Evaluation Report

PWDC’s Gender Responsive BudgetingProject in Penang

By Regina Frey, genderbüro Berlin, 23.12.2013

Contents:

Executive Summary ...... 1 1 Introduction ...... 2 2 Approach ...... 3 2.1 Core ideas of GRB ...... 3 2.2 Methods and process of the evaluation ...... 4 3 Key Findings ...... 5 3.1 Perceptions of GRB ...... 5 3.2 General Setup of the Project ...... 6 3.3 Output 1: Institutionalisation of GRB in Penang Local Government ...... 6 3.4 Output 2: GRB implementation of Community Pilot Projects ...... 8 3.5 Output 3: Sex-disaggregated data ...... 9 3.6 Output 4: Capacity building in GRB tools and methodologies ...... 9 3.7 Output 5: Increased public awareness and participation in LA budgeting processes ...... 10 3.8 Summary...... 10 4 Recommendations...... 11 4.1 Vision and strategy ...... 11 4.2 Capacity Building ...... 15 4.3 Role of GRB Team ...... 17 5 Conclusion ...... 17 6 Sources ...... 19 7 Appendix ...... 20 7.1 List of documents ...... 20 7.2 Guideline for semi-structured Interview ...... 26 7.3 List of interviews ...... 28

Executive Summary

This report is the result of an evaluation done in November 2013 in Penang. It is based on material generated with the help of several methods like analysis of documents, single and group semi structured interviews (25) as well as field trips, observations and meetings. The key findings are: • The project was planned very thoughtfully; with a good analysis I the beginning and a detailed planning of outputs and activities. However a three year life span seems to be to short time to achieve the planned results. Also the project seems to be understaffed in the light of the five outputs. • In terms of the five outputs the project’s strengths clearly are with the project pilots (output 2). Also the translation of GRB to the public and to the local authorities via publicity work (output 5) can be seen as success. • The project partly conceptualises gender as “different needs for different people” which could lead to weaken the dimension of gender equality as defined in the international Gender Budgeting discourse. • Challenges remain in the institutionalisation of GRB which means that the administration is actively and systematic contributing to a budget process which is gender responsive – this is a long term process of change. In the short span of life of the GRB project the team was very productive and has achieved much: GRB is well known to many stakeholders with the local administration, there are formal and informal networks and bodies to implement GRB, there are good showcases with a clear methodology via the pilot projects, many stakeholders were trained on Gender and GRB. There was also an extensive output in the field of publicity. This is already an excellent result. Since GRB is a process which is transforming procedures and cultures within organisations, it is not something that can be implemented in two years - and also the three years given to the project will not be enough time to make the Penang budgeting cycle systematically gender responsive. Therefore key recommendations are: • The five outputs should be rearranged an prioritised, making the current output 1 an overall result • GRB should be linked to the Penang Gender Policy • There should be a ruling or resolution on GRB by policy makers - defining roles and responsibilities of stakeholders involved as well as providing a monitoring and reporting system • An implementation strategy should be created which is in line with the budget cycle • There should be a focus on capacity building with strongly follows the resolution and the implementation model as well as giving guidelines and checklists according with this implementation setup and process. All in all, after a phase with a stronger focus on pilot projects, there should now be a focus on the strategic and systematic institutionalisation of GRB.

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1 Introduction

The Gender Responsive Budget (GRB) Pilot Project is a flagship programme of the Penang Women’s Development Cooperation (PWDC). The project started at the beginning of 2012 and after almost two years of implementation the evaluation serves as a means of reflection and adjustment. After the GRB project staff expressed their wish for an evaluation, Regina Frey, who is a German expert on Gender Mainstreaming and Gender Budgeting, was hired by Friedrich-Ebert-Foundation. The terms of reference of the evaluation indicate the following key objectives: • “Review all the activities and initiatives that have been undertaken under the GRB pilot from the initial ideas (2010) to its inception (2012) to end of Oct 2013; • Assess the relevance and success of the strategies, objectives, outputs and activities that have been developed and implemented to achieve the aims of the GRB pilot; • Identify the enabling and disabling factors from the political, social, economic and institutional context that have affected and will affect the achievement of the pilot expected results; and • Identify gaps and formulate recommendations for the improvement and continuation of the GRB project at the state and local levels.” (Terms of Reference, p. 1/2) The evaluation had four phases: 1. Preparatory phase: The evaluator received 59 documents in preparation for her stay in Penang, they were partly analysed before travelling to Malaysia. Also there was email communication in preparation on the evaluation programme 2. Field phase: 14th until 22th November 2013: After a first meeting with the GRB team, there were field trips and interviews (in Detail see appendix 7.3). 3. Presentation phase: From 23rd to 24th November there was preparatory work for writing the report as well as preparing presentations for a) a technical workshop with the GRB team (25th November) and a presentation on preliminary results on 26th November for the administration staff involved in the GRB project. 4. After returning to Berlin, the final report was written; it was delivered on 23nd December 2013.

In the chapters to follow this report describes the approach of the evaluation taken, key findings and recommendations. Preliminary findings were already presented in the technical meeting for the GRB team (25.11.2013) and partially also in the presentation of preliminary results taking place on 26.11.2013). For the compilation of the report, a more systematic analysis of documents and recordings of the interviews wasconducted. I would like to take the opportunity to thank Friedrich-Ebert-Stiftung, namely Sabine Franze, for giving me the opportunity to undertake such an interesting study. Also I would like to thank PWDC for being willing and open to be evaluated and taking this as an opportunity to improve. A very big thank you go to Aloyah Bakar and Henry Loh and the rest of the GRB team:Without their ongoing and intensive support, I would have been very lost. Thank you so much!

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2 Approach

For the evaluation of a project, two perspectives are important: a) From an internal perspective the following questions can be asked: Which way was a project setup? Is the allocation of funds and staff appropriate, have objectives been clearly defined, does a solid working plan exist and were the right persons involved at the right time?This refers to general project management procedures. This perspective will not be the main focus of the report but some of the questions will be dealt with in chapter 3.2. b) From an external perspective the following questions are important: How is GRB conceptualised in the project in light of thestandards and the international discourse on GRB?Does the implementation of GRB result in an adequate and fair allocation of public funds? Does it also lead to mainstreaming procedures and decision making processes within the administration that consider gender equality within the budget cycle? This does not mean that there is exclusively ONE correct way to implement GRB. GRB is to be adopted and further developed when applied to a certaincultural and organisational context. However, there are some core messages on what the implementation of GRB wants to achieve and what Gender as a concept is about. The report will mainly give this external perspective since the project wanted an external source. The background of this perspective is the international discourse on GRB on the one hand and the various experiences of the evaluator as a consultant in the implementation of G(R)B1 processes.

