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PREPARATION OF THIS DOCUMENT

This report brings our organizations together again to reaffirm that, if we do not redouble and better target our efforts, our goal of ending hunger, food insecurity and malnutrition in all its forms by 2030 will remain out of reach. Although the world is recovering from the global pandemic, this is occurring unevenly across and within countries. On top of this, the world is grappling with the consequences of the ongoing war in Ukraine, which has shaken food and energy markets.

Cecilia Ballesteros, Claudia Brito, Verónica Chicas, Catalina Ivanovic, Mauricio Mireles, and Alejandra Safa Barraza (FAO); Carolina Franch (University of Chile), and Micaela Bazzano, Anabella Benedetti, Blas Fernández, Jimena Parga, Facundo Revuelta, Sara Sanz and María del Carmen Tamargo (FLACSO Argentina) were involved in this guide.

We thank the Joint Programme on Gender Transformative Approaches to Achieve Food Security and Nutrition (JP GTA) - implemented by FAO, the International Fund for Agricultural Development (IFAD), and the World Food Programme (WFP), and backed by the European Union- for providing financial and technical support.

Lois Archimbaud (FAO), Mariana Estrada (FAO), Marion Khamis (FAO), and Tania Martínez (FAO) reviewed this document, Marcela Sanguineti acted as editor, and Natalia Geisse was in charge of the layout.

CONTENTS

Preparation of this document

Acronyms

Introduction

1. INSTITUTIONAL FRAMEWORK

2. THE INTERSECTIONAL APPROACH: DEFINITIONS, HISTORY, AND SCOPE

2.1 An illustrative example: African American women’s experience of intersectionality

2.2 Intersectionality: history and origin of the concept

2.3 Development and use of the term intersectionality

2.4 Intersectionality as an integrating approach

3. INTERSECTIONALITY TODAY: ITS CONTRIBUTIONS TO ACHIEVING THE 2030 AGENDA

3.1 Definitions and aspects of the axes to consider when adopting an intersectional approach in Latin America and the Caribbean

3.2 The intersectional approach and its association with human rights-based and gender transformative approaches

4. INTEGRATING THE INTERSECTIONAL APPROACH TO THE PROJECT CYCLE

4.1 An example of intersectional analysis

4.2 Applying intersectionality in the project cycle

Phase 1: Identification

Phase 2: Formulation

Phase 3: Approval

Phase 4: Implementation and monitoring

Phase 5: Evaluation

Phase 6: Closure

ANNEX: RECOMMENDATIONS FOR THE FORMATION OF PROJECT TEAMS

REFERENCES

ABBREVIATIONS

AWID

Association for Women’s Rights in Development

CEDAW

Committee on the Elimination of Discrimination against Women

ECLAC

Economic Commission for Latin America and the Caribbean

FAO

Food and Agriculture Organization of the United Nations

IFAD

International Fund for Agricultural Development

IIWF

International Forum of Indigenous Women

FISDL

Social Investment Fund for Local Development

GTZ

German Agency for Technical Cooperation

SDG

Sustainable Development Goals

OAS

Organization of American States

ILO

International Labour Organization

UN

United Nations

UNDP

United Nations Development Programme

UNFPA

United Nations Population Fund

UNICEF

United Nations Children’s Fund

INTRODUCTION

Why do young Indigenous Women who live in rural areas of Latin America and the Caribbean suffer greater levels of exclusion and backwardness than the majority of the population? In other words, why do certain groups of people, depending on their origin or social conditions, concentrate the poverty and vulnerability indices? And in the face of this greater precariousness, what can be done to reduce these inequalities, where gender, ethnicity-race, territory, and age converge, in sustainable rural development projects?

These essential questions prompted the Food and Agriculture Organization of the United Nations (FAO) to develop a Practical guide for the incorporation of the intersectionality approach in sustainable rural development programmes and projects. This guide aims to provide an overview of innovative and culturally sensitive work methodologies for identifying inequalities and present an intersectional action and transformation strategy for planning and implementing policies to collaborate with rural populations. This strategy considers gender, ethnicity-race,[1] age, and territorial dimensions, thus contributing to the effective implementation of FAO Policy on Gender Equality 2020–2030 (FAO, 2021a) and FAO Policy on Indigenous and Tribal Peoples (FAO, 2011).

This guide uses a didactic method applicable to the design and implementation, monitoring, and evaluation of projects, plans, and programmes. It focuses on integrating intersectional aspects in each phase, seeking the gradual implementation of actions through an inclusive and participatory approach.

Hence, this guide provides FAO staff and partners of the Organization a tool to ensure the fulfillment of commitments to equality, specifically through the empowerment of women and the eradication of poverty. In this regard, we expect it to contribute to the goals set by the United Nations for human development, equity, and social justice, which are based on the implementation of regional and international policies, including the 2030 Agenda for Sustainable Development.

FAO and local governments are committed to understanding and addressing the challenges in Latin America and the Caribbean to ensure that development is sustainable and inclusive. For this reason, the ongoing review of policies and instruments and the urgent incorporation of new concepts and approaches designed to improve actions and results are critical to renew and focus the work done by FAO and its partners.

Finally, this guide introduces concepts and tools to promote understanding and incorporate the intersectional approach as a concrete input for progress towards a more prosperous, sustainable, and equitable world.

WHAT IS THE CONTRIBUTION OF THE INTERSECTIONAL APPROACH TO DEVELOPMENT INITIATIVES?

Intersectionality is an approach and methodology of social analysis that aims to recognize the different types of inequality generated due to the intersection of the social dimensions that shape the lives of individuals and groups (AWID, 2004).

The intersectional approach is used to recognize and address the presence of a series of societal and organizational aspects that frequently distribute power unequally and, therefore, place limitations on the full exercise of the rights of individuals and groups. Gender, ethnicity-race, age, and territorial dimensions are not isolated or independent from their historical, social, and cultural context. These dimensions are often interlaced in a way that increases the burden of inequality, generating substantially different experiences for people and their possibilities of well-being. This does not mean that any of these dimensions on their own are a social impairment. For example, it is not necessarily a disadvantage to belong to an Indigenous Population, live in a rural area, or be a woman. Nevertheless, according to current data, the intersection of these isocial dimensions restricts opportunities and limits access to a good life.

Compliance with the Sustainable Development Goals (SDGs), as principles and a regulatory framework, faces multidimensional social, economic, and environmental challenges that present complex interconnections. The 2030 Agenda and the challenges of the SDGs require new knowledge and perspectives capable of addressing social reality without reducing it to basic or isolated aspects.

For those working for equitable development, the intersectional approach provides tools to analyse social complexity, engage in planning through dialogue and communication, develop projects based on respectful and productive actions, and evaluate the contribution of activities linked to compliance with the SDGs. In addition, intersectionality contributes to generating collaborative strategies to face possible threats and ensure inclusive and participatory processes.

WHO IS THIS GUIDE FOR?

This guide looks to help FAO staff in charge of programmes and projects integrate the intersectional approach in projects aiming to achieve sustainable rural development.

It is also available to organizations and institutions that seek to guide their teams regarding the intersectional approach, helping them identify key concepts and methodologies and promoting the application of intersectionality in their activities and management areas.

This document also intends to serve as an open resource for individuals and groups in the private sector or civil society that promote development, manage sustainability, or look after social and corporate responsibility.

WHAT ARE THE CONTENTS OF THIS GUIDE?

Section 1

Presents the institutional framework, addressing the roots of global inequality while pressing for the integration of specific economic, social, and environmental elements to achieve equitable and sustainable development. To this end, it highlights the international commitments (agreements, pacts and conventions) on development and inclusion, which provide a roadmap to eradicate poverty and hunger, protect the planet from environmental degradation by addressing climate change, ensure that all people can enjoy prosperous, healthy and fulfilling lives, and promote peaceful, just and inclusive societies that are free from violence and fear.

This institutional framework also incorporates FAO commitment to gender equality and safeguarding the rights of Indigenous and Afro-descendant Peoples, as well as its focus on age and territorial dimensions, recognizing the intersectional approach as an effective way to address these goals.

Section 2

Reviews the concept of intersectionality, starting with a brief reflection on its scope and limitations, before addressing how feminists of African descent in the United States of America questioned white feminism, which sought to highlight the struggles and problems faced by women while ignoring the interconnection between gender and race. These criticisms served as a basis for the development of the concept of intersectionality by Kimberlé Crenshaw, who proposed that this concept be used for the legal analysis of cases that affect black women (Crenshaw, 1989). This section also highlights critical points to avoid falling into a simplistic use of the approach as a mere tool for the measurement of vulnerability.

Section 3

Deepens into the concept of intersectionality and its scope, through the review of gender, ethnic-racial, age and territorial dimensions.

