A Conceptual Model Of WOMEN AND GIRLS’ EMPOWERMENT

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LVO/Prashant PanjiarA Conceptual Model ofWOMEN AND GIRLS’EMPOWERMENT

Bill & Melinda Gates Foundation/Prashant PanjiarWhy develop a modelof women and girls’empowerment?At the Bill & Melinda Gates Foundation, we believethat all lives have equal value and that everyonehas the right to live a healthy and productive life.Throughout our 16 years of focusing on global health anddevelopment, we have been committed to reaching poorand marginalized communities. In recent years, we havebegun to focus more intentionally on addressing the rootcauses of poverty and inequality, particularly as experiencedby women and girls.We believe that when women andgirls are empowered to live to theirfull potential, everyone benefitsexponentially.The world has seen progress toward greater gender equalityin recent decades, but the pace of change has been unevenand vast inequalities persist. Significant barriers still stand inthe way of women and girls’ ability to thrive. Worldwide, 15million girls under age 18 are married each year.1 At least onein three women experience physical and/or sexual violence intheir lifetimes.2 In some countries, girls are still less likely tocomplete secondary school than boys.3 Women and girls areunderrepresented in economic and political decision-making,face barriers to equal participation in the formal economy,earn less, and have unequal access to assets and property.4,5They are also 14% less likely to own a cell phone than men,and 1.1 billion women remain outside the formal financialsystem.6,7 For millions of women, the day they give birth isone of the most dangerous days of their lives. Inequalitiespersist within all sectors and spheres, but with considerablevariation within and between countries. The disadvantagesand inequality that women and girls experience often stemfrom lack of control over their own lives and futures and arerooted in unequal gender relations of power.The barriers to equality are deeply ingrained and complex.Overcoming them will not be easy. However, we believethat when women and girls are empowered to live totheir full potential, everyone benefits exponentially. At thefoundation, we are confident that our efforts to improve thehealth and well-being of those most in need will becomemuch more achievable when we put the empowerment ofwomen and girls at the heart of our work. As Melinda Gateswrote in 2014, “We will not use the complexity of resolvinggender inequality as an excuse for failing to think and actmore intentionally about putting women and girls at thecenter of what we do.”8Melinda’s call to action inspired the foundation todevelop a clearly defined model of women and girls’empowerment. We recognized a need to clarify what wemean by empowerment in order to set strategic goals, makeinvestments with partners, and measure progress.1. UNICEF. Ending Child Marriage: Progress and Prospects. New York: UNICEF, 2014.2. The website of the World Health Organization. “Violence Against Women.” Updated 2016. /3. World Economic Forum. The Global Gender Gap Report 2016. Geneva: World Economic Forum, 2016.http://www3.weforum.org/docs/GGGR16/WEF Global Gender Gap Report 2016.pdf4. Ibid.5. The website of UN Women: Progress of the World’s Women, 2015 – 2016. http://progress.unwomen.org/en/2015/6. GSMA Connected Women. Bridging the Gender Gap: Mobile Access and Usage in Low- and Middle-Income Countries. 2015.7. Demirgüç-Kunt, Asli, et al. The Global Findex Database 2014: Measuring Financial Inclusion Around the World. World Bank Group, 2015.8. Gates, Melinda. “Putting Women and Girls at the Center of Development.” Science 12 (2014): 345. doi: 10.1126/science.1258882.2

