 2008 under the guidance of the Minister for Finance Honourable Elbuchel Sadang highlights considerable gender analysis in its preparation and a recognition of the unequal position of women in Palau, particularly in the area of engagement in public life, legislation and also in relation to female headed households living below the poverty line.

The report recognises that women’s high social status and the recognition within which they are accorded traditionally has not translated into Government commitment as reflected in the non ratification of CEDAW and also into the fact that governing policies are silent on women’s participation and inclusion. This silence or non recognition also transcends the Energy sector. The MDG report highlights the role of traditional chiefs and their female counterparts to promote “omengereonme”3 (literal translation wise use incorporating the concept of sustainability) in relation to environmental sustainability though this also is not recognised in the proposed promotion of renewable energy policy options in Palau.

Gender mainstreaming within the energy sector would need to start with ensuring that the key recognition given to women within the traditional set up translates into inclusion and recognition within the formal processes of project implementation. The MDG process conducted by the MDG Task Force is a key high level government process that supports Gender mainstreaming in Palau.

Project Name: The Palau Home Loan energy efficiency programme

3 This is the way it is presented in the MDG report which highlights chiefs and their female counterparts, hence would like this reference to remain.

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Managed by: National Development Bank of Palau (NDBP).

Status: Project implementation is underway. The criteria for energy efficient measures has been developed that determines the level of subsidy the homeowner gets from the bank for building his/her new home. Thirty two applications have been received so far. Two energy model homes have been completed, with construction to begin shortly for another two. In addition, six energy efficient standard homes are under construction with twenty two more applications being processed.

Timeline: Proposed completion period is August 2011

Project Review

A review of the Project document using the Gender mainstreaming checklist in the ENERGIA Handbook highlights specific gaps in the document in relation to gender mainstreaming. The checklist questions are placed in table format with the responses to allow Project Coordinators to clearly identify what gender mainstreaming would entail within their projects

Question Y/N Specific Project relevance Are the following key words mentioned in N Project document refers to “homebuilders” assuming the project document – gender, women, homebuilders are all the same and does not female headed households, women’s recognize the specific situation of women and men. participation, women’s income generation, women’s empowerment. Project does not consider the specific vulnerabilities associated with display homes.

In case of model homes and the commitment made to allow the public to visit their homes, has consideration been given to the vulnerabilities of women and girls in these situations? If household is a single parent family, what does the open house situation mean for young women, teenagers etc.

This is an example of a technical energy project where the focus is mainly to build an energy efficient home with little consideration for the social implications. Is the gender dimension highlighted in N The Project document is written from a financing background information to the institutions perspective as the implementer of the intervention? Does the justification Project is the National Development Bank of Palau include convincing arguments for gender which is the sole bank providing loans for home mainstreaming and gender equality? Was builders. No reference is made to women and gender gender analysis conducted as part of the issues and is therefore gender blind. social assessment/analysis or was it conducted separately. Were the different The main objective of the project is to encourage project related needs of women and men homebuilders to build energy efficient homes and to analysed as part of the social analysis? provide home loan assistance to customers often financing 100% of the cost of the home, using the land as collateral.

No analysis was done on the number of single parents who had sought home loan assistance from the bank. No data available on the number of men and number of women who have loans. Or on the issue of land ownership. Is it the men or the women

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who decide if the land can be used as collateral etc? What is the situation in relation to land ownership? Do the intervention objectives address N The project document refers only to home builders. needs of both women and men? Are measures incorporated to ensure N No specific mention of the inclusion of men and women’s inclusion and participation in women in the Project document project planning and implementation? Do planned activities involve both men and Of the 32 applications received – how many are from women? women/how many from men Project document identifies land is used as collateral – what is the situation of land ownership with women in Palau – what % of women in Palau are landowners or make decisions on land ownership and land use. Have indicators been developed to N Activities for the project are outlined by month but measure progress towards the fulfillment the indicators are generic and no reference to sex of each objective? Are indicators disaggregation in the drafting of criteria, or in the disaggregated by sex? Are targets set to pre‐program information campaign/ongoing guarantee a sufficient level of gender information campaign. No consideration of quotas balance in activities (e.g. quotas for male for female and male participation. and female participation? Who will implement the planned Implementation is being done by a female intervention? Have these partners Commercial Loans Officer with NDBP. No gender received gender mainstreaming training mainstreaming training has been offered. Officer is so that a gender perspective can be assisted by Energy sector staff and other bank staff sustained throughout implementation. so both men and women are involved in Will both women and men participate in implementation implementation?

Does the M&E strategy include a gender N No gender perspective included in M&E strategy as perspective? Is the M&E Framework sex M&E refers broadly to whether funds are being disaggregated for the baseline, spent appropriately and to quantify benefits. No monitoring, impact evaluation with specific mention of what potential benefits or risks reporting requirements? Will it examine could be or the need to brief the external both substantive (content) and consultants to be hired for M&E on the gender administrative (process) aspects of the perspective. intervention? Has the greater context of gender roles N No gender analysis done though there is enough and relations within society been information available to provide a basis for considered as a potential risk? Has the understanding the gender relations within Palau potential negative impact of the intervention been considered? (e.g., What is the criteria for access to model homes – who potential increased burden on women or gets to live in model homes? social isolation of men?) In the drafting of eligibility criteria, is special consideration being given to the situation of women, again recognizing the considerable evidence that women and girls are more disadvantaged then men and boys. This could be better informed by a gender analysis? Have financial inputs been “gender N The project document does not recognize the need proofed” to ensure both women and men to address gender sensitive considerations in the benefit from the planned intervention? budget Has the need to provide gender sensitivity training or to engage short term gender experts been factored into the budget? Does the project explicitly allocate

16 budget/resources for gender related activities e.g. women’s income, reducing gender disparity? Has a communication strategy been Y Communication material has been developed but no developed for informing the public about specific mention is made of the different impact on the existence, progress and results of the women and men as this is not highlighted or referred project from a gender perspective? to in the project document.

Gender Action Plan

The following table highlights possible entry points to operationalise gender sensitive considerations into the project and is based on the tasks highlighted in the current work plan shared at the Mid Term Review meeting in Nadi in November, 2009 and on discussions at a regional capacity building and training convened in Tonga in 28 May to 3rd April 2010.

Task 1 – Project Management 1 Appoint Project Manager Indicators ii) Ensure Project Manager undergoes gender Project Manager attended gender sensitivity sensitivity training training and is able to identify gender interventions in the project. Project Manager is to also monitor the gender sensitive interventions to ensure they are adhered to throughout project implementation. Program Workshops/Travel ii Ensure workshops to include gender sensitive Equal number of men and women attending considerations i.e. are both men and women workshops? benefitting from the energy project? Are both men Acceptance by bank management of specific focus and women equally participating in the energy on women and gender considerations in the project? project delivery Gender analysis conducted to identify benefits of project to women and men Task 2 Energy Conservation Measures 2 Determine energy efficiency requirements ii In determining the requirements, are there any Equal number of men and women consulted in specific features users would prefer in the home that determining energy efficiency requirements. could support income opportunities that could be Increase in number of energy efficiency used by both women and men requirements that recognise the specific needs of women and men Task 3 Set up Loan programme i Meetings and Conferences ii In determining the specific outcomes of the Equal number of women and men attending meetings and conferences, consider specific conferences considerations to low income earners and Special measures or quota’s for women or single particularly single parent households and female headed households in order to ensure equal headed households benefits and inequality is reduced or eliminated i Establish loan criteria ii Can loan criteria take into consideration the Gender analysis conducted on land ownership and situation of women in relation to collateral required decision making to inform the decision on use of by the bank etc land as collateral and the loan criteria Task 4 Promotion and Awareness Program Develop TV/Print Media Programme Develop brochures and flyers Implementation of Awareness programme Does the promotion and awareness programme Promotional campaign targets specific groups target specific women in the community with the within the community.

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provision of specific quotas for home ownership? Does the awareness empower women to build own Women and men have equal opportunities to homes and does the bank create an enabling secure home loans from NDBP environment through which this can be done Is special attention given to the specific needs of Community awareness targeted specifically at women in the model homes and is this highlighted in women highlighting them as the most efficient community awareness? energy manager for a family Village outreach programme Fund model homes Inspection Task 5‐ Implementation of Programme Loan origination and processing Collection of sex disaggregated records. Identifying the number of women and men requesting loans All loan applications disaggregated by sex and specific circumstances are analysed and assessed Are all records disaggregated by sex? Can a questionnaire be developed to gather information on specific circumstances of women and men Task 6 – Monitoring Statistics and data gathering Ensure all data gathered is disaggregated by sex Reporting

Institutional Assessment

The key stakeholders in the Palau Project are the National Development Bank of Palau, the Palau Energy Office within the Ministry of Resources and Development, the MDG Task Force, which is chaired by the Minister of Finance.

The major responses to the questionnaire were obtained from the Country project coordinator who had not had any gender training nor had she been exposed to specific discussions on gender sensitive interventions within energy project implementation. The Project Coordinator showed a genuine interest in learning about the ways in which gender could be integrated into the project but stated that as commercial loans officers, the bank responds more favourably to applications from partners or two income earners due to the lesser risk and this places female headed households at a disadvantage.

The respondent indicated that the Palau Housing Authority catered more for those within the low income bracket and the NDBP was looking to team up with the HA to introduce the energy efficiency home loan option. The NDBP also has a special incentive targeting women entrepreneurs but the relevance of a specific focus on women within this particular project is not recognised. Stakeholder representatives would benefit from gender training and would also be able to integrate a focus on gender sensitive indicators and could also work towards a gender policy within the institution.

Currently no gender policy exists with the only opportunity to push for gender mainstreaming in development in Palau tied in to the commitments made by Government to the Millennium Declaration and the ongoing work of the MDG task Force which could also be linked to the work of the Energy Working Group.

The following set of indicators and rankings have been adopted from the ENERGIA Handbook which provide a baseline for measuring the development of institutional capacity in the project over the next few years. The indicators can be used by the Project Coordinators to assess their progress

18 towards the development of institutional capacity in gender and can be revisited when conducting midterm or end of the year reviews. Each description is ranked according to the level of its reflection of gender mainstreaming in the project which is reflected by the numbers on the left. The numbers on the right currently reflect the way the Project is ranked at the time this review was done.

Indicator 1: Gender sensitive and gender balanced indicative strategy as reflected in service objectives, implementation strategies and project performance criteria

Ranking Description Project Ranking 0 Access by women is not mentioned in the agency/project sector policy 0 and strategies. No strategy for participation of women or to ensure same opportunities and equal burdens for women and men.

1 Sector policy and strategy documents position women as passive beneficiaries or as target groups for separate energy use programs, in their reproductive roles.

2 Women’s roles defined from a perspective of program efficiency and effectiveness: women contribute to planning, maintenance and management for a better service and use.

