Post on 26-Jan-2021
February 2015
1
Guidelines for Promoting Gender Mainstreaming in JICA Projects
【Disaster Risk Reduction/Post-Disaster Recovery and Reconstruction】
1. Purpose and Usage of these Guidelines
(1) Purpose
The purpose of these Guidelines is to promote gender mainstreaming in JICA’s projects in the field of disaster
risk reduction/post-disaster recovery and reconstruction by encouraging JICA officials and other related
parties to undertake various efforts from gender perspectives at the stages of formulating, implementing,
monitoring and evaluating projects. These Guidelines describe the gender perspectives put forward in the five
strategic goals in the position paper titled “Toward Mainstreaming Disaster Risk Reduction” formulated by
JICA in June 2014 and ways to incorporate these perspectives into project work.
(2) What is gender mainstreaming?
Gender mainstreaming is a process to identify development issues, needs and impacts from gender
perspectives at every stage of planning, implementation, monitoring and evaluation of development policies,
programs, and projects. This process is recognized as an indispensable means to achieve gender equality.
Gender equality does not mean that men and women become the same, but aims to realize a society where
equal opportunities and life chances are provided to both men and women, so that everyone can achieve
self-fulfillment regardless of gender. A gender (equality) perspective refers to “being aware that apparently
rigid division of labor or power relations existing between men and women are something socially
constructed.” In the contexts of JICA projects, it includes an approach to review the projects from different
Table of Contents
1. Purpose and Usage of these Guidelines ................................................................................................................................... 1
2. The Necessity of Gender Mainstreaming in the Field of Disaster Risk Reduction/Post-disaster Recovery and
Reconstruction .......................................................................................................................................................................... 4
3. Perspectives for Gender Mainstreaming and Measures to Incorporate Them into Project Work ............................................ 8
3.1 Incorporation of Gender Perspectives into the Project Formulation Stage ..................................................................... 8
3.1.1 Measures to incorporate gender perspectives into the project formulation stage (applicable to Strategic
Goal 1 through 4 except for emergency response) .......................................................................................... 8
3.1.2 Incorporation of Gender Perspectives into Needs Assessment Surveys for Post-Disaster Recovery and
Reconstruction (Strategic Goal 5) .................................................................................................................... 8
3.2 Incorporation of Gender Perspectives into Studies at the Project Preparatory Stage.................................................... 10
3.2.1 Measures to incorporate gender perspectives into surveys conducted at the preparation stage (applicable to
Strategic Goal 1 through 4 except for emergency response) ......................................................................... 10
3.2.2 Incorporation of Gender Perspectives into Surveys for Post-Disaster Recovery and Reconstruction Projects
at the Preparation Stage (Strategic Goal 5) .................................................................................................... 13
3.3 Incorporation of Gender Perspectives into Projects at the Project Implementation Stage ............................................ 16
3.3.1 Strategic Goal 1: Establishment and Strengthening of Disaster Management System .................................. 16
3.3.2 Strategic Goal 2: Correct Understanding of Natural Disaster Risk and Promotion of Common
Understanding ................................................................................................................................................. 19
3.3.3 Strategic Goal 3: Implementation of Risk Reduction Measures for Sustainable Development .................... 24
3.3.4 Strategic Goal 4: Speedy and Effective Preparation and Response (Emergency Response) ......................... 26
3.3.5 Strategic Goal 5: Seamless Recovery and Reconstruction for Disaster Resilient Society ............................. 29
3.4 Progress Facilitation (Monitoring and Evaluations) for Project and Ex-post Evaluation (applicable to
all Strategic Goals except for emergency response) ..................................................................................................... 34
3.4.1 Progress facilitation for projects that incorporate gender perspectives: monitoring and evaluations .............. 34
3.4.2 Ex-post evaluations that integrate gender perspectives .................................................................................... 35
4. Major References ................................................................................................................................................................... 36
Appendix: Public Notice Sample of Work Execution Contract with Project Member
Responsible for Gender Mainstreaming (Individual Contract) .................................................................................. 37
Disaster Risk Reduction/Post-Disaster Recovery and Reconstruction Guidelines for Promoting Gender Mainstreaming
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angles; for example, whether or not the activities currently being planned or implemented in the projects can
help resolve issues or meet needs resulting from different social roles men and women are expected to play or
power relations based on gender; whether or not the activities cause another gender disparity; or whether
women’s participation in the decision-making process is facilitated in the activities of the projects.1
1 These Guidelines for Promoting Gender Mainstreaming in JICA Projects focus on development activities from gender
perspectives which seem applicable at the stage of planning and implementation of projects, on the premise that they are used by
JICA officials and other related parties who do not always have specialized knowledge on gender equality and women’s
empowerment.
Guidelines for Promoting Gender Mainstreaming Disaster Risk Reduction/Post-Disaster Recovery and Reconstruction
3
(3) How to use these Guidelines
When using these Guidelines, first of all, read the section 2, “The Necessity of Gender Mainstreaming in the
Field of Disaster Risk Reduction/Post-Disaster Recovery and Reconstruction” to understand the gender
perspectives in these fields, and based on the understanding, refer to the following table of References in the
Guidelines to find corresponding sections for projects according to their strategic goals and stages in a project
cycle. To see more detailed information, check the section 4,”Major References.”
The following are points of particular importance that need to be noted in using these Guidelines. Please read
and make a mental note of them as well.
【Specific information on gender mainstreaming】
Strategic Goal 1 Strategic Goal 2 Strategic Goal 3 Strategic Goal 4 Strategic Goal 5
Establishment and
Strengthening of Disaster
Management System
Correct Understanding of
National Disaster Risk
and Promotion of
Common Understanding
Implementation of Risk
Reduction Measures for
Sustainable Development
Speedy and Effective
Preparation and Response
(Emergency Response)
Seamless Recovery and
Reconstruction for
Disaster Resilient Society
3.1.2Incorporation of
Gender Perspectives into
Needs Assessment
Surveys for Post-Disaster
Recovery and
Reconstruction
(Strategic Goal 5) [→p.8]
3.3.1
[→p.16 ]
3.3.2
[→p.19 ]
3.3.3
[→p.24]
3.3.4
[→p.26 ]
3.3.5
[→p.29 ]
Po
st-
imp
lem
en
tati
on
sta
ge
Ex
-po
st
eva
lua
tio
n
Grant aid
3.4 Progress Facilitation (Monitoring and Evaluations) for Project and Ex-post Evaluation (applicable to
all Strategic Goals except for emergency response) [→p.34]
3.2.1 (applicable to Strategic Goal 1 through 4 except for emergency response)
[→p.10]
"3.2.2 Strategic
Goal 5" [→p.13]
3.2 Incorporation of Gender Perspectives into Studies at the Project Preparatory Stage [→p.10]
3.3 Incorporation of Gender Perspectives into Projects at the Project Implementation Stage [→p.16]
Technical cooperation
Imp
lem
enta
tio
n
Pro
ject
im
ple
men
tati
on
sta
ge
Mo
nit
ori
ng
/
eva
lua
tio
nD
isco
ver
y o
f a
pro
ject
Pre
pa
rato
ry s
tag
e
(Pro
ject
fo
rmu
lati
on
sta
ge)
Pri
or
eva
lua
tio
n
For projects that fall
into the categories
other than
"Consultations not
required" at a need
survey stage, give
necessary comments
and determine the
type of gender
category at the time
of preliminary
arrangements (for
formulation of an
implementation plan,
a project planning
survey report, etc.).