Our Motivations and ApproachThe foundation has three main motivations for taking anintentional approach to investing in the empowerment ofwomen and girls:The aim in developing this model is not to reinvent theconcept of women and girls’ empowerment, but ratherto draw on decades of thought, program work, evidence,and learning by academics, activists, implementers, andwomen and girls in the communities in which we work.Many of our partners have been applying these conceptsin their own work for a long time, with great success, aswell as learning lessons along the way. As an organization,we want to ensure that we approach our work on womenand girls’ empowerment with clarity and consistency. Wewould do ourselves, our partners, and the women andgirls with whom we engage a huge disservice if we did notcarefully consider this concept in all its complexity. Our mission and core values are aligned with investingin the empowerment of women and girls to achievegreater gender equality as an end in itself. As Melindawrote in the 2017 Annual Letter from the foundationco-chairs, “For us, ‘All lives have equal value’ is not justa principle; it’s a strategy. You can create all kinds of newtools, but if you’re not moving toward equality, you’renot really changing the world. You’re just rearranging it.” We believe that investing in the empowerment of womenand girls can lead to better health and developmentoutcomes. A large and growing body of evidence showsthat empowered women and girls acting as agents ofchange in their communities can and do bring aboutbetter health and development outcomes for all.9A focus on empowerment requiresa shift away from seeing womenand girls as beneficiaries of healthand development programs toviewing them as agents of changefor their own individual andcollective empowerment. We recognize the importance of intentionally focusingon power relations and inequality in the contextsin which we work to avoid harmful unintendedconsequences. If we do not seek to understand andaddress power imbalances and inequality, we riskreinforcing them.We have also come to recognize that many programsthat aim to benefit women and girls do not ultimatelyempower them, and may in fact reinforce their lackof power. A focus on empowerment requires a shiftaway from seeing women and girls as beneficiaries ofhealth and development programs to viewing them asagents of change for their own individual and collectiveempowerment. Beyond providing resources or benefits,programs that aim to empower women and girls mustinvolve a process of social transformation, ultimatelyenhancing the control that women and girls have overtheir own lives.This brief presents the Bill & Melinda Gates Foundation’smodel of women and girls’ empowerment, which wasdeveloped in partnership with the Gender Team atthe Royal Tropical Institute of the Netherlands (KIT),based in Amsterdam. The model was designed usinga process that involved an extensive literature review,alongside consultations with foundation staff, partners,and experts to ensure its relevance to our core values andwork. This brief synthesizes findings from a backgroundwhitepaper of the same title.10 It also reviews the practicalimplications of using this model to inform our workmoving forward.9. Taukobong, H. F., et al., “Does Addressing Gender Inequalities and Empowering Women and Girls Improve Health and DevelopmentProgramme Outcomes?” Health Policy and Planning 31 (2016): 1492–1514.10. See the whitepaper for the full citations of the many publications and resources utilized as the basis for this model.3

Defining Empowerment: Choice, Voice, and PowerMEN AND GIRLS’OW MPOWERMENTECHOICEVOICEPOWERWe define empowerment as the expansion of choice andstrengthening of voice through the transformation ofpower relations so women and girls have more controlover their lives and futures. Empowerment is a process ofongoing change through which women and girls expandtheir aspirations, strengthen their voice, and exercise morechoice. A woman or girl can experience empowerment invarying degrees and across different areas of her life—inher home, her family, her workplace, and her community.Empowerment is also an outcome of women and girls havinggreater influence and control over their own lives and futures.and control over key decisions that affect her life and thelives of those around her. Interventions that aim to facilitatewomen and girls’ empowerment must be shaped by thevoices of women and girls themselves, and the ultimate goalsshould be defined by them and reflect their experiences andpriorities.Expansion of choice and strengthening of voice entail atransformation of unequal power relations. Unequal genderpower relations characterize patriarchal societies—socialsystems in which men hold primary power in politicalleadership, moral authority, social privilege, and controlof property and other resources. Power relations shapedisempowerment and the disadvantages experienced bywomen and girls, as well as their opportunities and wellbeing. This model views power not just as power overwomen and girls by men and others in authority, but also as:When a woman or girl’s choices expand, an array ofopportunities open up to her, many of which she maynever have previously imagined. Expansion of choice isparticularly important for strategic life choices that greatlyaffect her current conditions and future opportunities—such as when and whom to marry, whether to havechildren and how many, where she will live, her friendsand network, and her livelihood. The desired outcomeis increased freedom for her to make informed andvoluntary choices based on her own preferences. Power to—a woman or girl’s ability to make decisionsand act on them Power within—a woman or girl’s sense of self-esteem,dignity, and self-worth Power with—a woman or girls’ strength gained fromsolidarity, collective action, or mutual supportWhen a woman or girl’s voice strengthens, she is able tospeak up and be heard in discussions and decisions thatshape her life and future in both public and private settings.Voice can be strengthened through greater participation andrepresentation of women in political and economic decisionmaking and through collective organizing, in which womenand girls express their interests and concerns and create socialand institutional change. Through strengthened voice inher household, a woman or girl may gain greater influenceTransformation of power relations occurs when women andgirls exercise agency and take action, through expandedaccess to and control over resources and changes to theinstitutional structures that ultimately shape their livesand futures. Agency, institutional structures, and resourcesare the key elements in our model of women and girls’empowerment.4

