Parliament and the Budgetary Process, Including from a Gender Perspective
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Parliament and the Budgetary Process, Including from a Gender Perspective Regional Seminar for ASEAN+3 Parliaments 23 to 25 July 2002, Manila (Philippines) Foreword Government budgets provide a comprehensive statement of the priorities of a nation. Within the budget, a government expresses its policy intentions, and the means and resources with which it intends to implement them. The budget debate is one of the key moments in the parliamentary year and it offers a crucial opportunity for parliament to promote the interests of those it represents. Increasingly, budgets have also begun to incorporate a vision of gender equality, by acknowledging that expenditures have differing effects on men and women, boys and girls. For a budget to become law, it has to be scrutinised and approved by parliament. As the foremost representative institution, parliament monitors the work of governments by seeking to ensure that the budget matches the needs of the electorate with the nation's available resources. Through its oversight function, it also has responsibility for ensuring that the resources allocated within the budget are utilised in a manner that yields maximum benefit for the people. It is no accident that strengthening the capacity and role of parliament within the budget process is now commonly linked to increasing democratisation and development. In line with its dual interest in promoting the role of women in parliament and fostering good governance, the Inter-Parliamentary Union (IPU) has held a series of regional seminars on "Parliament and the budgetary process, including from a gender perspective". The Manila seminar was the third in this series and as in previous seminars in Nairobi (2000) and Bamako (2001), the aim has been to strengthen the capacity of parliaments in ensuring transparency and accountability in this key process of government activity. Each of these regional seminars identified particular regional themes, and the Manila seminar was no different. Participants came from the ASEAN + 3 region which had fallen prey to the Asian economic crisis of the late 1990s. Not surprisingly, participants were interested in discussing ways to strengthen institutions so as to minimise the effects of potential economic destabilisation in the future. To this end, they considered the role of expenditure committees, budget offices and audit offices in maintaining budget accountability and transparency. Also of interest was the question of loan conditionalities and the extent to which parliaments can approve and oversee the utilisation of the loans contracted by government. The rich gender budgeting experience of the Government of the Philippines also set the tone for a very lively debate on how and why gender budgeting should be implemented. Gender budgeting was promoted as an effective means of ensuring economic efficiency, rather than merely delivering gender-equitable outcomes. Variations also surfaced amongst countries within the region, with some parliaments, for example, playing a role in the budget process at the formulation stage as well as the approval and evaluation stages. This publication documents the speeches and presentations made during the seminar, and uses a series of quotations from the ensuing debates to provide a snapshot of the issues covered. After a general introduction to the budgetary process, including from a gender perspective, participants considered the question of what is meant by a gender perspective to the budget; the respective roles of government and parliament in the budgetary process; issues of transparency and accountability and how to conduct a gender impact analysis of the budget. As in Kenya and Mali, parliamentary staff were invited to participate in parallel sessions, in which they discussed strategies to provide impartial advice to parliamentarians on the budgetary process. The seed for these seminars was first planted in Nairobi and the success of the latest one will undoubtedly generate further events in other parts of the world. I am sure that these seminars provide a valuable opportunity for exchanging views and sharing country-specific practices, and that these reports offer a practical resource tool for all interested parties. It is worth mentioning that a Handbook for Parliamentarians on national budgets and gender issues, which builds on the material and experience gleaned from these seminars, will be published shortly. The Manila seminar was the product of a fruitful collaboration between the IPU, the United Nations Development Programme and the World Bank Institute. I commend the efforts of each party and thank them for the constructive spirit in which the seminar was organised. This seminar would not have been so successful without the efficiency and generous hospitality displayed by the Parliament of the Republic of the Philippines, to which I owe a debt of gratitude. Finally, the resource persons, who contributed a wealth of practical knowledge of budgetary processes and the implementation of gender sensitive budgets, deserve our sincere thanks. Anders B. Johnsson Secretary General Table of contents h Inaugural Ceremony Mr. Martin Chungong, Representative of the Secretary General of the Inter-Parliamentary Union . Mr. Rick Stapenhurst, Representative of the World Bank Institute ............................................. Mr. Mark Malloch Brown, Administrator of the United Nations Development Programme ........ Mr. Jose De Venecia, Speaker of the House of Representatives of the Philippines .................. .. Mr. Franklin Drilon, President of the Senate of the Philippines ................................................... .. h Work Programme ........................................................................................................................ .. h Officials of the Seminar .............................................................................................................. .. h Summary and Key Findings ....................................................................................................... .. General Report .............................................................................................................................. .. Report of the Parliamentary Staff Session ................................................................................... .. h General introduction to the budgetary process, including from a gender perspective Ms. Emilia Boncodin, Secretary, Department of Budget and Management, Philippines ........... .. Ms. Winnie Byanyima, MP, Uganda ............................................................................................. .. h The budget: purpose, composition and terminology Mr. Paul East, former MP, New Zealand ...................................................................................... .. h Accountability and transparency in the budgetary process: Parliamentary tools and mechanisms Mr. Rick Stapenhurst, Senior Public Management Specialist, Governance Regulation and Finance Division, World Bank Institute.......................................................................................... .. Mr. Paul East, former MP, New Zealand....................................................................................... .. h Accountability and transparency in the budgetary process: The national audit Mr. Rick Stapenhurst, Senior Public Management Specialist, Governance Regulation and Finance Division, World Bank Institute.......................................................................................... .. Mr. Paul East, former MP, New Zealand....................................................................................... .. h Gender impact analysis of the budget Ms. Remedios I. Rikken, Operations Director, CAPWIP.............................................................. .. Mr. Paul Sinnapan, Trainer/Consultant, Credit Union Centre, Malaysia .................................... .. h Mechanisms and methods for developing a gender-sensitive budget Ms. Aurora Javate de Dios, Chair, National Commission on the Role of Filipino Women ........ .. Ms. Amelou Benitez-Reyes, Commission, National Commission on the Role of Filipino Women .. Ms. Winnie Byanyima, MP, Uganda.............................................................................................. .. h Closing Ceremony ...................................................................................................................... .. Mrs. Yolanda Doblon, Executive Director, Legislative Budget Research and Monitoring Office, Senate of the Philippines .............................................................................................................. .. Mr. Terence Jones, Resident Representative, UNDP, Philippines ............................................. .. Mr. Martin Chungong, Representative of the Secretary General of the Inter-Parliamentary Union . Mr. Ramon Magsaysay, Jr., Senator, Vice Chair of the Committee on Finance, Senate of the Philippines .............................................................................................................. .. h List of Participants ...................................................................................................................... .. Inaugural Ceremony Mr. Mark Malloch Brown, United Nations Development Programme Administrator, Mr. Jose De Venecia, Speaker of the House of Representatives, Philippines, Senator Franklin Drilon, President of the Senate, Philippines, Mr. Martin Chungong, Representative of the Inter-Parliamentary