Sustainable Business and Society in Emerging Economies Vol.

4, No 1, March 2022

Volume and Issues Obtainable at Center for Sustainability Research and Consultancy

Sustainable Business and Society in Emerging Economies

ISSN: 2708-2504 & ISSN (E): 2708-2172
Volume 4: Issue 1 March 2022
Journal homepage: www.publishing.globalcsrc.org/sbsee

Gendered Departmental Analysis: a Case of Khyber Pakhtunkhwa (KP) Civil

Secretariat, Pakistan

Shabana Gul, Assistant Professor, IMSciences-Peshawar, Pakistan

*Javed Iqbal, Assistant Professor, IMSciences-Peshawar, Pakistan
Adnan Javed, Lecturer, University of Houston Downtown

*Corresponding author’s email: Javed.iqbal@imsciences.edu.pk

ARTICLE DETAILS
History
Revised format: Feb 2022
Available Online: Mar 2022
Keywords
Women Empowerment,
Gender Equity, Gendered HR
capacity Analysis, Gendered
Training Need Assessment,
Gendered Workplace
Analysis.
JEL Classification
E24, R23, J8
ABSTRACT
Purpose: The Govt. of Khyber Pakhtunkhwa, Pakistan formulated
Women Empowerment Policy-2017. The goal of WEP-2017 was to
empower women in all spheres of life with a particular focus on social,
cultural, political-economic, legal, and personal life. This study
conducted a gendered departmental analysis focusing on workplace
analysis, human resource capacity analysis, and training need
assessment. Data from 332 officials representing 13 civil secretariat
departments were collected using a self-administered questionnaire.
Methodology: A proportionate sampling technique was used to select
the subjects. Descriptive statistics were used for analysis.
Findings: All the departments scored ‘very low’ or ‘low’ on the HR
capacity analysis and previously received training experience. However,
the demand for training was either ‘High’ or ‘Moderate’ in all
departments.
Implications: Fully paid maternity leaves, flexible working hours, and
functional harassment committees were the highlights of workplace
analysis whereas pick and drop facilities, separate prayer rooms, and
female-only spaces were the areas that require attention.

© 2022 The authors, under a Creative Commons Attribution-

NonCommercial- 4.0
Recommended citation: Gul, S., Iqbal, J. & Javeed, I. (2022). Gendered Departmental Analysis: a Case
of Khyber Pakhtunkhwa (KP) Civil Secretariat, Pakistan. Sustainable Business and Society in Emerging
Economies, 4 (1), 81-96.

Introduction
The Government of Khyber Pakhtunkhwa formulated Women Empowerment Policy Framework (WEP-
Framework) in 2014. The goal of the WEP framework was to empower women in all spheres of life with
a particular focus on social, cultural, political-economic, legal, and personal life. The goal was sub-divided
into social, economic, political, and legal empowerment and access to justice. In 2017, Women
Parliamentary Caucus, Khyber Pakhtunkhwa (WPC-KP) took the initiative to review the progress of the
WEP Framework and identify gaps in implementation. It was a consultative process whereby stakeholders
from civil society, development partners, legislative entities, administrative departments, and political
representatives were taken on board for their respective inputs. After consultation, two major points were
highlighted i-e lack of an implementation framework and lack of general awareness about gender

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mainstreaming and gender equity concepts and initiatives. The mentioned recommendations were taken
into account and an implementation framework was designed that included inherent monitoring and
reporting mechanics to keep track of all the advised interventions and targets for a period of three to five
years. The revised document was titled “Women Empowerment Policy-2017” and was to be implemented
from 2017 to 2022. The goal and major policy objectives remained the same as given in WEP-Framework
2014.

Currently, the Women Empowerment Policy (WEP- 2017) is a comprehensive cross-sectoral policy
serving as a guiding document to bring synergy and harmonize the efforts of the government of Khyber
Pakhtunkhwa in Socio-economic, legislative, political, and other administrative spheres to ensure equal
opportunities for all genders and strengthen the government to work towards mainstreaming gender issues
in sectoral and departmental programs.