Key Elements of EmpowermentMEN AND TRUCTURESAgency is at the heart of our model of empowerment; itrefers to the capacity of women and girls to take purposefulaction and pursue goals, free from the threat of violenceor retribution. The three core expressions of agency aredecision-making, leadership, and collective action. These arenot simply ingredients for agency; rather, they are ways thatwomen and girls can exercise agency in their lives.Resources are tangible and intangible capital and sources ofpower that women and girls have, own, or use individuallyor collectively in exercising agency. The key resourceshighlighted in our model include women and girls’ bodilyintegrity (health, safety, and security), critical consciousness,and assets (financial and productive assets, knowledge andskills, time, and social capital).Institutional structures are the social arrangements,including both formal and informal rules and practices,that shape and influence women and girls’ ability to expressagency and assert control over resources. Institutionalstructures can be found in the spheres of the family,community, market, and state. They comprise formal lawsand policies as well as norms that shape relations amongindividuals and social groups.Each of these elements and their dimensions are interrelatedand can be mutually reinforcing, offering entry points forinterventions when addressed explicitly and intentionally.AgencyWomen and girls express agency in decision-makingwhen they influence and make decisions and whenthey establish and act on goals. Key decisions that affectwomen and girls’ lives and futures occur in both theprivate and public spheres and often entail a processthat includes negotiation and compromise. A womanor girl exercises empowered decision-making when sheuses her voice to influence key decisions and is aware of,and can act upon, a full array of choices. For example,in the foundation’s work on family planning, we seek toincrease access to high-quality contraceptive information,services, and supplies to ultimately expand the range ofoptions available to women as they safeguard their healthand determine their futures. One woman may decide tohave many children, while another may decide to havefew or none; empowerment lies in her ability to make thedecisions based on her own preferences.Agency is at the heart of our modelof empowerment; it refers to thecapacity of women and girls to takepurposeful action and pursue goals,free from the threat of violence orretribution.5

MEN AND eadership can be a powerful expression of agencywhen women and girls lead and inspire social changeand effectively participate in governance to improve thestatus of other women and girls as well as themselves.Women’s increased participation in leadership ispositively associated with a multitude of benefitsfor society as a whole. Research shows that a higherpercentage of women in legislatures is associated withmore positive perceptions of government legitimacyamong both men and women; more women servingon boards correlates with higher corporate profits; andwomen who participate in peace processes are morelikely to raise issues that are fundamental to longterm peace and security, such as human rights, justice,security, employment, and health care.11and freely throughout her community. The foundation hasworked with partners in Africa and South Asia to supportthe organization of women’s self-help groups and villagesavings and loans associations, which can provide a platformfor women not only to gain access to credit, but also to shareinformation, build social networks, and engage in collectiveaction in their communities. Research has shown thatbeing part of a self-help group can positively affect women’seconomic, social, and political empowerment.13Institutional StructuresOur model locates institutional structures within fourspheres in which women and girls live their lives: the family,community, market, and state. The family comprises familymembers living in the same household as a woman or girlas well as her extended family and wider kinship networks.The community includes her neighborhood and her village,town, or city and can include an array of social groups andorganizations, such as nongovernmental organizations,community-based organizations, religious institutions,political parties, and advocacy groups. The choices and voiceof women and girls can also be influenced by the state, whichincludes governments and the public sector at multiple levelsand the institutions they control, such as the military, judicialsystems, and public services. The market is the economicsphere in which women and girls participate. It consists ofbusinesses and sites of production and trade on the local,Women and girls engage in collective action whenthey stand together in solidarity and exercise voice totransform institutions and power relations. Collectiveaction is a powerful tool for social transformation andis fundamental to women and girls’ empowerment on asocietal level. For example, research has shown that oneof the most important and consistent influences on policychange to address violence against women is feministactivism.12 Many factors can contribute to a woman’sability to participate in collective action, including socialcapital through her network and her ability to move safely11. Clinton Foundation. No Ceilings: The Full Participation Report. New York: Clinton Foundation, Bill & Melinda Gates Foundation, The Economist Intelligence Unit, andWORLD Policy Analysis Center, 2015.12. Weldon, S. Laurel, and Mala Htun. “Feminist Mobilisation and Progressive Policy Change: Why Governments Take Action to Combat Violence Against Women.”Gender & Development 21, no. 2 (2013): 231–47, doi: 10.1080/13552074.2013.802158.13. Brody, Carinne, et al. Economic Self-Help Group Programs for Improving Women’s Empowerment. Campbell Systematic Reviews, 2015. doi: 10.4073/csr.2015.19.6