Section 4

Offers a methodological framework designed to facilitate the integration of the intersectional approach in programs and projects and maximize its benefits. It provides inputs and strategies for professional teams to develop a proposal that addresses the characteristics of the specific context and the needs and interests of the population involved, including the analysis of existing activities. The aim is to involve other stakeholders not usually considered in the study of the problem or the design of the projects, promoting their participation in the processes that can positively transform their lives.

Finally, the annex offers recommendations for forming teams in charge of projects with an intersectional approach.

The sections were arranged so that the guide be read either in the proposed order or by turning directly to the chapters that address the reader’s areas of interest. However, we recommend the readers to review the conceptual aspects (Section 2) before the section on the integration of the intersectionality approach in the project cycle (Section 4).

1 In this guide, the term “ethnicity-race” is used, since it is recognized that ethnicity refers to a people that shares a culture, history, territory and certain customs, and whose members are united by a common identity. At the same time, the word race is currently used by some groups in Latin America and the Caribbean that have claimed it as a way of verbalizing the discrimination to which they have historically been subjected, making it a politically charged term.

1. INSTITUTIONAL FRAMEWORK

To make agrifood systems in Latin America and the Caribbean more sustainable, resilient, nutritious and productive, it is essential that the rights of the participants be actively recognized. Consequently, new projects or programmes must take into account the situation of people in marginalized social positions to ensure that “no one is left behind,” as established in the 2030 Agenda.

The principles of equality, self-determination, non-discrimination, and inclusion guide action through a human rights-based approach, with gender equality, respect for the rights of Indigenous, Tribal, Afro-descendant Peoples, and the fight against all forms of discrimination recognized as Individual Rights and Collective Rights (UNDP, 2013). To achieve this goal, we must recognize the tensions between these areas to overcome the diversity of visions regarding the exercise of rights and to understand the situations in which the subjects participate.

In this context, international legal frameworks are a vital tool to guide actions and create new methodologies that strengthen the quality and relevance of these actions, offering a guarantee of inclusion and social justice that reflects the principles of the United Nations. They also represent an urgent call for action and transformation by the governments committed to these agreements.

These legal frameworks, gradually developed since the 1960s, encourage governments to design and implement policies, plans, programmes, and projects that reduce the inequalities faced by populations frequently in situations of vulnerability. Women, inhabitants of rural sectors, Indigenous or Afro-descendants Groups, and those at an age in which inequality gaps become more acute benefit from said frameworks, making these issues a priority on national, regional, and international agendas.

In this regard, FAO seeks to promote outcomes aimed at achieving gender equality, continuing the fight against racial discrimination, and ensuring the protection of collective and individual rights recognized by the Universal Declaration of Human Rights of 1948, the Convention on the Elimination of All Forms of Discrimination Against Women (CEDAW) (UN, 1979), the United Nations Declaration on the Rights of Indigenous Peoples (UN, 2007) and Convention 169 of the International Labour Organization (ILO) on Indigenous and Tribal Peoples (ILO, 1989).

In addition, since 2015, the SDGs have contributed to strengthening respect for human rights as part of a global agenda to achieve, by 2030, social, economic, and environmental sustainable development. The goals include ending poverty, achieving zero hunger, preventing discrimination against women and girls, and improving Indigenous Peoples’ living conditions.

In line with the 2030 Agenda, FAO’s work focuses on achieving four main improvements: better production, better nutrition, a better environment, and a better life, which directly contribute to the achievement of the SDGs (FAO, 2021b). This task must consider, among other documents, the following guidelines of the Organization: FAO Policy on Gender Equality (2012), which was revised and relaunched in its FAO Policy on Gender Equality 2020—2030 (FAO, 2021a), and FAO Policy on Indigenous and Tribal Peoples (FAO, 2011).

The first document contains the goals, objectives, and gender equality strategies of FAO, setting the minimum standards for gender mainstreaming and actions explicitly aimed at women. The second one provides FAO with standards on issues about Indigenous Peoples and the right to Free, Prior, and Informed Consent (FPIC).[2]

FAO Strategic Framework for2022—2031 (FAO, 2021b) demonstrates its harmony with the SDGs. It highlights the need to respect environmental and social safeguards in all projects. These constitute essential tools to prevent and mitigate undue harm to people and the environment throughout the project cycle. Safeguards No. 6, “Gender equality and prevention of gender violence,” and No. 8, “Indigenous Peoples,” consider a specific set of guarantees to address gender gaps and ethnic-racial inequalities. Adopting an intersectional approach facilitates the development of analysis, design, implementation, monitoring, and evaluation of projects and work plans based on a vision of programmatic efficiency and cost-effectiveness.

Implementing these safeguards is an opportunity for stakeholders to participate in sustainable development, improving project proposals’ relevance, impact, and sustainability.

By focusing on the interrelated nature of inequities that negatively affect people’s lives, the intersectional approach recognizes the diversity of social groups and that inequalities reinforce each other. For this reason, the following section addresses the implications, origins, and scope of the notion of intersectionality and its applicability in the generation of action strategies that promote equitable, participatory, democratic, and sustainable human development.

2 FPIC is a principle protected by international human rights law that requires States and organizations of all kinds and at all levels to request the authorization of Indigenous Peoples prior to the implementation of projects, programmes or legislative and administrative measures that could affect their territory or way of life. This principle emphasizes that Indigenous Peoples must be included in the consultation processes, respecting the necessary time and providing information in advance (in a clear and truthful manner) about the possible effects of the project or programme activities.

2. THE INTERSECTIONAL APPROACH: DEFINITIONS, HISTORY, AND SCOPE

This section presents the key points for understanding the concept of intersectionality, starting from the experience of Afro-descendant women, which forms the basis of this analysis, to its consolidation as an approach to identify and address how conditions of discrimination and injustice are exacerbated, hindering the exercise of human rights.

2.1 AN ILLUSTRATIVE EXAMPLE: AFRICAN AMERICAN WOMEN’S EXPERIENCE OF INTERSECTIONALITY

Observing gender and race in isolation does not account for the complexity of the experience of inhabiting a body in which both conditions converge and are indivisible. This fact makes it urgent to propose ways to address social diversity.

The following excerpt demonstrates, through the voice of a woman who recognizes herself as black, how she is affected by interrelated inequalities.

When you look at me, what do you see, a woman who is black or a black who is a woman? For me, this question is irrelevant because I cannot separate my blackness from my being a woman. In fact, I’m not sure I want to separate them. I want people to stop using my social position to justify punishing me or excluding me from the structures and practices of society. Sometimes my identity is like a cake that is made with two-colour dough, in which my dark skin is intimately mixed with my being a woman and therefore I cannot separate or divide them. In some of our analyses we try to isolate and eliminate racial and gender segregation. But how can we isolate and segregate elements that are so closely mixed? Who defines how these multiple identities should be separated? (Jordan-Zazhery, 2007, cited by Gandarias Goikoetxea, 2017).

This narrative shows the interaction of different dimensions, emphasizing the point where gender and race are linked. It also represents an important warning for the feminist movements and others working towards equality by emphasizing that gender inequalities are not the only inequalities. In this regard, it highlights that gender is permeated and shaped by other social dimensions that operate at a global and individual level, such as social class, race, ethnicity, sexual orientation, age, religion, territory, disability, etc.

The impossibility of identifying and prioritizing the multiple causes of the experience of inequality means it is necessary to develop multidimensional methodologies capable of dealing with these juxtaposed and complex realities. This is the conceptual gap that intersectionality aims to address and resolve.

2.2 INTERSECTIONALITY: HISTORY AND ORIGIN OF THE CONCEPT

In the 1970s and 1980s, a movement began within feminism that criticized the hegemonic vision of women as a homogeneous group that shared the same problems, and the resulting establishment of an agenda and demands based on the dominant culture and values of the West.

The Combahee River Collective (1974; 1980),[3] and the authors bell hooks (1952; 2021),[4] Audre Lorde (1934—1992),[5] and Angela Davis (1944),[6] among other Afro-descendant feminist women in the United States of America, began to criticize First World feminism. They argued it did not recognize how race, social class, and sexuality shaped the diverse ways of being a woman and the different problems and types of oppression they face. Their reflections warned of the error of representing the experiences of upper-middle class, white, heterosexual women and women with traditional family models as the standard to explain the hierarchies of power in which women are generally subjugated. The main contribution of this group was to recognize that not all women relate in the same way to privileges, prestige, power, and discrimination, since what some women see as limitations and discrimination are seen by others as guaranteed rights.

This criticism of the use of the concept of gender in a reductionist way, focused only on female subordination/male dominance, allowed race, religion, nationality, (dis)ability, socioeconomic status, and sexual orientation to be seen as organizing principles that establish crucial differences between both sexes, and even more so between women themselves.