2.1 Core ideas of GRB

There are different approaches to GRB UN Women defines GRB as follows: “Gender-responsive budgeting (GRB) is government planning, programming and budgeting that contributes to the advancement of gender equality and the fulfillment of women's rights. It entails identifying and reflecting needed interventions to address gender gaps in sector and local government policies, plans and budgets. GRB also aims to analyze the gender-differentiated impact of revenue-raising policies and the allocation of domestic resources and Official Development Assistance.” (Source: http://www.gender-budgets.org) “Gender-responsive budget initiatives provide a way of assessing the impact of government revenue and expenditure on women and men, girls and boys. … GRBs are about ensuring that government budgets are allocated in an equitable way so that the most pressing needs of individuals and groups are satisfied.” (Budlender/Hewitt 2003)2 These definitions show two core ideas of GRB:

1Gender Responsive Budgeting is mainly used in the UN context whereas in a more European focussed discourse the term Gender Budgeting is used more frequently but not exclusively. Whatever term is used, there is no major difference between GRB and GB when it comes to approaches and objectives. 2 Debbie Budlender and Guy Hewitt (2003): Engendering Budgets. A Practitioner’s Guide toUnderstanding and ImplementingGender-Responsive Budgets. http://www.gender- budgets.org/index.php?option=com_joomdoc&task=document.download&path=suggested- readings/engendering-budgets-a-practitioner-s-guide-to-understanding-and-implementing-gender- responsive&Itemid=587 genderbüro, Dr. Regina Frey Page 3

1. It is about a certain culture in administrative procedures: decision making and administrative processes concerning the public budget should be based on analysis and the assessment of the needs and interests of people. It should be evidence based and it should encompass a forward looking approach on the social impacts of policies and the respective public spending policies. 2. It is about gender equality, whereas men and women, girls and boys and their (possibly) different needs and interests come into focus. “Gender” as a social category is per se intersecting with other form of social differences.3

2.2 Methods and process of the evaluation

The approach of the evaluation study was to collect different perspectives on the GRB project of three groups involved. The guiding questions were: origin and context of the GRB project, stakeholders involved, planning and implementation of activities, changes achieved, driving and hindering factors for the success of the project. In addition in the course of the evaluation I also wanted to know about budget procedures and possible ways of the implementation of GRP in the two regions. Also future perspectives on the project were of interest. For triangulation4, several sources of information were used: Analysis of project documents as well as documents on the budget, meetings and discussions with the GRB team, observation. The core method however was interviewing the different stakeholders. Analysis of documents In the scope of the assignment it was not possible to do a systematic analysis of the contents of all documents provided.5 The documents served as background reading, meaning they were a source of information about the history and approach of the GRB. Especially valuable was the scoping report by James Lochhead as well as the regular reports to the board of the project. Some of the material, especially for the communities, is printed in Bahasa and therefore was not able to be understood by the evaluator. In addition to GRB material, there also was information on the budget of MPSP and MPPP, also partly in Bahasa language. Interviews All in all 25 interviews were conducted with all in all 36 stakeholders on three levels: a) on the community level, b) on the level of the local administration and c) the GRB-Team itself. There was not a standardised approach since a questionnaire with fixed questions for all of the respondents would not have been possible. The interviewees were questioned about their role in the GRB process and their views on it: For example the (in the view of the respondent) most important activities, objectives and resultsin/of in the GRB Project were addressed, as well as changes, driving and hindering factors for the GRB process. When interviewing persons on the administrative level, there were a number of “technical” questions on the budget process or incentives for staff to get involved in the GRB process. At the end

3See also Elson (2002: 16). 4Triangulation is a concept in social science and qualitative research. It says that different methods and sources should be used to examine one topic in order to gain a better validation of results. 5 A qualitative contents analysis in line with social science research standards (for example according to Mayring 2008) would not be applicable tothe diverse documents provided – nor would it serve to answer relevant questions on the GRB project. genderbüro, Dr. Regina Frey Page 4

of each interview there was the question whether a topic the intervieweefinds important was not addressed or whether there is anything important to add. Other sources of information Even though the interviews were the most important source of information, some other sources also influenced the evaluation process. For example the Website of PWDC and the GRB project was scanned, there were also observations in various situationssuch as the interaction of GRB staff with actors of the administration. Also site visits were conducted on at least four different projects: There were also some side talks which gave an impression of the various activities of the project and the stakeholders involved6. These were not recorded and analysed. Workshops and meetings with GRB team The draft questionnaires were introduced to the GRB group and slightly revised. In addition to meetings with the GRB team in the beginning and the end of the field phase, there were more informal side talks (while travelling and during lunch time) which also contributed to gain insight and get the whole picture of the GRB project.

3 Key Findings

The following section will give an analysis of strengths and challenges of the GRB Project. After highlighting the general setup of the project, there will be one subchapter on how GRB is perceived by stakeholders involved. Then, the key findings according to the five outputs of the GRB project are described. 3.1 Perceptions of GRB

When answering questions insection B) (see appendix 7.2) the respondents also explained their idea of what GRB is about. In this context many respondents also made statements abouttheir view on “Gender”. A typical statement was “Gender is (very) new to me”. Many of the respondents also referred to the projects slogan for GRB (“Different needs of different people”)7 and some of them expressed that they were relieved when they heard “Gender” would not be about “women against men” but on other differences like age. Onerespondentstated: “Gender is about a different social group” It seemed that the “gender” dimension (a social category defining the roles and responsibilities of men and women, girls and boys and which shapes notions on femininity and masculinity) was kind of lost in how the project explained gender as a core concept of GRB. Also “gender” was understood by some interviewees ashavingequal access to public resources or equal opportunities for different social groups. GRB as an approach or strategy was conceptualised in a different way in comparison to the international approach (see definition above). One typical statement was: “GRB is: you ask them what they want”. It seems that GRB is understood as “having a budget for prioritised community activities” or also just as planning process with takes into account different peoples` needs.

6For example with Mr. Paksu, a Coordinator of KADUN during a site visit at Sungai Chenaam. 7 See also Information on benefits of GRB on Website: „Responsiveness to different needs of different people.” “Gender” is only mentioned in the context of “Compliance with national and international gender commitments”(http://www.grb-pwdc.org.my/content/display/article/site:brg-param:benefits_of_grb- link:5366) genderbüro, Dr. Regina Frey Page 5

Sometimes GRB was limited to the notion of having projects on the community level following an approach of Participatory Needs Assessments. The level of the administration and organisational changes in the way planning, monitoring and evaluation is done, was rarely highlighted.

3.2 General Setup of the Project

The project has a life span of three years and will possibly be extended. It has defined five outputs which are outlined in a project planning matrix. The planning was done after a first phase of analysis which is well documented (see appendix 5.1: “The beginnings”). The project was planned very thoughtfully, especially the scoping exerciseprovided an excellent basis for a strategic planning process. The proposal for a three-year pilot project (January 2011, 49 pages) delivers a sound analysis of the situation, a strategic planning and a project planning matrix as well as the management structure, also proposing a budgeting for the project. In regards to the staff, there are currently four persons working in the PWDC office in Komtar, furthermore Cecilia Ng is involved as supervisor and James Lochhead as an external expert.8 When considering the various outputs and activities of the project, it is obvious that the project is understaffed: During the time the evaluator spent in Penang, all of the employees were strongly or predominately working on the level of the pilot projects (output 2). Some challenges remain regarding the setup of the project. On the basis of the current project planning, an implementation strategy is needed,this should also include a vision and desired results.This is because the focus up to now was on the five outputs and on activities, but without a greater goal, a broader orientation for the project is missing. Included in this must also be a stronger setting of priorities and the allocation of personnel in accordance with the desired outputs– otherwise there is the danger of a chronic work overload for staff.

