INTRODUCTION

“Gender Equality and Social Inclusion (GESI)” refers to a concept that addresses unequal power relations between women and men and between different social groups. Three major manifestations of this policy principle are equal treatment, which is based on the concept of equal rights and implemented through the law; equal opportunities, which is based on the concept of difference and incarnated politically through positive action or positive discrimination measures; and equal impact, which is based on the concept of gender and primarily operates through instruments such as gender mainstreaming in national and local level. Social Inclusion found its place as one of four major pillars in Poverty Reduction Strategy Papers (PRSPs) and Tenth National Plan while gender equality has been addressed enormously since the emergence of the Constitution of Nepal 2015.

The practise of Public Interest Litigation (PIL) guaranteed the amendment of laws of Nepal to comply with the Constitutional notion of the right to equality and upliftment of marginalized communities with notable judgement addressing GESI through the proportional inclusivity in education, societal status and right to express the distinct identity of an individual upholding the notion of positive discrimination with reference to state’s directive principle, policies and fundamental rights enshrined under the notion of the fundamental law of the land.       

The GESI operational guidelines 2013 was a mainstream document inaugurated under the operational guidelines of Ministry of urban development which was the first of its kind with GESI as a strategy adopted through operational guidelines in order to achieve gender mainstreaming under Water, Sanitation and Hygiene (WASH) and Building Construction, Housing and Urban Development (BCHUD) sector programs throughout the country. 

GESI STRATEGY 2021-2023

The GESI policy under the PLGSP( Provincial and Local Governance Support Programme)  is a means to achieve one of the SDGs by 2030 i.e., peaceful, just and inclusive societies by reducing gender inequalities and social exclusion through the core principle of leaving no one behind. PLGSP is a forerunner program introduced by the Government of Nepal to ensure maximization of federalism and maintain co-operation and interrelation among the three tiers of government. The goal of the program binds around to capitalize the need of full functional, sustainable, inclusive government in three tiers. The PLGSP aims to enhance the capacity of provincial and local governments to deliver services and development outcomes effectively to citizens and strengthen the inter-governmental relationship in both provincial and local level governance systems. 

After Nepal was introduced to the Federal Democratic Republic system from the promulgation of constitution of Nepal 2072, the definition and criteria of equality, equal protection of law, equal protection before law and social inclusion was enormously widened. The constitution throughout has prioritized the essence which roams around the maintenance of gender equality and non-restriction of an individual’s position based on their access to mainstream. Incorporating GESI into all governance systems, procedures, and processes right from the beginning, and at every phase of development, from formulating policies, laws, and plans to conceptualizing, implementing, monitoring, evaluating, and reporting on programs/projects, is crucial.

Indicators of GESI under PLGSP

PLGSP GESI-related Outcome-level indicators are characterized on the verge of proportionate population oriented towards inclusive and reasoning based decision with enhanced participation of women’s and disadvantaged group citizens in the likes of public-oriented decision making corresponding to the (SDG ref 16.7.2).  The PLGSP GESI-related Output-level indicators are analysed in the light of GESI audits conducted, initiatives taken to control sexual harassment in workplace, GESI-oriented budgets,and adoption of GESI-oriented strategy and policy as guidelines for every local and provincial government.

Long-term objectives of GESI

GESI under its first two years of implementation has focused distinctively on women’s participation in PLGSP through: 

• Increased women’s and underprivileged group’s access to services and opportunities,

• Enhancing their voices and participation, and contributing to addressing discriminatory practices, mindsets and norms, and policies and that remove barriers,

• Participation of women in GESI audits and policy briefing 

• Appointment of the focal person in facilitating the GESI implementation focusing on marginalized groups like LGBTQI+, Dalits, Madhesi, Muslim, Indigenous population and women,

• Long-term societal transformations of gender-discriminatory and excluding norms and practices

• Contribute towards sustainability of gender-sensitive and socially inclusive governance and service delivery at the provincial and local levels

Approach towards application of GESI

GESI Mainstreaming and GESI targeted interventions are two approaches adopted by the PLGSP to facilitate the application of GESI. “GESI Mainstreaming” refers to the process whereby barriers and issues of women and poor and excluded people are identified and addressed in all functional areas of the infrastructure development system: policies, institutional systems, work environment and culture, programme and budget formulation, service delivery, monitoring and evaluation, and research whereas GESI targeted intervention is the strategic approach to expand the GESI in various policies, institution, and aspects of local and provincial governments. The key approaches carried under PLGSP to mainstream GESI are:

• Conducting annual GESI analysis of PLGSP implementation 

• Visualizing stakeholder mapping through GESI perspective

• Reviewing the annual budget in relation to GESI 

• GESI mainstreaming on policies, law, programs and institutions

• Promoting and preparing participatory tools for the use of GESI among Province and Local Governments

• Ensuring legal/policy formulation team includes the composition correspondence to GESI mainstreaming

• Dedicated consultation with key focal groups and institutions

• Training and technical GESI support to civil servants under PLGs.

STATUS OF GESI IN ACTION UNDER PLGSP

1)  Overview of GESI under FY 78/79

GESI was formulated and put into action in November of 2021. PLGSP since then has conducted the yearly monitoring and evaluation of GESI and its implementation. The first report of PLGSP after GESI strategy adoption was published in July 2022 of FY 78/79. 424 LGs prepared their GESI audit and 439 LGs adopted the GESI strategy in the FY, the ratio of strategy adoption was more than 50% showcasing a progressive step towards the GESI implementation. Meanwhile, in the province sector, only 8 ministries conducted GESI audits which reflecting minimal response and participation.

Fig 1: Implementation of GESI in Local Governments in FY 78/79

Source: Annual report of PLGSP of July 2022

Out of the total budget issued for PLGSP,  27.72% of the budget was used for GESI mainstreaming activities which is a remarkable milestone in the first year of the implementation of GESI strategy by the Province and Local government.

Table 1: Use of Budget under PLGSP

Source: Annual report of PLGSP of July 2022

Major Achievements in field of GESI during FY 78/79

The FY 78/79 showcased exceptional implementation of GESI in the inaugural year where Implementation of GESI audit software in every LGS was exercised, Karnali Province adopted GESI policy 2079, GESI mainstreaming was thoroughly overviewed in seven provinces, Organization of GESI related training was carried out through focal person in 7 provinces and 753 LGs, Gender Responsive Budget (GRB) was formulated. Altogether 7 events on capacity building training on Leadership and Appreciative Inquiry (AI) for Deputy Mayors/chair, transformative leadership in two provinces i.e. Bagmati and Sudurpaschim Provinces. A total of 183 participants (163 female and 20 male) participated in this capacity-building programme. The capacity building training has helped the Deputy mayors/chairs and GESI focal persons to have better understanding on subject matter and also to enhance their leadership skills to be more effective in their roles and in decision making. Lastly, the GESI Index through software implementation was developed in every municipality.

Failures in GESI implementation during FY 78/79

During FY 78/79 though many progressive steps were taken to initiate the GESI strategy in the mainstream yet some lacunas were visible. GESI related training for focal persons was not implemented which hindered the further GESI oriented training to civil servants under Province ministries and LGs, Gender Responsive Budget formulation was not achieved to the proper extent.

2) Overview of GESI under FY 79/80

The figure below showcases the inclusive governance in the FY 79/80 where 30% of LGs carried out their annual audit keeping GESI on track, whereas 35% of LGs adopted the GESI code of conduct in day-to-day administration and 11.28% of LGs applied GESI strategy. 

 

Fig 2: Inclusive Governance in LGs pursuant to GESI

Source: PLGSP Annual report of FY 79/80

GESI audits were conducted in 28 PGs out of 47 and 20 LGs additionally implemented GESI strategy and 98 LGs implemented code of conduct preventing misconduct in the workplace which is a major aid to GESI mainstreaming.

Source: PLGSP Annual report of FY 79/80

In accordance with PLGSP’s commitment to promoting Gender Equality and Social Inclusion (GESI) and ensuring the inclusion of People with Disabilities (PWD), the data illustrates a comprehensive distribution of training beneficiaries among various ethnicities and PWD. The distribution percentage reveals substantial representation across various ethnicities, with 62.5% for B/C (Brahmin/Chhetri), 17.6% for Janajati, 12.0% for Madhesi, 6.2% for Dalit, 1.5% for Muslim, 0.2% for others, and 0.02% for People with Disabilities (PWD). This data underscores PLGSP’s dedication to ensuring equitable access and representation, particularly for marginalized ethnicities and individuals with disabilities. The programme’s commitment to GESI and PWD inclusion is evident in this comprehensive distribution, fostering diversity and equal opportunities among its training beneficiaries.

