74 74909 v1 1 Country Gender Assessment for LAO PDR Reducing Vulnerability and Increasing Opportunity Executive Summary 3 4 Executive Summary Since the introduction of economic reforms in the mid- Many of the gender issues reviewed in this report cut 1980s, strong growth and development have lifted across multiple aspects of social and economic life. This thousands of poor women and men out of poverty, assessment presents gender issues into three main di- changing traditional ways of life in Lao PDR.1 In this en- mensions of gender equality – endowments, econom- vironment of change, gender relations — within the ic opportunities and agency – using the framework family, village and society at large — are changing too. developed by the World Bank’s World Development Report on Gender.2 In addition to these three areas, the Gender equality is a core development objective. It is report also analyzes gender issues related to emerging also smart economics. Greater gender equality can en- areas of development and growing risks. hance productivity, improve development outcomes for the next generation, and make institutions more representative. As Lao PDR continues its development, ENDOWMENTS the empowerment of women and girls will be key to translating the country’s economic growth and the Development challenges are inconsistent throughout energies of its young people into improved living stan- the country due to myriad factors that include geo- dards that benefit women and men alike. graphic to socio-cultural and linguistic barriers. Al- though strong government commitment to achieving How will gender equity be achieved as Lao PDR’s de- gender equity has progressed, persistent imbalances velopment continues? In this report, two main mes- remain in human development endowments such as in sages are stressed. On the one hand, there is a need to health and education. Chapter 1 discusses these imbal- focus on reducing gender inequality and vulnerability ances. in remote rural areas that are home to smaller ethnic groups. These groups are at particular risk of being left HEALTH: Chapter 1 begins with the health sector and behind during this period of rapid economic develop- demonstrates that, while improvements in antenatal ment. On the other hand, there is also a need to focus and maternal health care have improved, lingering on increasing women’s ability to take full advantage, challenges keep women at risk. Health sector improve- on equal terms, of the expansion of new economic op- ments include increased coverage of antenatal care, portunities in the market, particularly among women in and an increase in the number of births attended by urban, lowland areas. skilled medical staff. However, women’s biological role in reproduction continues to place women at particu- A key challenge for the government is to successfully lar risk. This is illustrated by the country’s high Mater- manage development and poverty reduction efforts nal Mortality Rate (MMR), which estimates 405 deaths in a manner that is inclusive, pro-poor and gender-re- per 100,000 live births. In addition to this, malnutrition sponsive. With economic change comes social change, rates also remain high and an estimated 37 percent of in both the family and the community. New risks and women of reproductive age suffer from moderate ane- emerging issues affect women and men differently, and mia. Moreover, early marriage and pregnancy continue will need to be addressed with appropriate services and to place young women at risk of health complications. skills that meet the needs of each gender. EDUCATION: Over the past decade, progress has been This assessment synthesizes information and findings made to close gender gaps in education. For example, from recent literature and research on gender issues girls’ primary enrollment rates have improved, as have in Lao PDR for the Asian Development Bank (ADB) and adult literacy rates for women. Despite these improve- the World Bank’s (WB) country partnership strategies. ments, fewer girls are enrolled than boys at all levels in The assessment is planned to contribute not only to school. Primary girls’ enrollment improved from 77 per- the work of the ADB and the WB, but also towards the cent in 1991 to 88 percent (per 100 boys) in 2009. Similar- work of the government and development partners by ly, adult literacy has improved from 48 percent for women bringing the latest information on gender issues to the in 1995 to 70 percent presently, but remains lower than forefront. that of men, of whom 85 percent are literate. Nationally, 5 gender gaps in school enrollment rates have narrowed. sist. Although their work is largely informal, 73 percent With this said, there are still fewer girls than boys enrolled of women (compared to 78 percent for men) contribute at all levels, and the gap increases at higher education to the country’s labor force, which is among the highest levels. Girls also remain the majority of those who have in the region. Women and girls constitute over 70 per- never attended school. Opportunities for technical and cent of unpaid family workers, but only 32 percent are vocational education and training (TVET) are limited in identified as ‘own account workers’. This suggests that general. Although girls constitute 40 percent of TVET stu- women are less likely engaged in productive work with dents, they are rarely represented in the technical fields income that they control. Gender wage gaps are also such as electronics and mechanics. present. Women in Lao PDR work longer hours than men as they spend 7 hours per day on productive and WATER AND SANITATION: Both women and men are reproductive tasks, compared to the 5.7 hours spent benefiting from improved access to water and sanita- by men. Women increasingly run their own businesses, tion, but this