Objectives of the Study

In 2021, the Planning and Development Department (P&DD), the Government of KP in collaboration
with the Governance Policy Program (GPP) and Centre for Public Policy Research (CPPR) at IM Sciences,
Peshawar initiated a baseline assessment of WEP-2017. The purpose of the baseline was to determine the
extent to which WEP 2017 has influenced the work of the government of KP. P&D selected certain
government departments to see the implementation status of WEP 2017 in project cycles, identify gaps as
well as assess departments' enabling environment for effective implementation of the policy.
The goal of the gender-specific departmental analysis was sub-divided into the following objectives:
1. Conduct a gender-specific workplace analysis to identify the challenges faced by female officials to
access their social needs in workplaces
2. Conduct human resource (HR) capacity and training need assessment of the government of KP
departments focusing on their capacity of conceiving, designing, and implementing women
empowerment-specific projects.

Methodology
Under the contract, CPPR-IMSciences was assigned the following thirteen (13) departments as the survey
population. Data were collected from employees working at the departmental level, thus none of the
employees working at the Directorate and or district level were taken into account. Similarly, a
proportionate sampling technique w.r.t to the total number of employees was applied.
Keeping the confidentiality clause in view the anonymity of the sampled KP departments is maintained
throughout this article.

Data Collection Instrument Development Process

The purpose of this project was to determine the extent to which each selected Khyber Pakhtunkhwa
department is implementing the 2017 Women Empowerment Policy in the project cycle, identify gaps as
well as assess departments' enabling environment for addressing gender equality. Therefore, “Workplace”,
“HR Capacity” and “Training Need” were assessed with “Gender Mainstreaming in Public Departments
(sampled)”, “Women Empowerment” and “Women Empowerment Policy 2017”. As a result, three survey
instruments were developed. Following documents were reviewed for designing the three survey
instruments of the project
• Evaluation Tool for Training for Gender Equality, A Short Guide Towards Measuring Capacities and
Transformation Towards Gender Equality by UN Women Training Center (2018)
• Gender Equality Capacity Assessment Tool by UN Women Training Center (October 2014)
• Gender Equality in the Workplace Questionnaire (2019 edition) under the Equileap’s gender equality
scoring methodology (the “Equileap Scorecard”)
• Gender Equality Toolkit for IPPF Member Associations: Gender Assessment Tool (June 2019)

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• WEPs Gender Gap Analysis Tool from Principles to Practice developed in partnership with The United
Nations Global Compact, UN Women, The Inter-American Investment Corporation (IIC), The
Multilateral Investment Fund (MIF) (2020)
The final survey instrument kit developed for the project consisted of three questionnaires, following is
the overview of the three instruments:

Table-01: Overview of the Three Survey Instruments

No. of open-ended
Questionnaire Title Dimensions No. of Items Item Scale
questions
1. General Information 06
2. Knowledge about Gender
Equality and Women 20 01 question about
Human Resource Empowerment three priority areas
Capacity Assessment that are critical for
3. Attitude and Commitment 5-point Likert
w.r.t Gender Equality improving
towards Gender Equality and 20 Scale
and Women women's role/status
Women Empowerment
Empowerment in the development
4. Skills about Gender Equality process
12
and Women Empowerment
Total Items 58 + 1
1. Previous Training Experience
in Gender Equality and 16
Training Need Women Empowerment 01 question about-
Assessment w.r.t • 5-point Likert
2. Training Need and Learning faced training
Gender Equality and Scale
Style about Gender Equality 20 challenges/
Women • Multiple Choice
and Women Empowerment disadvantages
Empowerment
Total Items 36 + 1

1. General Information 06 02 questions about

three major
Work Place
2. Workplace Culture 08 • 5-point Likert challenges faced at
Assessment w.r.t Scale the workplace and
Gender Equality and
3. Available Workplace
01 • Multiple Choice three measures for
Women (about 09
Facilities improving gender
Empowerment facilities)
sensitiveness/equal
Total Items 15 + 2 ity at the workplace

Data Analysis
Survey Instrument’s Response Overview
Data on the “workplace Assessment Instrument” was collected from employees regardless of their
designation within the department/autonomous bodies, however, for HR Capacity and TNA data was
collected from concerned employees only I-e. Stenographers, junior clerks, personal assistants, etc. were
not considered for the mentioned survey.

