Designing Social Protection Frameworks for Three Zones of Somalia
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Designing Social Protection Frameworks for Three Zones of Somalia Final Report Gabrielle Smith December 2014 Development of Social Protection Frameworks in Somalia Acknowledgement Development Pathways are pleased to present this Report to UNICEF Somalia under the assignment to Develop Social Protection Frameworks for Three Regions of Somalia. This work is the product of the efforts and contributions of a great number of people and organisations. In particular we are indebted to our local partner, Social-life and Agricultural Development Organisation (SADO), especially Abdullahi Anshur, for vital logistical support to the research team that made data collection in the complex environment of all Zones of Somalia possible; and to the Senior Researchers Ms Sagal Ali and Mr Balal Cusman for their excellent contribution, leadership and work ethic in this challenging environment. We extend our gratitude to other members of the team - to Carol Watson for support in developing methodological guidance and tools and technical contributions on gender and child sensitive social protection; to Amina Abdulla Ibrahim for information on the Somali context and research with Key Informants; to Anna McCord for critical analysis of public works programmes for social protection; and to Carol Watson and Kerren Hedlund for peer reviewing documents. Thanks also go to the many key informants in Somalia and East Africa including contributions from UNICEF, FAO, WFP, NRC, EU, ECHO, Concern Worldwide, DFID, Save the Children, ADESO, SOMREP consortium, BRICS consortium and line ministries in Somaliland, Puntland and South Central Somalia. Finally we would like to thank those at UNICEF for the in country support and technical guidance received throughout the assignment, particularly Olivia Collins, Liibaan Hussein Dahir, Tayllor Spadafora and Vikas Singh. This is an independent report and does not necessarily reflect the views of UNICEF. Any errors are on the part of the author. ii Development of Social Protection Frameworks in Somalia Acronyms ADESO Africa Development Solutions AMISOM African Union Mission in Somalia BRiCS Building Resilience to Crisis in Somalia CALP Cash Learning Partnership CSI Coping Strategies Index CSO Civil Society Organisation CVMG Cash and Voucher Monitoring Group DANIDA Danish International Development Assistance DDG Digital Data Gathering DFID Department for International Development DRR Disaster Risk Reduction EC European Commission FAO United Nations’ Food and Agriculture Organisation FEWSNET Famine Early Warning System Network FGD Focus Group Discussion FGS Federal Government of Somalia FSNAU Food Security and Nutrition Analysis Unit GAM Global Acute Malnutrition GSMA GSM Association HEA Household Economy Analysis HSNP Hunger Safety Nets Programme IDP Internally Displaced Person IFM Independent Field Monitors ILO International Labour Organisation INGO International Non-Governmental NGO IPC International Phase Classification for Food Insecurity IRC International Rescue Committee KII Key Informant Interview MDTF Multi Donor Trust Fund MEB Minimum Expenditure Basket MICS Multiple Indicator Cluster Survey MIS Management Information System MLSA Ministry of Labour and Social Affairs MNCH Maternal Neonatal Child Health MNO Multi-national Organisation MSF Medecins Sans Frontiers NGO Non-Governmental Organisation NRC Norwegian Refugee Council OECD Organisation for Economic Cooperation and Development ORT Oral Rehydration Therapy OVC Orphans and Vulnerable Children PAWSE Puntland Agency for Welfare Services PPPT Protective, Preventative, Promotive and Transformative PSNP Productive Safety Nets Programme PWP Public Works Programme RMSN Research Management Somali Network SADO Social-life and Agricultural Development Organisation iii Development of Social Protection Frameworks in Somalia SAGE Social Assistance Grants for Empowerment SDF Social Development Fund SGBV Sexual and Gender Based Violence SOMREP Somalia Resilience Programme SPF Social Protection Floor TFG Transitional Federal Government TOR Terms of Reference UCT Unconditional Cash Transfer UN United Nations UNDP United National Development Programme UNESCO United Nations Educational, Scientific and Cultural Organization UNHCR United National High Commission for Refugees UNICEF United Nations Children's Fund UNRWA United Nations Relief and Works Agency USAID United States Aid for International Development WFP World Food Programme iv Table of Contents Executive Summary 3 1. INTRODUCTION 21 1.1 Background and Rationale 21 1.2 Aims and Objectives 22 1.3 Methodology 23 1.4 Conceptual Framework 26 1.5 Structure of the Report 30 2. MACRO LEVEL CONTEXT 32 2.1 Political and Security Context 32 2.2 Demographic Context 