Involvement
of Gender
Team
Yen loan
2.The Necessity of Gender Mainstreaming in the Field of Disaster Risk Reduction/Post-Disaster Recovery and Reconstruction
[→p.4]
3.1.1 Measures to incorporate gender perspectives into the project formulation stage
(applicable to Strategic Goal 1 through 4 except for emergency response)
[→p.8]
References for the Guidelines
Project discovery
Preparatory survey for
cooperation/
prior examination
Project screening
Cabinet approval
Exchange of note (E/N)
Grant agreement (G/A)
Supervision of implementation
Ex-post supervision (Ex-post evaluation &
follow-up)
Accepta
nce
of
request
Project preparation
Request
Consideration/
screening/prior examination
Exchange of note (E/N)
Loan agreement (A/N)
Project implementation
Completion/ex-post evaluation &
follow-up
Project discovery/formulation
Request to adoption
Project implementation
Detailed planning survey/prior examination
Facilitation of project
progress (Monitoring,
interim review, evaluation
upon completion)
Follow-up/ex-post evaluation
Supervision ofproject progress
(Monitoring)
Supervision ofproject progress
(Monitoring, interim review)
Record of discussions (R/D)
【Important points to be aware of when using these Guidelines】
(i) There is no need to apply concrete examples given in these Guidelines to all projects uniformly since
those examples may not be applicable to target communities/areas due to differences in culture and
society or for reasons relevant to the project in question. At the same time, it may be necessary to
select or add sections to refer to as appropriate because these Guidelines do not cover all approaches to
be taken from gender perspectives.
(ii) In all projects, it is important to have not only gender perspectives but also perspectives that will help
integrate disaster-vulnerable populations and groups with diverse needs (e.g. children, the elderly, the
disabled, the poor, and socially marginalized populations) into the mainstream. These Guidelines
focusing on gender mainstreaming are expected to help all users better understand diversities in the
field of disaster risk reduction/post-disaster recovery and reconstruction, eventually contributing to the
mainstreaming of other socially disadvantaged populations.
Disaster Risk Reduction/Post-Disaster Recovery and Reconstruction Guidelines for Promoting Gender Mainstreaming
4
2. The Necessity of Gender Mainstreaming in the Field of Disaster Risk
Reduction/Post-Disaster Recovery and Reconstruction
(1) Natural disasters don’t affect everyone equally.
As seen in the past disaster cases, natural disasters affect men and women differently in terms of the levels
of damage they suffer. Therefore, it is safe to say that disasters and gender issues are closely related. The
death toll statistics are an example that most obviously shows the gender-related effects in natural disasters.
Looking at the deal tolls from the past natural disasters, it is evident that women account for more fatalities
than men in many of the disaster cases in both developed countries and developing countries.
(2) Behind such gender-based differences in damages suffered by natural disaster victims, there are
various structural factors.
Factors contributing to such differences in damages suffered by men and women include not only physical
factors such as differences in body size and physical strength between men and women and the effects of
pregnancy that make it difficult for women to move about, but also structural factors that had already
existed in the society before the disasters occurred, such as:
Social contexts surrounding men and women: In some cases, the social standing of women has
always been lower than that of men. This situation may result in the restricted access to information
and knowledge for women, making it difficult for them to evacuate properly when hit by a disaster.
There are also cases in which women cannot make a split-second decision and, as a result, fail to
escape in time because men have traditionally been given the power to make all decisions.
Social norms: For example, in Sri Lanka, only male children are taught how to swim and climb trees.
Because of this custom, many women and female children lost their lives in the earthquake-induced
tsunami, for they had no means to protect themselves when the disaster hit. There are also communities
in which traditional female clothing makes it difficult for women to move freely or no woman is
allowed to evacuate to a shelter without being accompanied by her husband or male relative.
Difference in roles by gender: In general, women spend more time at home than men do and are
expected to care for children, elderly family members, and protect household goods and properties.
These factors sometimes prevent women from fleeing their homes in time to escape from disasters.
According to a study on natural disasters occurred in 141 countries2, it was found that, among the
societies studied, the lower the social standing of women in a society, the bigger the number of women
who were victimized during and after a disaster (or, the younger the mean age of the women died during
and after a disaster). The groups that are vulnerable to natural disasters including children, the elderly,
2 Neumayer, Eric and Plümper, Thomas (2007), “The gendered nature of natural disasters: the impact of catastrophic events on the gender gap in life expectancy”, http://eprints.lse.ac.uk/3040/1/Gendered_nature_of_natural_disasters_%28LSERO%29.pdf
The percentages of women in the death tolls from natural disasters
Women accounted for 61% of the fatalities from Cyclone Nargis which struck Myanmar in 2008. It
was found that, in the most severely affected townships, the cyclone killed over twice as many
women aged 18 to 60 as men. 【Source:Government of Myanmar, ASEAN, UN (2008),
“Post-Nargis Joint Assessment”】
In the Sumatra Earthquake and Indian Ocean Tsunami in 2004, women accounted for 65% of the
dead and missing. Of all the age groups, it was found that the women aged 19 to 29 especially
recorded a high percentage of fatalities at 79%.
【Source: UN (2010), “The World’s Women 2010”】
http://eprints.lse.ac.uk/3040/1/Gendered_nature_of_natural_disasters_%28LSERO%29.pdf
Guidelines for Promoting Gender Mainstreaming Disaster Risk Reduction/Post-Disaster Recovery and Reconstruction
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and the handicapped also tend to be more severely affected by natural disasters. Furthermore, it needs to be
noted that the poor and socially marginalized groups tend to suffer severely the consequences of natural
disasters, for they often live in locations vulnerable to natural hazards or in houses that were not built to
withstand disasters.
(3) Post-disaster impacts also vary between men and women.
Not only direct consequences of disasters but also their
after-effects are experienced by men and women differently. For
example, even though daily living requirements in evacuation
shelters and needs for relief supplies differ between men and
women, assistance actually provided to the evacuees are often not
in line with women’s needs because disaster relief teams are
predominantly composed of men or women’s opinions are not
included in the stage of formulating disaster prevention plans.
Furthermore, in communities where women are only allowed to
have limited access to social services including health care even at
ordinary times, their already limited access will become more
severely restricted when their medical facilities, roads and other
infrastructures are damaged by natural disasters, bringing about
consequences such as difficulty in providing appropriate care for
pregnant women having pre-term labor or other conditions.
Furthermore, it is known that women are faced with post-disaster consequences such an increase in fatherless
households as their husbands move to other places unaffected by the disaster to work or the expanded workload
as women need to fulfill other responsibilities than their normal household and child-rearing duties such as
procuring food, water and fuels for their families. In times of natural disasters, people suffer from increased stress
and police and law-enforcement functions weaken. As a result, we have seen an increase in cases of domestic
violence and sexual violence against women and many reported cases of human smuggling targeting children
whose parents were killed by natural disasters. Female children are often made to leave school by their families
after natural disasters in order to have them help with the housework or to save costs for their education. There
have also been cases reported of families immediately slipping into poverty when they are made fatherless by
disasters or women having a harder time to find new jobs than men do after losing their jobs due to natural
disasters, for women have little access to financial resources such as savings, loans, land ownerships or only
limited rights to make decisions about or inherit such resources.
(4) Women can play key roles in disaster risk reduction/management in their communities.
So far, disaster risk reduction/management has been regarded as a “man’s job” at the community level and
women’s participation in decision-making processes both at the administrative and community levels has
been limited. As a result, women’s views or needs have rarely been integrated into disaster risk
reduction/management-related policies and plans. Women may be prone to suffer from the consequences
of natural disasters but, at the same time, they are the ones who can build human networks within their
communities through playing their roles as family caregivers and participating community activities, and
use those networks to disseminate disaster-related information and organize local people. Women also
possess kinds of knowledge that men don’t have that are obtained through day-to-day production and
household activities and spend longer time at home than men do. These conditions make women more
observant of changes in their surrounding environments and natural resources, which sometimes enables
them to monitor and catch early signs of impending disasters. (For example, in Sri Lanka, there was a case
Impacts of Natural Disasters on Men
Men also suffer at times negative
consequences of natural disasters because
of the gender role difference. For
example, it is known that, in a society in
which masculinity and strength are
considered to what constitutes being a
man, men tend to die from taking actions
that are more dangerous than necessary
or, because of their preconception that a
man needs to be the breadwinner for his
family, men are often put under massive
stress when they are prevented from
fulfilling that role by the consequences of
a disaster.