MEN AND RESAGENCYrelationsnormsFamilyStatelaws & policiesCommunityMarketnational, and international levels, including the labor market.Within each of these spheres, institutional arrangements areshaped by formal laws and policies, norms, and relationsamong groups and individuals.service providers, government authorities, and others can allinfluence the empowerment of women and girls in positive ornegative ways.Laws and policies established by international treaties andconventions, national governments, and local governmentsand authorities can affect whether and under what conditionswomen and girls have access to resources and opportunities.They can affect at what age a woman or girl can be married,whom she can marry, and the conditions under which shecan leave a marriage. They can also determine whether shecan inherit land, or to what extent she has access to servicessuch as education and health care.Bodily integrity entails a woman or girl having controlover her physical and mental well-being. A healthy and safebody is a necessary basis for women and girls to participatein society and is fundamental to human dignity andfreedom. Health, and in particular the health of womenand girls, has long been a core focus of the foundation’swork. Bodily integrity goes beyond having access to qualityphysical and mental health care to include a woman orgirl’s ability to make informed choices about her bodyand health unconstrained by institutional barriers, suchas discrimination by health care providers or restrictionson health care choices by her partner or other householdmembers. Safety and security enable women and girlsto live their lives free from acts or threats of violence orcoercion. Even women and girls who do not directlyexperience violence are affected by the prevalence ofviolence in their communities and the perceived threat.For example, in cities around the world girls have reportedbarriers to moving freely throughout their communities,due to restrictions placed on them by family members ortheir own fear of violence in public spaces.14 Constraintson mobility can inhibit a woman or girl’s ability to developsocial networks, her sense of self-worth, and her ability tocontrol other resources that affect her empowerment.ResourcesNorms can reinforce or contradict formal laws and policies,and they affect the empowerment of women and girlsin complex and nuanced ways. Gender norms are thecollectively held expectations and beliefs about how women,men, girls, and boys should behave and interact in specificsocial settings and during different stages of their lives. If awoman or girl challenges or does not conform to a norm, theconsequences for her can range from subtle social exclusionto threats or acts of violence or, in extreme cases, even death.These formal and informal rules established through laws,policies and norms are shaped and applied in the day-today relations and interactions that women and girls havewith the people in their lives. Partners, relatives, peers,14. UN-Habitat, Plan International, and Women in Cities International. Adolescent Girls’ Views on Safety in Cities: Findings from the Because I Am a Girl UrbanProgramme Study in Cairo, Delhi, Hanoi, Kampala and Lima. UN-Habitat, Plan International, and Women in Cities International, 2013.7

