Embedding Gender-Responsive Budgeting in Morocco: Effective Capacity Development Approaches Workshop

1. Strengthening GRB Programming through effective capacity development approachesWorkshop for UNIFEM Programme Staff, New York City 9-11 November 2010 Embedding GRB in Morocco: the long and short route of turning expectations into reality. Nalini Burn, Regional GRB Advisor, North Africa Office

2. Plan • Phase I GRB Programme: 2002-2004 • The short route project approach • Individual competencies • Breakthrough with MOF over charting long route • Phase II GRB Programme: 2005- 2009 • Learning the long route • GRB as a policy approach and competing theories of change • Collective capacities and individual competencies • Phase III GRB Programme: 2010 • Emerging possibilities for system level capacities in the Maghreb

3. Preamble • Multiple expectations • Multiple implicit) theories of change, overlapping perhaps competing • Long and the short paths need to be negotiated together and often redrawn and rerouted.

4. The short route: classic approach • Short Training workshops (consultant) followed by development of Manuals and Tools for replication • Theory of change :KAP (knowledge – attitudes- aptitudes- Practice) • Expectations (cast as outcomes and indicators) • Capacities built ( state and NGO) and gender-equality targeted allocations increased, within next annual budget cycle • Reality: • Of 90 GRB initiatives , only about 1/3 get beyond sensitisation

5. UNIFEM: GRB Phase I (2003-4) • Got beyond classic hurdle partly because it did not start from this premise and approach. • Budget analysis from prism of women and children , as part of World Bank Public Expenditure Review in 2002 • Turned into feasibility study for GRB within context of Public Finance reform • Engaged with policy environment and agenda of societal transformation and systemic change from outset • Charted broad agenda of recommendations • Insisted on the long route aspect of changing budget systems from technical, institutional capacity point of view • Resulted in buy-in of Finance Ministry( Budget Directorate, especially)

6. Phase I implementation • Recommendations taken up by UNIFEM Phase I programme, fitted in classic format: 2 training workshops, as well as deliverables : tools , manuals • But, • Prior needs assessment and sensitisation, working closely with MOF ( long interviews) • In-depth round of interviews + trouble-shooting emerging Frequently-asked questions ( meeting with high-level managers) • Design of interactive, customised workshop, based on available gender-informed research and statistics

7. Phase I Outcomes • Multiple and prolonged iterations of manual: • deliverable not made until Phase II! • But process built individual capacities and commitment and networks of committed advocates. • Individual competencies of relevant staff with later promotion prospects (institutional turnover and deployment) • Broad recommendations covering CD at all levels, • including reform of organic laws, gender-responsive information system, systemic sensitisation and competence building for all actors • Expectations • about forthcoming 5-year Plan, pace and sequence of reform • About time and scope to deepen and broaden capacity development and apply ongoing learning by doing approaches • Lessons learned • Morocco included in Phase II, growing understanding of longer route

8. Phase II 2005-2008: Programme design • Changing context: changing directors • Moving from individual to collective capacities • Broadening to three directorates: BD: budget, DSFF: research, forecasting and policy evaluation; DGAA: knowledge management, human resources and MOF budget • BD: GRB budget preparation in selected pilots • DSFF: Research and policy evaluation. Gender report over the policy cycle • DGAA: to embed CD and institutionalise GRB • Other components: pilot experiment of decentralisation as well as deconcentration of sectoral budgets : CBMS in this context • (pursuing cross sectoral, spatial inequalities, intergovernmental budget level approach)

9. Phase II: Programme implementation • Context of • portfolio expansion, staff recruitment( previously mostly consultant and Director of UNIFEM programmes), development of MDG Achievement Fund-Gender Equality, Paris Declaration about national ownership and gender equality agenda • TOC embedded and implicit in Phase II design and folded into Project Document and log frame sub sectored and managed as separate Outcomes, products, (discrete) activities and related budget • Unwritten but explicit assumption that training workshops (# of days x consultant days etc) shorthand for learning by doing approach

10. Phase II: Programme Implementation conditions and constraints • Insufficient sharing and internalisation of TOC and GRB-related substantive aspect among UNIFEM (national) programme staff. • Underlying different TOCs: managerial, professional competencies approach, mirroring Public Financial Management approaches ( more technocratic) efficiency ethos but combined with building rapport with national partners • Good practice of national ownership in deploying CD approach: driven by MOF but supported in efficient timely delivery by UNIFEM and constant attention to programme implementation • Awareness and Analysis of institutional dynamics and need to build in the incentive aspect in TOC: who are drivers and resisters of change and with what agendas? • Assumed but contested or unarticulated understanding of nature and extent of change: • what do we want to achieve and how to do it?