Disaster Risk Reduction/Post-Disaster Recovery and Reconstruction Guidelines for Promoting Gender Mainstreaming
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in which local women organized a group to watch over possible landslides or rock falls during the rainy
season as women tended to stay at home in daytime more than men did and could thus pick up their early
signs more quickly.) Considering the knowledge and experiences women have as described above, it is
critical to position them as key players in disaster risk reduction/management in their communities and
utilize their knowledge and experiences in their communities’ disaster risk-reduction/post-disaster recovery
and reconstruction efforts.
(5) International debates and Japanese government’s policies concerning disaster risk
reduction/post-disaster recovery and reconstruction as well as gender mainstreaming
The Hyogo Framework for Action 2005-2015 adopted in the Second World Conference on Disaster
Reduction in 2005 includes Gender Perspective and Cultural Diversity in its cross-cutting issues and
stipulates that “a gender perspective should be incorporated into all disaster risk management policies,
plans and decision-making processes, including those related to risk assessment, early warning,
information management, and education and training.” Nevertheless, of all actions implemented by all
signatory countries based on the Hyogo Framework for Action, those for incorporating a gender
perspective into disaster reduction processes are said to be progressing most slowly and thus require
further efforts. The Japanese government launched its cooperation initiative for disaster risk
reduction/management at the World Conference on Disaster Reduction described above, which identified
Gender Perspective as one of its basic policies and stated that it will “provide assistance that takes gender
perspectives into account in all aspects of its cooperation for disaster risk reduction/management.” The
Japanese government is promoting various disaster risk reduction/post-disaster recovery and
reconstruction efforts that incorporate gender perspectives, including proposing a resolution on “Gender
Equality and the Empowerment of Women in Natural Disaster” that called on the international community
to let women participate in every phase of disaster risk reduction, response and recovery, and take into
account the specific needs of women, etc., at the 56th and 58th sessions of the Commission on the Status
of Women held in 2012 and 2014, respectively.
(6) Through the involvement in natural disaster responses, women may increase participation in
decision making processes within their communities.
There have been many cases reported about women becoming empowered and coming to play leadership
roles in their communities through organizing community-based activities on their own or participating in
activities of disaster aid organizations. These cases show that natural disasters can prompt social changes
that promote, for example, the participation of women in decision making processes in their communities,
which may help turn the communities into more gender-equal societies. If factors such as different needs
and the unequal relations between men and women are not considered and incorporated into the activities
in post-disaster recovery, reconstruction and further development processes, the damages experienced in
the past disasters may repeat themselves in the future ones. Therefore, it is considered necessary to reflect
the views of women as key players in their communities’ disaster risk reduction in policies, plans, and
decision-making processes in every phase of disaster management cycle. Furthermore, when proceeding
with mainstreaming disaster risk reduction/management, a central topic of recent discussions, it is
desirable to promote its mainstreaming that integrates gender perspectives.
Guidelines for Promoting Gender Mainstreaming Disaster Risk Reduction/Post-Disaster Recovery and Reconstruction
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Lessons Learned from Experiences of the 2011 Great East Japan Earthquake and Tsunami Based on
Gender Perspectives
Since 2005, Japan has made various efforts to incorporate gender perspectives into policies on disaster
risk reduction/management, including the amendment of its Basic Disaster Risk Reduction/Management
Plan. From the experiences of the Great East Japan Earthquake, various gender-related issues came to
light such as: (1) women’s views were not reflected in various levels of decision making related not only
to the policies on national or regional disaster risk reduction and post-disaster recovery but also to
disaster responses, management of evacuation shelters, etc., for their participation in the decision making
processes was insufficient; (2) evacuees could not receive the relief supplies and assistance they really
need because the different needs of men and women as well as needs specific to certain household types
including those with children were not sufficiently considered; (3) violence against women and children
was on the rise; (4) social preconceptions existed during normal times regarding the division of labor by
gender tended to prompt women to take on most of the increased responsibilities for housework,
childrearing, caring for the elderly and disabled after the disaster, making them suffer from stress or
experience physical- and mental-health issues while men tended to feel as being pushed into a corner by
taking on too much responsibility because of their belief that it’s a man’s job to feed and protect his
family; and (5) employment situation after the disaster was more severe for women than for men. These
issues always existed even during normal times and simply became more acute because of the disaster.
Gender Equality Bureau Cabinet Office of Japan (2013) emphasized that “in order to enhance
communities’ disaster risk reduction/management capabilities by implementing disaster risk reduction
measures that incorporate various viewpoints of local people and to enable robust reconstruction of the
affected communities, it is necessary to have established systems for disaster risk reduction and
post-disaster reconstruction” and that “the realization of a gender-equal society in normal times will
serve as a foundation for facilitating disaster risk reduction and post-disaster reconstruction smoothly.”
To that end, the Bureau recommended (1) assigning women to leadership roles as key players; (2)
realizing how men and women are affected differently by disasters; (3) ensuring that evacuees have
access to safe and secure facilities that respect human rights of men and women; (4) promoting gender
equality through private-public collaborations involving local people and NGOs; (5) determining roles to
be played by Gender Equality Centers and local gender equality-related authorities; and (6) giving
special attention to ensuring communication with and responding to the needs of people requiring
assistance during a disaster.
【Sources】
Gender Equity Bureau, Cabinet Office, Government of Japan (2013),『男女共同参画の視点から
の防災・復興の取組指針 (Guidelines for disaster planning, response and reconstruction from a
gender-equal perspective)』 http://www.gender.go.jp/policy/saigai/shishin/pdf/shishin.pdf
Gender Equity Bureau, Cabinet Office, Government of Japan (2014), “Learning from Adversity”
http://www.gender.go.jp/english_contents/mge/drr/pdf/learning_from_adversity.pdf
http://www.gender.go.jp/policy/saigai/shishin/pdf/shishin.pdfhttp://www.gender.go.jp/english_contents/mge/drr/pdf/learning_from_adversity.pdf
Disaster Risk Reduction/Post-Disaster Recovery and Reconstruction Guidelines for Promoting Gender Mainstreaming
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3. Perspectives for Gender Mainstreaming and Measures to Incorporate Them into
Project Work
Keeping the above background in mind, it is important to incorporate gender perspectives into each stage of
disaster management cycle in order to mitigate human damage and reduce disaster risk more effectively. The
following examples demonstrate perspectives for gender mainstreaming and how they to incorporate them
into project work.
3.1 Incorporation of Gender Perspectives into the Project Formulation Stage
3.1.1 Measures to incorporate gender perspectives into the project formulation stage (applicable to
Strategic Goal 1 through 4 except for emergency response)
(1) Include information on the following gender-related themes in the information and data to gather for the
formulation of a project:
Present circumstances and issues surrounding women in the target country (Overview of their
socio-economic conditions);
Gender-related issues in the disaster management field (e.g. difference in damage or impact suffered
by men and women in the past natural disasters);
Gender-related policies/systems and organizations in the disaster risk reduction/ management field
(including whether gender issues are considered in the laws, policies, and plans related to disaster
risk reduction/management; whether the relevant ministries have departments or focal points
specialized in gender affairs); and
Other information and data that are considered necessary.