3 Special activities and programs encourage women in new roles in decision making, maintenance, management, construction and entrepreneurship. 3 Objectives strategies and performance criteria aimed at balanced division of burdens and benefits between women and men.

Indicator 2; Sex disaggregated planning and monitoring system in operation

Ranking Description Project Ranking 0 No gender considerations in planning and monitoring systems of 0 project. 1 Planning and monitoring systems collect specific information on participation of and effects for men and women. 3 Data on participation of and effects for me and women are used to adjust strategies and human resources development as part of project planning.

Indicator 3: Expertise as reflected in the type of agencies involved, field teams and focal point

Ranking Description Project Ranking 0 No agencies or departments with social expertise involved. 0

1 Social agencies or department are involved but they have no specific expertise on gender. 2 Social agency/dept is one of the project agencies and has expertise on gender. 3 Technical agency management can explain the relevance and cite strategy elements of a gender‐sensitive approach.

Indicator 4: Expertise of field teams

Ranking Description Project Ranking

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0 No gender expertise is present in field teams. 0

1 Field teams include social expertise, but without specific know‐how in gender. 2 Field teams include social expertise with knowledge and skills in gender.

Indicator 5: Gender balance in the project

Ranking Description Project Ranking 0 All male or all female staff 2 Between 0 – 25% of one gender 3 Between 25 – 50% of one gender 4 Balanced 50 – 50 male and female staff 4

Indicator 6: Organisational climate – capacity building, managerial support and staff performance incentives Ranking Description Project Ranking 0 No project staff have participated in gender training. 0 1 25%of project staff have participated in gender training and can use it in the field. 2 50% of project staff have participated in gender training and can use it in the field. 3 75% of project staff have participated in gender training and can use it in the field.

Indicator 7: Support from management

Ranking Description Project Ranking 0 Management is not conscious of gender issues in the sectors or 0 considers them not their task. 1 Management defines women as passive beneficiaries or target groups for dissemination of technologies. 2 Gender as a concept is defined correctly in project documents and management can explain why a gender sensitive approach is practiced. Management can describe what gender strategies are practiced in the project/program and can mention some effects on the project and on the people.

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Samoa

Country Overview Samoa is one of the world’s 49 least developed countries (LDC) with a 1 population of 176,710 residing on the two main islands of Savaii and Upolu and half the population is under 19 years of age. The country has a total land area of almost 3,000 km2.

Energy, Gender and Development context

Samoa is the first Pacific island country to ratify the Convention on the Elimination of Discrimination Against Women (CEDAW) at the conclusion of the United Nations Decade for Women and the first to set up a separate Ministry for Women Affairs. The principle of equality between men and women is enshrined in the Samoan Constitution, however there are practices and attitudes that are inconsistent with the Constitution.

As highlighted by the ADB Gender Profile, Samoans are Polynesian and the Fa’a Samoan culture is chiefly and patrilineal. While traditionally women are accorded a high status and play important leadership roles in both family and community, Samoan women are not equally represented in the formal workforce, they have little protection from labour related discrimination and overall they have less access to political, economic, time and knowledge resources than men. Samoa’s Gender and Development Index rating is 71 out of 136 countries and it is placed 77 out of 178 in the Human Development Index.

The Government of Samoa’s first MDG progress report highlights the many developments in the advancement of women in the decade prior to the release of the report in 2004 such as obtaining the right to vote in 1991, affirmative action towards the inclusion of the Ministry of Women Affairs in all project coordinating committees of all major development projects, the special attention given to women’s concerns in all policy formulation and project implementation, a wider and enhanced awareness of women’s rights among the public through strengthened coordinative work of the Ministry and NGOs, and the increasing number of women executives in all fields

The report highlights consultations with heads of government ministries which have taken place to make them aware of the issues and to discuss ways to mainstream women’s needs including instituting impact assessment of policies and programmes on women.

The progress reflects Government’s commitment to the advancement of gender equality and provides the enabling environment for mainstreaming within all sectors including the energy sector. The report also referred to the appointment of female liaison officers in all villages who will have a complementary role to her male counterpart to ensure that government services and programmes do filter down to communities.

The National Plan of Action for the Advancement of the Women of Samoa 2008 – 2012, makes specific reference to working with the Ministry of Natural Resources and Environment to ensure women’s contribution to sustainable development are incorporated and recognised at all level.

ENERGY BRIEF

Total demand for energy in Samoa has grown over the last 20 years and the preference for electricity and fossil fuelled equipment appliances has also grown. This increase in demand is mainly in petroleum products for transportation and electricity generation and to a lesser extent cooking. Demand for electricity has increased by around 6 percent per annum during the last decade. The increase in energy demand was accompanied with a gradual shift from indigenous energy sources

21 such as biomass to more convenient sources such as petroleum and LPG. Between 1981 and 2001, the percentage of household cooking with wood dropped from 73% to 62% of households in Samoa. Similarly the number of households using cooking with charcoal dropped from 15% to only 1% in 2001. There is an abundance of biomass available as well as other forms of energy, hence energy diversification based on indigenous energy sources should be encouraged and promoted in a more sustainable manner.

Fuel imports by both government and the private sector alike has increased by about 30% between 1998 and 2006 and sales have increased by over 20% during this period. In Samoa’s First National Communication to the United Nations Framework Convention in 1999, it specifies that in spite of Samoa’s relatively small GHG emissions, there is a parallel increasing trend in each of the GHG examined. This trend will continue if it is not addressed properly and promptly. A priority list of technology transfer is also provided and energy interventions compose 50% hereof. Samoa’s World Summit Sustainable Development Assessment Report also emphasised the promotion of viable renewable energy as one of the key priorities that would be addressed in the energy sector which complements the priorities in the SDS 2005‐2007.xiii

The Samoa National Energy Policy 2007 has a vision to “to enhance the quality of life for all through access to reliable, affordable and environmentally sound energy services and supply”. This vision supports the national vision for “Improved Quality of Life” as stipulated in the recent Strategy for the Development of Samoa and provides clear direction for all energy developments in Samoa.

The document makes reference to the importance of community consultation and the cross cutting issue of human and institutional capacity in achieving the goals of the increased contribution of renewable energy and the increase of renewable sources, with the Ministry of Women and Social Welfare highlighted as partners in community consultation. The document is not specific on the inclusion of women from a perspective of program efficiency and effectiveness but rather positions then as passive beneficiaries for energy use programs in their reproductive roles.

Summary of Intersection

The Samoan Government’s commitment to gender equality is specifically outlined in the MDG progress report. The key role of the Ministry of Women’s Affairs as well as the appointment of female liaison offices in all the villages provide a key entry point when conducting community consultations and can ensure gender sensitive considerations are integrated into project planning and implementation.

Despite the fact that the Energy policy does not make specific reference to gender equality or empowering women to ensure they are participating equally at all levels of project implementation, the community consultations committed to throughout the policy and the recognition of the cross cutting issue of human and institutional capacity to ensure the sustainability of renewable energy projects provide key entry points to ensure women’s active participation and engagement is reflected in the implementation of energy projects.

A key challenge is to engage the women from the perspective of program efficiency where they are recognized to make a significant contribution to planning, maintenance and management for better service and use. The National Women’s Plan of Action highlights equal participation and engagement should continue to develop and grow from these entry points.

Project Name: Greenhouse Gas Abatement through Energy Efficiency in the Land Transport & Electricity Sectors

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Managed by: Ministry of Natural Resources and Environment

Brief: The Samoa project has three components: (i). Transport fuel substitution with coconut bio‐fuel, (ii) Promotion of non‐motorised transportation and (iii) Demonstration Gasification project.

This Samoa project will contribute directly to reducing Samoa's Greenhouse Gas (GHG) emissions and help support emissions control under the United Nations Framework Convention on Climate Change (UNFCCC). Its goal is to reduce the carbon emissions in the land transport and electricity sectors through energy efficiency involving the development of coconut oil as a suitable biofuel as well as the development of biomass energy from wood gasification.

Status: Implementation on the ground is being handled by three organisations, the Ministry of Natural Resources and Environment (MNRE), the Land Transport Authority (LTA) and the Renewable Energy Research Institute (RERI). The overall coordination for the project is the responsibility of the MNRE. Project coordinators in each of the three organisations have been recruited. Work plans for the three components of the project have been developed and endorsed by the National Task Force.

Work on the land transportation system is progressing with the LTA recruiting a consultant to provide advice on matters related to land transportation. This is a short term consultancy which will cover both motorised and non‐motorised systems, institutional arrangement, vehicle efficiency, infrastructure standards, funding mechanism and other related regulatory issues.

Timeline: Proposed completion period is 2011

Project Review

A review of the Project document using a Gender mainstreaming checklist in the ENERGIA Handbook s highlights specific gaps in the document in relation to gender mainstreaming. The checklist questions are placed in table format with the responses to allow Project Coordinators to clearly identify what gender mainstreaming would entail within their projects

Question Y/N Specific Project relevance Are the following key words N No reference to gender or women in recognition mentioned in the project document of the different impact the renewable energy – gender, women, female headed options will have on them anywhere in the households, women’s participation, document. women’s income generation, women’s empowerment Is the gender dimension highlighted N The overall goal of the project is to reduce carbon in background information to the emissions in the land transport and electricity intervention? Does the justification sectors through five main objectives. While include convincing arguments for mention is made that it is a multi sectoral project gender mainstreaming and gender involving land transport, electricity generation, equality? Was gender analysis biofuel research and development sectors, the conducted as part of the social technical nature of the project deliverables have assessment/analysis or was it obviously not allowed much room for the conducted separately. Were the consideration of gender dimensions. different project related needs of Key questions which should be asked in the

23 women and men analysed as part strengthening of energy efficiency in motorized of the social analysis? transport operations and the use of non motorized transport is the number of women and men drivers and users of motorized transport and the purposes of use of motorized transport etc. This type of social analysis will contribute to a better understanding of the target audience and gender sensitive interventions can be introduced. Questions can also be useful when developing the strategies for promoting motorized and non motorized transportation modes. Do the intervention objectives N The main focus of the project document is the address needs of both women and reduction of carbon emissions and the different men? options for doing so. There is little mention of public awareness or how the awareness will be targeted etc although the community consultations involve the Ministry of Women. The documents is not specific on how will the options for reducing carbon emissions directly impact the men and the women of Samoa? How will they benefit from the interventions etc? Are measures incorporated to N No specific mention of the inclusion of men and ensure women’s inclusion and women in the Project document, though the participation in project planning planned activities assume a prominent and implementation? Do planned involvement of men given the technical nature of activities involve both men and the project with the major stakeholders being the women? Ministry of Natural Resources & Energy, Land Transport Authority, Ministry of Works and Electric Power Cooperation and also based on feedback from Country project manager Have indicators been developed to N The project is divided into three main work measure progress towards the packages with broad deliverables for each work fulfillment of each objective? Are plan. There are no specific indicators outlined indicators disaggregated by sex? neither does the project document outline Are targets set to guarantee a specific targets e.g. Public Awareness and sufficient level of gender balance in Education Programmers in motorized land activities (e.g. quotas for male and transport developed and implemented; no female participation? specific mention of groups to be targeted during public awareness or ensuring that the public awareness sessions are attended by an equal number of men and women.