Table-02: Overview of Survey Response

Response Frequency
Departments/ Autonomous Bodies
TNA & HR Capacity Workplace

1. Department – 1 21 19
2. Department – 2 44 44
3. Department – 3 63 64
4. Department – 4 19 21

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5. Department – 5 25 18
6. Department – 6 12 12
7. Department – 7 10 10
8. Department – 8 23 23
9. Department – 9 40 45
10. Department – 10 10 11
11. Department – 11 18 18
12. Department – 12 30 30
13. Department – 13 17 18
Total 332 333

Sampled Data Overview

A total of 332 governmental officers and staff were interviewed to examine the Human Resource capacity
and Training needs for gender mainstreaming within 13 departments. As can be seen from the table below,
only 25 females’ employees could be interviewed. Most of the employees fall in the 30 to 40 years age
bracket.

Table-3: Age and Gender (HR Capacity and TNA Survey)

Male Female
Below 30 30 – 40 40 – 50 50 and Below 30 30 – 40 40 – 50 50 and
Total Total
Years Years Years Above Years Years Years Above
35 138 85 49 307 2 20 3 0 25
Grand Total 332

32% (105 employees) have spent less than a year in their posting at their current workplace/department
while a majority of about 43% (153 employees) have spent between one and five years in their current
departments, 13% (42 employees) have spent six to 10 years, 7% (22 employees) have spent eleven to
fifteen years, only 2% (7 employees) have spent sixteen to twenty years whereas less than one percent
have spent twenty and above time at their current workplace.
Table-05: Age and Gender (Workplace Assessment Survey)
Male Female
Below 30 30 – 40 40 – 50 50 and Below 30 30 – 40 40 – 50 50 and
Total Total
Years Years Years Above Years Years Years Above
36 147 91 38 312 2 17 1 1 21

Grand Total 333

A total of 333 governmental officers and staff were interviewed to examine the workplace assessment on
gender mainstreaming within the 13 departments. As can be seen from the table below, only 21 females’
employees could be interviewed. Most of the employees fall in the 30 to 40 years age bracket.

Human Resource Capacity Assessment

The study investigated the government employee’s knowledge, skills, and departmental practices related
to major areas of gender mainstreaming in project cycle management and the factors that contribute toward
equality in the province. The management of the project cycle includes project identification, preparation,
appraisal, approval, finances, implementation, monitoring, and ex-post evaluation. At every stage, the
government employees need to have the knowledge, skillset, and effective departmental practices to
conduct programmatic analysis from a gender lens to integrate a gender perspective into the preparation,
design, implementation, monitoring, and evaluation of policies, regulator measures and spending

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programs to promote various aspects of gender equality.

This human resource capacity exercise in 13 select departments tried to establish a baseline of knowledge,
skills, and departmental practice dimensions related to gender equity and women empowerment. To
observe their knowledge and awareness the key respondents were investigated about their respective
knowledge, skills, and practices with regards to collection/analysis of sex-disaggregated data, gender-
responsive M&E, budgeting, and if they were aware that their departments have a gender focal person.
Other areas of the interview included if the respondents have ever received support from gender focal
persons, understanding of non-discrimination policies, equal opportunity policies, and the right to privacy
at work. More importantly, the respondents or participants were asked if they had any idea about the
approved Women Empowerment Policy 2017 for KP and its key dimensions.