3.3 Output 1: Institutionalisation of GRB in Penang Local Government

The first output is more an overall goal rather than one of four outputs, since “institutionalisation” as such means GRB in the Penang Local Government (MPPP & MPSP or LAs). However some of the respondents interviewed were not aware of the fact that institutionalisation means that there is a change in organisational procedures and the way an administration plans and takes decisions. Some respondents mistook the fact that the PWDC and the GRB Project was installed,as an institutionalisation. GRB however can only be executed by the administration itself; PWDC cannot be responsible for the implementation. This is a phenomenon which often occurs with gender policies: the tasks and responsibilities are simply “delegated” to bodies which are located outside the administration. Important steps for the institutionalisation have however taken place so far: there is a GRB working group and Gender Committees as well as ongoing communication and networking (also alonginformal lines). There is also to some extent a commitment to GRB: all of the respondents on the administration level were very open to the process. Onthe other hand,when it comes to the question of responsibilities,the task taken over by the departments and what it concretely means to implement GRB (meaning planning and implementing policies in a gender responsive way), the commitment seemed to be more theory than practice. A real “ownership” cannot be stated so far,

8 The website introducing the staff indicates there are more staff involved in the project: http://grb- pwdc.org.my/content/display/article/site:brg-param:who_we_are-link:5271 (14.12.2013) genderbüro, Dr. Regina Frey Page 6

this will need more activities not only by the GRB project but also “top-down” decision making by political and administration actors. A constraint often mentioned is a certain work overload of local administration staff. One head of department said that the local administration staff is handling federal as well as state government tasks and therefore the workload has increased. There are not yet any binding regulations or rulings for GRB in MPSP and MPPP nor atthe State level. The crucial question is: Which incentives and motivation exist for staff to get involved in GRB? What can create a top-down implementation where high ranking administration staff are giving good examples and stimulating GRB? Also it is not completelyclear which roles and responsibilities the bodies involved have (gender working group and committees). Also within department there is not institutionalisation in the way one person serves as a focal point or is appointed GRB person, who has specialised knowledge on GRB which s/he also shares with colleagues and gives support. The following example from the Berlin State Government gives an idea on a possible implementation structure. The arrows indicate the communication an reporting lines, the latter being very important to make the units involved accountable for the implementation of G(R)B.

Excursus 1: Berlinnetwork structure to implement G(R)B

In the City State of Berlin GB was introduced in 2002, when there was a ruling decided by the Berlin Parliament. This ruling already gave details on how GB should be implemented; it defined roles and responsibilities and defined phases of implementation. It also arranged for a reporting system: the administration had to report on a yearly basis whether they make progress in accordance with the ruling. The steering committee was producing a report which was then again decided upon by parliament. This ensured a top town process with regular follow-up mechanisms and monitoring by the authorities.

This model cannot be transferred to the Penang Government in an identical way – it would have to be adjusted to the Penang government structure; it can however serve as an example that a detailed genderbüro, Dr. Regina Frey Page 7

ruling as well as defining roles and responsibilities is crucial for implementing GRB in any administration.

3.4 Output 2: GRB implementation of Community Pilot Projects

With the pilot projects the GRB team developed very useful showcases. A methodology was created on how communities can express priorities in a participatory, democratic and gender sensitive way. It sets four phases and ensures participation of various groups of women and men.The project proves that GRB is useful because the people start to organise themselves and takeon more responsibility for their community. It also shows, that in the Iong run the local administration can save money,such as when people organised themselves in the low cost flats people cared more about maintenance and the removal of rubbish.Here the GRB project worked with an innovative approach, also serving as a bridge betweenthe communities and the local administration. Some challenges remain when it comes to organising groups: there are power relations within communities that have to be facilitated. On the one hand these power relations follow ethnic lines but also social class, gender, age, disabilities are social categories that sometimes make it difficult to achieve a solid consensus which does not leave out weaker groups and leaves everyone satisfied with a certain decision or allocation of resources.9 Therefore in a diverse community ongoing facilitation and moderation is needed – something the GRB project cannot deliver on the long run. The local administration or social welfare organisations will have to be installed as community managers, these persons however they should be gender and diversity aware and be trained in conflict resolution and the moderation of decision making processes. The slogan of the GRB project within the communities is “different people - different needs”. This approach is useful because it highlights the diversity of the communities. However there can be the danger of disguising gendered power relations. Therefore it is crucial to look at the needs and interest of (different groups of) women and men within the communities. The differentiation of practical and strategic gender needs can help in conceptualising gender in this context. Excursus 2: Gender needs -practical or strategic? The ILO/SEAPAT's OnLine Gender Learning & Information Module explains useful core concept of Gender and Development – also on Gender Needs: “Caroline Moser makes the conceptual distinction between practical and strategic gender needs. She defines these two types of needs as follows: Practical gender needs (PGNs) are the needs women identify in their socially accepted roles in society. PGNs do not challenge, although they arise out of, gender divisions of labour and women’s subordinate position in society. PGNs are a response to immediate perceived necessity, identified within a specific context. They are practical in nature and often inadequacies in living conditions such as water provision, health care and employment. Strategic gender needs(SGNs)are the needs women identify because of their subordinate position in society. They vary according to particular contexts, related to gender divisions of labour, power and control, and may include such issues as legal rights, domestic violence, equal wages, and women’s control over their bodies. Meeting SGNs assists women to achieve greater equality and change existing roles, thereby challenging women’s subordinate position.” Source:http://www.ilo.org/public/english/region/asro/mdtmanila/training/unit1/gneeds.htm

9Within one of the projects the mobilisation of the community led to some tension between ethnic groups. genderbüro, Dr. Regina Frey Page 8

3.5 Output 3: Sex-disaggregated data

Data and information that takes (possible) differences between different social groups into account are an important precondition for gender responsive budgeting, since it is a crucial part of the analysis. Putting this issue as one of five outputs, therefore, is reasonable and adequate. In 2012 a study was done giving an inventory of sex disaggregated data (“Sex-Disaggregated Data Mapping Report”, 2012). This report gives an overview on which data is available and which data should be produced in regard to the different departments. It gives the recommendation thatthe local governmenttake into account data on input, output and outcomes. Also within the pilot projects analyses of the needs of beneficiaries were done – these showed methods of gaining data disaggregated by sex in a participatory way. However, this output remains challenging because sex disaggregated data exists in some units of the administration but not necessarily in the ones which are important for the GRB process. In light of this information some questions should be asked: • How can the creation of data and also disaggregation into sex and other categories be stimulated? • What will the data be used for? In which different thematic fields is data on women and actually needed? It should be also taken into account that existence of data differentiating between different social groups will not automatically lead to gender responsiveness, since this is only one step in the budget cycle. Experiences from the Berlin GB process show that data collection is not targeted to certain objectives, it can lead to “data cemeteries”: The data is there but it is not used to monitor gender equality goals.