【Useful references】Country Gender Profile (JICA), Gender-related country reports by other donors, reports on the past disasters of the target country that include gender-related topics
(2) Analyze the needs specific to men and women using the information and data gathered as described in
the section (1) above and incorporate the gender perspectives as much as possible into Project Survey
Sheets, Terms of Reference and other documents (e.g. assessment of the status of beneficiaries by gender,
gathering of gender-specific data).
3.1.2 Incorporation of Gender Perspectives into Needs Assessment Surveys for Post-Disaster Recovery
and Reconstruction (Strategic Goal 5)
Generally speaking, many of the needs assessment of post-disaster recovery and reconstruction mainly
conducted by international organizations were designed to assess situations of damage on humans, houses,
utility lifelines and other infrastructures in detail. Therefore, they failed to reveal sufficiently the roles played
by men and women in each field or the status of access to resources by gender. As a result, women’s needs
have been reflected in the post-disaster recovery and reconstruction projects only to a very limited extent. To
address this situation, consideration should be given to conducting the following activities in order to
incorporate gender perspectives into needs assessment and project formulation processes for post-disaster
recovery and reconstruction.
(1) Include information on the following gender-related themes in the information and data to gather for
assessing the status of post-disaster recovery and reconstruction needs:
Present circumstances and issues surrounding women in the target country (Overview of their
socio-economic conditions);
Guidelines for Promoting Gender Mainstreaming Disaster Risk Reduction/Post-Disaster Recovery and Reconstruction
9
Gender-related issues in each field (including whether there is any difference between needs of men
and women in each field; whether there is any difference between men and women on the situation
of access to social infrastructure and services)
Gender-related policies/systems and organizations in each field (including whether gender issues are
considered in the laws, policies, and plans of each field; whether the relevant ministries have
departments or focal points specialized in gender affairs);
Whether there is any situation considered to be gender-related in any damage experienced by each
field; and
Other information and data that are considered necessary.
【Useful references】Country Gender Profile (JICA), Gender-related country reports by other donors,
reports on the past disasters of the target country that include gender-related topics
For gathering data and information, if a JICA overseas office in the target area have personnel specialized
in gender affairs including National Staff, consideration may be given to including the personnel in a
team assigned with the task. Furthermore, if interviews or other surveys can be conducted with national
machineries (e.g. ministry of women, ministry of women affairs and other institutions designed to
promote gender equality) and women’s organization that are well-versed in its country’s gender situation,
assessment results on the needs for post-disaster recovery and reconstruction will likely to be more in
line with the actual situation of the country and more considerate of gender perspectives.
Disaster Risk Reduction/Post-Disaster Recovery and Reconstruction Guidelines for Promoting Gender Mainstreaming
10
(2) Analyze the needs specific to men and women using the information and data gathered as described in
the section (1) above and incorporate the gender perspectives as much as possible into Project Survey
Sheets, Terms of Reference and other documents (e.g. assessment of the status of beneficiaries by gender,
gathering of gender-specific data).
3.2 Incorporation of Gender Perspectives into Studies at the Project Preparatory Stage
First of all, when conducting studies at the preparatory stage of a project, always make sure to note the
following points:
(i) Data and information should be gathered separately by gender, by household type (those headed by man
and by women) and by each disaster-vulnerable group (separately for populations such as children, the
elderly, the handicapped, the poor, and the socially disadvantaged populations and by gender in each
population); and
(ii) When conducting an interview or hearing survey, make sure to involve subjects of both genders. As
necessary, arrange separate sites or time slots to interview male and female subjects in view of
convenience for each group to participate in the survey. In assigning facilitators or interpreters for
interviews or hearings, consideration should be given to their gender as well.
3.2.1 Measures to incorporate gender perspectives into surveys conducted at the preparation stage
(applicable to Strategic Goal 1 through 4 except for emergency response)
In order to incorporate gender perspectives into surveys conducted at the preparation stage (e.g. feasibility
studies, detailed planning surveys, ex-ante evaluations), consideration should be given to adopting the
following measures:
(1) Including gender mainstreaming team members in survey teams
(i) For projects to which gender mainstreaming teams are assigned (when the projects are deeply related
to gender issues): Include the gender mainstreaming team members in survey teams to dispatch to the
sites for conducting surveys at the project preparation stage. Proposed responsibilities to include in
the Terms of Reference (TOR) for those studies are as follows:
【Case Study (i):Needs assessment that incorporate gender perspectives】
A case study of a needs assessment related to gender matters conducted as a part of the needs
assessments concerning the 2010 Pakistan Floods’ damage
Government of Pakistan, ADB, World Bank (2010), “Pakistan Floods 2010: Preliminary Damage and
Needs Assessment”,
http://siteresources.worldbank.org/PAKISTANEXTN/Resources/293051-1264873659180/6750579-1
291656195263/PakistanFloodsDNA_December2010.pdf
ADB (2011), “Story within a Story: ADB Helps Women during Pakistan’s Post-Flood
Reconstruction”,
http://www.adb.org/sites/default/files/publication/28992/story-pakistan-postflood-reconstruction.pdf
Guidelines for Promoting Gender Mainstreaming Disaster Risk Reduction/Post-Disaster Recovery and Reconstruction
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Gather information on general circumstances surrounding women as well as gender-related policies
and systems in the target country; sort out the gathered information and analyze the results.
Gather information on the current situation and issues viewed from gender perspectives of the target
country in the disaster risk reduction/management field; sort out the gathered information and analyze
the results.
Study the current status of gender mainstreaming in projects that were or are being conducted in
target country by JICA, other aid organizations, NGOs and other institutions in the field of disaster
risk reduction/post- disaster recovery and reconstruction, analyze the results and extract lessons from
them.
Based on the survey results, summarize the gender perspectives that should be incorporated into the
project.
Make recommendations that would encourage the incorporation of the summarized gender
perspectives into project plans and proposed Project Design Matrix (PDM).
For reference, an example of announcement for public procurement of gender
mainstreaming team members on a project-work contract basis (for individual contractor) is attached
as an appendix to these Guidelines (Public Notice Sample of Work Execution Contract with Project
Member Responsible for Gender Mainstreaming [Individual Contract]).
(ii) For projects to which gender mainstreaming teams are not assigned: In cases where there is no team
assigned for gender mainstreaming, considering the following measures may make it possible to plan
activities that are more line with the actual situation of the country and more considerate of gender
perspectives. For specific details of the recommended surveys, refer to the section (2) below.
Increase the man-month (M/M) of team members in charge of other responsibilities (e.g. social
studies) so that they can take up gender mainstreaming work in addition to their regular work.
(The proposed responsibilities are same as the ones specified in the list of responsibilities in the
section (i) above.)
In case there is personnel in charge of gender affairs including National Staff in the relevant
JICA overseas office, include those personnel in the gender mainstreaming team.
Collaborate with or request cooperation from national machineries (institutions designed to
promote gender equality such as ministry of women and ministry of women affairs) that are well
versed in the target country’s gender situation.
Subcontract surveys on gender-related matters to local consultants or NGOs.
(2) Implementation of surveys that incorporate gender perspectives
In order to incorporate gender perspectives into projects in the disaster risk reduction/management field,
make sure to include such items as specified below into surveys conducted at the preparation stage and
reflect the results in project plans and Project Design Matrix (PDM) proposals. Above all, see if
evaluation indicators that integrate gender perspectives may be established as part of PDM proposals. In
case a more detailed survey needs be conducted, draw up survey items by referring to those specified for
Baseline Survey and Implementation of Activities in the Section 3.3, Incorporation of Gender
Perspectives into Projects at the Project Implementation Stage for Strategic Goals 1 through 4 (Sections
3.3.1 through 3.3.4).