Almost all the departments scored ‘very low’ or ‘low’ on all the above-mentioned areas related to gender
mainstreaming. Only three departments scored 4 on the knowledge dimension. For the rest of the
departments, the scores are ‘very low’ and ‘low’ as shown in the following table:

Table-06: Human Resource Capacity concerning Gender Mainstreaming- Summary table1

Training Needs Assessment

Planning and Development Department, GoKP is a platform for appraisal, approval, financing, external
monitoring, and ex-post evaluation of development projects. It has been observed that development
projects usually lack social and gender equality markers at the time of planning and approval. Recently
the Social Protection and Gender Mainstreaming (SP&GM) section has come up with a comprehensive
list of Gender Equality Markers to be annexed to PC-1s, which is a commendable exercise. SP&GM also
has developed ‘social protection and poverty reduction markers’ that will go a long way in ensuring that
development projects are attentive toward social and gender equality. However, overall, there is a lack of
robust gender-sensitive M&E practices and evaluations too are gender blind. One of the main factors is a
lack of trained manpower that can ensure that such checklists are integrated into projects design,
monitoring, and evaluations.
Respondents were asked if they have received training in any of the key genders mainstreaming concepts
and how would they rate their requirements to have such training.
Again, a scale of 1 to 5 was used to record answers. Again, all departments scored ‘low’ or ‘very low in
terms of training received in the past. However, the demand for training is either ‘5’ or ‘4’ by all
departments.
Table-07: Training Need Assessment concerning Gender Mainstreaming- Summary table2

1
For details refer to annexure-1, 2 and 3
2
For details refer to annexure-4 and 5

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Respondents were also asked what would be a better way of learning such that their work becomes more
gender sensitized. A majority showed a preference for ‘face to face training courses of longer duration
and/or ‘face to face’ shorter workshops. Some showed a preference for ‘on the job learning with a
specialist’s support off and on. There is a low preference for learning through conferences, coaching,
self-paced online courses, and detailed assignments.

Figure-01: Ways of Learning

90
% of Employees

75
60
45
30
15
0

In terms of government employee training on gender concepts, a majority would prefer month or so long
‘certificate courses. For mastering some of the key concepts in gender mainstreaming, almost 16% of
respondents suggested a short-term training of up to 5 days would suffice. Very few respondents would
prefer a ‘diploma’ course spanning more than 4 months. The same is the case with short-term placement
in another department that has a relatively better-equipped working environment regarding gender
mainstreaming.

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Figure-02: Preferred Learning Opportunity

75
% of Employees

60
45
30
15
0
Short term Placement Diploma Course Short term training Certification Course
in another (05 days)
province/department
for on job learning

Similarly, respondents from all departments overwhelmingly like learning through ‘lecture’ and/or ‘case
study’ modes. Preference for practice assignments or short videos etc. is low.

Figure-03: Preferred Learning Methodology

60
% of Employees

40
20
0
Short Videos Practice Case Study Lectures
Assignment

Interestingly, almost half of government officers and staff choose ‘international development partners’ as
a preferred provider of training on gender-related issues. Another 30% would prefer to have such training
provided by various government institutions while an equal percentage of respondents suggested that
academic institutions and the private sector should provide training in the future.

Figure-04: Preferred Training Institution

50
% of Employees

40
30
20
10
0
A Private Sector Academia Government International
combination Institutions Development
Partners

Workplace Assessment
One of the objectives of this baseline study was to report on the working environment of government
departments in terms of gendered spaces. A simple tool was designed after consultation with key

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stakeholders. Respondents, irrespective of their grades or cadres, were asked about various aspects of
workplace culture.

Overall, the workplace culture at department-7 may be termed as ideal as it scored the 5est on the above-
mentioned indicators. For department-5 and department-13, the workplace culture may be termed as ‘low
where some indicators need considerable improvement like display of code of conduct, awareness material
such as posters related to gender equality. For the rest of the departments, the workplace culture may be
termed as ‘4’ where some aspects are 5ly sensitive to gender needs while others require immediate
attention.