A consultant is being recruited to carry out the analysis on both motorized transport and non motorized transport. It is envisaged that the consultant’s analysis will be the basis for developing appropriate land transport based regulations. Who will implement the planned The project is being implemented by the Ministry intervention? Have these partners of Works, Transport and Infrastructure, soon to received gender mainstreaming established LTA, the Electric Power Corporation training so that a gender and the Ministry of Natural Resources and perspective can be sustained Environment as well as the Research and throughout implementation. Will Development Institute of Samoa (RDIS). No both women and men participate specific mention is made of any gender training in implementation? though the Ministry of Women highlights the

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MNRE as a partner in ensuring equal participation of women in consultations on sustainable development. Does the M&E strategy include a N Project document does not refer to M&E gender perspective? Is the M&E Strategy. No specific reference to the collection Framework sex disaggregated for of data disaggregated by sex or to examining of the baseline, monitoring, impact substantive content and the process of evaluation with reporting intervention. requirements? Will it examine both substantive (content) and i.e. Pro Doc highlights social benefits as improved administrative (process) aspects of public health and healthier lifestyles but no the intervention? analysis is done to review the current usage of motorized transport and the gendered dimensions of this as well as the implications of the proposed options on the women and the men of Samoa. E.g. Will the proposed option of cycling add to women’s burdens in terms of increased pressure on time? Has the greater context of gender N No gender analysis done though there is enough roles and relations within society information available to provide a basis for been considered as a potential risk? understanding the gender relations within Samoa Has the potential negative impact with a key starting point the use of transportation of the intervention been by women and men considered? (e.g., potential increased burden on women or . social isolation of men?)

Have financial inputs been “gender The project document does not recognize the proofed” to ensure both women need to address gender sensitive considerations and men benefit from the planned in the budget intervention? Has the need to provide gender sensitivity training or to engage short term gender experts been factored into the budget? Does the project explicitly allocate budget/resources for gender related activities e.g. women’s income, reducing gender disparity? Has a communication strategy been The project document highlights public developed for informing the public awareness consultations and media awareness about the existence, progress and but no specific mention of disseminating results of the project from a gender information from a gender perspective. perspective?

Gender Action Plan

The following Project work plan highlights possible entry points to operationalise gender sensitive considerations into the project and is based on the tasks highlighted in the current work plan. The gender action points developed as part of the review was later revised during a national training and capacity building convened on August 30 to September 3, 2010 and is presented below.

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Revised Gender Action Plan and Goals for the GHG Abatement ‐ Energy Efficiency in the Land Transport Sector in Samoa

Energy Project Potential Gender goals Indicators Way Forward stakeholders Energy MWCSD (Ministry To empower women Indicator: Specific training Efficiency in of Women, through capacity Number of targeted at women Land transport Communities and building and training women trained in drivers and women Sector Social in maintenance of basic vehicle vehicle owners Development) vehicles maintenance practices SUNGO (Samoa Umbrella of NGOs) NUS (National University of Samoa) APTC MWCSD 2. To improve the Specific training SUNGO likelihood of success Indicator: targeted at women in Media and efficiency in EE in Number of the community on MCIT (Ministry of LTA through a focus targeted Energy Efficiency in the Commerce, on educating women awareness Land Transport sector. Information and in the community on activities for Transport) Energy Efficiency women on EE in Target village women NCC (National practices, recognizing LTS. representative as first Council of the key role of women step in community Churches) in families and awareness. communities. Targeted media awareness MWCSD 3. To improve Indicator: Community SUNGO women’s health Number of consultations to Media Companies through the use of women in different target MOH ( Ministry of non motorized targeted women’s improved Health) transport options communities health as a reason for NCC using non using non motorized COC motorized modes transport SAME of transport. Explore options for subsidies on purchasing of proposed modes of transport MESC ( Ministry of Education, Sports 4. Long term: Promote Indicator: Meeting and and Culture) gender equality in Number of discussion with Samoa Umbrella of mechanical qualified women Ministry of Education NGOs (SUNGO) engineering through working and NUS on ways to APTC/NUS special measures for engineering and encourage more girls women at NUS/. electrical fields in engineering increased. Promotion of Ministry of To empower Equal number of Create awareness on Biomass Agriculture community members men and women benefits and impacts Gasification specifically rural educated and on use of biomass MWCSD women on potential made aware of gasification separately SBEC (Samoa and benefits of relevant biomass targeting men and Business appropriate gasification women

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Enterprise renewable energy options and the Cooperation) options. opportunities Target village women open to them for representative as first Ministry of income step in community Education, Sports generation awareness and Culture through these options Development Bank of Samoa 2. To increase Number of Identify gender roles women’s productivity women on how men and in rural areas through generating women are involved in planting of biomass income through the planting of plants leading to planting and biomass feedstock. Income generation harvesting of and improved biomass plants livelihoods Use of Biofuel 1.To empower women Number of Consultations/Public (jatropha) for by generating income Women engaged Awareness with Village electricity from planting jatropha in planting, Representatives and generation harvesting and Village Women Reps selling of jatropha for biodiesel Community consultation and public awareness on gender roles in bio‐fuel production 2.To educate men and Number of press Engagement with women on the releases/media print/radio/tv media pros/cons of Jatropha articles on on biofuel intiaitives. cultivation for Jatropha as an electricity generation option for biofuel production

Institutional Assessments

The key stakeholders in the Samoa project are the Ministry of Works, Transport and Infrastructure, soon to be established Land Transport Authority, Electric Power Cooperation and the Ministry of Natural Resources and Environment as well as the Research and Development Institute. An interview conducted with project staff indicated an appreciation for the importance of engaging women in the project but the responses reflected a lack of understanding as to how gender sensitive issues could be integrated. The common understanding was that women were restricted from their engagement because of the technical nature of the project but discussions on the importance of engaging women drivers and vehicle owners in the identification of options for reducing carbon emissions in motorised transport gathered a good response. The indicators can be used by the Project Coordinators to assess their progress towards the development of institutional capacity in gender and can be revisited when conducting midterm or end of the year reviews. Each description is ranked according to the level of its reflection of gender mainstreaming in the project which is reflected by the numbers on the left. The numbers on the right currently reflect the way the Project is ranked at the time this review was done.

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Indicator 1: Gender sensitive and gender balanced indicative strategy as reflected in service objectives, implementation strategies and project performance criteria

Ranking Description Project Ranking 0 Access by women is not mentioned in the agency/project sector policy and strategies. No strategy for participation of women or to ensure same opportunities and equal burdens for women and men

1 Sector policy and strategy documents position women as passive 1 beneficiaries or as target groups for separate energy use programs, in their reproductive roles

2 Women’s roles defined from a perspective of program efficiency and effectiveness: women contribute to planning, maintenance and management for a better service and use

3 Special activities and programs encourage women in new roles in decision making, maintenance, management, construction and entrepreneurship. 3 Objectives strategies and performance criteria aimed at balanced division of burdens and benefits between women and men

Indicator 2; Sex disaggregated planning and monitoring system in operation

Ranking Description Project Ranking 0 No gender considerations in planning and monitoring systems of 0 project 1 Planning and monitoring systems collect specific information on participation of and effects for men and women 3 Data on participation of and effects for me and women are used to adjust strategies and human resources development as part of project planning

Indicator 3: Expertise as reflected in the type of agencies involved, field teams and focal point

Ranking Description Project Ranking 0 No agencies or departments with social expertise involved 0

1 Social agencies or department are involved but they have no specific expertise on gender 2 Social agency/dept is one of the project agencies and has expertise on gender 3 Technical agency management can explain the relevance and cite strategy elements of a gender‐sensitive approach

Indicator 4: Expertise of field teams

Ranking Description Project Ranking No gender expertise is present in field teams 0

Field teams include social expertise, but without specific know‐how in gender Field teams include social expertise with knowledge and skills in gender

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Indicator 5: Gender balance in the project

Ranking Description Project Ranking 0 All male or all female staff 1 Between 0 – 25% of one gender 2 Between 25 – 50% of one gender 3 Balanced 50 – 50 male and female staff

Indicator 6: Organisational climate – capacity building, managerial support and staff performance incentives Ranking Description Project Ranking 0 No project staff have participated in gender training 0 1 25%of project staff have participated in gender training and can use it in the field 2 50% of project staff have participated in gender training and can use it in the field 3 75% of project staff have participated in gender training and can use it in the field

Indicator 7: Support from management

Ranking Description Project Ranking 0 Management is not conscious of gender issues in the sectors or 0 considers them not their task 1 Management defines women as passive beneficiaries or target groups for dissemination of technologies 2 Gender as a concept is defined correctly in project documents and management can explain why a gender sensitive approach is practiced. Management can describe what gender strategies are practiced in the project/program and can mention some effects on the project and on the people

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Tonga

Country Overview The Kingdom of Tonga is comprised of three major island groups with approximately 36 inhabited islands. Tonga has a population of 101,990 (2006) and an estimated annual growth rate of 0.4% for the period 2007 – 2015.4 This low growth rate is linked to high levels of emigration. The majority of in‐country Tongans (66%) lives in rural areas where agriculture and fishing supplement incomes and provide food security. Approximately half the population is under 21 years of age and approximately 46% of youth are unemployed.xiv

Energy, Gender, Development context ADB Country Gender Assessment on Tonga highlights the fact that Tonga has the highest Human Development Index score of all Pacific countries and major MDG indicators show women and men are basically equal in education attainment and health indicators. However cultural attitudes are a major constraint to women’s equality as reflected in discriminatory laws related to women rights to land resources and their sexual and reproductive rights and freedoms. There are strong norms for women to be the primary care giver in the home and, within that role, to provide unpaid reproductive services. This expectation, perpetuated through family work patterns and social messaging, inhibits women from exploring options for work outside the home and creates double labour and time burdens for those who do work.

The focus of the programs managed by the Department of Women’s Affairs and Culture is implementation of the National Policy on Gender and Development and its 10 action areas related to women’s equality and their right to benefit from the development process. The Department is also responsible to mainstream gender across government and ensures that government services benefit women and men in a balanced and equitable manner, and that women have equal rights with men to enjoy the benefits of development. There is no current system of gender focal points across government ministries. Such a system was promoted by UNIFEM in the late 1990s, training was delivered, and focal points were established for both central and line ministries. However, since that time the individuals in those positions have left government or changed jobs. Since the responsibilities for gender were not entrenched in the terms of reference of each position, but were only linked to individuals, there has been no sustainability in the model. xv

In a gender analysis of the labour force, the Tonga MDG Status report makes the following observations: Women comprise approximately 38 percent of the paid employment population (1996 Population Census), of which a majority is engaged in craft and trade related work. This suggests that Tongan women are likely to be employed in small menial or subordinate jobs or jobs associated with caring/serving or traditional skills (clerical/secretarial). This is quite unusual as girls tend to outperform boys at both primary and secondary level education. However, this surprising trend is further substantiated by demographic indicators.