Disaster Risk Reduction/Post-Disaster Recovery and Reconstruction Guidelines for Promoting Gender Mainstreaming
12
Gender Perspectives/Issues Survey Items
Expected Effects/Impact from
Integrating Gender
Perspectives
Integration of Gender Perspectives into Disaster Risk Reduction-related Laws, Policies and Disaster
Management Plans
Participation of women has been
insufficient in decision-making
processes not only for national
and local laws and policies related
to disaster risk
reduction/post-disaster
reconstruction but also for disaster
responses and operation of
evacuation shelters, resulting in a
situation where women’s needs
are not reflected in the policies
and plans.
Whether laws or policies related to
disaster risk reduction and
management plans of the target
country or area have any items that
take gender perspectives into
consideration. If not, whether there is
any plan for developing such laws or
policies or revising the existing ones
Whether any national machinery or
women’s group participated in
development processes for such
policies and plans
Others
If gender perspectives have
already been incorporated into
laws and policies of target
countries or areas, it is possible
to plan projects in accordance
with such laws and policies. If
gender perspectives have yet to
be incorporated, implementing
gender responsive projects and
providing lessons learned from
these projects as feedback will
help prompt the revision of the
relevant policies and plans.
Differences in Damage and Impact from Disasters
Damages suffered from a disaster
vary between men and women.
Generally, more women die from
a natural disaster than men.
【⇒ p.4, 2.(1)(2)】
Whether there is any difference
between men and women in the
damages suffered in past disasters. It
there is, what caused such
difference?
Whether there are any other groups
that were particularly vulnerable to
disasters
Others
By assessing and understanding
the actual damage suffered by
victims by gender and by
population, it becomes possible
to evaluate the expected levels of
damage to be suffered from
natural disasters more accurately
and thus take effective measures
to prevent such damage.
Post-disaster effects are
experienced differently by men
and women.
【 ⇒ p.5, 2.(3)】
Whether there is any difference
between men and women in the
post-disaster effects experienced in
past disasters? It there is, what
caused such difference?
Whether there were any other groups
that experienced post-disaster effects
especially acutely
Others
By assessing and understanding
the post-disaster effects
experienced by victims by
gender and by population, it
becomes possible to evaluate the
expected negative effects to be
experienced from natural
disasters more accurately and
thus take effective measures to
prevent such effects.
Some areas have a gender
imbalance among their
populations (e.g. areas that have
many female-headed households
because many men are working
away from home, etc.)
Population composition by gender
Population composition of
disaster-vulnerable groups
Others
It becomes possible to take
preventive measures in line with
the actual situation of the target
area.
Knowledge and Experiences of Women related to Disaster Risk Reduction/Management
Women may be prone to suffer
damage from natural disasters but,
at the same time, they boast
human networks within their
communities and have knowledge
about the local environment and
natural resources that men don’t
have.
【⇒ p. 5, 2.(4)】
What kinds of roles were played by
women in emergency response and
post-disaster recovery and
reconstruction of their communities
in the past disaster cases, and how
the roles they played have been
regarded by the governments and
community members.
Others
It becomes possible to utilize
knowledge and experiences of
women’s for improving disaster
response capabilities of their
communities.
Guidelines for Promoting Gender Mainstreaming Disaster Risk Reduction/Post-Disaster Recovery and Reconstruction
13
(3) Development of evaluation indicators that integrate gender perspectives
By setting the evaluation indicators that integrate gender perspectives, it becomes possible to conduct
gender responsive evaluations. The following are examples of evaluation indicators that integrate gender
perspectives.
Outcome descriptions
(examples)
General (non-gender responsive)
evaluation indicators (examples)
Gender responsive evaluation
Indicators (examples)
Disaster response
capabilities of residents
of the pilot
project-targeted
community will be
enhanced.
The ratio of residents who
participated in workshops to raise
awareness of disaster risk prevention
to the total number of residents
The ratio of residents who
participated in evacuation drills to
the total number of residents
The ratio of residents who
participated in workshops to raise
awareness of disaster risk prevention
by gender
The ratio of residents who
participated in evacuation drills by
gender
Capabilities of teachers
to provide education
and training on disaster
risk
reduction/management
will be improved.
Over * teachers receive training on disaster risk
reduction/management and become
capable of conducting disaster risk
reduction/management training as
instructors.
Over * teachers receive training on disaster risk
reduction/management and become
capable of conducting disaster risk
reduction/management training as
instructors.
⇒ Grasping the numbers of men and women who received the
training; setting the target ratio of
female participants to the total
number of trainees, etc.
Enhancement of
Community-wide
disaster preparedness
(for pilot projects on
technical cooperation
for development
planning and surveys)
Post-workshop survey on trainees’
understanding of workshop contents
Post-workshop survey on trainees’
understanding of workshop contents
(results shown by gender)
3.2.2 Incorporation of Gender Perspectives into Surveys for Post-Disaster Recovery and
Reconstruction Projects at the Preparation Stage (Strategic Goal 5)
In order to incorporate gender perspectives into surveys at the planning stage (e.g. feasibility studies, detailed
planning surveys, ex-ante evaluations), consideration should be given to adopting the following measures:
(1) Including gender mainstreaming team members in study teams
(i) For projects to which gender mainstreaming teams are assigned (when the projects are deeply
related to gender issues): Include the gender mainstreaming team members in survey teams to
dispatch to the sites when conducting surveys at the project preparation stage. Proposed
responsibilities to include in the Terms of Reference (TOR) for those surveys are as follows:
Gather information on general circumstances surrounding women as well as gender-related policies and
systems in the target country; sort out the gathered information and analyze the results.
Gather data and information on the situation of damage from disasters from gender perspectives; sort out and
analyze the results.
Gather information on the current situation and issues viewed from gender perspectives of the target country
in the disaster management field; sort out the gathered information and analyze the results.
Study the current status of gender mainstreaming in projects that were or are being conducted in the target
Disaster Risk Reduction/Post-Disaster Recovery and Reconstruction Guidelines for Promoting Gender Mainstreaming
14
country by JICA, other aid organizations, NGOs and other institutions in the fields of disaster risk
reduction/post- disaster recovery and reconstruction, analyze the results and extract lessons from them.
Based on the survey results, summarize the gender perspectives that should be incorporated into the project.
Make recommendations that would encourage the incorporation of the summarized gender perspectives into
project plans and Project Design Matrix (PDM) proposals.
For reference, an example of announcement for public procurement of gender mainstreaming team
members on a project-work contract basis (for individual contractor) is attached as an appendix to
these Guidelines (Public Notice Sample of Work Execution Contract with Project Member
Responsible for Gender Mainstreaming [Individual Contract]).
(ii) For projects to which gender mainstreaming teams are not assigned: In cases where there is no team
assigned for gender mainstreaming, considering the following measures may make it possible to
plan activities that are more line with the actual situation of the area and more considerate of gender
perspectives. For specific details of the recommended surveys, refer to the section (2) below.
Increase the man-month (M/M) of team members in charge of other responsibilities (e.g. social
studies) so that they can take up gender mainstreaming work in addition to their regular work.
(The proposed responsibilities are same as the ones specified in the list of responsibilities in the
section (i) above.)
In case there is personnel in charge of gender affairs including National Staff in the relevant
JICA overseas office, include those personnel in the gender mainstreaming team.
Collaborate with or request cooperation from national machineries (institutions designed to
promoting gender equality such as ministry of women and ministry of women affairs) that are
well versed in the target country’s gender situation.
Subcontract surveys on gender-related matters to local consultants or NGOs.
(2) Implementation of surveys that incorporate gender perspectives
In order to make post-disaster recovery and reconstruction projects to reflect more fully the needs
specific to men and women and not to contribute to the expansion of existing gender disparities, make
sure to include such items as specified below into surveys conducted at the preparation stage, and reflect
the results in project plans and Project Design Matrix (PDM) proposals. In cases where a more detailed
study needs to be conducted, draw up survey items by referring to those specified for Baseline Survey
and Implementation of Activities in the Section 3.3, Incorporation of Gender Perspectives into Projects at
the Project Implementation Stage for Strategic Goals 5 (Section 3.3.5).