Figure-05:Workplace Culture

0
Deptt.1 Deptt.2 Deptt.3 Deptt.4 Deptt.5 Deptt.6 Deptt.7 Deptt.8 Deptt.9 Deptt.10 Deptt.11 Deptt.12 Deptt.13

Gender issues are taken seriously

Gender issues are discussed openly
There is a gap between how staff of different gender view gender issues

High Moderate Low Very Low Not applicable to my job

5 4 3 2 1

Figure-06: Workplace Culture

0
Deptt.1 Deptt.2 Deptt.3 Deptt.4 Deptt.5 Deptt.6 Deptt.7 Deptt.8 Deptt.9 Deptt.10 Deptt.11 Deptt.12 Deptt.13

The working environment has improved for women over the past two years
Increase in the representation of women in senior positions in the past few years

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Figure-07: Workplace Culture

0
Deptt.1 Deptt.2 Deptt.3 Deptt.4 Deptt.5 Deptt.6 Deptt.7 Deptt.8 Deptt.9 Deptt.10 Deptt.11 Deptt.12 Deptt.13

Posters/placards/notices related to workplace harassment/violence at workplace etc. are displayed

Formal protocols and reporting mechanisms for filing complaints are available
I can file a complaint/appeal for redress on the basis of gender discrimination

In terms of facilities for both men and women, employees are aware and usually avail of ‘fully paid
maternity leaves, and enjoy ‘flexible working hours when needed. About 55% of the departments reported
having separate toilet facilities for female staff and almost half of the respondents reported having a
‘functional workplace harassment committee’ that can be approached if there are issues of harassment.
On these four indicators, all departments do relatively well.

However, not everyone can have easy access to the ‘daycare center. Only 10% or lesser of the respondents
replied in affirmative about separate spaces for women interaction (like tea room) or separate prayer places
for them within departments. Fully paid paternity leaves are not a norm and so is the case of pick and drop
facilities for men and women commuting from far-off areas in and around Peshawar. On this last issue of
pick and drop, women employees, in particular, demand such services to be provided on regular basis.

Available Facilities within Departments

90
80
70
60
% of Employees

50
40
30
20
10
0
Pick and Fully paid Separate Separate Day care A Separate Flexible Fully paid
drop Paternity prayer female only center functional Wash/toilet working Maternity
facility leave rooms for space for workplace facilities hours leave
female staff interaction harassment for female
(tea-room committee staff
etc.)

Final Remarks
The study has identified several key areas that require immediate and comprehensive attention e.g. gender-
responsive planning, gender audit, gender-responsive monitoring and evaluation, and gender-responsive
budgeting. The capacity of the government department’s employees in all the mentioned key areas is very
low. Employees, in general, are aware of the term “gender mainstreaming” but integrating gender
mainstreaming in gender planning and gender analysis is not only an unknown territory but is also an area

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where the skills of the employees are very low along with the use of such practices at departmental level.
Employees, in general, are aware of gender or sex-disaggregated data as the majority of governmental
interventions nowadays are utilizing such data sets. Thus, as a result, the skill and departmental practices
regarding collecting such data are satisfactory. Gender audit, gender-responsive budgeting, and gender-
responsive monitoring and evaluation are the areas where all three aspects of HR capacity analysis i-e.
Knowledge, skills, and departmental practices are very low across the 13 sampled departments. That is
why the mentioned areas have a high training need. If the government of KP intends to introduce gender-
based budgeting, tracking, monitoring, and evaluation, the mentioned areas will require special attention.
An interesting cross-analysis show that the results of inclusion of gender into administrative/operations
documents concerning knowledge, skill, and departmental practices are moderate, even though gender
audit, gender-responsive monitoring and evaluation, and gender-based budgeting have a very low score
on all three aspects (knowledge, skill, and departmental practices). The reason behind this is the mandatory
use of generic terms e.g., “gender mainstreaming”, “gender equity”, and “sex-disaggregated data” in the
public schemes planning documents (e.g., PC-1 and II, etc.). On the ground the inclusion of gender in the
planning process i-e from step I (planning and initiation) till the last step i-e. Execution and evaluation
require thorough orientation sessions along with training and development.