access varies greatly depending on loca- but these tend to be smaller than those owned by men. tion, with people in more remote and poorer areas hav- Women also report greater difficulty finding access to ing the least access. However, in places where access is finance and technical skills. limited, the burden of water collection falls heavily on women and girls. Women are also generally responsible AGRICULTURE AND RURAL DEVELOPMENT: Women’s for family health, hygiene and food security, which suffer role in agriculture is significant, but often undervalued. from limited access to water and sanitation services. Rural areas in Lao PDR are undergoing a period of rapid transformation. Increased agricultural productivity and Finally, this Chapter also explores how disabilities relate opportunities for off-farm jobs are helping to pull some to gender inequality and the action the government is households, and select areas, out of poverty. For wom- taking to promote disabled women’s equality. The preva- en in asset-poor households and areas, including those lence of disability is just over two percent for both wom- who have lost access to arable land and lack non-farm en and men, though there are different causes and types skills, the commercialization of agriculture can also in- of disability among both groups. For example, men are crease vulnerability. Shifting from subsistence-based to significantly more vulnerable to unexploded ordinance market-oriented household economies can be particu- (UXO) injuries, while women’s disabilities are more com- larly difficult for women in non-Lao-Tai ethnic groups monly congenital, or result from disease. whose cultural roles, limited Lao language and techni- cal skills, often leave them unprepared to engage with ECONOMIC OPPORTUNITIES the market. On average, female-headed households have less household labor and productive assets than male- headed households. How will a growing economy ensure equity and inclu- sion? Chapter 2 questions the benefits and risks of eco- INFRASTRUCTURE: Both women and men benefit from nomic opportunities that range from an expanding pri- improved infrastructure as it enables development and vate sector to the commercialization of agriculture, all mobility. But rural electrification and rural road access realized through year-round access to roads and elec- particularly help, contributing to close gender gaps by tricity. Without a doubt, the private sector is creating reducing time women spend on domestic chores. Grid opportunities for entrepreneurs in Lao PDR, and 30-40 connection increased from 18 percent of households percent of these new entrepreneurs are women. With in 1995 to nearly 72 percent in 2010, though women this said, emerging opportunities and new risks affect still disproportionately head the remaining poor, un- women and men differently, and need to be addressed connected households. Road network improvement is in gender-informed and sensitive ways. providing better access to services and job opportuni- ties for women and men. But increased road expansion GENDER AND ECONOMIC PARTICIPATION: Women into remote areas also carries new risks for women such are active participants in Lao PDR’s labor force; however, as exposure to communicable diseases and human traf- wage gaps and occupational streaming by gender per- 6 ficking. Mining and hydropower combined contributed VIOLENCE AGAINST WOMEN: Systematic reporting of 2.5 percent of the annual 7 percent growth from 2007- domestic violence is limited, but reported figures are 10. However, while large gains can be realized at na- average within the region. Lao PDR has limited support tional and local levels, the potential for socio-economic services for gender-based violence. However, there ap- risks such as landlessness, resource loss, food insecurity pears to be increasing recognition of women’s rights in and a decrease in social capital are persistent threats, national legal frameworks. with important gender dimensions. EMERGING AREAS AND AGENCY GROWING RISKS Agency, or women’s voice and participation, has steadi- Lao PDR’s current growth environment hosts a number ly advanced in Lao PDR. To begin, women’s rights are of emerging opportunities and threats. Chief among recognized in the legal system, and women’s political these are the potential challenges associated with re- representation in the National Assembly has grown gional integration and trade; the question of migration nearly 20 percent since 1990. It is now among the high- (and its mirror image of trafficking); and growing risks est in the region. However, as Chapter 3 demonstrates, due to climate change. women’s increasing representation within central gov- ernment structures has not filtered down to the provin- REGIONAL INTEGRATION: Greater economic links with cial and local levels, where significant gender gaps in neighboring countries present a number of opportu- representation persist, despite that the Lao Women’s nities and risks. Trade liberalization and regional inte- Union (LWU) is reaching out to women from the nation- gration create opportunities for female-dominated al to village levels. industries, but the broader gender impacts are still inad- equately understood. Opportunities exist to strengthen LEGAL FRAMEWORKS: The equal rights and participa- regional cooperation on cross-border issues, including tion of women and men in economic, social and politi- migration, public health and climate change. cal life is supported by the Constitution, various nation- al laws and policies, and international treaties such as MIGRATION AND TRAFFICKING: Both cross-border the Convention on the Elimination of All Forms of Dis- and domestic migration are a longstanding, highly crimination against Women (CEDAW). However, there gendered phenomena. The overwhelming majority is a