32 2.3 Service Provision 33 2.4 Environmental Context 33 2.5 Social Economic Context 34 2.6 Food Security and Nutrition 36 2.7 Local Governance and Clan Dynamics 37 3. MAPPING VULNERABILITY 38 3.1 Contextual Information on the Study Sites 38 3.2 Trends in Livelihoods and Vulnerability 39 3.3 Shocks and Risks 47 3.4 Coping Strategies 54 3.5 Characteristics of Vulnerability 57 4. MAPPING SOCIAL PROTECTION 67 4.1 Formal Social Protection 67 4.2 ‘Informal Social Protection’ - Sharing and Social Capital 78 5. FEASIBILITY AND ENTRY POINTS FOR SOCIAL PROTECTION 81 5.1 Potential for Government-owned Social Protection 81 5.2 Accountability, Security and Implementing Partners 86 5.3 Opportunity for Financial and Technical Support 88 6. DEVELOPING A SOCIAL PROTECTION FRAMEWORK FOR SOMALIA: DESIGN PRINCIPLES 94 6.1 Designing Social Transfer Programmes 94 6.2 Reaching the Poor and Vulnerable: Targeting Approaches 104 6.3 Building the Social Contract: Entitlements v Discretionary Government Charity 117 6.4 Achieving Human Development: Conditional versus Unconditional Transfers 118 6.5 Approaches for Reaching the ‘Working Age’ 119 6.6 Dealing with Covariate Risk: Long-term Social Protection and Crisis Modifiers 125 7. FRAMEWORK & RECOMMENDATIONS 128 7.1 Framework Options through an Inclusive Lifecycle Approach 129 i 7.2 Recommendations 144 References 150 Annex A: Summary of Targeted Communities 154 Annex B: Study Instruments 156 Annex C: List of key informants 158 ii EXECUTIVE SUMMARY 1. Background and Rationale Somalia ranks as one of the least developed countries in the world and has been severely affected by conflict and natural disaster. Since the civil war in 1991 a protracted and complex humanitarian and livelihoods crisis has existed in the country. Somalia is commonly identified as a fragile state context1 and the country now consists of three semi-autonomous zones: North West Somalia, known as Somaliland; North East Somalia, known as Puntland; and South Central Somalia (SCS). Each zone has its own administration. The crisis has resulted in large-scale population displacement, deterioration of infrastructure and decline in access to services, all of which have limited the livelihood opportunities of poor Somali households. Declining access to natural resources and increasing frequency of drought cycles are making it increasingly difficult for rural households to maintain their livestock and crop production levels. It is commonly acknowledged that drought cycles in the Horn region as a whole are becoming shorter and more severe, meaning traditional coping mechanisms are becoming inadequate and households have little time to recover before the next crisis2. Impact is seen in widespread chronic and extreme poverty and high levels of stunting and acute malnutrition among children. In mid-2011, two consecutive missed rains precipitated the worst drought in East Africa for 60 years and contributed to failed harvests, soaring food and water costs and depleted grazing and farm lands. Over thirteen million people across the Horn region were in need of humanitarian assistance. The impact of drought, on-going conflict and increasing global food prices meant that by May 2011 over 2.85 million people were in crisis in Somalia3. Famine was declared in five of the eight regions in South Central Somalia. It is well recognised that inadequate measures were taken to prevent or mitigate the early signs of the food security crisis in 2010 and that humanitarian responses came late4. Out of this scrutiny has come renewed interest in the ‘resilience agenda’ – with the recognition that helping countries to protect themselves against increasingly frequent disasters in the longer term and to cope more effectively with crises that occur is a more effective and efficient way of spending aid compared with recurring humanitarian support. In 2012 UNICEF in collaboration with WFP and FAO developed a Joint Resilience Strategy, a long-term approach aiming to strengthen the resilience of the people of Somalia to withstand shocks, in order to break the recurrent cycle of emergencies5. This aims for a strategic alignment of programming between the three agencies to increase resilience in vulnerable communities through three complementary pillars: 1. Strengthen the productive sectors – increase household income by diversifying livelihood strategies, intensifying production and enhancing access to markets and market info; 2. Improve basic social services – strengthen vulnerable household human capital by enhancing demand and access; and 3. Establish predictable safety nets – to address most the vulnerable people’s basic needs through predictable and sustainable transfer of food or cash, including for the destitute or seasonally at risk. The objective of the safety net pillar is to support transition from emergency