Interventions by the KP government e.g., establishment of harassment committees at departmental and

organizational levels, the establishment of an ombudsperson office (an output of The Khyber
Pakhtunkhwa Protection against Harassment of Women at Workplace Act 2010) has not only sensitized
the employees at large about gender mainstreaming but has improved the gender-sensitive communication
at the workplace. The same is evident from the data set on hand, whereby the majority of the departments
scored “moderate” to “high” on all three aspects of HR capacity (knowledge, skill, and departmental
practices) concerning the use of gender-sensitive communication. The same positive response remained
the same regarding the implementation of equal opportunity, the right to privacy, and non-discrimination
in the workplace.

The majority of the employees (all 13 departments) were unaware of the women empowerment policy-
217 (WEP-2017) at large. The important point here is that the sampled employees are the ones who work
at the provincial secretariat level, they are the decision making, information dissemination, and
coordination level employees of the provincial government. So, the lack of knowledge about WEP-2017,
lack of knowledge about adequate financial resources that are allocated for WEP-2017, and or adequate
human resources for implementing WEP-2017 is alarming. The employees were at large not even aware
of the assigned tasks of their relevant department in WEP-2017. This indicates a lack of a good
communication strategy and coordination among and within departments regarding gender-related
policies. The government of KP must pay attention to the timely dissemination of such policies to all the
relevant departments and subsequent line departments at the same time.

In a nutshell technical area e.g. gender-responsive budgeting and tracking, gender-responsive monitoring
and evaluation, gender-responsive audit, etc. related to gender mainstreaming require attention, and a
series of specialized training can improve the prevailing deficiencies.

The workplace conditions specifically in terms of available facilities are another area of improvement that
the study identified. Gender focal person appointments at departmental levels along with gender
mainstreaming orientation sessions are a prerequisite for improving the workplace facilities and culture at
large. The employment of women employees is not enough for mainstreaming gender. Several changes in
the workplace from the very basic facilities provisions e.g. separate washrooms, separate prayer rooms,
common rooms, etc. to pick and drop facilities, children's daycare facilities, and fully paid paternal leaves
(maternal are provided) are required. Flexible working hours are not a formal arrangement in KP public
sector, though it is provided as informal favor, and was widely practiced during the Covid-19 lockdown.
This study suggests that a formal mechanism should be designed so that this facility can be formally
availed by employees.

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The HR capacity and workplace culture of the service providers can set the tone for implementing gender-
based strategies. This study provides a sound baseline for the govt. of KP to plan a comprehensive training
program for improving the knowledge, skill, and attitude of its employees towards gender mainstreaming,
gender-based planning, and budgeting. The improvement in the HR capacity and workplace culture will
serve as insurance for meeting all the goals and objectives that the government will set regarding gender
mainstreaming and women empowerment.

References
Equileap. (2019). Gender Equality in the Workplace Questionnaire. Equileap.
Government of KP. (2017). Women Empowerment Policy Khyber Pakhtunkhwa-2017. Zakat Ushr, Social
Welfare, Special Education and Women Empowerment Department, Khyber Pakhtunkhwa.
IPPF. (2019). Gender Equality Toolkit for IPPF Member Associations: Gender Assessment Tool. The
International Planned Parenthood Federation. Retrieved from www.ippf.org
Popovic, N. (2018). Evaluation Tool for Training for Gender Equality, A Short Guide Towards Measuring
Capacities and Transformation Towards Gender Equality. UN Women Training Center.
UN Women. (2014). Gender Equality Capacity Assessment Tool. UN Women Training Center.
UN Women. (2020). The Women’s Empowerment Principles Gender Gap Analysis Tool. UN
Women and UN Global Compact.

Annexure-1: Knowledge about Gender-Related Concepts

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Annexure-2: Prevailing Skills (Gender-Related Concepts)

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Annexure-3: Gender-Related Departmental Practices

Annexure-4: Acquired Training Status Regarding Gender-Related Concepts

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Annexure-5: Training Needs Regarding Gender-Related Concepts

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