need to further level the playing field to promote of those who go to work in Thailand, for example, are women’s participation and voice in the country’s gov- young people from border areas aged 15-25 years old. ernance structures, by increasing legal awareness and Women from Mon-Khmer and Tibeto-Burman ethnic supporting women’s increased participation in deci- groups are disproportionately represented among this sion-making at all levels. statistic. Precise figures are unavailable because the majority of persons migrate through irregular chan- GOVERNANCE FRAMEWORK: The Lao Women’s Union nels. Reports indicate that young women and girls who (LWU) is mandated to represent women of all ethnic are trafficked often end up in forced prostitution and groups and to “protect women’s rights and interests�, domestic labor. while the National Commission for the Advancement of Women (NCAW) was established in 2003 as the nation- CLIMATE CHANGE: Women’s roles in climate mitigation al focal agency for gender mainstreaming in develop- and adaptation have been insufficiently supported to ment policies and programs. Between 1990 and 2010, date. With unpredictable floods and drought and the the proportion of female members in the Lao National Mekong River bordering the country’s western corridor, Assembly increased from 6 percent to 25 percent, and Lao PDR is very vulnerable to the growing risks of cli- in 2002 a caucus was formed to further advance wom- mate change.3 The NSEDP has estimated a 1.1 percent en. However, women still continue to struggle to par- negative impact on GDP from climate change due to ticipate on equal terms and in equal numbers. associated risks.4 Women’s traditional responsibilities in 7 the household and community as stewards of natural resources position them well to contribute to strate- gies for adapting to changing environmental realities; however, opportunities to do so have not yet been fully tapped. Women can be supported to switch to clean fu- els for household consumption and also maintain their traditional roles in biodiversity protection, particularly in fragile upland areas and in national protected areas. CONCLUSIONS AND RECOMMENDATIONS Lao PDR is at a critical juncture to harness the power of its economic growth to improve its human develop- ment and to ensure that society can holistically benefit from its natural resources. To achieve these goals, it will be necessary to place gender equality and women’s empowerment at the center of national development plans. The report argues that there remains an impor- tant role for public policies aimed at reducing the most costly gender disparities that are non-responsive to growth and those that have a significant impact on vul- nerable groups. The following table summarizes the recommendations related to the above focus areas of endowments, eco- nomic opportunity, agency, emerging areas and overall gender mainstreaming. Photo by The World Bank 8 9 Table 1: Summary of Recommendations Endowments Recommendation 1.1: Increase coverage and quality of health services, with a focus on remote areas, par- ticularly in areas of maternal health, sexual and reproductive health, and nutrition, and with attention to demand-side issues and the role of men in maternal health-seeking behavior. Recommendation 1.2: Improve access to education, through investments in rural schools and educational services, to reduce gender gaps, regional disparities, and gender stereotypes in secondary and tertiary education, vocational training, and adult female literacy. Recommendation 1.3: Increase access to clean water and sanitation, especially in rural areas, while ensuring women’s voice is reflected in design and maintenance. Economic Opportunities Recommendation 2.1: Pursue a labor-intensive growth strategy that expands wage labor opportunities for both women and men, especially in such emerging industries as tourism, garments, and food processing. Recommendation 2.2: Expand women’s access to and control over inputs for farm and non-farm enterprises, including finance, land, agricultural extension, and business training. Recommendation 2.3: Improve gender mainstreaming in infrastructure investments, by expanding electricity access for female-headed households, and improving benefit-sharing and female participation in trans- port, hydropower, and mining operations. Agency Recommendation 3.1: Improve capacity and institutional support for gender mainstreaming machinery. Recommendation 3.2: Support progress in women’s representation in national and local government. Recommendation 3.3: Reduce incidence of violence against women through legal reform efforts, and efforts to increase public awareness, and capacity of health, law enforcement and protective services. Emerging Areas Recommendation 4.1: Through regional fora such as the GMS Working Group on Human Resources Develop- ment and the Coordinated Mekong Ministerial Initiative against Trafficking, support regional policy dia- logue on enhancing women’s human capital base to gain opportunities and minimize risks from regional integration. Recommendation 4.2: Improve outcomes for vulnerable migrant populations through legal reform, improved services, and strengthened anti-trafficking mechanisms. Recommendation 4.3: Mainstream gender considerations into climate mitigation, adaptation actions and disaster planning, and ensure that women participate in related consultation and decision-making pro- cesses at local, regional and national levels. Gender Mainstreaming Recommendation 5.1: Use sex-disaggregated indicators and targets in planning, implementation, and moni- toring, and strengthen capacity among GOL agencies in this area. Recommendation 5.2: Analyze gender trends with a view to interaction with existing rural/urban, regional and ethnic disparities in the country. 10