3.6 Output 4: Capacity building in GRB tools and methodologies

Many of the respondents attended training in GRB, at least one person stated that it was “quite theoretical” and “real life examples” should be included into the training sessions showing how GRB should be applied. There were examples included such as special parking lots for women, but in training also examples of bigger projects like market construction or community halls should be introduced. From the documents it cannot be confirmed that the training is “theoretical” since in the descriptions of the two half day training modules that were analysed, there was not much theory but they followed a very participatory and interactive approach.10The question remains whether the content of the training applied to the concrete responsibilities and task of participants. This is often difficult when introducing into concepts. Therefore a follow up and developing tools for application are important. Capacity building is not just about offering training courses. For building capacities in regard to a new field of expertise there are several possibilities: training on the job, including skills and knowledge as a requirement in job descriptions and giving incentives in the context of performance assessment of staff, or giving awards for special performance. In Penang state there is no training on the job on GRB: normally new officers will be supervised by a more experienced person in their first period of work. This however will not necessarily promote gender awareness in the job, if the supervisor has

10This was: “Introduction to Gender and Needs”, level one training for council officers and equivalent and “Introduction to Gender Responsive Budgeting”, level two training for council officers and equivalent. The details of the presentations given were not included in these documents. genderbüro, Dr. Regina Frey Page 9

not been trained on GRB. Also GRB-knowledgefor a certain job is not a requirement for the public administration staff, it is not included in job descriptions, it is also not mentioned in the recruitment interview and also it is normally not included in the training of future administration staff. There is a yearly assessment appraisal which is done with a form, GRB or knowledge on surrounding topics are not mentioned here. It can be listed in this appraisal which and how many training courses were attended. The staff can have up to seven days of training per year and normally it is the head of department whodecides in which area the training should be given. The department cooperates with universities and also sometimes private companies to provide the training courses. In MPPP and PMSP there are also mechanisms for staff motivation,such as awards for good performance.

3.7 Output 5: Increased public awareness and participation in LA budgetingprocesses

There is a high variety of products covering also many forms of media which were delivered in the two years of the project. A website was setup, social media (Facebook and Twitter) were used, a leaflet printed in many languages, and a video was also produced. Then publicity activities also encompassed traditional ways of gaining greater publicity such as community festivals. All in all, the publicity aspect of the project is very strong; the means used are appealing and customised to the target groups. Unfortunately there obviously is currently no human resources within the team of the GRB project to regularly update the online information, which especially for Facebook and Twitter is crucial to attract interest.

3.8 Summary

From an internal perspective it has to be stated that the GRB project was thoughtfully planned; also in its two years of existence it has had a tremendous output. For the variety of tasks and the output described, the project is currently understaffed. Taking an external perspective, the project’s strengths clearly lie with the project pilots (output 2), making the benefits of GRB visible and creating a clear methodological framework on the community level. Also the translation of GRB to the public and to the local authorities via publicity work (output 5) can be seen as success.When it comes to the conceptualisation of GRB, by choosing the slogan “different needs for different people” the project has taken a slightly different approach to “Gender” as a concept focussing on the cultural beliefs on femininity and masculinity as well as power relations between men and women. Challenges remain, which mainly is in the nature of GRB as a process of change within an organisation/administration. From the experience of other GRB processes it is known that this takes a long time – longer than the three yearsfor which the pilot project is planned to run. Since the pilot projects cover only a small part of the whole budget of the LA, there is also a small impact when it comes to the assessment of whether there is a reallocation of public funds which (according to the definition of GRB) “contributes to the advancement of gender equality” (see GRB definition above). However since the project is in the piloting phase, this is clearly understandable.

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4 Recommendations

In the light of the key findings it is recommended that the project will concentrate stronger on a vision and strategy for the future. Also an embedded strategy for capacity building should be focused on. It is also recommended, that the GRB team is reflecting and redefining its role in the process.

4.1 Vision and strategy

In the first project proposal a long term goal was defined: “The Penang Local Government integrates gender perspectives into its governance process, particularly through the implementation of Gender- Responsive Budgeting (GRB)” Also an objective of the project after three yearswas defined as: “GRB implemented as an integral component of good governance practices in Local Authorities in Penang”. 11 In the view of the author, it is crucial to give the GRB process more orientation in terms of what should be achieved. The implementation of GRB is not a goal as such, also a change in administrational procedures is a means to come to a certain end. Therefore it is crucial to make the project more goal driven. The recently drafted “Penang Gender Policy and Action Plan 2014- 2018”(PWDC 2013) can deliver gender equality goals which GRB can then contribute to. The policy gives four objectives, one of them is “GenderResponsiveandParticipatoryGovernance” (p. 25f). But also the other objectives are important for the GRB project: If the implementation of GRB aims at gender equality, the objectives one to three of the policies translate the abstract goal of gender equality in certain fields like “EconomicSecurity” or “Freedom from gender-based violence”. GRB cannot tackle all of the gender equality objectives which are included in the policy - it however can and should contribute to these goals. This means that the gender equality policy could serve as an umbrella for the implementation of GRB.This can deliver a vision for the implementation of GRB as a strategy. As soon as the gender policy is approved by parliament and is therefore binding, linking the GRB process to a gender policy will give the project more legitimacy and also orientation on which concrete changes for women and men and the gender equality situation can be achieved. In this context it is also important to mention, that Gender Responsive Budgeting in its character is a strategy(also like Mainstreaming Gender); the implementation of GRB is not and end in itself, rather the goal is gender equality. For strategically implementing GRB it is useful to define steps in accordance with the budget cycle. The following six step model can give an example on these six steps and what is relevant for GRB in each steps. This can also be a starting point to develop checklists.

How to implement GRB in the course of the Budget Cycle The following diagram explains how it is possible to implement GRB within the budget cycle not only within a small scope of the budget. This however is an ideal model which cannot be implemented in short notice but has some preconditions and changes which take time. Each step in the following model (one to six) will be explained.12

11 In April 2013 there was a slight revision of the strategic framework (Revised Strategic Framework ProDoc for 2013) 12 The six steps are adapted/translated from: Bundesministerin für Frauen und Öffentlichen Dienstim Bundeskanzleramt Österreich, Frey/Koehnen (2011). genderbüro, Dr. Regina Frey Page 11

Diagramme: Six steps for Gender Budgeting in the Budget Cycle

1. Classification of expenditure Each key result area and also programs can be classified in terms of a potential impact on gender equality. There are three possible types of expenditures: A) explicitly/directly addressing gender equalityB) obviously or possibly impacting on gender equality and C) very indirectly or hardly/not impacting on gender relations. Type A) is easy to identify, however it is important that, for example, a project addressing women or men as a social group will not automatically have a positive impact on GE e.g. a women’s project that is not empowering but even cementingthe role of women will possibly have a negative impact on GE (see also practical and strategic gender needs above). Type B) sometimes is easy to assess: If human beings (women and men) are involved as stakeholders or beneficiaries,or if public expenditure creates job opportunities, there will be an impact on GE. Normally this will be the biggest group in a budget (see also diagram below). Within the group B) there will also be all expenditure only indirectly impacting on GE, for example infrastructure projects: Type C) means that expenditure cannot or can hardly be linked to gender issues. This means a gender impact assessment will give evidence that an project/programme/expenditure will in no way have any influence on gender relations (in regard to employment effect, division of labour, power relations, political participation and other possible dimensions of gender). This type will be an exception, especially on the communal level, where often persons are directly beneficiaries of public expenditure, or the money is spent in a way which engages people directly. Example: Classification of MPSP Programmes of the seven focus areas  Group A): Programmes directly addressing gender issues (for example page 15: “Focus 7, Personal self enhancement – Conducting GRB training“)  Group B): Programmes / Activities which are obviously or possibly impacting on gender (for example: page 11: “Community Fitness programme”) – Entry points  Group C): Programmes / Activities which are not or hardly impacting on gender. (Attention: Gender neutrality is an exception!) genderbüro, Dr. Regina Frey Page 12

Diagram: Possible Classification according to possible impact on gender of a Budget

Gender Responsive Budgeting will focus on category B) expenditure because category A) expenditure very often contributes to GE in a self-evident way and category C) expenditure is very difficult to assess and monitor. For an implementation of GRB which will strategically look at the whole budget of a political system, the following questions should be asked: • What is the composition of the Budget in regard to A), B) and C) • What is the share of the budget ingroup A) and B)? • For starting the process (which will be gradually extended): Which expenditure/programmes should be identified for a gender analysis?