Guidelines for Promoting Gender Mainstreaming Disaster Risk Reduction/Post-Disaster Recovery and Reconstruction
15
Gender Perspectives/Issues Survey Items
Expected Effects/Impact from
Integrating Gender
Perspectives
Gender Disparities Observed in the Consequences from Natural Disasters and Post-disaster Recovery and
Reconstruction Projects
Although women contribute to
their household incomes
through participating in
farming and small-scale
income generating activities,
their contributions are hardly
visible because their activities
are mostly conducted at home
and in the informal sector.
Therefore, when a natural
disaster hit, the damage to such
activities by women is difficult
to grasp.
After a disaster, men are often
hired by employers in charge
of post-disaster recovery and
reconstruction projects; on the
other hand, the job market for
women tends to remain
stagnant much longer.
In cases where man and women play
different roles in production
activities, whether men or women
sustained more serious damage from
a natural disaster (e.g. whether there
is any difference in the effects
experienced by men and women in
cases where the production activities
engaged by men and women are
different or where the both are
engaged in the same production
activities but take up different kinds
of work.)
Whether there is any difference in
the opportunities for employment
between men and women. If there is,
what caused such difference?
Others
It becomes possible for both men
and women to realize their
contributions to their household
incomes and plan activities that
may help restore livelihood
opportunities for the both.
Violence against women and the
number of women with mental or
physical health problems increase
after a disaster.
Whether cases of violence against
women or mental stress experienced
by women have increased
Whether there are any groups other
than women in need of mental care
Others
If violence against women and
mental stress experienced by
women are found to be on the
increase, early intervention will
become possible.
There are some groups that are
particularly vulnerable to disasters
such as pregnant women,
children, the elderly and the
handicapped
Whether there are any groups that
suffered particularly acute damages
during and after a disaster (e.g.
children, the elderly, the disabled,
female- or male-headed households,
and socio-economically lower
classes; and in each of these groups,
whether there are is any difference
by gender)
Others
It becomes possible for
disaster-vulnerable groups to
plan post-disaster recovery and
reconstruction projects that are
beneficial to them.
Participation of Women in Decision-making Processes
Opportunities for women to
participate in decision-making
processes for the reconstruction of
affected areas are limited.
Whether women have been able to
participate in their communities’
decision-making processes
Whether there are any existing
groups of women in the community
Whether the groups identified can
serve as focal points for activities;
and whether there are any issues that
would make it difficult
Others
Natural disaster may prompt
social changes that encourage,
for example, the participation of
women in decision-making
processes of their communities,
possibly leading to the
realization of a more
gender-equal society.
Disaster Risk Reduction/Post-Disaster Recovery and Reconstruction Guidelines for Promoting Gender Mainstreaming
16
3.3 Incorporation of Gender Perspectives into Projects at the Project Implementation Stage
First of all, when implementing the following activities, always make sure to note the following points:
【Important points to note when implementing projects】
(i) If necessary, include activities that will help gain an understanding from men and other member of the
community on the participation of women and disaster-vulnerable groups into project activities.
(ii) When conducting an interview or hearing survey, make sure to involve subjects of both genders. As
necessary, arrange separate sites or time slots to interview male and female subjects in view of
convenience for each group to participate in the survey.
(iii) Information on the implemented activities should be gathered separately by gender, by household type
(male-headed household or female-headed household), or by disaster-vulnerable group (with gender
breakdown within each group) as much as possible.
Furthermore, when implementing such gender responsive approaches as described below, if the relevant
projects are deeply related to gender issues, it is desirable to assign personnel specialized in gender
mainstreaming. However, for projects in which gender mainstreaming personnel are not assigned and
personnel in charge of other matters take up gender mainstreaming responsibilities in addition to their regular
duties, gender responsive approaches that are more in line with the local situations may be implemented by
obtaining cooperation from ministries of women and women’s organizations or subcontracting project work to
the locally-based consultants or NGOs.
3.3.1 Strategic Goal 1: Establishment and Strengthening of Disaster Management System
Specific approaches: Developing basic laws and overall frameworks related to disaster risk reduction;
formulating disaster risk reduction plans, setting up building codes, etc.; strengthening disaster risk
reduction administrative functions of the central and local governments; building cooperation systems
among relevant institutions; sharing of disaster-related information; promotion of disaster-related research;
training personnel and engineers in the field of disaster risk reduction.
The following are some examples of gender perspectives and issues as well as approaches integrating gender
perspectives that should be considered at the stage of implementing projects for Establishment and
Strengthening of Disaster Management System.
Guidelines for Promoting Gender Mainstreaming Disaster Risk Reduction/Post-Disaster Recovery and Reconstruction
17
Gender Perspectives/Issues Approaches that Integrate Gender
Perspectives (examples)
Case
Study
Expected
Effects/Impact from
Integrating Gender
Perspectives
Development of Basic Laws, Overall Frameworks
Bas
elin
e S
urv
ey
(Refer to the Implementation
of Activities section)
Include such items as described below
in surveys on basic laws on disaster risk
reduction/management, overall
framework and disaster risk
reduction/management plans of the
target country or area, analyze the
results, and utilize them for
implementing projects or revising the
existing indicators.
In cases where there are laws or
plans related to disaster risk
reduction/management already in
place, whether views and needs of
women are reflected in them
In cases where there are laws or
plans related to disaster risk
reduction/management already in
place, whether ministry of women (a
national machinery) and women’s
organizations have participated in
them
Others
Monitoring and
evaluations that
integrate gender
perspectives will be
conducted.
Imple
men
tati
on o
f A
ctiv
itie
s
Views and needs of women
are not reflected in the
national basic laws and plans
related to disaster risk
reduction/management and
regional disaster risk
reduction/management plans.
Make recommendations to
encourage the incorporation of
gender responsive items into
disaster risk reduction/management
plans, etc. of the target country or
areas.
In order to have gender perspectives
incorporated into the above plans,
include ministry of women (a
national machinery) or women’s
organizations, etc. as members of
decision-making bodies (e.g.
committees on disaster risk
reduction/management) or provide
them with negotiation platforms.
Include gender-related information
in feedbacks on evacuation drills,
etc., conducted as pilot projects.
Others
(ii) Views and needs of
women will be
reflected in the basic
disaster risk
reduction/management
laws of the target
country and regional
disaster risk
reduction/management
plans.
Training of Personnel in the Field of Disaster Risk Reduction/Management
Bas
elin
e S
urv
ey
(Refer to the Implementation
of Activities section)
Include such items as described below
in surveys on organizational capabilities
of the relevant organizations, analyze
the results, and utilize them for
implementing projects and revising
indicators.
Whether or not there is a general
understanding on gender
mainstreaming within an
organization, especially among its
decision makers.
Share of women in each rank of
employees in the organization
Others
Monitoring and
evaluations that
incorporate gender
perspectives will be
conducted.
Disaster Risk Reduction/Post-Disaster Recovery and Reconstruction Guidelines for Promoting Gender Mainstreaming
18
Gender Perspectives/Issues Approaches that Integrate Gender
Perspectives (examples)
Case
Study
Expected
Effects/Impact from
Integrating Gender
Perspectives Im
ple
men
tati
on o
f A
ctiv
itie
s The necessity of incorporating
gender perspectives into
disaster risk
reduction/management is not
sufficiently understood by
personnel in charge of disaster
risk reduction/management,
and efforts to address the need
have not been enough.
Conduct activities for disaster risk
reduction/management personnel to
raise awareness of gender matters.
(e.g. inclusion of topics related to
Disaster Risk Reduction and Gender
in training programs)
Encourage gathering of statistical
data by gender.