Examining the number of registered marriages, sex and age group for years 1990 and 1992 indicates that approximately 2.9 times more females marry between the ages 15 and 19, than males. At the professional level, women are typically found in the teaching and nursing occupation and are underrepresented in managerial and higher administrative positions. However since 1996, the representation of women in managerial positions in the civil service has increased somewhat.

Recently, the appointment of women as Acting Cabinet Ministers, have enabled women to sit in the Legislative Assembly by virtue of their ministerial appointment.

4 SPC. 2007. Pacific Island Populations. Noumea.

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ENERGY The Government of Tonga’s MDG Status Report (2005) highlights energy as crucial in the Kingdom’s sustainable development strategies with maintaining a fine balance between energy, environment and the economy as a national priority. The report highlights the heavy reliance on imported fossil fuels and the underutilisation of the Kingdom’s renewable energy resources potential as major barriers to Tonga’s social and economic development.

The pattern of energy use in Tonga in the past 10 to 20 years have changed dramatically, reflecting the rapid development of energy intensive economic activities, thus intensifying Tonga’s reliance on imported petroleum products. The Kingdom's increasing reliant on imported petroleum products to satisfy its energy needs, means that Tonga is particularly vulnerable to external events that affect the price and availability of petroleum products and export potential and foreign currency flows from remittances and aid. By 2000, the energy balance showed a growing demand for imported petroleum products for which petroleum products captured 75.3 percent of the total energy supply while biomass declined by 6 percent and solar energy significantly expanded by 10 percent thus 0.2 percent at the end of the decade.

The growing consumption of petroleum and LPG is clear reflection of the changing lifestyle of Tongans and their increasing exposure to modern technologies. Direct impact of energy use on the environment is the visible traffic smokes in Nuku’alofa and the dumped waste oil throughout the island group. (Excerpt from Tonga’s MDG National Status Report, 2005). The Renewable Energy Policy Framework for Tonga highlights as key strategies the promotion of community awareness in renewable energy technologies and community involvement in renewable energy development

Summary of Intersection The main area of intersection is with the Department of Women’s Affairs and Culture in its implementation of the National Policy on Gender and Development and its responsibility to mainstream gender across government and ensure that government services benefit women and men in a balanced and equitable manner, and the strategy of the Renewable Energy Policy Framework for the promotion of community awareness in renewable energy technologies and encouraging community involvement in renewable energy development. Energy sector Project staff that have been trained to recognise the importance and relevance of integrating a gender sensitive focus into project implementation can work with the Department of Women’s Affairs and Culture to ensure extensive consultation and engagement with women’s groups around the country.

Project Name: Mango and Mo’unga’one Photovoltaic Rehabilitation Project

Managed by: Ministry of Lands, Survey, Natural Resources and Environment

Brief The Tonga project focuses on the rehabilitation of solar home systems in two outer islands in the Ha’apai group. Altogether there have been 46 solar home systems installed in the islands. Mango and Mo’unga’one were electrified with solar photovoltaic under a separate programme in 1988 and upgraded in 1991 and 1994 but the projects did not work as planned. Tonga submitted a proposal to IUCN for rehabilitation under the EESLI which was endorsed and approved.

Status The implementation of the Tonga project is relatively in an advanced stage compared to the other countries. The actual rehabilitation of the solar home systems in the two islands, Moungaone and

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Mango is now complete. The solar home systems in both islands have been commissioned and now operating. The construction work was carried out by technicians from the Ha’apai Solar Electrification Incorporated Society under the supervision of the Senior Energy Officer in the Tonga EPU.

Project Review

As a proposal was not submitted for project funding, a project log frame was adopted which was reviewed for the purposes of this report together with the Installation/Rehabilitation Report using a Gender mainstreaming checklist in the ENERGIA Handbook. The checklist questions are placed in table format with the responses to allow Project Coordinators to clearly identify what gender mainstreaming would entail within their projects

Question Y/N Specific Project relevance Are the following key words Y The project log frame had one reference to the mentioned in the project impact of PV Rehabilitation Project on women in document – gender, women, Mango and Mo’unga’one through the lighting of the female headed households, community halls where women could weave women’s participation, women’s collectively as a group. This outcome is linked to income generation, women’s women’s income generation though it is not empowerment specifically referred to as such. The log frame refers to the outcome as “improved income for the communities”. Is the gender dimension N The overall goal of the project is the highlighted in background rehabilitation/replacement of solar home systems on information to the intervention? Mango and Mo’unga’one located in the Ha’apai Does the justification include islands of Tonga. While the gender dimension is not convincing arguments for gender particularly mentioned in the background mainstreaming and gender information to the intervention apart from what is equality? Was gender analysis mentioned in the first column, a review of a conducted as part of the social workshop report on the sustainable utilisation of assessment/analysis or was it renewable energy on solar photovoltaic systems in conducted separately. Were the Ha’apai in 2006 highlights an analysis on rural life in different project related needs Tonga which looks at the hierarchical relationships of women and men analysed as within a Tongan rural community. However, no part of the social analysis? specific mention is made of the role of women in the community etc or the power relations between men and women. Do the intervention objectives N The rehabilitation/installation report is focused more address needs of both women on the technical aspects of the project with specific and men? attention given to the adjustments made to the management of the project to ensure its sustainability. The intervention objectives does not specifically highlight the needs of both women and men except for the mention of lighting for weaving purposes. Are measures incorporated to N No specific mention of the inclusion of and women in ensure women’s inclusion and the Project though the planned activities assume a participation in project planning prominent involvement of men. No specific mention and implementation? Do of empowering community women to be more planned activities involve both involved in the monitoring and maintenance of the men and women? system. Have indicators been developed N As the project is quite advanced and the installation is to measure progress towards the complete gender considerations could be introduced fulfillment of each objective? Are during the monitoring and evaluation of the project.

32 indicators disaggregated by sex? This means gathering of sex disaggregated data i.e. Are targets set to guarantee a number of females/males per household and female sufficient level of gender balance headed households as well as the number of males in activities (egg quotas for male and females impacted by the project as well as and female participation? directly involved in monitoring and maintenance. Where the numbers of women are less, efforts should be made to increase women’s participation through the use of incentives or quotas.

Who will implement the planned The project is being implemented by the Ministry of intervention? Have these Lands, Survey, Natural Resources and Environment. partners received gender Some of the project staff have had training in gender mainstreaming training so that a mainstreaming and have been directly involved in the gender perspective can be PEG Network. It is expected that women and men will sustained throughout benefit from implementation, though the technical implementation. Will both nature of the project tends to draw interest only from women and men participate in men. This can be attributed to what is seen as the implementation? cultural norm in Tonga where women are seen as primary caregivers and the men are associated with trades etc. Does the M&E strategy include a N Project document does not refer to M&E Strategy. gender perspective? Is the M&E No specific reference to the collection of data Framework sex disaggregated for disaggregated by sex or to examining of substantive the baseline, monitoring, impact content and the process of intervention. evaluation with reporting requirements? Will it examine both substantive (content) and administrative (process) aspects of the intervention?

Has the greater context of N No gender analysis done though there is enough gender roles and relations within information available to provide a basis for society been considered as a understanding the gender relations within rural potential risk? Has the potential communities in Tonga with a key starting point the negative impact of the different uses of energy by women and men. No intervention been considered? consideration has been given to possible negative (e.g., potential increased burden impacts of the intervention. on women or social isolation of men?) .

Have financial inputs been The project does not highlight the need to address “gender proofed” to ensure both gender sensitive considerations in the budget women and men benefit from the planned intervention? Has the need to provide gender sensitivity training or to engage short term gender experts been factored into the budget? Does the project explicitly allocate budget/resources for gender related activities e.g. women’s income, reducing gender disparity?

Has a communication strategy As the project is limited to two small communities, been developed for informing there is no specific communication strategy involved.

33 the public about the existence, progress and results of the project from a gender perspective?

Gender Action Plan

Given the advanced stage of implementation of the Tonga project, Gender sensitive interventions can be introduced during the M&E of the project. Key action points have been integrated into the project planning matrix (PPM) presented below developed to assist in the implementation of the project. It reflects all expected activities and outcomes/outputs of the Mango and Mo’unga’one PV Rehabilitation Project. The Gender Action points have been integrated into the PPM and are reflected in red font.

Objectively Means of Verification Critical Assumptions and Strategy Verifiable (MoV) Risks Indicators (OVI) I. DEVELOPMENT OBJECTIVE/GOAL Accelerating the transition to Tons of GHG saved GHG Inventory Support from relevant national energy sectors that Improved Income Government, NGO and are ecologically efficient, and Better equipped Household surveys community stakeholders socially equitable through community throughout project life. implementation of renewable facilities. Survey of community energy projects. facilities II. IMMEDIATE OBJECTIVES/OUTCOMES Improved quality of the tons of CO2 Project Reports Installed equipments environment and social life at mitigated Quantitative Data withstand the corrosive Mango and Mo’unga’one disaggregated by sex. environment of the islands. No. of community Substantive data also facilities electrified collected which looks Installed equipment could at the impact on the contribute to social isolation No of women and women and girls of of men in community. men directly both communities. benefitting from electricity in communities. Improved income for the Household Household survey Community halls will be for Mango and Mo’unga’one disposable incomes women to weave in there as communities No of women and Data disaggregated by a group. men directly sex Longer hours of weaving impacted through could contribute to increased increase in vulnerability of children. disposable income Improved knowledge and At least 15 trainees Training Report, ED Migration and long absences technical experiences with from Ha’apai Annual Report and of trained technicians from solar PV within the Ha’apai undergo practical HSES Annual Report the islands communities, Mango and training on PV. Specific Mo’unga’one included. Equal number of Disaggregated data vulnerabilities/considerations female and male related to female technicians participants or at least an increase of female participants Strengthened institutional No. of members in Registry of Cooperation of the existing structure for managing solar the HSES Incorporated Societies members of the HSES and

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Objectively Means of Verification Critical Assumptions and Strategy Verifiable (MoV) Risks Indicators (OVI) PV projects at Ha’apai Equal the ED representation of Minutes of the women and men if meetings of the HSEI possible or women’s representation on HSES

III. OUTPUTS / ACTIVITIES Establish battery charging At least one battery Installation Report Islanders will buy stations for people with charging station rechargeable batteries special needs for electricity established in each island Make available portable PV systems on hire for special At least one full Installation Report A fair and equitable system is social events like funerals, portable PV system adopted for the hiring of the feasts, fund raising, special for hire in each portable PV systems church services, etc. island

Empower women from community to be directly involved in maintenance and monitoring of usage

Electrify the community halls A community hall Installation Report Groups that use the lights in and encourage women groups each on both the halls pay for their use to do their weaving in the islands is electrified halls Specials given for projects Monitor the usage which directly contribute to of the community income generation activities hall; disaggregate for community women data

Conduct training workshop At least 20 Training workshop The training and assessment for the Ha’apai Solar technicians, report will be conducted as joint Technicians including 3 EESLI‐PIGGAREP activities technicians each, Support to the assessment of from Mango and Assessment and the PV installations prior to Mo’unga’one Commissioning the project commissioning receive practical Reports training on PV At least 5 trained solar technicians take part in the post installation assessments Identify how many of the 20 are women. Encourage women’s participation and active engagement

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Objectively Means of Verification Critical Assumptions and Strategy Verifiable (MoV) Risks Indicators (OVI) i.e. community women can nominate a representative or two Conduct a review of the Review study Feasibility study Cooperation of the members effectiveness of the HSES as completed report of the HSES part of the rehabilitation feasibility study. 2 successful Minutes of the HSES Conduct and support the meetings of the meeting annual meetings of the HSEI HSES are completed

Ensure all information is disaggregated by sex. Study should identify substantive contribution to women’s development etc and how the equipment has enhanced or not enhanced village relationships

Institutional Assessment

The key partners involved in the Tonga project are the Ministry of Lands, Survey, Natural Resources and Environment, the Ha’apai Solar Electricity Society Inc which was established under the PREFACE programme and the communities of Mango and Mo’unga’one. Given the advanced stage of implementation and the fact that the current project is a rehabilitation project, building upon what had been implemented earlier the following indicators are relevant for monitoring the capacity of the institution to mainstream gender sensitive interventions.