The aim will always be to extend the share of budget falling in group B) with proven positive impact on Gender Policy Example for gradually extension of GRB budget in Berlin In 2004 the council of mayors decided to define six „obligatory services“ for a beneficiaries analysis. These were: Book lending in libraries, Adult education services, Promotion of fine arts, Youth work facilities, Integrative counselling for families and Counselling for handicapped persons. Two year later this list was extended to 56 services, for example sport facilities, health counselling, public infrastructure, music schools, cultural events were included the analysis. Also indicators to make figures comparable were defined.

2. Assessment of needs and interest After expenditures have been classified, and the scope of expenditure falling in category B) has been decided upon (for example by a steering group), there should be an assessment of needs: A Gender- disaggregated Beneficiary Assessment is a tool to “ask actual or potential beneficiaries the extentto which government policies and programmes match these peoples’ priorities”. (Budlender et. al 1998, 41f.).So, the key questionat this stage is: What do potential beneficiaries (women and men in various social settings) need and want? The assessment can be done by means of online questionnaires. However, this method can exclude persons without access to the internet (which will be elderly and genderbüro, Dr. Regina Frey Page 13

poorer persons and also likely more women than men) – it is however crucial to include these social groups into the analysis. Example onneeds assessment on fitness/sports activities in one Borough of Berlin (Kreuzberg): The LA did a survey on the sports activities of the citizens. It was asked for current sports activities, and which kind of sports people would like to do if they would have the facilities. A result was: There were hardly any differences between women and men in terms of quantity (hours). But there was a qualitative difference between the genders in the different sport activities performed. Certainly there was a difference when it comes to age groups, which again were crossed bygender disparities.

The result of needs assessments definitely should influence the planning of the budget. This does not necessarily mean more public spending but a shift in priorities. It is important that the needs of women and men inform the formulation of objectives and indicators for objectives.

3. Objectives and Indicators This step is NOT about formulating an objective on gender issues – it is about the creation of objectives and indicators which integrate gender as an important part of planning. The question therefore will be: What is the gender dimension of the programme? What does the council want to achieve in terms of gender? How is segment of budget contributing to gender policy?

Example: In the MPSP KRA document, fitness activities are part of one key result area. This however is not related to gender issues. A possible objective referring to gender issues could be: „Women and Men participate in fitness activities according to their respective needs and interests“. A possible indicator (Integration into KPIs) could be: sports activities are done „24 times annually“, in addition there should be an indication of how many women and men (also of different age groups) should participate in the activities – based on the assessment of their needs (see above). For example it could be stated that sports activities are done „… involving x% of men and x% of women.“

When a budget statement is finally made, this indicates the end of the planning phase of a budget. Gender aspects should be included in the budget statement. The budget statement should be gender aware, meaning it should explain in which way the budget meets the needs and interests of women and men and why it contributes to gender equality as outlined in the GE policy of Penang (see also Budlender et al. 1998, p. 50f.)

4. Analysis After the budget was adopted, there will be the implementation of the budget, which simply means: the public budget is spent. In this second phase of the budget cycle, it is important to assess whether public money is spent in accordance with what has been planned – including the question:“In what way is the budget impacting on gender equality?” Are objectives which were set in the planning process – including gender equality objectives – met? The key question at this stage is: What are the intended or unintended impacts on gender as a social pattern? This relates to further questions like: • …Which social groups (i.e. men /women in certain age groups)are participating? • …Who benefits – either directly or indirectly ? (i.e. by using facilities, by job opportunities, by creating awareness, or by creating income, etc.), genderbüro, Dr. Regina Frey Page 14

• …Who volunteers? Is there an impact on unpaid /voluntary or reproductive work for women or men? • …Which other impacts on gender relation are there? (I.e. reduction of gender stereotypes) It is useful to have a checklist with questions for analysis covering these different dimensions, also including examples which are broken down onto areas of concern.This is important, since some of the questions will be relevant in a certain field of intervention, and other questions will be relevant in a different field.

5. Impact Analysis (Ex-post) The key question at this stage will be: Were the objectives which were set in step 2 met? An impact on gender equality can be threefold: 1. There are positive changes (outcome) 2. There are no changes and possible gender imbalances which exist remain in force – or changes are not assessable 3. There are negative changes (i.e. increase of gender imbalances like increase of unpaid work, less work-life balance)

6. Implications The key question at this stage will be: What do we learn from comparing objectives with results? What should be done in the future? Different courses of action can be taken, e.g.: • …setting new policy priorities within programme or focus area? • …more research/data necessary? • …affirmative action? • … The information that was gained out of step five and six should be included in planning next budget: this is how GRB also will become a learning cyclewith the aim of a continual improvement of public services.

As mentioned above, the six steps follow a standard planning cycle in an administration. They are useful to structure a GRB process and they can be a starting point to develop checklists for each step. The model can be introduced in trainings and the checklist can be used as an exercise in workshops to apply GRB to the responsibilities and tasks of administration staff.

4.2 Capacity Building

For the implementation of GRB it is a necessary precondition that persons involved have the knowledge to do so. Also it is important that there is a clear understanding of key concepts involved (see chapter 3.1). Capacity building is therefore an integral part of GRB. Normally “classical” training formats like half day or one day workshops are used to build the capacities of administration staff. genderbüro, Dr. Regina Frey Page 15

However there are other ways to conduct capacity building which are used in human resource management processes. Capacity building aims at widening the knowledge and skills (competencies) of persons. The term “Gender Competence” is used to describe the knowledge and skills that are needed for mainstreaming gender into the planning processes of an administration. There are three dimensions of „Gender Competence“, which are embedded in a framework of regulations and incentives of an administration:

1. Knowledge: • Key concepts • Gender-aspects in departmental areas

2. Sensitivity: • Awareness and Motivations

3. Application Skills: • How to integrate into working routines – checklists

Staff may sometimes feel that special training sessions on Gender and GRB is something that is done not in line with their activities but an additional task to do. Therefore it can make sense to include GRB issues (key concepts, tools) into the university training courses of persons who will apply at the LA. Also training on the job can be an appropriate way of capacity building, especially when it comes to application of knowledge in everyday work. Training of trainers who then multiply GRB (for example on the community level) is also an effective way of spreading knowledge. These kinds of training demand more time and other methods because gender trainers need knowledge on theories of Gender and GRB as well as special skills of facilitation and an awareness of gender dynamics within groups. Methods of dealing with resistance may well also be important. The recommendation on capacity building therefore, is to develop a training strategy which covers the three dimensions of gender competence, which strategically addresses certain stakeholders within the administration (focussing on chosen departments) who are involved and which is embedded in the budget cycle process. Also there should be modules on relevant gender aspects which are tackled in the implementation process. For example, if the strategy will be to continue working with the Department for Urban Services, there should be examples on gender aspects in the administration of low cost flats, using the examples from the pilot projects. It will also be useful to develop checklists for the different stages of the Budget cycle (see step 1- 6 above). Training modules can be developed a) along the budget cycle and b) for departments involved, using specific cases which relate to the topics and tasks of department staff. genderbüro, Dr. Regina Frey Page 16

Example: Embedded capacity building for a department involved in GRB Learning is a process, which will not take place within one day. This is why one day formats have their limit when it comes to transferring knowledge into practice. Instead of a one day training course, it is possible to give a framework for capacity building which is embedded in the task of local administration staff. For example, there can be a step to step approach which starts with a one day introduction. At the end of this workshop an exercise is given to participants which they then can work on within their job (for example collecting information/data on a field of expertise they are working on). After this phase of application within the job, in a follow up workshopthe results of the exercise can be presented and discussed in groups. After this the capacity building can change into a long term phase of training on the job (with the support of internal focal points). This should be accompanied by incentives for the staff - for example including gender competence in the performance assessment of staff or competitions/rewards for creating good examples within an administration.