Even before the concept of intersectionality was developed, black feminists, through their intellectual and political efforts, had an impact, raising awareness of the need for a comprehensive understanding of inequality that was able to overcome the limitations of the traditional proposal of white feminism.

Their political approach was marked by the use of a multidimensional analysis that incorporates different types of oppression, which in practice are interrelated, and the recognition that the living conditions of an enormous number of women, including black women and sexual non-conformists, are not considered by the dichotomous vision of white feminism.

In this regard, black American feminist thought is considered part of the development of non-hegemonic feminist thought and praxis, which recognized the diversity of inequalities facing women and represented the beginning of what later was viewed as the birth of a new concept and theory.

2.3 DEVELOPMENT AND USE OF THE TERM INTERSECTIONALITY

Dr. Kimberlé Crenshaw, an American professor of law, coined the term intersectionality. This concept emerged from the research she carried out in 1989 based on three legal case studies: De Graffenreid vs. General Motors, Moore vs. Hughes Helicopter, and Payne vs. Travenol. In these cases, she was able to observe how the legal system was unable to interpret the scope of discrimination based on race and gender when these occurred simultaneously, and even less to address the labour and civil injustices faced by black women.

In the first and most famous case, De Graffenreid v. General Motors, the workers sued the company on the grounds that they had been discriminated against on the basis of both gender and race. The plaintiffs alleged that, since the company did not hire black women before 1964, when the company faced an economic crisis in the early 1970s, the black women hired since that year were all laid off on the grounds of not having seniority.

In its resolution, the court found that there was no gender discrimination because General Motors had hired and promoted women, not mentioning that they had only been white women, and that there was also no racial discrimination because black people-all of them men - had been hired and promoted by the company. Thus, when considering gender and race in isolation, the discriminatory action was undetectable, since neither women nor Afro-descendants were excluded as a population. However, the situation of Afro- Descendant Women, in particular, was not considered.

As expressed by Crenshaw herself, the experiences of the racialized women, from the legal and institutional perspective, meant that they were left unprotected due to the invisibility of the confluence of two categories of discrimination - their gender and race - that were only legally recognized in an isolated manner (Crenshaw, 1989).

In short, Crenshaw used the notion of intersectionality to demonstrate how, for certain women, the coexistence of several factors can promote or give rise to a new and particular form of discrimination, which deepens a situation of injustice. Speaking at the United Nations, she pointed out that all women are in some way subject to gender discrimination, emphasizing the oppression of the gender-social system. But it is equally true that other factors related to women’s social identities, such as class, caste, race, skin colour, ethnicity, nationality, and sexual orientation, are “differences that make a difference” in the ways women experience discrimination. These elements cannot be invalidated or omitted, as they are crucial in exacerbating vulnerabilities exclusive to particular groups of women and disproportionately affect them (Crenshaw, 2000).

2.4. INTERSECTIONALITY AS AN INTEGRATING APPROACH

The intersectional approach facilitates the inclusion of historically excluded groups and sectors through the combined analysis of dimensions that allow a deeper understanding of the complex and multidimensional reality of social inequalities and discrimination.

Intersectionality is an approach and methodology of social analysis that aims to reveal the various social dimensions that shape the living conditions of individuals and groups, exposing the different types of discrimination and disadvantages that arise from the intersection of some of these dimensions. It also seeks to address how overlapping dimensions, such as gender, ethnicity-race, age group, and place of residence (rural or urban space), among others, deepen the effects of inequalities. Intersectionality says that these situations require systemic approaches that recognize the framework of inequality they have given rise to (AWID, 2004).

However, intersectionality should never be thought of as a mere analysis based on an exercise of adding and subtracting social dimensions to account for a scale of vulnerabilities. First, this would impose a static vision of the categories of ethnicity, class, territoriality, age, sexual orientation, etc. Second, doing so would prevent recognition of the critical role played by social and cultural systems in generating the conditions that promote certain forms of discrimination. And third, this would ignore the structural and systemic aspects of oppression as a collective social and political phenomenon.

The concept of intersectionality demonstrates how the different forms of discrimination interact and reinforce each other (Garry, 2011; Platero Méndez, 2014), giving rise to identity construction processes specific to each context, discourse, and social practice (Winker and Degele, 2011).

The intersectional approach draws attention to the changing ways in which inequality and its various dimensions are organized. It involves a higher level of complexity in identifying the disparities that affect women and specific groups, while considering the different relationships established and how they overlap in particular subjects and groups. It helps understand the social space in which some communities exist, as well as their possible reactions and whether the resources of the relevant authorities promote equality or, on the contrary, perpetuate inequality in these groups.

The intersectional approach also promotes work focused on problem areas, improving efficiency in the use of resources, and expanding their benefits.

KEY IDEAS OF INTERSECTIONALITY

• Intersectionality was the result of long debates within the feminist movement, which emphasized that the category of gender is not enough to understand the inequalities experienced by all women.

• Initially, the focus was to identify a perspective in the legal system that could address the discrimination generated by the gender-race dyad, acting as a valuable concept to understand how the intersecting systems of exclusion affecting women work.

• The expansion of this approach into other areas made it an analytical tool that highlights the inequities experienced by various groups, in which inequalities intersect and reinforce each other.

• The intersectionality approach proposes that solutions, programmes, and social projects committed to social transformation must be implemented to integrate different types of inequalities and the contexts in which they occur.

3 The Combahee River Collective was a black and lesbian feminist organization in the United States of America, known for its famous declaration of principles in 1977, which became a key document in establishing the interconnections between the social problems faced by black women, such as racial and gender discrimination, homophobia, and classism.

4 Her name at birth was Gloria Jean Watkins. When she started writing and entered the world of literature, she decided to name herself bell hooks, in honour of her grandmother, emphasizing that her writing should be published in lower case because, as she reiterated on countless occasions, what mattered was the substance of the facts and not who she was (Mark, 2010).

5 Audre Lorde, a renowned African American-American writer, was a radical activist for the civil rights of the black community. Her poems and writings, including the poem “Sister Outsider” and others of obvious feminist content, have supported an accurate denunciation of machismo and racism (Lorde, 1984).

6 Angela Davis, an American philosopher of African descent, is a world-renowned feminist with a history as a political activist. Her writings and struggle have focused on protecting animal rights and supporting sexual non-conformists (Martínez, 2018).

3. INTERSECTIONALITY TODAY: CONTRIBUTING TO THE ACHIEVEMENT OF THE 2030 AGENDA

Ethnic inequalities, along with those related to gender, territory, and the life cycle, constitute the structuring axes of the matrix of social inequality in Latin America (ECLAC, 2017).

As pointed out in FAO Regional Strategy for Collaboration with Indigenous and Afro-descendant Peoples in Latin America and the Caribbean (FAO, 2021c), Indigenous and Afro-descendants Women and Girls are often much more vulnerable, outside and inside of their communities, since they suffer from triple discrimination based on gender, ethnic-racial differences, and socioeconomic status, in addition to a frequent lack of recognition and protection of their collective and individual rights.

The CEDAW has been emphatic in recognizing that Indegenous an Afro-descendant Women, especially in rural areas, face high levels of poverty; illiteracy, and low levels of formal education; important limitations in access to healthcare, basic sanitation, credit and employment; restricted participation in political life, and higher rates of domestic and sexual violence.

Gender violence is one of the factors that threaten the autonomy and full development of girls and women everywhere in the world. In addition, those who live in rural areas are in a situation of unique vulnerability in the face of its different manifestations (physical, psychological, sexual, and economic/patrimonial).

Gender-based violence could also be associated, in some cases, with cultural patterns. As the International Indigenous Women’s Forum (IIWF) warned in its 2006 report, situations such as sexual abuse, the marriage of girls with adult men, and genital mutilation constitute “violence in the name of tradition” and should not be normalized (IIWF, 2006).

The dispute over the control and use of land and natural resources for infrastructure, roads, mining, energy (including clean energy), and extraction of raw materials, together with intensive agricultural production, livestock and forestry systems, is linked with complex phenomena, such as our continent’s economic model based on primary commodity exports, added to the expansion of the presence of illicit groups associated with the drug market and armed conflict. In these scenarios, Indigenous and Afro-descendants Populations are often subjected to forced territorial displacement, rape, sexual exploitation, and other forms of violence exercised alternately by members of the state security forces and the military and, at the same time, by paramilitaries and drug trafficking organizations, which generates serious environmental, social, and cultural impacts.

The reflections on the multiple types of discrimination that affect people and groups demonstrate the need for a framework that helps to visualize how social injustices and inequalities are systematically reproduced. In this regard, intersectionality provides a method of interpretation and a way to approach the different inequalities that affect women (Expósito Molina, 2012).