Fig3: Status of participation in capacity development program 

Source: PLGSP Annual report of FY 79/80

Major achievements in field of GESI during FY 79/80

The FY 79/80 from GESI perspective was more focused and dedicated towards the GESI audit and policy adaptation. The aim of the PLGSP was to ensure maximum LGs and PGs comply with and adopt the GESI policy and audit. The province and local government were more focused on budget dissemination keeping the track of GESI. Koshi Province carried out GESI focal person training, GESI audit training, and implementation of GESI strategy throughout the FY. Each LGs established gender and social inclusion units along with the respective focal persons. Karnali province was the most active in regard to GESI mainstreaming. All 79 LGs adopted GESI policy, and regular basis GESI meeting with focal person was conducted in order to raise the issues of Gender disparity at both province and local government level, while Sudurpaschim has provided support for provincial legislative enhancement, modernization of provincial administrative systems, reinforcement of horizontal and vertical accountability, mainstreaming Gender Equality and Social Inclusion (GESI).

Despite the achievements in the field of GESI audit and mainstreaming the GESI policies and its implementation was a major area of concern in Madhesh, Bagmati, Lumbini and Gandaki province. The organization of focal persons for GESI mainstreaming was not in adequate manner to ensure that GESI policy was adopted and implemented accordingly.

GESI UNDER MULTISECTORAL SHADE OF NEPAL

1. GESI IN EDUCATION AND LITERACY

The literacy rate data from 2021 for populations aged five years and above across various provinces in Nepal highlights significant gender disparities, which have implications for Gender Equality and Social Inclusion (GESI) efforts. The overall national literacy rate stands at 76%, with a noticeable gap between male (84%) and female (69%) literacy rates. Provinces like Bagmati and Gandaki show relatively higher literacy rates for both genders, with Bagmati leading at 88% for males and 82% for females. In contrast, Madhesh exhibits the lowest rates, with only 55% of females being literate compared to 72% of males. The data rate underscores the ongoing challenges in achieving gender parity in education and calls for targeted interventions to address these disparities, especially in regions like Madhesh and Karnali, where the gender gap in literacy is most pronounced. The progress in literacy is a critical indicator of GESI advancement, and these disparities must be addressed to ensure inclusive development in Nepal.

Source: National Population and Housing Census, 2021

Retrieved from: Gender Equality in Nepal: A Report from April 2024

The literacy rates across different ethnic, caste, and religious groups in Nepal too reveals stark disparities, particularly along gender lines. Hill Brahmins and Newars have the highest literacy rates, with males significantly outperforming females. For instance, among Hill Brahmins aged 6 years and older, 89.06% of males are literate compared to 70.61% of females. The gap widens drastically in marginalized groups like Terai Dalits, where only 47.73% of males and a mere 16.46% of females are literate. This pattern persists in the 15 years and older population, where literacy rates for females in most marginalized groups remain alarmingly low, such as 11.03% for Terai Dalit women; critical disparity in Gender and social inclusion is visible from this chart too.

Table 2: Literacy rates by Ethnic or Caste and Religious Groups and Gender (2018)

Similarly, The Gender Parity Index (GPI) in net enrollment rates for basic (grades 1-8) and secondary (grades 9-12) education in Nepal from 2010/11 to 2022/23 shows fluctuations in gender equity in education access. For basic education, the GPI has remained relatively stable and close to parity (1.00) throughout the years, indicating minimal gender disparity. However, secondary education shows more variability, with a significant peak around 2018/19, where the GPI exceeded 1.00, indicating higher female enrollment compared to males. This peak was followed by a decline, with the GPI dropping below parity in 2022/23. This suggests that while efforts have been made to achieve gender equality in education, challenges remain, particularly at the secondary level, where female enrollment rates have not been consistently maintained

Source: Flash Report 2022/23, CEHRD

Retrieved from: Gender Equality in Nepal: A Report from April 2024

2. GESI IN LABOUR SECTOR

The 2017/18 Nepal Labour Force Survey reveals a significant gender gap in labor force participation: only 26% of women are engaged in the labor force compared to 54% of men. This disparity underscores the persistent challenges women face in accessing economic opportunities and the need for targeted interventions to enhance female workforce participation which was a major objective of GESI strategy.