MEN AND afety andsecurityCriticalConsciousnessKnowledgeand skillsSocialCapitalFinancial &Productive assetsWomen and girls gain critical consciousness when theyidentify and question how inequalities and power operatein their lives and affirm their sense of self and their rights.As a woman or girl gains critical consciousness, her “powerwithin” is transformed and her aspirations and sense ofself-awareness, confidence, self-esteem, and self-efficacygrow. It is this internal change that enables her to exerciseagency. The development of collective critical consciousnessamong women and girls can also be a strong driver ofcollective action and social movements that challenge andtransform critical issues of gender discrimination. Researchhas shown that the transformative effects of empowermentinitiatives can be intensified by actively engaging women inconsciousness raising.15increased employment and economic growth.16,17 Beyondformal education, vocational training, mentorship, andother forms of formal and informal education can beimportant avenues for women and girls to gain knowledgeand skills that enable their empowerment.In many contexts, women and girls lack control over howthey spend their time, particularly on unpaid work suchas household chores and care of children, the elderly, orsick and dying family members. On average, women andgirls across the globe spend more than twice as muchtime on unpaid care and domestic work as men do, whichcontributes to their time poverty.18 The amount of timespent on such work varies greatly by country and context,with wider gaps between men and women in many lowerincome countries. However, in almost all contexts suchwork remains invisible and socially and economicallyundervalued. When a woman or girl gains more controlover her time, opportunities are unlocked, such as time toinvest in her education, skill building, paid work, leisure,and building and maintaining friendships and socialnetworks. Women and girls gain social capital when theybuild relationships and social networks that can providetangible and intangible value and support. Strong networksprovide solidarity and can contribute to strengtheningcritical consciousness. They are also fundamental towomen and girls exercising leadership and participating incollective action.Assets include both tangible and intangible economic,social, or productive resources, which can constrain orenable women and girls’ empowerment. Access to andcontrol over financial and productive assets can providepathways out of poverty for women and girls, in additionto helping them endure shocks such as natural disasters,serious illness, or loss of household income. Knowledgeand skills are fundamental to women and girls’ abilityto make informed choices and effectively exercise voiceand agency in the empowerment process. A large body ofevidence shows a correlation between girls’ education anda range of health and development outcomes, includingdelays in marriage, reduced risk of HIV infection, and15. Cornwall, Andrea. “Women’s Empowerment: What Works?” Journal of International Development 28, no. 3 (2016): 342–59.16. UNESCO. Gender Summary: Teaching and Learning – Achieving Quality for All. Paris: UNESCO, 2014.17. Hunt, Abigail, and Emma Samman. Women’s Economic Empowerment: Navigating Enablers and Constraints. London: Overseas Development Institute, 2016.18. Ibid.8

Dynamics of Transformative ChangeMEN AND nsciousnessCommunityWomen and girls experience empowerment whentheir inner change connects with shifts in institutionalstructures and systems, resulting in the transformationof power relations at both the individual and societallevels. The multifaceted pathway to social change throughempowerment is well articulated by feminist activistand scholar bell hooks, who wrote, “There must exist aparadigm, a practical model for social change that includesan understanding of ways to transform consciousness thatare linked to efforts to transform structures.”19Statelaws & policiesMarketPathways and constraints to women and girls’empowerment are context specific, and the process israrely linear. Therefore, interventions aimed at enablingwomen and girls’ empowerment should use a flexibleapproach and include regular testing of assumptionsand course corrections. Social change can often resultin backlash, so it is also important to monitor forunintended negative consequences.“There must exist a paradigm, apractical model for social changethat includes an understanding ofways to transform consciousnessthat are linked to efforts to transformstructures.”—bell hooksChanges in the multiple dimensions of agency, institutionalstructures, and resources can be mutually reinforcing. Forexample, women who participate in collective action andsuccessfully change discriminatory inheritance laws mayunlock access to productive resources and gain greaterpower and influence within their households. Conversely,constraints in one dimension can act as a barrier to theoverall process of empowerment. For example, efforts toincrease a woman’s decision-making power within herhousehold may be unsuccessful if norms in her communityperpetuate the expectation for women to not speak up intheir own homes.19. hooks, bell. Killing Rage: Ending Racism. New York: Henry Holt and Company, 1995.9