An interview conducted with project staff highlighted a high level of awareness on the importance of incorporating a gender focus particularly as some of the project staff were involved in the establishment of the PEG network and were engaged in dialogue on energy and gender. This is minimally reflected in the Project Logframe matrix.

The interview also reflected a common understanding that the only way of engaging women in the project would be in training them to provide technical support. Whilst the key role of the women in the communities is recognised, the recognition is of their role mainly as care givers and passive receivers of the services provided through the project.

The following indicators can be used by the Project staff to assess their progress towards the development of institutional capacity in gender and can be revisited when conducting midterm or end of the year reviews. Each description is ranked according to the level of its reflection of gender mainstreaming in the project which is reflected by the numbers on the left. The numbers on the right currently reflect the way the Project is ranked at the time this review was done.

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Indicator 1: Gender sensitive and gender balanced indicative strategy as reflected in service objectives, implementation strategies and project performance criteria

Ranking Description Project Ranking 0 Access by women is not mentioned in the agency/project sector policy and strategies. No strategy for participation of women or to ensure same opportunities and equal burdens for women and men

1 Sector policy and strategy documents position women as passive 1 beneficiaries or as target groups for separate energy use programs, in their reproductive roles

2 Women’s roles defined from a perspective of program efficiency and effectiveness: women contribute to planning, maintenance and management for a better service and use

3 Special activities and programs encourage women in new roles in decision making, maintenance, management, construction and entrepreneurship. 3 Objectives strategies and performance criteria aimed at balanced division of burdens and benefits between women and men

Indicator 2; Sex disaggregated planning and monitoring system in operation

Ranking Description Project Ranking 0 No gender considerations in planning and monitoring systems of 0 project 1 Planning and monitoring systems collect specific information on participation of and effects for men and women 3 Data on participation of and effects for me and women are used to adjust strategies and human resources development as part of project planning

Indicator 3: Expertise as reflected in the type of agencies involved, field teams and focal point

Ranking Description Project Ranking 0 No agencies or departments with social expertise involved 0 1 Social agencies or department are involved but they have no specific expertise on gender 2 Social agency/dept is one of the project agencies and has expertise on gender 3 Technical agency management can explain the relevance and cite strategy elements of a gender‐sensitive approach

Indicator 4: Expertise of field teams

Ranking Description Project Ranking No gender expertise is present in field teams Field teams include social expertise, but without specific know‐how in 1 gender Field teams include social expertise with knowledge and skills in gender

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Indicator 5: Gender balance in the project

Ranking Description Project Ranking 0 All male or all female staff 1 Between 0 – 25% of one gender 2 Between 25 – 50% of one gender 3 Balanced 50 – 50 male and female staff 3

Indicator 6: Organisational climate – capacity building, managerial support and staff performance incentives Ranking Description Project Ranking 0 No project staff have participated in gender training 1 25%of project staff have participated in gender training and can use it 1 in the field 2 50% of project staff have participated in gender training and can use it in the field 3 75% of project staff have participated in gender training and can use it in the field

Indicator 7: Support from management

Ranking Description Project Ranking 0 Management is not conscious of gender issues in the sectors or considers them not their task 1 Management defines women as passive beneficiaries or target groups 1 for dissemination of technologies 2 Gender as a concept is defined correctly in project documents and management can explain why a gender sensitive approach is practiced. Management can describe what gender strategies are practiced in the project/program and can mention some effects on the project and on the people

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Tuvalu

Country Overview The country of Tuvalu is made up of nine widely dispersed low‐lying atolls with a total land area of 26km2is. It is in the Polynesian sub‐region and has a population of 9,700 with an annual growth rate of 0.4%. Tuvalu. Approximately half of the population is concentrated on the main island and in the capital of Funafuti.

Energy, Gender and Development Context

Tuvaluan people are of Polynesian ethnicity, with the local language closely related to that spoken in Samoa. The society is based around a chiefly social system where traditionally decisions are made by the Falekaupule made up of the island chief, heads of households and elders. Women’s realm lies outside the meeting house in the home as caregivers. Tuvalu is classified by the United Nations as a least developed country due to its low per capita GDP, limited human resources and high vulnerability to external forces. (Extract from Tuvalu’s MDG Progress Report).

Tuvalu has signed and ratified the Convention on the Elimination of all forms of Discrimination Against Women (CEDAW) with the Department of Women within the Ministry of Home Affairs is the government agency responsible for implementing Tuvalu’s international and domestic commitments to gender equality. The government’s development plan Te Kakeega II specifically notes gender as a social development consideration.

The Department of Women’s Affairs allocates funds to its NGO counterpart, the National Council of Women, for women’s empowerment programs. The Department is responsible to mainstreaming gender across government, but this is challenging due to the lack of political will for gender equality and an organisational culture bound by traditional discriminatory values.

There is a shortage of sex/age‐disaggregated data in Tuvalu and this makes it difficult to develop gender analyses and evidence‐based rationales for policy and programming improvement. For example, across government there is poor cross‐sectoral analysis of relationships between women’s poverty and social development status in relation to i) the need for gender responsive private sector development policy or ii) the need for improved governance structures.xvi

ENERGY The Tuvalu National Energy Policy highlights three principal energy policy considerations i) supply issues, utilization issues, and environmental issues with 6 guiding principles including the principle of gender equity amongst sustainability, environment, compatibility, stakeholder participation, good governance, cultural and traditional compatibility. The policy states the following commitment from the Ministry of Public Utilities and Industries; “Government is mindful of the needs of different gender groups and levels of development pertaining to the different communities.

The distinct needs of men, women, children and social groups will be taken into consideration in any energy development activities. Attention shall be given to ensure that energy programmes that are developed strike a balance between social and economic development needs of the population.” In relation to renewable energy, the policy highlights the importance of having to place more efforts to the development of renewable energy resources available in Tuvalu.

Summary of Intersection The work of the Department of Women’s Affairs and the strong commitment to gender equity in the National Energy policy of Tuvalu provides a strong impetus for the integration of gender sensitive

39 considerations into energy projects in Tuvalu. The project document makes specific reference to the policy as being the primary guideline to the execution of energy‐related initiatives in Tuvalu which should therefore include the guiding principle of gender equity. Project Name: Tuvalu Photovoltaic Electricity Network Integration project (TPVENI)

Brief: The implementation of a 40kW grid‐connected solar PV system on the island of Vaitupu and the introduction of solar street lights for outer islands. The intention for the grid‐connected system is to enable the opportunity to stop using the 60k VA gen‐set during the day.

Status

The implementation is progressing well with the tender for the design, supply, and installation being awarded to Eco Kinetics, a company that specialises in designing and installation of renewable energy systems in Australia and the Pacific region. Construction is underway with the commissioning to be done in January 2010. The project is being used as a training exercise for technicians in Tuvalu and from other countries in the design, installation and maintenance of grid connected PV systems and training is also expected to commence in 2010. This component is being coordinated by the Secretariat of the Pacific Regional Environment Programme (SPREP) under its Pacific Islands Greenhouse Gas Abatement through Renewable Energy Project (PIGGAREP).

Timeline: Commissioning is expected to be completed by January 2010. Monitoring and evaluation of the systems will be conducted until end of 2011.

Project Review

The following review was done of the project document using a Gender mainstreaming checklist in the ENERGIA Handbook. The checklist questions are placed in table format with the responses to allow Project staff to clearly identify what gender mainstreaming would entail within the project

Question Y/N Specific Project relevance Are the following key words mentioned in N The Project document makes no reference the project document – gender, women, to any of the key words but the overall aim female headed households, women’s is to improve the well being of the participation, women’s income generation, Tuvaluan people living in the outer islands women’s empowerment by promoting the use of renewable energy resources. Is the gender dimension highlighted in N The document does have a section of the background information to the economic and social impact but the gender intervention? Does the justification include dimension of the project is not recognised convincing arguments for gender mainstreaming and gender equality? Was gender analysis conducted as part of the social assessment/analysis or was it conducted separately. Were the different project related needs of women and men analysed as part of the social analysis?

Do the intervention objectives address N The Economic and Social Impact needs of both women and men? assessment refers broadly to enhancing the chances of Tuvaluans in the outer islands to be engaged with productive means for socio‐economic development

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but no specific objectives for women and men.

Are measures incorporated to ensure N No specific mention of the inclusion of women’s inclusion and participation in women in the Project planning or in the project planning and implementation? Do activities which are technical in nature and planned activities involve both men and gender blind. women? Have indicators been developed to N The project activities project is measured measure progress towards the fulfillment by deliverables and milestones which are of each objective? Are indicators broad in nature. Reference is made to disaggregated by sex? Are targets set to institutional strengthening, human guarantee a sufficient level of gender resource development, but no deliverables balance in activities (egg quotas for male included on guarantee a sufficient level of and female participation? gender balance Who will implement the planned N Implementation of the Project is being intervention? Have these partners received done by the Tuvalu Electricity Corporation gender mainstreaming training so that a through a Project Engineer who will gender perspective can be sustained eventually be absorbed as a staff of the throughout implementation. Will both TEC Renewable Energy Efficiency Unit women and men participate in (REEEU). implementation? Other implementing partners are the Energy Coordinating Committee, Ministry of Public Utilities and Industries, Ministry of Foreign Affairs, Ministry of Natural Resources, Ministry of Home Affairs and Ministry of Finance. From discussions with the project coordinator, no training on gender mainstreaming has been received. The Department of Women’s Affairs should be involved to provide guidance and oversight to the consultations with women in the outer islands as well as ensuring the relevant interventions on women’s empowerment are taking place, following the introduction of the new system. Does the M&E strategy include a gender N Project document does not refer to M&E perspective? Is the M&E Framework sex Strategy. No specific reference to the disaggregated for the baseline, monitoring, collection of data disaggregated by sex or impact evaluation with reporting to examining of substantive content and requirements? Will it examine both the process of intervention. substantive (content) and administrative (process) aspects of the intervention? Has the greater context of gender roles N No gender analysis done and no and relations within society been consideration have been given to possible considered as a potential risk? Has the negative impacts of the intervention. potential negative impact of the intervention been considered? (e.g., potential increased burden on women or social isolation of men?) Have financial inputs been “gender N The project does not highlight the need to proofed” to ensure both women and men address gender sensitive considerations in benefit from the planned intervention? Has the budget. the need to provide gender sensitivity training or to engage short term gender experts been factored into the budget?