A special commitment is required to work towards the achievement of equality, sustainability, and non-violence, among others, contributing to the achievement of a better quality of life, as stated in the 2030 Agenda and the SDGs, thereby creating new possibilities for the efficient transformation of communities through an inclusive approach.

3.1 DEFINITIONS AND ASPECTS OF THE AXES TO CONSIDER WHEN ADOPTING AN INTERSECTIONAL APPROACH IN LATIN AMERICA AND THE CARIBBEAN

FAO has established gender, ethnic-racial, age, and territorial dimensions as priorities in its work, specifically in designing and implementing its plans, programmes, and projects. The following are the conceptual definitions of these dimensions, on which the intersectional approach is based.

Gender is not synonymous with women and refers to a social, cultural, and historical construction that includes a set of representations (stereotypes) and practices (roles), which refer to what each person is expected to be or do based on their sex. The development-oriented gender approach considers the different opportunities and challenges faced by women and men, as well as the interrelationships between them and the different roles that are socially assigned to them. It is related to all aspects of the economic, social, and private life of individuals, and determines characteristics and functions, depending on the sex and roles that societies assign to people (Brito and Ivanovic, 2021, p. 1).

In terms of the gender dimension, that is, in the distribution of socially assigned roles for women and men, it is important to distinguish between productive and reproductive work. The first includes human activities that produce goods and services and generate income - both in terms of wages and in the form of some other goods - which can be obtained through agricultural and commercial activities and services. The second refers to those tasks necessary to guarantee the well-being and survival of the people who make up the household and recognizes two levels: biological and social reproduction (FAO, 2018).

Men and women occupy different places in these spheres. Men are generally considered the providers of the home, occupying a role in the productive sphere, while women are usually assigned to the family sphere (reproductive). In other words, control and access to goods and services, prestige, and the power of decision and action is determined according to biological sex, which is to the detriment of women. On some occasions, women are even excluded from receiving the benefits of their own work.

The SDGs, specifically SDG 5 Gender equality, and CEDAW, are suitable instruments to eliminate gender gaps and promote and guarantee equality between women and men.

The following definition, ethnicity, does not suppose the existence of an “essential identity” or immutable human groups that are always identical but instead recognizes change as part of the social dynamics of all people.

Ethnicity refers to “a people that share a culture, a history, a territory, and certain customs, and whose members are united by a consciousness of identity” (UNDP et al., 2012, p. 25).

For its part, the notion of “race” - instituted in the 16th century as a category based on biological distinctions related to genotypes and phenotypes, especially concerning skin colour - was “developed to justify superiority, discrimination and the domination of some groups over others, that is to say ‘racism’, and continues to be used to this day, despite its non-existence having been scientifically proven” (UNDP, 2013, p. 17). However, the word race is currently used by some groups that have claimed it as a way of verbalizing the discrimination to which they have historically been subjected, thus making it a politically charged term.

These two conceptualizations were applied to the Afro-descendant Population and the Indigenous Population that inhabits the territories of Latin America and the Caribbean. Targeted work with these groups is essential, first for social justice and second because, as FAO points out, “Indigenous Peoples and Afro-descendants are two of the rural groups with the greatest potential to contribute to climate change mitigation in Latin America. Both groups are highly exposed to natural disasters and the effects of the climate on agriculture and food; however, their ancestral knowledge and collective territorial practices make them key allies in mitigating climate change (...) and their traditional management practices position them as the best guardians of biodiversity” (FAO, 2021c, pp. 11—12).

The Afro-descendant Population of Latin America and the Caribbean is made up mainly of the descendants of African people enslaved during the slave trade that lasted for almost 400 years in the region. For its part, the Indigenous Population are the descendants of the communities and peoples of the region that were recognized as inhabitants prior to the processes of conquest and colonization, which happened more than 500 years ago.

Without seeking to compare or homogenize the processes of both populations, the central characteristics of the social problems faced by these groups have been: enslavement, colonization, discrimination, exclusion, and even extermination.

Both groups are important in Latin America, where one in four inhabitants identifies as Indigenous or Afro-descendant. “Mexico, Peru, and the Plurinational State of Bolivia have the largest Indigenous Populations, and Brazil, the largest Afro-Descendant Population” (Angulo, Solano, and Tamayo, 2018, p. 60). Together, the indigenous and Afro-descendant Peoples that inhabit rural territories in Latin America represent almost half of the rural population (46 percent), with many occupying a vast extension of territories where the greatest biodiversity of the continent is concentrated (FAO, 2021c).

The ILO Convention 169 considers that Indigenous Peoples are those human groups descending from “populations that inhabited the country or a geographical region to which the country belongs at the time of the conquest or colonization or the establishment of current state borders and which, whatever their legal status, retain all or part of their own social, economic, cultural and political institutions”. Furthermore, “awareness of their Indigenous or Tribal identity shall be considered a fundamental criterion in determining the groups to which the provisions of this Convention apply.”

The accumulated experience in the region has made it possible to identify four dimensions to operationalize the Indigenous People concept: 1) self-identity, 2) common origin, 3) territoriality, and 4) the linguistic-cultural universe (ECLAC, 2006).

Both groups - the Indigenous and the Afro-descendant Populations - share conditions of discrimination in the region, which has curtailed their access to development under the logic of equity and sustainability.

Ethnic-racial discrimination is “any distinction, exclusion, restriction or preference based on race, colour, lineage or national or ethnic origin that has the purpose or result of nullifying or impairing the recognition, enjoyment or exercise, under conditions of equality, of human rights or fundamental freedoms in the political, economic, social, cultural or any other sphere of public life” (International Convention on the Elimination of All Forms of Racial Discrimination, Article 1, UN, 1965).

In response to this condition of inequality, the United Nations drew up the Declaration on the Rights of Indigenous Peoples (UN, 2007), which recognizes the right of these peoples to make decisions regarding their own development and territorial development with cultural identity.

The Declaration also stipulates the free determination of their political status and the ability to freely pursue their economic, social, and cultural development (Article 3), and the right to autonomy or self-government in matters related to their internal and local affairs, as well as the means to finance their autonomous functions (Article 4). It recommends that the States consult and cooperate in good faith “with the Indigenous Peoples concerned through their representative institutions before adopting and applying legislative or administrative measures that affect them, in order to obtain their free, prior and informed consent” (Article 19). It urges States to hold “good faith consultations with the Indigenous Peoples concerned through their own representative institutions in order to obtain their free and informed consent before approving any project that affects their lands or territories and other resources, particularly in relation to the development, use or exploitation of mineral, water or other resources” (Article 32, paragraph 2).

Free, prior, and informed consent (FPIC):

A right of Indigenous and Tribal Peoples and an opportunity for the application of the intersectional approach

Since 2015, FAO has had a manual for the implementation of FPIC in projects (FAO, 2017a) that presents, in a straightforward manner, the steps needed to establish an intercultural territorial dialogue capable of incorporating the needs and demands of the various stakeholders and reaching a consensus regarding how the project will contribute to their specific interests.

The principle and right to “free, prior, and informed consent” requires that States and organizations of all kinds and levels obtain the authorization of Indigenous Peoples before adopting and executing projects, programmes, or legislative and administrative measures that may affect them. This principle emphasizes that Indigenous Peoples must be included in consultation processes. It also states that the time needed to carry out these processes must be upheld, and information on the possible effects of the activities that are the subject of such consultations must be disclosed in advance. Legitimate consultation measures guarantee that planned activities or actions respond to the concerns and interests of Indigenous Peoples, thus allowing for a freely determined development process.

The third dimension to be highlighted is “age”. According to the Social Panorama of Latin America 2016 (ECLAC, 2017), each stage of the life cycle entails specific opportunities, challenges and risks. In the chapter entitled “The social inequality matrix: Age as an axis of social inequalities” the various gaps are categorized in four stages: childhood and adolescence, youth, adulthood, and old age. The life cycle perspective serves as a guide to study the different stages of human life, as a result of the interaction of biological, relational and social factors.

Such guidance is helpful in understanding the specific conditions that affect different groups, since from birth to the end of life people are subjects of public action, while recognizing that their needs vary throughout their development. The person’s whole lifespan (and not just at certain moments) is the starting point and ultimate goal of social policy, which does not prevent us from recognizing that there are stages that are more critical than others. In its Strategic Framework for 2022—2031, FAO recognizes the need to explicitly target young people, who are the future managers of our agrifood systems, in order to ensure inclusive economic development that is resilient to future crises and shocks and contributes to the achievement of the SDGs.

FAO’s Strategic Framework 2022—2031 highlights youth as a cross-cutting theme, which is relevant in all aspects of its work (FAO, 2021b).