Include gender-related information
in feedbacks on evacuation drills,
etc., conducted as pilot projects.
Others
(iii) Personnel in charge of
disaster risk
reduction/management
will gain a deeper
understanding of
gender perspectives,
leading to the
development of
policies and plans
related to disaster risk
reduction/management
that integrate gender
perspectives more
fully.
There aren’t many women
working for disaster risk
reduction/management-related
organizations.
Promote the recruitment and
appointment of women. (e.g.
Include ministry of women (a
national machinery), women’s
organizations, etc. as members of
decision-making bodies such as
disaster risk reduction/management
committees)
Conduct programs such as training
on technical matters and leadership
skills, and exchange with advanced
areas in terms of gender matters.
Others
(ii) Participation of
women in
decision-making
processes related to
disaster risk
reduction/management
will be enhanced.
Including lectures on Disaster Risk Reduction and Gender in focused training programs conducted in Japan
and inviting staff with decision making power of central disaster risk reduction/management institutions of
developing countries to such programs are considered effective for promoting organization-wide gender
mainstreaming.
【Case Study (ii): Disaster Risk Reduction and Management Acts that Integrate Gender Perspectives】
Disaster Risk Reduction Act and Climate Change Act that integrate gender perspectives were established by the
Government of Philippines. These acts specify that gender perspectives be incorporated into measures to
mitigate climate change and disaster risks. In these acts, the Philippine Commission on Women (formerly the
National Commission on the Role of the Filipino Women), a national machinery, is designated as a member
institution of the National Disaster Risk Reduction and Management Council.
Climate Change Act of 2009, http://www.gov.ph/2009/10/23/republic-act-no-9729/
Philippine Disaster Risk Reduction and Management Act of 2010,
http://www.gov.ph/2010/05/27/republic-act-no-10121/
http://www.gov.ph/2009/10/23/republic-act-no-9729/http://www.gov.ph/2010/05/27/republic-act-no-10121/
Guidelines for Promoting Gender Mainstreaming Disaster Risk Reduction/Post-Disaster Recovery and Reconstruction
19
3.3.2 Strategic Goal 2: Correct Understanding of Natural Disaster Risk and Promotion of
Common Understanding
Specific approaches: In policy and planning processes, risk assessment and analysis of disaster risks more
accurately; preparation of hazard risk maps; economic analysis of the investment for disaster risk reduction
measures; and assessment of climate change effects. For the enhancement of disaster risk understanding,
capacity building of communities’ disaster risk reduction activities, disaster-related education and training, etc.
The following are some examples of gender perspectives and issues as well as approaches integrating gender
perspectives that should be considered at the stage of implementing projects for Correct Understanding of
Natural Disaster Risk and Promotion of Common Understanding.
Gender Perspectives/Issues
Approaches that Integrate Gender
Perspectives (examples)
Case
Study
Expected
Effects/Impact
Risk Assessment and Analysis
Bas
elin
e S
urv
ey
(Refer to the Implementation of
Activities section)
Include such items as described below
in surveys on current status of risk
assessment and analysis of the target
country or area, analyze the results, and
utilize them for implementing projects
or revising the existing indicators.
Whether risk assessment and
analysis are conducted separately on
men and women
Whether risk assessment and
analysis results (e.g. statistics) are
made available by gender
Others
Monitoring and
evaluations that
incorporate gender
perspectives will be
conducted.
Imple
men
tati
on o
f A
ctiv
itie
s
Disasters affect men and
women differently in terms of
damage and post-disaster
effects suffered. 【⇒ pp.4-5, 2.(1)(2)(3)】
Some areas have a gender
imbalance among their
populations (e.g. areas that
have many female-headed
households because many
men are working away from
home, etc.)
Incorporate such gender perspectives as
described below into risk assessments
and analysis.
Whether damage suffered may vary
between men and women in
expected disasters. If it does, what
would cause such difference?
Assessing the population
composition by gender
Others
By grasping the
actual damage
suffered by men
and women
separately, it
becomes possible
to evaluate
expected levels of
damage more
accurately and take
measures to prevent
such damage.
Preparation of Hazard Risk Maps
Bas
elin
e S
urv
ey
(Refer to the Implementation of
Activities section)
Include such items as described below
in current situation surveys concerning
the preparation of hazard risk maps,
analyze the results, and utilize them for
implementing projects or revising the
existing indicators.
The percentages of women in
personnel of departments and
committees, etc. in charge of
preparing hazard risk maps
Others
Monitoring and
evaluations that
incorporate gender
perspectives will be
conducted.
Disaster Risk Reduction/Post-Disaster Recovery and Reconstruction Guidelines for Promoting Gender Mainstreaming
20
Gender Perspectives/Issues
Approaches that Integrate Gender
Perspectives (examples)
Case
Study
Expected
Effects/Impact
Imple
men
tati
on o
f
Act
ivit
ies
Participation of women in
preparation processes of
hazard risk maps is limited. /
Women’s views are not
reflected in the preparation of
hazard risk maps.
Enhance the participation of women in
the preparation of hazard risk maps
through, for example, the following
means:
Preset the ratio of men and women to
participate in decision making
processes (the most ideal ratio is
50/50).
Others
(iii) Hazard risk maps
that are in line with
specific needs of
men and women
will be created.
Capacity Building of Communities’ Disaster Risk Reduction Activities
Bas
elin
e S
urv
ey
(Refer to the Implementation of
Activities section)
Include such items as described below
in current situation surveys concerning
the community’s disaster risk reduction
activities of the target area, analyze the
results, and utilize them for
implementing projects or revising the
existing indicators.
Participation levels of women in
decision-making processes within
their communities, especially in
organizations such as voluntary
groups for disaster risk reduction
What kinds of roles were played by
women in emergency response and
post-disaster recovery and
reconstruction of their communities
in the past disaster cases, and how
the roles they played have been
regarded by the governments and
community members.
Others
Monitoring and
evaluations that
incorporate gender
perspectives will be
conducted.
Imple
men
tati
on o
f A
ctiv
itie
s
【Activities to Raise Awareness of Disaster Risk Reduction】
Establishment and
enhancement of voluntary
organizations for disaster risk
reduction: Participation of
women in such organizations
has not been enough.
Encourage the participation of men
and women in voluntary
organizations for disaster risk
reductions (e.g. presetting the ratio of
men and women in the membership)
Others
Damage on
women during a
disaster and
negative effects
suffered by
women after a
disaster will be
reduced, resulting
in the
improvement of
their
communities’
overall capacities
for disaster risk
reduction
activities.
It becomes
possible to
unitize women’s
knowledge and
experiences
related to disaster
risk reduction for
the enhancement
of their
communities’
disaster response
capabilities.
Even in cases where gender
perspectives are incorporated
into policies and plans on the
national government level,
they may not be practiced at
the community level.
Conduct activities to raise awareness
of the roles played by women for
community-based disaster risk
reduction in order to establish a
common understanding on their roles
within their communities.
In order to put the concepts of gender
responsive policies and plans into
practice at the community level,
incorporate such concepts into
activities conducted within
communities for the enhancement of
their disaster preparedness.
Others
Guidelines for Promoting Gender Mainstreaming Disaster Risk Reduction/Post-Disaster Recovery and Reconstruction
21
Gender Perspectives/Issues
Approaches that Integrate Gender
Perspectives (examples)
Case
Study
Expected
Effects/Impact
【Establishment of Evacuation Systems and Implementation of Evacuation Drills】
Development of
community-wide
communication system: At
present, disaster-related
information is hard to reach
women (because, for
example, such information
tends to be communicated
from man to man; women do
not have radios and
televisions; and women are
too busy to pay attention to
such information or to hear
news on disasters).