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Does the project explicitly allocate budget/resources for gender related activities e.g. women’s income, reducing gender disparity? Has a communication strategy been N The project has educational and awareness developed for informing the public about enhancement as an intervention, related the existence, progress and results of the to the demonstration of a solar PV diesel project from a gender perspective? hybrid mini‐grid system and the use for solar street lights, but no strategy is included on communication progress and results from a gender perspective i.e. the impact on women and men and how the women and men in the communities have responded to the existence of street lighting etc.

Gender Action Plan

Gender sensitive interventions have been incorporated into the Tuvalu Work plan to enable the Project staff to start integrating Gender sensitive actions highlighted in red font immediately.

Priority Timeline Lead Collaborating Agency and Beginning Agency Funding Summary Activity Description End

Strengthening of Policies and Action Plans Task 1 ‐Institutional Strengthening Renewable Energy and Energy Funded by Efficiency Unit (RE& EEU) at TEC PIGGAREP. Tender won by NZ Ridgway 2 Mar'09 TEC MPUI Capital Recruit Project Engineer (2yrs)‐ Salary and establishment of PMU Ensure gender training is included in training programme 1 Jun'2009 TEC MPUI Task 2 ‐Human Resource Development Funded by Develop training program 1 Dec'2008 PIGGAREP TEC/Energy PIGGAREP Conduct training – ensure training include teacher’s Funded by families (wives) and students 2 Mar'2009 PIGGAREP TEC/Energy PIGGAREP PIGGAREP supports the Work Package 5 ‐Renewable training of TEC Energy Resources Outer Islands Electricians on RE Task 1 ‐Solar Photovoltaic Technology and Integration into mini‐grid on also includes the island of Vaitupu exposure visits

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to RE development projects in Vanuatu and other PIC's. Consultant will Recruitment of Consultant be engaged for (required TOR) 1 Sept'2008 TEC Energy/IUCN 4 months Bid over than Appoint of Consultant Sept‐Oct'08 $30K Scoping mission to Vaitupu (required TOR) To include specific consultations with women to assess women specific responses to the PV TEC/ system and street lights 1 Oct'2008 Consultant Energy Preparation of tender TEC/ documents 2 Dec08‐Jan'09 Consultant Energy Call for Tender to design, supply,install,commission and TEC/ provide training and technical Consultant assistance/Evaluation & Award of Contract 2 Nov/Dec'2008 Energy Transportation of equipments to TEC/ MPUI/MCTT/ site 4 Jan‐Apr'2009 Contractor MHA Installation by Installation and training 5 May'2009 Contractor TEC/MPUI Contractor Commissioning Jun'2009 Monitor and evaluate the system performance including socioeconomic impacts (Ensure responses from women are PIGGAREP could captured and reflected 6 Jun'2009 TEC Energy pick this up. 40 streetlights Task 2 ‐Solar Street Lights for at US$3,500 the Outer Islands each Preparation of tender 1 Oct/Nov'2008 Consultant Energy when use of documents batteries, streetlight to remove Call for Tender to design, supply, install, commission and provide TEC/ training and technical Consultant assistance/Evaluation & Award of Contract 1 Nov/Dec'2008 Energy Transportation of equipments to TEC/ MPUI/MCTT/ site 2 Jan‐Apr'2009 Contractor MHA Training and commissioning 3 May'2009 Contractor TEC/MPUI Monitor and evaluate the system performance including socioeconomic impacts (Ensure responses from women are PIGGAREP could captured and reflected 4 May'2009 TEC Energy pick this up

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Institutional Assessment

The Tuvalu Energy policy outlines a clear commitment to gender equality and equity which reflects the commitment of the Government and specifically the Ministry of Public Utility and Industries to integrating a gender sensitive approach into all energy projects and activities. This presents a good organisational climate and foundation which needs to be built upon through the engagement of staff and management in gender training to allow them to define gender as a concept and to be able to explain why a gender sensitive approach is practiced and what are some effects on the project and on the people.

The following indicators can be used to measure the progress made especially in the monitoring and evaluation of the project. It is recognised that the installation of the project is already completed with commissioning to take place in January of 2010, which means that any gender assessments will be conducted with the monitoring and evaluation of the project, reviewing the different impact the Project has had on the women and the men on the island of Vaitupu and ensuring that the women are consulted and engaged in the monitoring and evaluation process Any further interventions building on from the evaluation of the project should include gender sensitive measures.

The following indicators can be used by the Project Coordinator to assess their progress towards the development of institutional capacity in gender and can be revisited when conducting midterm or end of the year reviews. Each description is ranked according to the level of its reflection of gender mainstreaming in the project which is reflected by the numbers on the left. The numbers on the right currently reflect the way the Project is ranked at the time this review was done.

Indicator 1: Gender sensitive and gender balanced indicative strategy as reflected in service objectives, implementation strategies and project performance criteria

Ranking Description Project Ranking 0 Access by women is not mentioned in the agency/project sector policy 0 and strategies. No strategy for participation of women or to ensure same opportunities and equal burdens for women and men. 1 Sector policy and strategy documents position women as passive beneficiaries or as target groups for separate energy use programs, in their reproductive roles. 2 Women’s roles defined from a perspective of program efficiency and effectiveness: women contribute to planning, maintenance and management for a better service and use. 3 Special activities and programs encourage women in new roles in decision making, maintenance, management, construction and entrepreneurship. 3 Objectives strategies and performance criteria aimed at balanced division of burdens and benefits between women and men.

Indicator 2; Sex disaggregated planning and monitoring system in operation

Ranking Description Project Ranking 0 No gender considerations in planning and monitoring systems of 0 project. 1 Planning and monitoring systems collect specific information on participation of and effects for men and women. 3 Data on participation of and effects for me and women are used to adjust strategies and human resources development as part of project planning.

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Indicator 3: Expertise as reflected in the type of agencies involved, field teams and focal point

Ranking Description Project Ranking 0 No agencies or departments with social expertise involved. 0 1 Social agencies or department are involved but they have no specific expertise on gender. 2 Social agency/dept is one of the project agencies and has expertise on gender. 3 Technical agency management can explain the relevance and cite strategy elements of a gender‐sensitive approach.

Indicator 4: Expertise of field teams

Ranking Description Project Ranking No gender expertise is present in field teams. 0 Field teams include social expertise, but without specific know‐how in gender. Field teams include social expertise with knowledge and skills in gender.

Indicator 5: Gender balance in the project

Ranking Description Project Ranking 0 All male or all female staff 0 1 Between 0 – 25% of one gender 2 Between 25 – 50% of one gender 3 Balanced 50 – 50 male and female staff

Indicator 6: Organisational climate – capacity building, managerial support and staff performance incentives Ranking Description Project Ranking 0 No project staff have participated in gender training. 0 1 25%of project staff have participated in gender training and can use it in the field. 2 50% of project staff have participated in gender training and can use it in the field. 3 75% of project staff have participated in gender training and can use it in the field.

Indicator 7: Support from management

Ranking Description Project Ranking 0 Management is not conscious of gender issues in the sectors or considers them 0 not their task 1 Management defines women as passive beneficiaries or target groups for dissemination of technologies 2 Gender as a concept is defined correctly in project documents and management can explain why a gender sensitive approach is practiced. Management can describe what gender strategies are practiced in the project/program and can mention some effects on the project and on the people

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Vanuatu

Country Brief Vanuatu has a population of 216,000 spread out over 84 islands and is in the Melanesian sub group. The islands are divided into 6 Provinces, each having a Provincial Administrative Centre where development programmes are administered. The capital administrative centre Port Vila is in the province of Efate. Vanuatu is made up of 80 different language groups with different tribal affiliations and social structures. Approximately 80% of the population live in rural areas with livelihoods based on subsistence agriculture and fishing where absolute poverty and severe hunger is rare.

Energy, Gender & Development Context Vanuatu’s Human Development Index rating is 67 and it is classified as a ‘least developed country’ (LDC). The social structures are a mixture of matrilineal and patrilineal inheritance systems with the degree of women’s empowerment varying with cultural groups; women from matrilineal areas often have more traditional decision‐making power, generally exercised at the household level and many of the key women leaders in Vanuatu are from matrilineal groups. However, across all groups men have more access to and control of key political, economic, knowledge and time resources than women.

There is a strong traditional obligation system that functions as a basic safety net, but that also restricts individual control of land and exacerbates women’s lack of economic power. xvii In Vanuatu, women are less likely than men to be literate, educated to secondary and tertiary levels, in senior positions in the workforce and government and they earn less than men.xviii The Vanuatu Priority & Action Agenda recognises that sustainable growth and development is achievable only through the participation and involvement of all sections of society and recognises that women are disadvantaged in Vanuatu compared to men.

The formal economy is built on tourism, beef, copra, kava and timber and is largely subject to fluctuating commodity prices. There is a considerable problem of urban drift and the peri‐urban settlements are particularly poor and underserved. Food security in settlements is a problem due to squatter’s inability to access agricultural land. Prostitution is a growing problem, as poor women without alternative livelihoods must find ways to provide for themselves and their children.xix

The Department of Women’s Affairs is the national women’s machinery responsible for implementing the Gender Equity Policy introduced in 1997 under the Comprehensive Reform Programme. An evaluation of the policy in 2006 identified 21 barriers that have prevented effective implementation of the policy. These include i) traditional discriminatory attitudes, ii) lack of government commitment and low allocation of resources, ii) the idea that women’s rights are contrary to Christian beliefs, and iv) the endemic nature of violence against women.

Based on the evaluation and guidance from stakeholders, the Department of Women’s Affairs is developing a strategic plan and targets for action over a 5‐year period. Vanuatu ratified CEDAW in 1995 and the CEDAW Committees concluding comments note specifically that the Department of Women does not have adequate authority, capacity and resources to mainstream gender across government and effectively support implementation of CEDAW.