The world population is young. Nearly 2.2 billion people are under the age of 18, and 85 percent of them live in developing countries. FAO recognizes that this new generation is the key to the future. At the same time, children and youth, especially girls, are among the most vulnerable to hunger and malnutrition, affecting their physical and mental development and inhibiting their ability to learn and participate in social and recreational activities. In developing countries, agriculture represents one of the main sources of employment, if not the main one: in sub-Saharan Africa, for example, half of the young workforce works in agriculture. For these reasons, FAO incorporates and highlights youth in its international efforts to increase food security and promote environmental sustainability (FAO, 2022).

Finally, the territory, along with being the physical location of economic activities and processes, is a means of social transformation. Given its multidimensional nature, it is a place for economic activity and employment, a habitat for daily life, a system of social gender relations, and a geographic space comprised of diverse social, historical, and cultural identities (UNDP, GTZ, and FISDL, 2006).

An intersectional approach must not lose sight of the territory as an analytical tool.[7]

A territory is a space with a socially constructed identity and over which some form of authority is exercised. This socially constructed identity may be the result of a variety of factors, including a distinctive history, ethnicity, culture, economic structure, biophysical conditions (climate, ecosystems), infrastructure (particularly that which determines connectivity and transport flows), large private investments, social conflicts and the influence of political-administrative borders, or a combination of several of these factors. People in a territory as defined here share a social identity, but the territory does not have to be a homogeneous unit across different dimensions (Berdegué, Bebbington, and Escobal, 2015, p. 5).

The living conditions in the territories shape how the various social dimensions are presented and may promote the expression of certain forms of inequality. For example, the 100 Territories Free of Poverty and Hunger FAO initiative states that in Latin America and the Caribbean the urban-rural gaps continue to be deep, and in this context, inequality between rural areas is also registered. Rural territories with levels of poverty and extreme poverty above 70 percent and an unacceptable incidence of chronic malnutrition keep existing, thus marking a huge distance from the respective national averages. This situation becomes even more complex when, on the one hand, the region’s economies slow down, and consequently, social spending and household income contract. And on the other, when other dimensions deepen territorial vulnerability, such as climate change, migration, the unsustainable use of natural resources and illegal economies.

FAO also states that, in these territories, there is a lack of State, citizenry, and private sector participation, making it difficult to close the inequality gaps in them (FAO, 2020).

In urban areas, in particular, the spatial organization of the territory and the quality of public spaces directly influence people’s access to employment, facilities, and services, as well as the quality of their use, mobility, and accessibility.

In rural areas, it is crucial to identify the differences and inequalities between the roles of men and women, the value of their work, their access to services, productive resources, and participation in decision-making processes.

In these contexts, ethnic-racial, gender, and age inequalities are evident in unequal access to natural resources (especially land, water, and all their products); the means of production (machinery, tools, and technologies); assets mobilized and generated as a product of salaried and non-salaried work; and entrepreneurship (financial and non-financial services, information and skills development).

In the case of those who belong to rural communities and Indigenous and Afro-descendants Peoples, customs and internal laws shape inequalities by establishing the positions people occupy within the communities. As a result, women usually are at a disadvantage compared to their male peers. They are often unable to access credit and training, sometimes due to ignorance of the official language, cultural restrictions, or limits on their financial autonomy and ability to move freely between different territories.

As for the land, it is worth pointing out that it occupies an exceptional place among these populations. The land is usually understood based on its physical characteristics and attributes that give it life (water, soil/subsoil, land, vegetation, and fauna), which means it is closely linked to the communities’ territories. Thus, it is strongly linked to the local people’s cultural identity. Access to the land - defined by its ownership and use, as well as by the control and decision-making capacity - is associated with legal and customary practices adopted by each society and recognizes different categories of ownership such as private, communal, freehold, public, and co-owned (FAO, 2017b). For women, this aspect is particularly relevant because it constitutes the way to access other productive resources (water, forest resources, financing, etc.) and to exercise their autonomy, for example, in community decisions.

Those who know a territory best are its inhabitants. Therefore, recognizing their knowledge and experiences is essential to achieve the expected results of a project or programme.

Without an intersectional approach, development projects and programs may not benefit the rural population and women from Indigenous or Afro-descendants Populations and sometimes even increase existing inequalities. Furthermore, this trend will likely worsen over time due to the challenge posed by climate change, among other factors (ECLAC, 2016), implying increases in food insecurity, malnutrition, and poverty, specifically in this social group.

3.2 THE INTERSECTIONAL APPROACH AND ITS ASSOCIATION WITH HUMAN RIGHTSBASED AND GENDER TRANSFORMATIVE APPROACHES

A vital aspect of the intersectional approach is expanding the scope of empowerment, understood as “the process by which those people, who have been denied the ability to make vital strategic decisions, acquire that ability” (Kabeer, 1999, p. 53). Particularly the empowerment of women, which consists of changing the relationships between men and women to improve their ability to shape their own lives.

In this sense, the intersectional perspective must be supported by frameworks that establish human rights-based and gender transformative approaches to promote social inclusion, ensuring that all people, without distinction, can exercise their rights and guarantees, take advantage of their abilities and benefit from the opportunities in their community (ECLAC, 2014).

The human rights-based approach seeks to “develop a framework focused on the creation of social relationships based on mutual recognition and respect and transparency, so that the satisfaction of the material and subjective needs of all people and communities, without exception, constitutes a legal and social obligation” (Guendel, 1999).

For their part, gender transformative approaches make it possible to explain and address the interactions between cross-cutting issues and the relationships between the different causes of a social phenomenon. They address the underlying social norms, attitudes, and behaviors perpetuating gender inequalities, challenging unequal power relations and traditional notions of gender roles and responsibilities (FAO, IFAD, and WFP, 2021).

The concepts treated in the previous sections highlight the challenge of developing policies, programmes, and projects based on understanding the situation of disadvantage and discrimination that arises through the interaction of diverse and simultaneous dimensions of inequality. To overcome these inequalities, the intersectional approach posits that it is

KEY IDEAS OF INTERSECTIONALITY TO ACHIEVE THE 2030 AGENDA

• Indigenous and Afro-descendants Populations share conditions of discrimination in the region, which has restricted their access to equitable and sustainable development.

• FPIC is a right of Indigenous and Tribal Peoples and, simultaneously, an opportunity to apply the intersectional approach as a tool that teams must manage and implement in projects.

• Intersectionality must be incorporated in the frameworks that establish rights-based and gender transformative approaches in order to promote social inclusion and equity.

7 In this regard, it is recommended to review the Hand in Hand Initiative promoted by FAO, which promotes an evidence-based approach, under the responsibility of the countries in the region, to accelerate agricultural transformation and sustainable rural development in order to eradicate poverty (SDG 1) and end hunger and all forms of malnutrition (SDG 2).

4. INTEGRATING THE INTERSECTIONAL APPROACH IN THE PROJECT CYCLE

Necessary to listen and promote the active participation of the population affected by the project and value their knowledge and resources in identifying problems and alternative solutions.

Advantages and potentialities

Why is it a good idea to adopt an intersectional approach in the project cycle?

• It promotes an integrated implementation process that helps achieve greater efficiency and cost-effectiveness as it deals with several aspects simultaneously, allowing more problems to be addressed than limited or targeted policies.

• It promotes flexible collective work processes, allowing for more accurate diagnoses and increased proposal relevance.

• It encourages the empowerment of people and groups involved in the process.

• It facilitates negotiation between the different interests and needs of the social actors involved based on shared objectives of transforming gender, ethnic-racial, and age relations to generate conditions of equality.

• It expedites dialogue, trust, and changes in attitudes, and behaviours at various levels (individual/household, group/community, institution/organization, and policy/law), based on social and experiential learning.

• It promotes dialogue with and between various stakeholders, including traditional and religious leaders, farmers, agricultural extension and health workers, school directors, elected representatives, authorities, and members of legal institutions so that they become part of the proposals for change.

• It encourages stakeholders to review cultural norms and guidelines and establish their own pace of change.

• It facilitates sharing experiences and creates safe spaces to address controversial or taboo topics.

• It encourages the community to reflect on the conditions of inequality and the means to inclusion.

4.1. AN EXAMPLE OF INTERSECTIONAL ANALYSIS

A typical social problem faced by many women-mothers in economic and social vulnerability conditions aggravated by migration and belonging to a specific Indigenous Group is represented below through the examples of Laura and her husband, Joaquín.

Laura belongs to an Indigenous Population. After marrying Joaquín, she moved to the city following the job opportunities for her husband, whose family of origin had already moved there a few years ago. He works as a seasonal labourer picking exotic fruits, flowers, and vegetables. His salary, which is low and intermittent, is unable to cover the needs of the family, which leads to significant economic instability and precariousness. Laura also works sporadically in fruit picking, but since her first daughter was born, she has been focused exclusively on taking care of her and doing housework. She barely speaks the official language in the city, unlike Joaquín, who was able to attend school and formally learn the national language.