11. Phase II: Programme Implementation • Strategic oversight and leadership dissipates during implementation, as good practice, cost efficiency entails that international consultant role is diminished- • strategic reflection and direction is buried in mission reports used mainly for implementing next steps • Different outputs managed in form of individual subcontracts as research reverts to being stand-alone studies (CBMS) and CD becomes series of workshops, and with overall process before and after workshops reduced • Missed opportunities to make clear and make happen the coherence and inter-linkages to steer towards collective capacities and within a systemic approach • Exacerbated by tendency to think and practice in compartmentalised way. • Technical strategic knowhow through intermittent international consultancy

12. Phase II: Achievements and results • Nevertheless, between 2005 and 2008 • Each year :Gender Report • Multi-departmental (from 4 to 23) workshops to prepare Gender report, involving a growing team within DSFF • Conceptual Framework of GRB as a policy approach for rights-based, results-based gender-responsive budgeting. • Sectoral budget preparation: 2007 and 2008 • From 2 (literacy and professional training to 5 departments (adding, education, employment, health and finance) • Set of tools and workshop sessions to put into practice the GRB approach over 2 workshop sessions • First pilot CBMS, • but with questionnaire not really designed for GRB or subcontracting consultants supported over GRB approach • Linked to another Communal Information System

13. Phase II achievements and results • Moroccan GRB gets high level of visibility and inspires other GRBIs with increasing demand for field and study visits. • 3 samples of ongoing progress • Access to Justice • Professional training • Ministry of Finance • (to be explored further during working group)

14. Processus de la BSGAnalyse genre ( presented by Ministry of Training)

15. Processus de la BSGAnalyse genre

16. Ministry of Justice • Participation in Gender Report • From CEDAW to reform of Family Code to implementation through GRB ( MDG Achievement Fund) • Presentation by Division of Budget of Ministry of budgetary measures to recruit social workers in Family Court

17. Ministry of Finance • Decided they needed to subject their budget to GRB scrutiny • Found that budget nomenclature identified construction and information systems • Reviewed their programmes in accordance to their mission and for socioeconomic effectiveness (followed through the workshops since 2008) • Have developed new norms for construction of department’s establishment in remote sites where public servants don’t want to go: how to respond to gender-responsive and inclusive service delivery • “Feminisation” of medicine yet unemployment and shortage of women doctors in remote areas one of the causes of poor maternal health services • Have ensured that information system relating to tax includes sex-disaggregation of individuals

18. GRB Phase III • Corporate evaluation have not contacted consultant nor used documentation and KM work developed. • GRB Phase III developed without input from international consultant. • Long delay in implementing Phase III • Over period that consultant is recruited as Regional Adviser to provide quality assurance and gear up to a system wide approach ( Regional Centre of Excellence concept) GRB Programme Staff considered they had graduated from international expertise • Programme staff in UNIFEM have since moved on over 2010 (other posts and left system) • New staff recruitment process

19. Exploring the Regional Centre of Excellence Concept • Used one output and developed it into a broader framework encompassing entire programme • Example of an approach to regional capacity development using all three dimensions of CD: a virtual networking approach to CoE • The use of a demand for supporting CAWTAR in GRB through a workshop • conceived as a baseline and process for • drawing in new and existing UNIFEM programme staff in all 4 countries (GRB and country office • Using peer learning and exchange, incentives for emulation within the Maghreb

20. Plenary presentation and unpacking of GRB approach:3 November 2010

21. Policy evaluation working group, Malik from Tunisia facilitating, 4 November 2010

22. Troubleshooting working group on integrating unpaid care work in GRB: time use survey: Supporting Imane from Algeria

23. Travaux de la commission sur les Réformes budgétaires intégrant BSG • Algerie: M.Nadjib DJOUAMA +M. Mouloud Mokrane • Maroc: MmeNadia BEN ALI+ M.Fouad BOUTADGHART+ • M.Hamid EN-Nouissar • Mauritanie: M.Mohamed El Moctar Ould Yahya +M.Jemal • ould Mohamed Elyedali, • Tunisie: Mme Rim Kanzari

24. GRB and budget reform working group in action

25. Request from Nadia Ben Ali of BD , Morocco made in 2008 and then on 4 November : “I want you to come and work next to me at the Office”

26. Does it capture the way we should move? • Thank you!