ENERGY

Vanuatu is highly reliant on petroleum imports to cater for its national energy demand. Two thirds of mineral petroleum imports are used in the transport sector, with approximately 30% used for

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electricity generation.

The Vanuatu Energy Policy Framework adopted in 2006 highlights Vanuatu’s dependency on imported fossil fuels support and the escalating prices of imported fuel as placing an increasing burden on Government to meet its economic growth goals. As an island country with many small islands scattered over a huge area of ocean, infrastructure development in the islands is minimal and in many cases is concentrated only around the provincial centres. Access to these islands is by boat and a few have airstrips that are serviced by small airplanes.

Vanuatu is well endowed with some renewable energy sources such as hydro, solar, biomass (inclusive of biofuels), wind, and coconut bio‐fuel and geothermal. These resources offer considerable potential to provide Vanuatu with diverse energy supply sources and reduce its dependence on imported fossil fuels. The Energy policy highlights the challenge in making the transition from the traditional energy supply source to the renewable energy sources.

The Framework highlights eight strategic areas relevant to energy sector planning in Vanuatu and eight cross cutting issues, one of which is gender with a policy commitment to promote gender equity in energy planning. The issues identified in achieving gender equality commitments are the lack of female energy planners, lack of female engineers as energy is regarded as only male domain, the customary and traditional roles of women and men. Strategies for dealing with this include encouraging female participation in energy programmes and raising awareness on the roles and energy needs of different groups.xx

Summary of Intersection

The specific emphasis given to gender equality in the National Energy Policy Framework highlights the organisational commitment to integrating a gender sensitive approach to all energy projects. This needs to be followed through with training, capacity building and by working closely with the Department of Women’s Affairs who can ensure effective consultation with rural women’s groups and who can also provide guidance and assistance to the energy officials working to incorporate a gender sensitive focus.

Project Name Vanuatu Renewable Energy Projects

Brief The overarching objective of the project is to raise the welfare of the people of Vanuatu through the provision of reliable and affordable energy services in particular to 80% of the rural population by the year 2017. The project will primarily focus on enhancing the use of locally available renewable energy resources through the following three components: (i) wind resources assessment; (ii) rehabilitation of solar home systems in Santo and Malekula; and (iii) a community based small hydro project. The project is being coordinated by the Energy Unit.

Status: After slight delays in the implementation, the progress has picked up with the following activities carried out:

1. Project Coordinator has been recruited 2. Review of data for Talise hydro was tendered out and is now being awarded to GHD International, a company that specialises in project development and management with a lot of experiences in the Pacific. A preliminary report based on a desk evaluation of the original feasibility study has been produced. The review work is funded by the PIGGAREP project.

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3. Scoping mission for the purpose of identifying potential sites for wind assessment has been done. Six potential sites identified and approved by IUCN. 4. Total of 33 sites to be rehabilitated. Scoping mission completed and implementation about to commence.

Timeline: a) Wind monitoring: installation and training is expected for 2010 b) Talise hydro project: Estimated construction 8‐10 months; expected to begin early 2010 c) Solar rehabilitation: Installation and training is expected for February 2010

Project Review

The following review was done of the project document using a Gender mainstreaming checklist in the ENERGIA Handbook. The checklist questions are placed in table format with the responses to allow Project staff to clearly identify what gender mainstreaming would entail within the project.

The following review was done of the project document using a Gender mainstreaming checklist in the ENERGIA Handbook. The checklist questions are placed in table format with the responses to allow Project staff to clearly identify what gender mainstreaming would entail within the project.

Question Y/N Specific Project relevance Are the following key words N The Project document makes no reference to any mentioned in the project document of the key words but the overall objective is to – gender, women, female headed raise the welfare of the people through the households, women’s participation, provision of reliable and efficient energy services women’s income generation, in particular to 80% of the rural population. The women’s empowerment. project recognises the impact of the project on stimulating rural economic development but does not mention the specific impact on women. Is the gender dimension N highlighted in background The document does have a section of the information to the intervention? economic and social impact but the gender Does the justification include dimension of the project is not recognised. A convincing arguments for gender feasibility report conducted for the Talise hydro mainstreaming and gender project highlighted the community/domestic equality? Was gender analysis facilities to be impacted by the project as well as conducted as part of the social the presence of the Maewo Women’s Union, but assessment/analysis or was it did not specific the different ways in which the conducted separately. Were the project will impact the women and men of Talise different project related needs of and Narovorovo e.g distribution of labour, who women and men analysed as part does what in the community, how does this of the social analysis? change with the hydro project; The document highlights the use of lighting for craft and other activities but could be more specific to reflect the impact it will have on women as they become more engaged in decision making, maintenance, management and entrepreneurship. Do the intervention objectives N The Economic and Social Impact assessment address needs of both women and refers broadly to enhancing the livelihoods men? through addressing energy requirements in rural areas but does not highlight the gender differentials of this. Are measures incorporated to N No specific mention of the inclusion of women in ensure women’s inclusion and the Project planning or in the activities which are

48 participation in project planning technical in nature and gender blind. and implementation? Do planned activities involve both men and women? Have indicators been developed to N The project activities are measured by measure progress towards the deliverables and milestones which are broad in fulfillment of each objective? Are nature. Reference is made to institutional indicators disaggregated by sex? strengthening, human resource development, Are targets set to guarantee a community energy educational and awareness sufficient level of gender balance in programmes but no specific focus to guarantee a activities (eg quotas for male and sufficient level of gender balance female participation?

Who will implement the planned Implementation of the Project is being done intervention? Have these partners through a Project Officer recruited under the received gender mainstreaming Energy Unit to oversee the day to day activities training so that a gender including reporting. The Project Office will report perspective can be sustained to the National Advisory Committee on Climate throughout implementation. Will change through the Director of Energy. The both women and men participate Vanuatu Energy Department has literature on in implementation? gender and staff has been trained in gender mainstreaming though this is not reflected in the project document. The role of women in the implementation of the project is not specified. Does the M&E strategy include a N Project document does not refer to M&E gender perspective? Is the M&E Strategy. No specific reference to the collection of Framework sex disaggregated for data disaggregated by sex or to examining of the baseline, monitoring, impact substantive content and the process of evaluation with reporting intervention. requirements? Will it examine both substantive (content) and administrative (process) aspects of the intervention? Has the greater context of gender N No gender analysis done and no consideration roles and relations within society has been given to possible negative impacts of been considered as a potential the interventions risk? Has the potential negative impact of the intervention been . considered? (e.g., potential increased burden on women or social isolation of men?) Have financial inputs been “gender The project does not highlight the need to proofed” to ensure both women address gender sensitive considerations in the and men benefit from the planned budget intervention? Has the need to provide gender sensitivity training or to engage short term gender experts been factored into the budget? Does the project explicitly allocate budget/resources for gender related activities e.g. women’s income, reducing gender disparity? Has a communication strategy The project has community energy educational been developed for informing the and awareness programme as an activity in the public about the existence, Talise River Mini hydro project though no focus is

49 progress and results of the project given to the dissemination of information on the from a gender perspective? progress and results of the project from a gender perspective.

Vanuatu Final Gender Action Plan

Given the different stages of each of the various project activities and the fact that this project has been, the following action points are recommended to be incorporated to various stages of the work plans. Below is a revised gender action plan developed during the national training and capacity building on gender mainstreaming convened in Vanuatu on 23 – 28 June 2010.

Project Action Point Responsibility Timeframe Indicator Findings Identify some of DWA to gather July to List of gender Linkages of Talise Hydro the gender information November concerns listed for Energy to: Project issues within the through existing 2010 villages ; Women & Talise and network Health Narovorovo, Invitation to Women & Nasawa villages Energy Education Department to Women’s attend Economic Empowerment Identify Project July 2010 Organised Cooperative organized Coordinator with women’s groups in Agricol women’s groups following field the areas Women’s in area for work identified for Church Groups consultation future Community consultations (this Groups was carried out as part of the training) Consultations Project Duration of Number of times conducted with Coordinator and Project consulted and representatives Energy feedback from from women’s Department consultations groups during responsible for taken on board in project commissioning project implementation implementation Rehabilitation Identify Project July – Organised of Solar organized Coordinator November women’s groups in Projects women’s groups following field 2010 the areas in area for work and identified for consultation Provincial future Consultations consultations through DWA Feedback from Provincial Consultations Consultations Project Number of times conducted with Coordinator with consulted and representatives DWA during the feedback from from women’s Provincial consultations groups during Councils taken on board in project project implementation implementation

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Identification of Project July – Number of women women as Coordinator November identified as caretakers or to Project 2010 caretakers provide support Management to caretakers Team Department of Energy Gender analysis DWA with Project July – Gender Analysis of area to Coordinator and November completed and identify Assistance from 2010 submitted to gendered impact IUCN and PEG Department of of intervention in through the Energy 20 schools and Provincial Forum, 13 health centres rehabilitated. Outcome of Provincial Forums to be conducted DWA Institutional Project DWA with Energy Ongoing Project Capacity coordinator to Department Coordinator receive gender through trained and able to training and agreement implement the support by DWA between gender action plan and is able to Departments for the IUCN articulate Energy Project. concept of DWA willing to gender and conduct training Energy relevance to with community Department project coordinates gender mainstreaming of energy projects

Coordinator engages DWA with Energy activities Regular DWA with Project Ongoing Active and ongoing consultation with Coordinator and consultation with DWA Department of DWA and with Energy provincial representatives

Institutional Assessment

Interviews conducted with the Project staff revealed a number of staff had attended energy and gender workshops and the energy division in Vanuatu had been instrumental in assisting with the gathering of footage on women and energy for documentary productions under the PEG Network. While there is recognition for the need to include women in the consultation processes and also in implementation, this is not being followed through effectively.

A key absence from the NACCC is a representative from the Department of Women’s Affairs, given the Energy sector commitment to mainstreaming gender sensitive interventions. The following indicators can be used by the Project Coordinator to assess their progress towards the development of institutional capacity in gender and can be revisited when conducting mid‐ term or end of the year

51 reviews. Each description is ranked according to the level of its reflection of gender mainstreaming in the project which is reflected by the numbers on the left. The numbers on the right currently reflect the way the Project is ranked at the time this review was done.

Indicator 1: Gender sensitive and gender balanced indicative strategy as reflected in service objectives, implementation strategies and project performance criteria

Ranking Description Project Ranking 0 Access by women is not mentioned in the agency/project sector policy and strategies. No strategy for participation of women or to ensure same opportunities and equal burdens for women and men.

1 Sector policy and strategy documents position women as passive 1 beneficiaries or as target groups for separate energy use programs, in their reproductive roles.

2 Women’s roles defined from a perspective of programme efficiency and effectiveness: women contribute to planning, maintenance and management for a better service and use.

3 Special activities and programs encourage women in new roles in decision making, maintenance, management, construction and entrepreneurship. 3 Objectives strategies and performance criteria aimed at balanced division of burdens and benefits between women and men.