After a few years, Laura separates from Joaquín. The family had lived in the house of Joaquín’s parents, while they were building their own house on the same land. By getting divorced, she assumes full responsibility for the care of the two- and four-year-old girls. Her ex-in-laws ask her to leave the house as soon as possible while Joaquín is working far from the city. Laura does not have a paid job, she is still not fully proficient in the local language, and she does not receive institutional assistance in raising her daughters, who have not been able to access a day-care centre or school. She also does not have regular contact with her family of origin, which lives in a community in another region from which she migrated a few years ago.

Based on a traditional approach, the questions to propose solutions for a case like Laura’s would be the following:

• Which need should be addressed first: housing, childcare, job training, or work?

• Which are the entities responsible for each area?

• What procedures or steps must be taken to obtain social assistance for each of these needs?

Laura goes to three services that deal with these issues: housing, work, and education.

In housing, she is told that, to obtain financing, she must have savings and demonstrate a certain stability that is evaluated by her credit history and employment status.

In the employment support office they point out that as long as she has limited availability, they cannot recommend her for any position. Also, without a fixed address, she cannot comply with the requirements to fill out job applications.

She approaches the public nursery school, but it is complete, and since priority is given to working women, Laura, unemployed, is turned away.

By dealing with these problems isolatedly, Laura must fill out a lot of paperwork and make considerable efforts. Even then, she may not be able to obtain all the documentation or meet the requirements of each service, so her situation of vulnerability will be increased.

TRADITIONAL APPROACH: SEGMENTED DIMENSIONS

Source: Own elaboration.

Considering an intersectional approach, the questions to be asked would be:

• What is the problem to be addressed?

• What are the social dimensions of this problem? Are there other invisible dimensions?

• How do these dimensions intersect or reinforce each other?

• What entities could help solve this issue?

• How can a comprehensive solution be offered?

How is the problem expected to be solved?

In this case, the issue at hand is more complex than the sum of the dimensions above (unemployment, limited proficiency in the local language, and lack of access to housing and childcare). These dimensions combined form a dense node that traps Laura and exposes her to other situations of risk and discrimination. Also, these dimensions are linked to others that are less visible, such as not having close support networks or work experience, the emotional burden that childcare implies, the gender inequality that is at the base of all these tasks, and the situation of subordination and dependence to the people who make up her social environment.

An example of a comprehensive solution for this case would be to understand that the potential solutions should seek to mitigate the discrimination she faces for being a woman and the social and economic burden she assumes while addressing her situation as a migrant. To achieve this, it is necessary to her expectations and priorities, find a temporary shelter for Laura and her daughters even if she does not have a job or income initially, and provide access to universal childcare. If nothing of the above can be achieved, an alternative is to introduce Laura to community support networks.

A dimension not initially visible in Laura’s example, the lack of work experience outside the home in non-agricultural activities, was singled out. Therefore, another need to consider is access to job training that allows her to obtain better working conditions, and a job board with openings in her area of residence, combined with continuing education or language training to communicate more easily in the city, This would help to overcome her lack of proficiency in the language she scarcely used in her community of origin, and that today represents an important barrier in terms of access to employment and logistics.

The following figure shows the logic of the intersectional approach in a schematic diagram to better understand its differences from the traditional approach.

Although the reality is much more complex and dynamic than the example presented above, the distribution of resources, dialogue with existing institutions, and the number of problems that require attention are some of the difficulties faced by the project teams.

INTERSECTIONAL APPROACH

Source: Own elaboration.

The objective of this document is to offer methodological guidelines that allow the intersectional perspective to be put into practice. To this end, the following sections address several aspects of the project cycle, recommending how to face the task, form teams, and promote community dialogue and participatory action with the communities.[8]

Then, each stage of the project life cycle is reviewed, raising questions that encourage reflection about the work systems and processes to identify the key elements that require specific emphasis or a different perspective, in order to implement the intersectional approach and, above all, to make their impact on the project outcomes evident.

4.2. APPLYING INTERSECTIONALITY IN THE PROJECT CYCLE

“Planning” is a tool to organize projects and social programmes that seek to generate positive and permanent changes in people’s lives (Moser, 1995), guided by the principles of gender equality, democracy and participation, environmental protection, and respect for the territories and sovereignty of Indigenous and Tribal Peoples, as established in the SDGs and the 2030 Agenda (FAO, 2011, 2012, 2021d).

In this regard, “planning” is understood as a dynamic process adaptable to various contexts and transformations. It is a participatory process. It involves the whole array of actors affected by the project’s implementation and generates debate, which requires negotiation and adaptation between the community and project executors, and within the community itself. It is also circular since evaluating the outcomes may lead to identifying new problems (Pemjean, 2014).

Thus, we developed the project life cycle proposal using the logical framework tool provided by FAO,[9] which forms the basis of this guide.

The following pages provide recommendations for incorporating the intersectional approach in the following stages:

• Identification of the problem

• Project formulation

• Approval

• Implementation and monitoring

• Evaluation

• Closure

PHASE 1: IDENTIFICATION

In this phase, it is essential to identify the stakeholders and ask them to specify their needs and priorities. Adequate representation of women and men from diverse ethnic-racial and age groups must be ensured.

During this stage, it is crucial to gather the information that allows us to understand the intersection of inequalities concerning the problem or problems to be addressed by the project.

By integrating the intersectionality approach in the earliest stages of project design, FAO can plan and implement projects that better identify and address the needs of women and men from different ethnic-racial and age groups.

GUIDING QUESTIONS TO IDENTIFY THE COMMUNITIES AND PEOPLE THAT WILL PARTICIPATE IN CONSULTATIONS AND DIAGNOSTIC ACTIVITIES:

• What are the main actors in reproductive, productive, political, and community activities?

• Are there associations, social organizations, and cooperatives?

• What are the relevant leadership roles in the communities, and who holds these positions? Are biases evident in leadership positions? Are there other types of leaders in alternative or informal settings? (Brito and Ivanovic, 2021)

GUIDING QUESTIONS TO ANALYSE THE PROBLEM THROUGH THE INTERSECTIONAL APPROACH:

Once the information has been collected, it is necessary to analyse it using an intersectional approach.

• What people and communities interact in the space where the project would be implemented (even if they do not live there permanently)?

• What institutions, organizations and resources are present in the project implementation space?

• What sociocultural and economic problems are present in the project implementation space? And what gender, ethnic-racial, age, and territorial dimensions are present separately or in combination with each other?

• What opportunities, knowledge, skills, and strengths of the actors have been identified concerning the problem(s) to be addressed at hand? Do gender, ethnicity-race, age, and territory affect the distribution of these positive aspects?

The importance of maintaining a constant dialogue with communities and participants

Traditionally, the project cycle begins with identifying a problem or issue and proposing strategies to solve it.

The intersectional approach highlights communities’ critical role in defining their priorities and problems. This means that incorporating their points of view is essential from the beginning and in all project stages.

In this guide, we have chosen to name those involved in the project as “participants.” First, to “participate” means “being part of something.” It emphasizes the involvement and active participation of people and communities, unlike the concepts of “beneficiaries” or “target population,” in which people are considered passive beneficiaries of the actions. Also, because it is a gender-neutral term that incorporates inclusion criteria while facilitating the reading of the document.

It is worth keeping in mind that communities and participant groups are heterogeneous. We can´t assume that one person’s experiences, opinions, and expectations will be the same as those of others just because they are affected by the same inequalities.

Recognizing the existence of multiple stakeholders implies working with and for diversity. Thus, we must seek an open dialogue that goes beyond the traditional logic of the representatives, as well as an active search for those subjects who have not been recognized or have not been included in the consultation processes to date.

This process aims for the work team to identify gaps in the characterization of the participants and their inclusion in the project.

However, it is common for consultations with the communities to take place only at the beginning of the planning stage. This can distort meeting the objectives because asymmetries in the control of resources and power relations can become especially evident when it comes to achieving the results of the project.

As mentioned, the principle of “free, prior, and informed consent” is an instrument aimed at guaranteeing ethnic and tribal groups the right to consultation on plans, legislation, and projects that affect them, with their approval necessary.

CONSENT IS:

• a freely given decision that can be a “yes,” a “no,” or a “conditional yes,” including the option to be reconsidered if the proposed activities change or new information relevant to the proposed activities emerges;

• a collective decision, for example, by consensus or majority vote, taken by the affected population according to their customs and traditions;

• the expression of the right to self-determination, lands, resources, territories, and culture;

• granted or withdrawn in different phases during specific periods in the various stages of the project activities. It is not a one-off process.