Crosscutting ConsiderationsMEN AND NCYINSTITUTIONALSTRUCTURESMen & BoysThe advantages or disadvantages that a woman or girlfaces depend on how gender intersects with her age, class,race, ethnicity, caste, religion, sexual orientation, genderidentity, and other social markers of difference. Focusingon gender alone can mask disparities in the conditionsand relative empowerment of women and girls within andacross contexts. Therefore, using an intersectional lens thatconsiders gender and the multiple aspects of identity andstatus is crucial to understanding a woman or girl’s relativeempowerment or disempowerment. For example, girlsliving in poor households are almost twice as likely to marrybefore age 18 as girls from higher-income homes. Globally,almost 75% of out-of-school girls are ethnic minorities intheir countries.20 Within any given context, women and girlsface diverse challenges and advantages and therefore havedifferent barriers and opportunities in terms of exercisingchoice and voice and shifting power relations.Focusing on gender alone can maskdisparities in the conditions andrelative empowerment of women andgirls within and across contexts.their husbands controlled key aspects of their behavior,which would presumably include important decisionsaffecting the health and well-being of the women andtheir families, such as whether to give birth in a facility,when and whether to bring an infant in for check-ups,or whether to use contraceptives.21 Any effort to addressthe empowerment of women and girls must take intoconsideration the role of men and boys and ensurethat women and girls are equipped to negotiate theirrelationships with men and boys as power relations shift.Men and boys can be critical contributors or barriers tothe empowerment of women and girls. Men’s attitudesand actions matter, given the key roles they play asfathers, partners, peers, and community leaders withinthe private and public spheres of women and girls’ lives.For example, in a recent study in Bihar, India, 44% ofwomen who had recently given birth reported thatThese two crosscutting considerations are central tohow women and girls experience empowerment ordisempowerment and are critical to how we understandthe entire model of empowerment.20. Klugman, Jeni, et al. Voice and Agency: Empowering Women and Girls for Shared Prosperity. Washington, D.C.: World Bank Group, 2014. doi: 10.1596/978-1-4648-0359-8.21. Borkum, Evan et. al. Midline Findings from the Evaluation of the Ananya Program in Bihar. Princeton, NJ: Mathematica Policy Research, 2014.10

Moving ForwardThis model of women and girls’ empowerment is notintended to be a prescriptive guide. Rather, it is a tool thatcan help identify the multifaceted barriers that women andgirls face in their journeys toward empowerment. So, howdo we envision using this model of empowerment? It caninform program design so that we are better equipped tounderstand where the opportunities or constraints lie inadvancing the empowerment of women and girls. It canalso be the foundational basis of strategy and policy workon gender equality. And, practically, it can challenge us toconsider the implications for how we invest in, and developpartnerships for, gender equality work in development.Within the Gates Foundation, we are using this modelto inform our work in several ways. We are currentlydeveloping our first strategy on Gender Equality. Thismodel of empowerment is informing that process, as a lensthrough which to understand the current state of womenand girls’ empowerment and disempowerment in differentcontexts, as well as to explore the role our foundation couldplay in addressing the constraints that women and girlsface in exercising agency, gaining resources, and navigatinginstitutional structures. We also see great potential to applythe empowerment model within our existing efforts tomainstream a gender lens within our core program strategies.We have already begun to apply this model in some parts ofour work, and we see great potential for the model to:With our partners, we are using this model to inform ourapproach to learning and evidence within current and futuregrants that focus on empowerment. In partnership with theInternational Center for Research on Women (ICRW), we aremanaging a learning agenda across almost 40 projects, manyof which were funded through the Women and Girls at theCenter of Development Grand Challenge. We are using themodel to fra

This brief presents the Bill & Melinda Gates Foundation’s model of women and girls’ empowerment, which was developed in partnership with the Gender Team at based in Amsterdam. The model was designed using a process that involved an extensive literature review,

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