Indicator 2; Sex disaggregated planning and monitoring system in operation

Ranking Description Project Ranking 0 No gender considerations in planning and monitoring systems of 0 project. 1 Planning and monitoring systems collect specific information on participation of and effects for men and women. 3 Data on participation of and effects for me and women are used to adjust strategies and human resources development as part of project planning.

Indicator 3: Expertise as reflected in the type of agencies involved, field teams and focal point

Ranking Description Project Ranking 0 No agencies or departments with social expertise involved. 0 1 Social agencies or department are involved but they have no specific expertise on gender. 2 Social agency/dept is one of the project agencies and has expertise on gender. 3 Technical agency management can explain the relevance and cite strategy elements of a gender‐sensitive approach.

Indicator 4: Expertise of field teams

Ranking Description Project Ranking No gender expertise is present in field teams. Field teams include social expertise, but without specific know‐how in 1 gender.

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Field teams include social expertise with knowledge and skills in gende.r

Indicator 5: Gender balance in the project

Ranking Description Project Ranking 0 All male or all female staff 1 Between 0 – 25% of one gender 1 2 Between 25 – 50% of one gender 3 Balanced 50 – 50 male and female staff

Indicator 6: Organisational climate – capacity building, managerial support and staff performance incentives Ranking Description Project Ranking 0 No project staff have participated in gender training. 1 25%of project staff have participated in gender training and can use it 1 in the field. 2 50% of project staff have participated in gender training and can use it in the field. 3 75% of project staff have participated in gender training and can use it in the field.

Indicator 7: Support from management

Ranking Description Project Ranking 0 Management is not conscious of gender issues in the sectors or considers them not their task. 1 Management defines women as passive beneficiaries or target groups 1 for dissemination of technologies. 2 Gender as a concept is defined correctly in project documents and management can explain why a gender sensitive approach is practiced. Management can describe what gender strategies are practiced in the project/program and can mention some effects on the project and on the people

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Conclusions and Recommendations

The review highlighted a number of key strategic entry points to gender mainstreaming within the 5 SIDS IUCN energy projects whilst also reflecting the obvious absence of any gender analysis in the development of the project document, log frame and activities. This is despite the commitment to gender equality highlighted in energy policies, particularly in Vanuatu and Tuvalu. By definition gender mainstreaming involves integrating a gender perspective and gender analysis into all stages of designing, implementing and evaluating energy projects and programs with the analysis ideally conducted at project design stage to inform implementation.

Technical staff engaged as project implementers do not fully understand how to integrate gender sensitive interventions with a number of them limiting the inclusion of women in the project to engaging the women in the technical work, which is generally not possible as they are not trained. Women are culturally seen in reproductive roles and as passive beneficiaries to energy interventions and not as decision makers, contributing to planning, maintenance and management for a better service.

Very few of the project staff associated gender mainstreaming with consultations with women and women’s groups and providing opportunities for the women’s perspective to be included in determining interventions. Within the energy sector, women are considered mainly as energy users and are only considered for consultations at different project stages of community consultations mainly as end users. All of the staff were supportive of the inclusion of women and over the course of the interview started to see the relevance of gender mainstreaming for project sustainability.

Given the different levels of understanding of gender mainstreaming within the 5 pilot country projects and the different stages of implementation, the review has kept the action plan simple and easy to follow as it is linked to the current work schedule for all 5 projects. It has not been possible to highlight specific gender goals per project given the stage of project development, but it is expected that the gender action points recommended will lead to further development in institutional capacity which should be reflected in the ranking for institutional assessments when this is re‐visited. The current rankings are based on feedback collected during the recent Mid‐Term Review and have been reviewed with the Project staff during subsequent training sessions.

Three trainings were subsequently conducted; the first regional training was convened in Tonga for project coordinators followed by national trainings with project’s stakeholders in Vanuatu and Samoa respectively. Reports on these trainings are not included in this report but were developed as training reports. The review has not looked at the allocation of core resources aligned with policy commitments but has focussed the action plan around building capacities, gender training, knowledge sharing and networking with some focus on commitment and accountability. Once this has been done effectively, the projects can integrate a focus on communication and visibility for good practices and the alignment of resources.

As highlighted in all the action plans, training and capacity building for the Project Coordinators and all other project staff is key to be able to progress gender mainstreaming. It is necessary to build the Project Coordinators understanding of the concept of gender and the ability to explain why a gender sensitive approach is practiced and what some of the strategies are. The Project coordinator can also use this knowledge when monitoring and evaluating the impact of the project and can ensure that findings are being incorporated in the next phase etc. The Project Coordinators could even become champions for energy and gender and could use this knowledge to provide feedback to other energy projects.

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Another significant opportunity which should be taken advantage of in the push for gender mainstreaming is the inclusion of the Ministry/Department of Women’s Affairs in project implementation and project reviews. As the lead agency responsible for driving the implementation of Government commitments to gender equality across all sectors, they have a key role to play in identifying gender sensitive interventions and also in identifying relevant women’s groups for community consultations.

It is strongly recommended that all project coordinators are trained to be able to understand the importance of gender analysis when implementing a project, as well as to work through some of the interventions highlighted in this review. This will ensure ownership and will assist with implementation.

It is also recommended that some assistance be given to Palau and the other countries in the Northern Pacific who appear not to have been exposed to much of the ongoing PEG work to date. A step by step building block approach is recommended with the training and capacity building as a first step using this document as a guide and supported by tools such as the ENERGIA practical handbook on Gender Mainstreaming in Energy Projects which has a number of assessment tools for stakeholder analysis, building a village socio‐economic profile, activity profile and seasonal calendar, access and control profile and communications strategies. The following building block approach is recommended by ENERGIA when mainstreaming gender into energy projects and is recommended to be reviewed by Project staff and referred to during project implementation.

Step by Step Guidelines for Gender Mainstreaming:

Step 1: Conduct a literature review to determine what is known about gender and energy in your country. What is not known? What projects or policy interventions have already happened (government, NGO, donor) What is currently happening? What is planned? Who is working on gender and energy in this sector? What are the issues that must be kept in mind?

Step 2: Review your Project Document. What are the issues? What are the goals? Does the Project Document make a clear statement on what it aims to achieve from a gender standpoint? Do the project reports reflect the specific situation of women and girls, men and boys in the community? Does it take into consideration the different roles of women and girls, men and boys? Is their consideration given to the power relations between men and women, boys and girls in the community?

Step 3: Assess the projects capacity to work on gender: Have the Project staff been training in gender and energy concepts? Is there gender balance in the numbers working on the project?

Step 4: How can the stakeholders help? Are agencies with social expertise such as the Department of Women’s Affairs engaged in Project Implementation. Do project partners and advisory groups include gender balance and expertise?

Step 5: What are the Gender goals and Indicators? What information do you still need in order to design gender responsive project interventions? What are some possible entry points in the prodoc and activities for gender mainstreaming. How can gender mainstreaming help meet the development goals?

Step 6: Fieldwork in the Community and Household. Baseline information and sensitisation. What constraints do women and men face in accessing electricity? Will women’s or men’s workload be increased or reduced by the intervention? What income opportunities could new energy supplies

55 support and how can both women and men exploit these? Who in the household makes decisions about purchase of new appliances and fuels?

Step 7: Preparing a Gender Action Plan: Project staff should agree on what gender goals should be, setting quantitative or qualitative targets for meeting these goals and what specific indicators will be used to measure progress.

Step 8: Building Gender Responsive Capacity and Consensus: Training and Advocacy: Is there a need for a gender focal point and advisory group. Does the capacity of decision makers, project staff and partners need to be built? What are some practical strategies to make an organisation a gender‐ sensitive place to work?

Step 9: A Monitoring and Evaluation Plan: Indicators of Progress and Institutionalisation Who is responsible for monitoring tasks? How will other stakeholders participate in the process. When will the monitoring take place? What tools will be used to record observations? What mechanisms exist to review progress?

Step 10: A Communications Strategy: Is there a process to regularly report on the gender mainstreaming activity? Can a case study be developed with results of monitoring and lessons learnt. Can the progress be disseminated at a national level through meetings or a workshop.

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Key References

Advancing the Implementation of Human Rights in the Pacific, 2007, UNOHCHR, UNDP, UNFPA, UNICEF, UNIFEM

ADB Gender Profiles of Asian Development Bank’s pacific Developing Member Countries, 2008 Pacific Energy and Gender Network Regional Strategic Planning Workshop Report, April 2009; SOPAC, CTA

Final draft Women’s Plan of Action, October 2009‐12‐21

Gender Mainstreaming in Energy Projects, A Practical Handbook, October 2009, ENERGIA International Network on Gender and Sustainable Energy

Government of Samoa, Millennium Development Goals, First Progress report, 2004

Government of Tuvalu, Millennium Development Goals, Report, 2006

Government of Tuvalu, National Energy Policy, 2009‐12‐21

Government of Tonga, Millenium Development Goals, 1st National Status Report, March 2005, National MDG Task Force

Joint Declaration on Energy Policy Priorities, Palau Energy Policy Development Working Group Workshop, June 2006

Pacific Energy and Gender Annotated Bibliography, September 2005, SOPAC, ENERGIA, CTA

Renewable Energy Policy Framework, Kingdom of Tonga,

Republic of Palau HIES Report, 2006

Republic of Vanuatu, Millennium Development Goals Report, 2005

Samoa National Energy Policy, 2007

The Gender Face of Energy, A Training Manual Adapted to the Pacific context from the original ENERGIA commissioned training manual, October 2006; SOPAC, ENERGIA, CTA

The Millennium Development Goals, Initial Status Report, Republic of Palau, 2008

Vanuatu National Energy Policy Framework, 2006

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i ADB, Gender Profiles of Asian Development Bank’s Pacific Developing Member countries, 2008. ii Gender Mainstreaming in Energy Projects, A Practical handbook, ENERGIA, 4th draft, 2009 iii ibid iv ibid v SOPAC Miscellaneous Report 681, Pacific Energy and Gender Network Regional Strategic Planning Workshop, 16- 17 April, 2009 vi SOPAC Draft Regional Study on Gender Status in Energy Projects, June 2009 vii ADB, Gender Profiles of Asian Development Bank’s Pacific Developing Member countries, 2008 viii Gender Mainstreaming in Energy Projects, A Practical handbook, ENERGIA, 4th draft, 2009 ix ADB, Gender Profiles of Asian Development Bank’s Pacific Developing Member countries, 2008. x The Republic of Palau, Millennium Development Goals initial status report, 2008 xi ADB Gender Profiles xii ADB Gender Profiles xiii Samoa National Energy Policy, 2007 xiv ADB Country Gender Profile, Tonga xv Ibid xvi ADB Country Gender Profile, Tuvalu xvii ADB Country Gender Profile, Vanuatu xviii Vanuatu MDG Report, 2005 xix ADB Country Gender Profile, Vanuatu xxxx Vanuatu National Energy Policy Framework

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