4.3 Role of GRB Team

It is recommended that the team focuses more on the strategic implementation of GRB and takes over the role of facilitators and trainers (also training of trainers). Much effort was put in the pilot projects, and it is not possible that the GRB staff fulfil the role of community workers on the ground. The diversity and scope of tasks has led to a work overload, staff also regularly working on weekends and late in the night. This could be avoided by better defining the roles of the team members – maybe it is not necessary that everyone works continuously within the pilot projects. To make the changes that lead to a truly gender responsive budget and planning procedures, the GRB project would have to shift into the role of a support structure and a knowledge centre and propagators of gender knowledge – for example by providing training for trainers (who then work with the communities).

5 Conclusion

In its short span of life the GRB project or rather the GRB team has achieved very much: GRB is well known to many stakeholders with the local administration, there are formal and informal networks and bodies to implement GRB, there are good showcases with a clear methodology via the pilot projects, there was an extensive output in the field of publicity. This is already a very good result. Since GRB is a process which is transforming procedures and cultures within organisations, it is not something that can be implemented in two years and also the three years given to the project will not be enough time to make the Penang budgeting cycle systematically gender responsive. Therefore this report gives hints and recommendations on the future process. This is in no way to impair the great achievements of the GRB project. By doing so, my intention to give ideas and propose possible emphases and activities for the future.

As a first recommendation, the team should think about rearranging the five outputs: The current output 1 can also be seen as a result of the other 4 ouputs, therefor it would be more coherent to formulate an overall result and four output to achieve this result (which is also linked to the Penang Gender Policy for providing a vision and orientation).

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A possible way of how to rearrange results and outputs as well as key activities could be:

1. Overall result: Local Administration implements GRB and mainstreams Gender therefor contributing to the Penang Gender Policy Key activities: • Setup of a GRB structure within LA including rulings, regulations, bodies and internal incentives for the implementation of GRB • Defining GRB steps along the Budget Cycle, with checklists for each step. 2. LA has necessary 2. Knowledge and 3. Good Practices 4. Public and LA are capacities Data is available for prove benefits aware of and open to LA GBR Key Activities: Knowledge Pilot Projects: Communication • Training Management: • cover key topics Strategy: Modulesusing • collecting gender- for • update material checklists according aspects and implementation • update existent to steps along cycle disaggregated process social media • training of trainers data on key areas • training on the Job, of concern • creating incentives for staff Allocation of Human resources of GRB Team in line with priority setting

Within this setup, it will be crucial to have strong legal basis like a ruling or resolution by policy makers. In this ruling there also should be a definition of roles and responsibilities of the stakeholders involved which is as precise as possible. In other GRB processes a monitoring and reporting system which includes all of the departments showed to be effective, also improving the ownership for GRB within the departments. It should be checked whether this could also apply to the Penang GRB process.It will also be important to focus stronger on an implementation strategy which is in line with the budget cycle of the local administration (see for example the six steps model). To translate this into practice, there should be a focus on capacity building with strongly follows the resolution and the implementation model –and which has guidelines and checklists according with this implementation setup and process. Also training of trainers for certain areas of the implementation process can be necessary at least to unburden the GRB team in some areas. For the implementation strategy within the steps of the budget cycle, there also should be a strategic implementation which follows the logic of the budget expenditure: For a starting point a Key Result Area should be selected which a) covers a certain part of the budget (with the aim of widening the scope of GRB) and b) in which local administrative staff is willing to contribute to the implementation. Within the KRA there should be a classification of the budget with regard to the possible impacts on gender. Also it should be assessed which segment of the budget (within categories A and B) should contribute to implement the Penang gender policy.

To put it in a nutshell: The GRB project has already achieved much in short time, but after a phase focused intensely on the pilot projects, there should now be a stronger focus on the institutionalisation and therefor integration of GRB in the administrational routines of the three phases of the budget.

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6 Sources

Budlender, Debbie/Hewitt, Guy (2003): Engendering Budgets. A Practitioners Guide to Understanding and Implementing Gender-Responsive Budgets. Url: http://www.gender- budgets.org/index.php?option=com_joomdoc&task=document.download&path=suggested- readings/engendering-budgets-a-practitioner-s-guide-to-understanding-and-implementing- gender-responsive&Itemid=587 (18.12.2013). Bundesministerin für Frauen und Öffentlichen Dienst im Bundeskanzleramt Österreich (ed.) (2011): Arbeitshilfe für Gender Budgeting in der Verwaltung. Authors: Frey, Regina/ Koehnen, Manfred. Wien. Url: http://www.frauen.bka.gv.at/DocView.axd?CobId=42850 (18.12.2013). Elson, Diane (2002): Gender Responsive Budget Initiatives: Key Dimensions and Practical Examples. In: Judd, Karen (Ed.): Gender Budget Initiatives: Strategies, concepts and experiences. Papers from a High Level International Conference ‘Strengthening Economic and Financial Governance Through Gender Responsive Budgeting’. Bruessels 16-18 October 2001. Url: http://www.atria- kennisinstituut.nl/epublications/2002/Gender_Budget_Initiatives.pdf#search=brontype:boek% 20AND%20priref:101948 (18.12.2013). P. 15-29. International Labour Organization (ILO)/SEAPAT South-East Asia and the Pacific Multidisciplinary Advisory Team (Ed.) (1998): ILO/SEAPAT's OnLine Gender Learning & Information Module: Unit 1: A conceptual framework for gender analysis and planning. Url: http://www.ilo.org/public/english/region/asro/mdtmanila/training/unit1/gneeds.htm(18.12.2 013). March, Candida/Smyth, Ines/Mukhopadhyay, Maitrayee (1999): A Guide to Gender-Analysis Frameworks. Oxford: Oxfam. Mayring, Philipp (2008): Qualitative Inhaltsanalyse, Grundlagen und Techniken, Weinheim 2008. Penang Women’s development cooperation (PWDC)/GRB (without year): Benefits of GRB. Url: http://www.grb-pwdc.org.my/content/display/article/site:brg-param:benefits_of_grb- link:5366 (18.12.2013). Penang Women’s development cooperation (PWDC)/GRB (without year): Who we are? Url: http://grb-pwdc.org.my/content/display/article/site:brg-param:who_we_are- link:5271(14.12.2013) Penang Women’s Development Corporation (PWDC) (ed.) (2013): Penang Gender Policy and Action Plan 2014-2018. Final Draft. Penang. UN WOMEN (without year): Url: http://www.gender-budgets.org (18.12.2013).