Guiding questions for the development of the field diagnosis:

• Is decision-making carried out in a context of inequality based on gender, ethnic-racial, or age group?

• What are the decision-making mechanisms? Are the agreements made in formal or informal instances? Who traditionally has the most significant influence on these decisions?

FINALLY, DURING THE DIALOGUE WITH GROUPS AND COMMUNITIES, THE FOLLOWING SUGGESTIONS SHOULD BE KEPT IN MIND:

• Refer to people, groups, or communities in their own terms, without imposing labels or functions determined by institutional entities, such as “beneficiaries,” “target group,” “vulnerable subjects,” etc.

• Use a language that encourages dialogue according to the characteristics of each group.

• The dissemination material or information must be consistent with the above, including text, images, graphics, or figures that are culturally relevant.[10]

How to determine if relevant information has been identified through the intersectionality approach

During the project design process, it is essential to check if information is available that allows the project team to:

i) Differentiate between the needs of women and men from different ethnic-racial and age groups, for example, food and nutritional security, poverty, rural productivity, entrepreneurship, agricultural niche, assets, resources, technological services, access to markets, education, time availability, etc.

ii) Identify the roles and livelihoods of the project’s actors based on gender, ethnicity-race, age, and territory.

iii) Consult women and men from different ethnic-racial and age groups in formulating the project under parity criteria.

iv) Create a list or mapping of actors that considers government institutions, civil society, the private sector, research centres, academia, and participants to promote sustainable rural development and economic empowerment. This list should also include gender mechanisms, Indigenous and Afro-descendant Groups and their organizations, government agencies for agriculture, rural development, and the environment, and specialized NGOs, as well as other public and private entities that promote the economic rights of rural communities.

v) Gather information through participatory methodologies.

PHASE 2: FORMULATION

In this phase, we establish the project’s structure and identify its expected results, components, and planning actions. The following activities are vital for integrating the intersectionality approach in this stage.

Perform an intersectional analysis

People and communities participate in activities such as agricultural and livestock production, marketing, services, and paid and unpaid work to ensure their basic needs are met and earn income. These activities depend on their access to resources such as land, water, capital, and technology.

Therefore, we need to carry out field and participatory diagnoses to understand those aspects where gender, ethnicity-race, and age intersect.

KEY QUESTIONS FOR INTERSECTIONAL ANALYSIS:

Identify the inequalities and opportunities marked by gender, ethnicity-race, age, and territory intersections.

1- Access to work and the distribution of tasks

• How are the jobs and tasks distributed in the production areas relevant to the project?

• What activities and tasks do people carry out in relation to livelihoods relevant to the project?

• How is people's time divided between productive, reproductive, and community activities?

• How are paid and unpaid work distributed?

2- Access to and control of resources:

• Are there legal restrictions (regulations and customary laws) on the ownership or inheritance of land or other assets of the various peoples and their communities?

• Do people and communities have equal access to technologies and services that could improve the quality and efficiency of their work in the agricultural sector?

• What is the level of participation of the different peoples and communities in training and access to extension services in the sectors relevant to the project?

3- Participation and decision-making:

• Are the gender, ethnic-racial, and age dimensions represented in associations, producer organizations, or cooperatives active in the sectors of interest to the project?

• Do people and communities participate actively and equitably in decision-making bodies and processes?

• What forms of leadership are present in the communities, and who exercises them?

• Do different peoples and communities have control over and benefit equitably from the resources and assets derived from their work or participation in project activities?

Setting of priorities

The information collected during the identification phase, combined with the intersectional analysis, will help determine the stakeholders’ development priorities, as well as who will participate in and benefit from the different project activities. Thus, it is helpful to ask the following questions:

• What are the primary intersections related to the problem addressed by the project?

• Have stakeholders identified how they can contribute to the project?

• Will unequal stakeholders be able to contribute equally?

• On which intersections is it most strategic and effective for the project to act?

Definition of objectives

Based on the problems identified, we must define the objectives of the project and the related actions to achieve the expected results.

ASSESS INSTITUTIONAL CAPACITIES

As part of the project, it is necessary to evaluate the capacity of the relevant implementing institutions to work with an intersectional approach, identifying the aspects in which it is necessary to provide training in the context of the project and proposing activities to achieve this aim. This is essential to promote the sustainability and scalability of the project.

Outputs and activities must indicate how the project will respond to the needs, priorities and limitations of the affected people and communities.

RECOMMENDATIONS FOR INTERSECTIONAL INDICATORS:

• Define and explain affirmative actions to benefit the groups identified as priorities, for example, by establishing a target percentage of Indigenous Women who will participate in the project.

• Commit to the development of policies, programmes, and plans that adopt an intersectional approach.

• Consider actions and indicators to address the sociocultural barriers that hinder the closing of inequality gaps. For example, develop culturally relevant workshops to address access to productive resources, propose community activities in which traditional gender roles will be challenged, and generate intersectoral spaces to seek participatory solutions to the difficulties young people face in gaining access to land.

• Whenever there are especially deep intersections of inequality, it is crucial to propose actions focused on the groups that suffer the most from these inequalities. For example, develop a social protection plan focused on the needs of young Indigenous Migrants.

Keys for integrating the intersectional approach in the logical framework matrix

DEFINITION

GUIDING QUESTIONS TOWARDS AN INTERSECTIONAL APPROACH

IMPACT

A high-level objective that represents the longer-term positive change to which the project will contribute

Do the general objectives of the project contribute to the reduction of the intersection of the inequalities identified?

Have the objectives been agreed upon with the communities or people involved/affected?

Will groups at prioritized gender, racial-ethnic, age, and territorial intersections benefit from the long-term change?

Can the project contribute to developing inclusive policies, laws, and programmes that respect the rights of the different people and communities involved?

Are there possible effects or impacts on the people and communities involved?

OUTCOMES

Describe the positive short and medium-term effects of the project

Does the result include clear references to the communities defined in the intersectional analysis?

Does the intervention potentially improve access by the participating communities to natural and productive resources, services, technologies, training, and employment opportunities?

OUTPUTS

Describe the outputs the project will deliver to achieve the result

Do the outputs respond to the different needs and priorities agreed with the communities as identified by the intersectional analysis?

Do the outputs contribute to reducing existing inequalities and eliminating discriminatory norms and practices? Were the outputs validated by the participants?

ACTIVITIES

Describe the actions that will be taken to achieve each output

Are all participating individuals and communities given equitable opportunities to plan, influence, develop and monitor project activities?

Do the planned activities consider the roles and responsibilities based on intersecting gender, ethnic-racial, age, and territorial dimensions to guarantee equal opportunities, active participation in decision-making, and access to benefits?

Will the communication, knowledge management, monitoring and evaluation strategies of the project be developed in a relevant and inclusive manner, considering the intersecting gender, ethnic-racial, age, and territorial dimensions?

Are the communication strategies culturally relevant and easily understood?

Does the project consider actions to raise awareness regarding the issue of intersectionality and equity with the project’s different stakeholders, including the community and the work team?

Are financial and technical resources allocated to carry out activities with an intersectional approach?

PHASE 3: APPROVAL

Compliance with the safeguards of Gender equality and prevention of gender violence (6) and Indigenous Peoples (8) by the projects is evaluated through peer review in the internal system of FAO called Programme and Project Review Committee (PPRC). This process is an relevant-opportunity for the participation of interested parties and to improve the quality of project proposals.

PHASE 4: IMPLEMENTATION AND MONITORING

To adequately implement intersectionality, the project’s actions need to be planned with this approach, ensuring that the execution, allocation of resources, and hiring of personnel are feasible.

For this reason, we suggest that, during the implementation process, the advances and challenges of the intersectional approach be discussed in the periodic review meetings, allowing the participants to propose and make any necessary changes.

Additionally, the implementation and recording of results and reports must contribute to developing statistics and information disaggregated by sex, ethnic-racial group, and age, which must be analysed with an intersectional approach.

During the implementation phase, project performance is monitored based on the following criteria:

• Relevance

• Achievement of results

• Implementation of the work plan and budget

• Sustainability

It is positive to incorporate actions that allow participatory monitoring, for example, through regular meetings or workshops with male and female farmers, field staff, government representatives, and community organizers.

In addition, participatory impact assessments allow community members to provide feedback and express their views on the project.

The result of the implementation phase is the project activities involving people and communities, as well as the outputs and outcomes, which should be documented in project progress reports.

PHASE 5: EVALUATION

In an intersectional approach, project evaluation involves a process of reflection, guided by the project’s objectives and indicators, which aim to assess how a programme or project has contributed to transforming the conditions of inequality or discrimination that affect communities and people.