Retrieved from: Gender Equality in Nepal: A Report from April 2024

Likewise, the employment-to-population ratio in Nepal for 2017/18 highlights a significant gender disparity: 23% for females and 48% for males. This indicates that nearly twice as many males are employed compared to females, reflecting a substantial gender gap in employment rates.

Retrieved from: Gender Equality in Nepal: A Report from April 2024

3. GESI IN POLITICAL REPRESENTATION

The composition of Members of Parliament in Federal Election 2022 comprises 34% female, 66% male in the House of Representatives and   37% female, 63% male in National Assembly. This indicates varying levels of gender balance across different legislative bodies and domination of male representatives, questioning the participation of women in politics.

Retrieved from: Gender Equality in Nepal: A Report from April 2024

The 2022 data on the gender distribution in Nepal's local governments highlights significant underrepresentation of women in leadership roles. While women constitute only 3% of the mayoral and presidential positions and 1% of the Ward President positions, 76% of the Deputy Mayor and Vice President positions are held by women. This is due to the policy of an alternative representation in both positions which has been taken as a means to fulfil obligation rather than providing opportunity. These figures underscore the need for stronger GESI policies to ensure equitable gender representation in local governance. 

Retrieved from: Gender Equality in Nepal: A Report from April 2024

4. STATUS OF NEPAL IN GLOBAL GENDER GENDER GAP REPORT

Global Gender Gap Report 2024 ranks Nepal 137th in economic participation and opportunity with a score of 0.475. It is lower in comparison to that of 2023. The labour force participation rate is high, but wage equality and representation in senior roles are areas needing improvement. Similarly, Nepal ranks 130th with a score of 0.923 in educational attainment, which is a significant achievement in attainment of education at primary and secondary level standing second among South Asia. Nepal ranks 82nd with a score of 0.969 in health and survival, which is an improvement compared to last year, the sex ratio at birth is balanced. Nepal ranks 51st  with a score of 0.288 in political empowerment, Women in parliament and ministerial positions are underrepresented, indicating a significant gender gap in political leadership but in terms of South Asia ,the rank is highest with the achievement of 23.5% women in ministerial level.

Fig 4: Nepal in Global Gender Gap Index Indicator, 2024

Source: Global Gender Gap Report 2024, World Economic Forum

CONCLUSION

Nepal, bound by its international policies and standards to protect and advance GESI is not enough to fulfil this; promises need action that goes beyond enacting policies. Thus, one is in dire need of a strong implementation mechanism, a higher budgetary provision, and that establishment of adequate human resources, skills, and abilities at the sub-national level is urgently required. Besides, the creation of a culture that would prompt (and compel) improvement in the existing discrimination policies as well as increase the dependence of oppressed voices in the system becomes equally important. In this way, eliminating the identified weaknesses and fulfilling its international commitments, Nepal will be able to approach the creation of society based on gender equality and social inclusion, leaving no one behind in the development of the country.

Thus, one of the most significant issues of GESI in the Nepalese context is the lack of policy and practice consistency or, in other words, implementation gap. Although the legislation is liberal, implementation is poor because the governments lack the political will, there are inadequate resources and social culture which is conservative. Failures in protection of vulnerable group from gender violence, discrimination of minorities, and the lack of proper access to services remain an acute problem.  Also, discrimination based on the combined elements isolates the most marginalised groups, for instance, women with disability or from indigenous backgrounds. 

The notion of GESI is not the upliftment of a particular gender or community, it is about the representation of the marginalized and underprivileged status of  personnels in the  mainstream. Nepal through the years has been rigorously committed to enshrine the gender based equality notion with women oriented laws and policies which is not compatible with the principles of GESI. The periodical report addressed to CEDAW, ICERD and ICERD is glorified on the periphery of uplifting the status of women as an accomplishment to GESI but the real victims of Gender inequality, social marginalization and social discrimination are always underscored and unnoticed. To honour its international commitments and foster a more equitable society, Nepal must prioritize the implementation of GESI principles across all sectors, ensuring that marginalized groups are not only recognized in policies but also empowered in practice.