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7 Appendix

7.1 List of documents

Version: 08.11.2013 Type of Date Category No. Title Filename Author Document MM/DD/JJJJ GRB Beginnings Final Report. Engendering Local CeciliaNg – Report on 1 report Cecilia Ng Government in Penang Local Government Cecilia_GRB Trail for 2 The Penang GRB Trail PPT Cecilia Ng 04/04/2012 GBR… GRB Presentation for 3 Gender Responsive Budgeting (GRB) PPT 06/11/2013 General Visitors… Gender Responsive Budgeting. The GRB_ Presentation for 4 PPT Cecilia Ng journey to Penang MMK… Dr Intan Osman, Intan_MPPP Scoping Assoc. Prof., 5 MPPP Scoping 11 Exercise PPT 04/09/2012 Prsentation.. KANITA, USM, Dr Lilis Surienty Press Conference. Introducing the PWDC Speech YAB Lim YAB LIM GUAN 6 speech 03/07/2012 PWDC (PWDC) Guan… ENG 7 Interim report: GRB scoping exercise report GRB Interim Report (SE)… James Lochhead 09/14/ 2011 Mainstreaming GRB. Mainstreaming GRB Scoping Exercise 8 Gender. The Report of the Scoping report draft James Lochhead 10/31/2011 Report (James)… Exercise SC to tion presenta yearly Half Executive Summary SC 1 Executive Summary summary 10/10/ 2013 Report… GRB Activity Calendar 2 2013 GRB Calendar calendar 2013 2013

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Type of Date Category No. Title Filename Author Document MM/DD/JJJJ GRB Activity Calendar 3 GRB Calendar 2013 calendar 2013 Jan-Jun 2013 GRB Calendar Activity 4 Appendix 2. GRB Activity Calendar calendar 2012 Jan-Dec 2012 1st half 2013 report on Gender GRB Steering Committee GRB Project 5 Responsive Budgeting (GRB). Pilot report 06/17/ 2013 Report 1-2013 Director Project GRB for MPPP & MPSP: Budget 2012 PWDC GRB Budget 6 chart 10/19/2012 – 2013 MPPP_MPSP 2013… Ms Aloyah Bakar, PWDC (PWDC). GRB Progress Report Mr James January to October 2012 and SC Report_final_20 Oct 7 report Lochhead, Mr 10/19/2012 Proposed Recommendations for 2012_CAB Wong Hoy 2013 Cheong GRB Project Document Gender Responsive Budgeting for Gender Equality and good 1 proposal GRB prodoc_final January 2011 governance in the local government of Penang Reworking on the Strategic Revised Strategic 2 framework 04/30/2103 Framework for ProDOC Framework ProDoc… Penang Women’s Letter of employment for letter of PWDC_OfferLetter GRB Development 3 01/11/ 2012 programme manager – GRB Project employment Programme Manager Corporatin Sdn Bhd Terms of reference – Assistant TOR Assistant Project 4 TOR Project Officer - GRB Officer Perbadanan KONTRAK PERKHIDMATAN JANGKA- TOR Community Assistant Pembangunan 5 PENDEK. DI ANTARA PWDC SDN BHD TOR (BM) Wanita Pulau DAN NAZATUL NA’EN MOHD SHARIF Pinang

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Type of Date Category No. Title Filename Author Document MM/DD/JJJJ Terms of Reference. Project 6 TOR TOR Project Consultant Consultant - GRB Terms of Reference. Project PWDC Sdn Bhd 7 Manager- Gender Responsive TOR TOR Project Manager (PWDC Sdn Bhd) Budgeting (GRB) Terms of reference – Project Officer, 8 TOR TOR Project Officer GRB to PWDC Presentations Quarterly GRB BOD Meeting_2012 1 Output 1 – 5 report 2012 Achievment report GRb 1st Qtr 2013 PPT

First Quarter Report 2 PPT Prsentation to BOD PWDC 04/10/2013 (Jan-Mar 2013) 100413 GRb 2nd Qtr 2013 PPT 2nd Quarter Report 3 PPT resentation to PWDC 06/20/2013 (April-June 2013) BOD_200613 GRB 3rd Qtr 2013 PPT 3rd Quarter 4 PPT Presentation to PWDC 09/23/2013 ON TARGET BOD_230913 11 - Las to Presentations & Reports Quarterly GRB GRB 2012 Action Plan

01 1 Part III. Project Matrix planning 2012 Update GRB Pilot Project Plan for MPPP - GRB Action Plan MPPP 2 planning 2013 2013 2013 GRB Pilot Project Plan for MPSP - GRB Action Plan MPSP 3 planning PWDC 2013 2013 2013 GRB activities -

2013 - 4 GRB activities timeline planning timeline_final GRB Activitiy Calendar 5 2013 GRB Calendar Calendar 2013 2013 y cit bli Pu B GR

Asia-Pacific GEM. Quarterly Cecilia Ng – UNDP GEM UNDP, JAPAN 1 newsletter April 2011 Newsletter on Gender and Newsletter – April 2011 Official

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Type of Date Category No. Title Filename Author Document MM/DD/JJJJ Macroeconomic Issues (GEM) in Asia Development and the Pacific Assistance James Lochhead, Gender Responsive Budgeting. Why GRB Booklet English 2011 2 book Marina Durano, 2011 we should adopt it and how fr Adrian Cecilia Ng 3 Leaflet with phone numbers leaflet GRB path for print-01 PWDC 4 GRB eZine. Issue 1 magazine grb_ezine_01… PWDC September 2012 5 GRB eZine Issue 2 magazine grb_ezine_02… PWDC December 2012 6 GRB eZine Issue 4 magazine grb_ezine_04… PWDC June 2013 7 GRB eZine Issue 5 magazine grb_ezine_sept… PWDC September 2013 The Gender Responsive Budgeting (GRB) Project. Working to identify 8 leaflet GRB_leaflet_op… u.a. PWDC March 2012 the different needs of different people in different communities. newsletter 9 It’s all for the people It’s all for the people… Derrick Vinesh 09/11/2012 article The vast potential of gender James Lochhead – PEM 10 article James Lochhead April 2011 responsive budgeting April 2011 Sebuah Projekt 11 GRB leaflet leaflet Leaflet final Perdana/ PWDC Right time, right place and some 12 article PM Mag_APR_cecilia… Cecilia Ng April 2012 luck. PWDC in the making 13 GRB eZine Issue 3 magazine PWDC – GRB_BRG… PWDC March 2013 14 Poster Output 1 Poster 18x24_posters_op1a PWDC 15 Poster Output 2 Poster 18x24_posters_op2a PWDC 16 Poster Output 3 Poster 18x24_posters_op3a PWDC 17 Poster Output 4 Poster 18x24_posters_op4a PWDC 18 Poster Output 5 Poster 18x24_posters_op5a PWDC ng ppi Ma ta Da M 1

MPSP Budget 2013 MPSP Budget 2013

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Type of Date Category No. Title Filename Author Document MM/DD/JJJJ 2 Sex-Disaggregated Data Sex-Disaggregated Data Mapping report Dr Jacqueline (?) Mapping…

other Concretizing Gender Budgeting in En Hairay_Concretising Mohd Hairay bin 1 The Budget Cycle. The case of PPT