The inclusion of the affected communities in this phase maintains the coherence of the participatory approach in the previous stages, and allows their experiences and testimonies to be considered, which fosters a sense of legitimacy not only regarding the results of the project, but also the process as a whole. In addition, it allows new diagnoses to be made in order to maintain the spiral logic of the project cycle.

In short, evaluation with an intersectional approach contributes to making visible the advances in the fight to eliminate inequality by highlighting the way in which social dimensions that are usually analysed independently may be combined and reinforce each other. It also contributes to comparing the results with the baseline of the project and its starting points in order to analyse the impact on groups that experience multiple inequalities, especially in the form of intersecting gender, ethnic-racial, and age group dimensions, and determine future actions that incorporate the perspective of the different actors involved.

The different types of impact evaluation, including participatory processes, must be carried out at the end of the project to determine the achievements in terms of inclusion, sustainability of benefits and socioeconomic impacts, and reduction of inequalities.

PHASE 6: CLOSURE

Completing a project can be a new starting point. In other words, it offers important clues to give continuity to efforts and keys to increasing the sustainability of structural changes in projects and programmes.

Implementation Completion Reports (ICR) provide the basis for identifying lessons learned on the intersectional implications and impacts of agricultural and rural development projects, being a key stage for identifying and formulating subsequent projects.

For the project closure report, it is suggested that the following elements should be considered:

Have the project activities addressed the needs and priorities of the participating individuals and communities as identified in the design stage?

Have the diverse age, ethnic-racial, and gender groups benefited equitably from the outcomes achieved by the intervention?

The result of this stage is a project closure report, which should include the systematization of the lessons learned related to intersectionality that can be applied in other projects.

Systematization is a process of reflection on the implementation of a project that not only allows the experiences to be identified and documented but also enables lessons to be drawn and knowledge obtained from the experience to be disseminated.

Analyzing how the project results can be adapted to other territories, based on the lessons learned, is essential to ensure the sustainability of the achievements in the partner communities and strengthen the understanding of the local situation.

For the systematization of a project with an intersectional approach, it is recommended to consider the following elements:

1. Context: describe the social characteristics in terms of use, dynamics, and practices of the community, as well as the main problems identified and their interaction with the project.

2. Forms of participation of communities and people: characterize the strategies developed to generate participatory work that contemplate the diversity of the communities and people involved.

3. Initial description of the intersections: describe the initial situation regarding the intersecting dimensions and the project’s effects on particular groups.

4. Describe the changes achieved in groups or communities: based on a participatory evaluation of the project’s results, analyse the role of the participating people and communities in reducing the inequalities identified and addressed by the project.

5. Contribute to developing the capacities of counterparts and communities to promote the protection of their rights and the development and implementation of inclusive, sustainable development policies and programmes with an intersectional approach.

6. Promote the sustainability and scalability of the project through actions aimed at expanding the scope of the expected results.

“A good practice is a positive experience, tested and replicated in various contexts, and which, therefore, be recommended as a model. It deserves to be shared so that the greatest number of people can adapt and adopt it” (FAO, Capacity Development).

Keys to increasing the sustainability of structural changes in projects and programmes

• Work with subjects and communities to reach agreements and new regulations in relation to productive, reproductive, and community roles, with the aim of questioning and transforming discriminatory norms and behaviors based on gender stereotyping that puts women, in particular, at a disadvantage.

• Strengthen the capacities of the participants to support the process of change and the capacities of government officials at different levels to sustain the transformations once the project is completed.

• Develop the skills of facilitators and mentors who live in the community and can continue to provide support after the completion of the project.

A good practice is a positive experience, tested and replicated in various contexts. Therefore, it can be recommended as a model and deserves to be shared, so that it can be adapted and adopted in multiple contexts.

IT IS IMPORTANT TO REMEMBER THAT:

• The intersectional approach must be present throughout the project cycle.

• The intersectional approach proposes the participation and inclusion of all stakeholders throughout the project cycle.

• The team members must participate in constant training and evaluation of their own skills to address the different areas involved in the project.

• The territory is not neutral, and the actions implemented within it impact people and communities.

• The participation and inclusion of communities foster greater scalability and sustainability of projects in the long term.

8 This chapter draws upon the Toolkit to Incorporate Intersectionality into Local Policies of the Terrassa City Council (Coll-Planas and Solà-Morales, 2019).

9 You can learn more about the logical framework tool in the following course: www.fao.org/in-action/capacitacion-politicas-publicas/cursos/ver/en/c/1266124.

10 It is recommended to use the Handbook on Participatory Communication Strategy Design (FAO, 2008), which is available at: www.fao.org/3/y5794e/y5794e.pdf.

ANNEX

RECOMMENDATIONS FOR THE FORMATION OF PROJECT TEAMS

Adopting an intersectional approach implies recognizing that both the institutions and each of their members are actors within the process and are not immune to the dynamics of overlapping inequalities and discrimination. For this reason, it is essential to look within the work teams to conduct a more critical reflection and self-assessment.

The first task is to analyse the existing capacities, identifying those elements that can act as barriers or facilitators for the application of an intersectional perspective. Then, define the needs that must be met in terms of technical and professional skills.

In this case, it is especially important that the team is familiar with the main concepts of this perspective, that its composition reflects diversity within FAO, and that it adapts to the needs of the project participants.

Table to evaluate the capacities of the team

EXAMPLES OF ELEMENTS TO CONSIDER

EXISTING CAPACITIES

NEEDS IDENTIFIED

The team is familiar with the intersectional approach

The professionals on the team have received training in the intersectional approach, but the technical staff in the field have not.

Evaluate and update the knowledge of the professionals on the team. Carry out training for the technical staff. Identify the other actors involved (for instance, subcontractors) and educate them about the approach.

The team covers all the thematic dimensions contemplated by the project

It has been identified that the project involves the intersection between gender, education, and migration. The team has experts in all three of these areas independently.

During the analysis, it is identified that most of the participants were young people and adolescents. Therefore, need expert advice from professionals in the relevant social areas and with specific experience in the areas involved, such as youth with a focus on migration and gender.

The team is diverse (in terms of age, ethnicity, race, gender, sexual identity, and orientation, etc.)

There is gender, ethnicity, and race diversity, but it is a relatively young team. In this case, it is not considered a problem, given the demographic focus of the project (youth and adolescents).

At least initially, no needs are recognized in this area.

The team members speak the local language or that of the project participants

The team speaks Spanish (the local language) and English, and some French. The project participants come primarily from Haiti.

French is a language that facilitates communication, but it is insufficient.

The presence of an interpreter is required for certain activities. Some members of the community who can perform this function are identified. A work and remuneration system is agreed upon, and they are trained in the basic concepts of the project.

In addition, bilingual Spanish-Creole support and dissemination material is developed.

Although this analysis is proposed as a starting point, it should be kept in mind that the different stages of the project will present different challenges and needs for the work team. In this regard, it should be considered that, over time, various tasks will be distributed among the members and collaborators, and that this will tend to divide the problem addressed into different themes. In this case, in order to maintain an intersectional approach, it is important that a constant dialogue persists between the different areas and those responsible. In this way, a global and joint vision can be maintained throughout all the phases, avoiding a situation where the recognition of the intersection of social dimensions is limited to the design and diagnostic stage.

In addition, there are at least two levels at which the teams must receive sensitization training and support:

Internal: Ensure the project professionals are trained in sustainable development with an intersectional approach. Consider strengthening the capacities of the project team through courses, talks, and workshops that promote the development of a better conceptual understanding, more empathy for the problems to be faced by the project, and a more significant response capacity.

External: Through the generation of participatory and inclusive mechanisms in all the activities to be carried out with the project participants, identify the different spaces and levels of collaboration that allow the gradual mainstreaming of this approach without generating ruptures in the relationship with the participating communities or government and civil society counterparts.

In addition, it is extremely important and helpful for the teams to create partnerships with other actors on issues in which FAO does not have specialized expertise. For example, in cases of violence, actions can be channelled through organizations that already exist in the area and through State services that are available in the communities with special facilities.

Also, the transfer of knowledge that allows the external partners of the project to develop their own tools and capacities to implement an intersectional approach is highly desirable.

KEYS FOR STRENGTHENING THE SKILLS OF THE PROJECT TEAM

• Ensure team members are sensitive to the issues to be addressed and ideally have specific training or experience in intersectionality, or at least in some of the focus areas of the project.

• Diversity: it is vital that the groups responsible for the work themselves reflect the diversity that exists within FAO.

• Members work together on the key milestones of the project and not in isolation.

• Even when specific functions are segregated within the team, collective spaces for permanent discussion exist.

• In certain cases, and when conditions allow it, people from the same community are formally incorporated into the team.

• The team works collaboratively and horizontally with local organizations or people participating in the project.

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