Even when they hear
forecasts or warnings about
impending disasters, some
women don’t know how to
respond.
Establish communication means
through which women can obtain
information in a manner and form
that is easy to understand for them.
Others
Information about
disasters will reach
women, resulting in
the mitigation of
damage they suffer.
Development of evacuation
facilities and routes: If
women feel reluctant to move
to shelters, it will cause
evacuation delays. If men feel
uneasy about letting women
go to shelters on their own, it
will also prevent evacuation
processes from proceeding
smoothly.
⇒ When building and operating shelters (public
facilities that include
shelters), measures should be
taken to make women feel
safe and comfortable about
evacuating to the shelters.
Secure the participation of both men
and women in negotiation processes
for the construction of shelters so that
views of the both are reflected in
their construction.
Ensure that women and men
participate in the development
process of shelter operation
guidelines. (e.g. preparation of
separate rooms for men and women;
establishing sanitary facilities; and
securing appropriate lighting within
the shelter including sun light)
Others
(iii) Women will feel
safer and more
comfortable about
using shelters,
resulting in the
mitigation of
damage and harms
they suffer.
【Implementation of Evacuation Drills】
It is important to secure the
participation of men and
women of all age groups,
including those requiring
assistance during a disaster.
Secure the participation of women in
the planning of evacuation drills.
Secure the participation of men and
women of all age groups, including
those requiring assistance during a
disaster.
Others
(iii) Damage suffered
by women and
those requiring
assistance
victimized during a
disaster will
decrease.
【Risk Assessment Conducted Voluntarily by Residents (Development of Systems to Monitor Precipitation and Water Levels, Preparation of Hazard Risk Maps)】
Women cannot participate in
decision-making processes in
their communities.
Women’s views are not
reflected in risk hazard maps.
Men and women possess
different kinds of knowledge
and experience on their
communities’ environments
and natural resources.
(Women may notice changes
in their environments that are
Encourage the participation of women
in activities such as monitoring of
precipitation levels, etc., and
development of hazard risk maps.
Preset the ratio of men and women to
participate in decision-making
processes (the most ideal ratio is
50/50).
As necessary, provide opportunities
for negotiation in which only women
can participate.
Others
(iii) Hazard risk maps
that reflect the
specific needs of
men and women
will be created.
Disaster Risk Reduction/Post-Disaster Recovery and Reconstruction Guidelines for Promoting Gender Mainstreaming
22
Gender Perspectives/Issues
Approaches that Integrate Gender
Perspectives (examples)
Case
Study
Expected
Effects/Impact
overlooked by men.)
【 ⇒ p.5, 2.(4)】
Disaster Risk Reduction Education and Training Activities
Bas
elin
e S
urv
ey
(Refer to the Implementation of
Activities section)
Include such items as described below
in current situation surveys concerning
the disaster risk reduction education and
training activities conducted in the
target area, analyze the results, and
utilize them for implementing projects
or revising the existing indicators.
Participation levels of women in the
existing disaster risk reduction
education and training activities in
their communities
Understandings, views, and
improvement ideas women have of
the existing disaster risk reduction
education and training activities in
their communities (e.g. How much
information they know about such
activities. If the information has not
reached women, what caused such
situation and what can be done to
improve it?)
Others
Monitoring and
evaluations that
incorporate gender
perspectives will be
conducted.
Imple
men
tati
on o
f A
ctiv
itie
s
Factors related to the local
communication means or
illiteracy levels prevent
disaster-related information
from reaching women.
Social and cultural norms of
the communities increase the
damage and harm their
women suffer.
【⇒ pp.4-5, 2.(2)(3)】
Secure the participation of women in
the planning of their communities’
education and training activities for
disaster risk reduction.
Choose the means that communicate
effectively to women.
Secure the participation of women in
their communities’ education and
training activities for disaster risk
reduction.
Include the information in awareness
raising activities on the difference in
needs of men and women and the
necessity to reflect such difference in
the community’s disaster risk
reduction activities.
When conducting education and
training activities for disaster risk
reduction at school, encourage
female teachers to participate in their
training programs. (e.g. In places in
which men and women are
customary educated separately,
conduct female-only training
sessions.)
Others
(iii) Information on
disasters will be
communicated
from women to
women, resulting in
the reduction of
damage they suffer.
Also, women’s
needs will be
communicated to
men, enabling
gender perspectives
to be incorporated
into disaster risk
reduction activities.
Guidelines for Promoting Gender Mainstreaming Disaster Risk Reduction/Post-Disaster Recovery and Reconstruction
23
【Case Study (iii): The Project for Strengthening Community-based Disaster Risk Management in Fiji and
Solomon Islands in Oceania (Technical Cooperation)】
This project was implemented from October 2010 to October 2013 to help strengthen disaster risk management
capabilities of the central governments and to conduct a pilot project to support the development of a system that allows
residents (men and women) of the target communities to evacuate appropriately in times of floods, with the aim of
ensuring the development of a system that allows residents to evacuate appropriately through strengthening disaster
management capabilities of the National Disaster Management Office.
For the implementation of the pilot project, it encouraged the participation of women in evacuation drills and
workshops on the preparation of hazard maps, etc., to incorporate women’s views into its activities while providing a
training program, through cooperation with the office of women of the target province, for leaders of women’s
organizations in the relevant communities to learn the basic knowledge of disaster management. The reason behind
conducting the training programs for women was that, even though training programs of this kind have been conducted
in the past, men have always participated them first, leaving women little chance to make use of such opportunities.
After the workshop, the leaders who have participated in it went on to conduct workshops as facilitators to raise
awareness of disaster management mainly targeted women in their communities. After the workshops, positive opinions
were expressed by the participants including “it is important for women to play key roles in conducting disaster
management activities in times of disaster.” Furthermore, systems were established to allow youth groups to assist
elderly and handicapped residents in the communities in times of evacuation, which were incorporated into evacuation
drills.
Disaster Risk Reduction/Post-Disaster Recovery and Reconstruction Guidelines for Promoting Gender Mainstreaming
24
3.3.3 Strategic Goal 3: Implementation of Risk Reduction Measures for Sustainable
Development
Specific approaches: Combining structural and non-structural measures to prevent and mitigate damage;
disaster reduction measures in each sector, measures and policies considering disaster-vulnerable groups and
the poor; creation of disaster risk reduction culture through self-help, mutual help, and public assistance
efforts; establishment of cooperation and collaboration mechanisms between administrative and private
sectors, etc.
The following are some examples of gender perspectives and issues as well as approaches integrating gender
perspectives that should be considered at the stage of implementing projects for Implementation of Risk
Reduction Measures for Sustainable Development.
Gender Perspectives/Issues
Approaches that Integrate Gender
Perspectives (examples)
Case
Study
Expected
Effects/Impact
Combining Structural and Non-structural Measures to Prevent and Mitigate Damage
Bas
elin
e S
urv
ey
(Refer to the Implementation of
Activities section)
Include such items as described below
in surveys on the risk reduction
measures conducted in the target
country/area, analyze the results, and
utilize them for implementing projects
or revising the existing indicators.
Possibility of planned structures
affecting differently on men and
women
Understandings, views, and
improvement ideas women have of
the existing shelters (public facilities
including shelters) (e.g. observed
usefulness and issues)
Monitoring and
evaluations that
incorporate gender
perspectives will be
conducted.
Imple
men
tati
on o
f A
ctiv
itie
s
Needs related to the
construction and maintenance
of structures may be different
between men and women.
Women’s views are not
reflected in decision-making
processes for the construction
and maintenance of
structures.
In cases where structures are built
and maintained collaboratively with
the community, secure the
participation of women in
negotiation processes for the
construction and maintenance of
structures in order to have their views
incorporated.
Others
Having both men
and women
participate in
negotiation will
stimulate the
creation of an
awareness among
com