Gender Budgeting Md Yusof Seberang Perai Municipal Council. GRB & its practical requirements in GRB Training 2 Penang. The Case Of Majlis PPT Hairy 03/04/2012 Workshop_Hairy Perbandaran Seberang Perai MPSP: Linking Expenditure Tracking 3 with Service Delivery for Better PPT Hairy 1st workshop Hairy Development Outcomes MESYUARAT JAWATANKUASA PENTADBIRAN DAN KEWANGAN Hairy BAJET 4 KHAS BIL 3/2011. Pembentangan PPT Hairy 08/15/2011 2012_Final_15082011 (2) Bajet 2012Majlis Perbandaran Seberang Perai Local Government Initiative Towards Hairy to Marge Local Mohd Hairay bin 5 Gender Budgeting. The case of PPT Government Gender Md Yusof Seberang Perai Municipal Council. Budgeting Local Government Budgeting. The HairyJune ppt on local Mohd Hairay bin 6 case of Seberang Perai Municipal PPT June (?) gov budgeting Md Yusof Council. Council embarks on rebranding 7 article Star Metro – 121013 The Star Online 10/12/ 2013 efforts Penang gender policy and action PWDC CPA 8 report PWDC (?) 10/23/2013 plan 2014-2018 (Draft) GenderPolicyActionPlan... NESSIE Sdn Bhd TRAINING MODULE Module summary Level 1 JML Training 1 SUMMARY Word October 2013 Gender and Needs.docx (?) for Penang Women’s Development

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Type of Date Category No. Title Filename Author Document MM/DD/JJJJ Corporation. Half Day Workshop “Introduction to Gender and Needs” Level One Training for Council Officers and equivalent NESSIE Sdn Bhd TRAINING MODULE SUMMARY for Penang Women’s Development Corporation. Half Day Workshop Module summary Level 2 2 Word ? ? “Introduction to Gender Responsive Intro to GRB.docx Budgeting” Level Two Training for Council Officers and equivalent

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7.2 Guideline for semi-structured Interview

Introduction for interviewee Why this evaluation? Key objectives are: 1. Review activities and initiatives under the GRB pilot to end of Oct 2013; 2. Assess the relevance and success of the strategies, objectives, outputs and activities that have been developed and implemented to achieve the aims of the GRB pilot; 3. Identify the enabling and disabling factors 4. Identify gaps and formulate recommendations for the improvement and continuation of the GRB project at the state and local levels. Why an evaluator from outside?

A) Role of Interviewee/s a. (What is your position, what is the job (or job of the unit)?) b. MPP: How many departments? c. Since when were you involved in the GRB process? d. Which activities were you involved in? (Committee, training, data collection, others?) B) Analysis e. What are the most important activities in the GRB Process in your view? f. What are the most important objectives in the GRB Process in your view? g. What are the most important results? h. What has changed in the course of and because of the GRB process? How can you tell? i. What are driving factors for the GRB process? j. What are hindering factors in the GRB process? C) Questions on the MPSP/MPPP Budget k. What and who informs the budget planning process? l. Where is an entry point (hooks) for data on needs and interest of people? m. Who is responsible for Budget Planning in Departments? n. MPSP/MPPP line Budget o. KRA for MPSP/MPPP Budget? p. Budget law: Federal Law: Can you as a State integrate Principles of social justice? Gender Equality law? In the Budget process? Are there any possibilities to do so? How? q. Why is it important for you to participate in GRB? In is the council benefitting from the project? D) Future perspectives r. Now: GRB in Urban Services – Cleanliness. Future Development of GRB ? Other Departments? Which ones? s. What are your expectations from the GRB process in the future? genderbüro, Dr. Regina Frey Page 26

t. What would be an added value for you in regard to GRB in the future? u. Who do you think will gain most out of the GRB? E) Closing v. Did we miss a topic you find important? w. Is there anything important to add?

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7.3 List of interviews

No. Method Date Name and Position Topic Duration 1 Single 16.11.2013 Ms Norjan Ibrahim, former member of Committee, JKKK PPR Jalan Sungai (Penang Town) 21 Min. Interview /Brigade wanita 2 Single 16.11.2013 Mr. Sharudin Sharif, Chairperson PPR Jalan Sungai (Penang Town) 22 Min. Interview 3 Single 16.11.2013 Ms. Shakila Bee Madarghany, Assistant Secretary PPR Jalan Sungai (Penang Town) 20 Min. Interview 4 Group 16.11.2013 Mr. Shaifful Sham (Ex-) Chair, Ms. Halimatus Sadiah PPR Jalan Sungai (Penang Town) 36 Min. Interview (Committee Member, Women’s Group ), Ms. Taslim (Treasurer) 5 Group 17.11.2013 Mr. Amir, Ms. Eina, Mr. Yus, Mr. Awall (Vice President), Ms. PPR Ampagan, LA 21 29 Min. Interview Munira, Ms. Ain 6 Single 18.11.2013 Dr. Cecilia Ng History of project, general setup 1h 25 Min. Interview 7 Single 18.11.2013 Mr. Ang Aing Thye, Secretary Minicipal Council of Penang GRB in MPPP 29 Min. Interview (MPPP) 8 Single 18.11.2013 Ms. Suhaida Kamalul Ariffin, Director of Dep. Of Finance, GRB in MPPP 45 Min. Interview MPPP 9 Single 18.11.2013 Ms. YB Dato’ Patahiyah Ismail, President of MPPP GRB in MPPP 31 Min. Interview 10 Group 18.11.2013 Mr. Mohamed Idrus, Director, Mr. Cheong Chee Hong, GRB in MPPP, Low Cost Flat 38 Min. Interview Deputy, Mr. Mohmad Zohairi, Aissistant Officer (Department Project and GRB of Valuation and Property Management)

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11 Single 19.11.2013 Mr. Prem Anand, former Councillor MPPP GRB in MPPP 48 Min. Interview 12 Single 19.11.2013 Ms. YB Dr Norlela Ariffin, Board of Directors PWDC and GRB in MPPP 59 Min. Interview Penang State Assemblyperson for the Penanti Constituency 13 Single 19.11.2013 James Lochhaed, GRB Project consultant GRB project in general, focus on 1h 13 Min. Interview training 14 Single 19.11.2013 Wong Hoy Cheong, GRB Project consultant GRB project in general, focus on 57 Min Interview pilot projects and participation 15 Single 20.11.2013 Mr. Ahmand Syahrir Jaafar, Deputy Director Dep. Of 44 Min. Interview Valuation and Property Management 16 Single 20.11.2013 Ms. Norshazila Alias, Deputy, Department of Finance 68 Min. Interview 17 Group 20.11.2013 Mr. Zaharah Mohd, Mr. Abdul Kader, Mr. Premelatha a/p interview Marimuthu 18 Single 20.11.2013 Ramlah Asiahoo, Ex-councillor (now at PWDC) 46 Min. Interview 19 Single 21.11.2013 Chow Koon Yeow, Chair PWDC GRB Steering Committee 37 Min. Interview 20 Single 21.11.2013 Chong Eng, Chair PWDS Board of Governance 40 Min. Interview 21 Single 22.11.2013 Patrick Khoo, Director Department of Corporate and Implementation of GRB in Interview international relations MPSP, focus on human resources management 22 Single 22.11.2013 Judy Shoba Robert Rajah, Director of Urban Services Implementation of GRB in Interview MPSP, focus on Urban services 23 Single 22.11.2013 Shariza Kamarudin, GRB Project officer Outputs of GBR projects

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Interview 24 Single 22.11.2013 Aloyah Bakar, GRB Project Director Outputs of GBR projects 23 Min. Interview (Interview had to be interrupted due to time constraints) 25 Single 22.11.2013 Maimunah Sharif, President MPSP Implementation of GRB in MPSP about 60 Interview Min.

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