Strengthening Gender Equality and Women's Empowerment in Somalia

Strengthening Gender Equality and Women’s Empowerment in Somalia

2015 - 2017

United Nations Development Programme Country: Somalia Project Document

Project Title: Strengthening Gender Equality and Women’s Empowerment in Somalia UNDAF Outcome(s): N/A Somali Compact PSG(s): PSGs 1-5 & Gender as a cross-cutting priority; Somaliland Special Arrangement (SSA) PSGs 1- 5 & Gender as a cross-cutting priority Expected CP Outcome(s): Outcome 4: Somali Women and Men Attain Greater Gender Equality and are Empowered Expected Project Output(s): 1: Increased participation and representation of women in politics, peace building and decision making 2: Enabling environment for increased economic opportunities for women in the private sector 3: Measures implemented to prevent GBV and reduce the prevalence of harmful traditional practices against women and girls; especially FGM 4: Women supported by appropriately designed, implemented and enforced legal and policy frameworks in line with CEDAW, the Maputo Protocol and Security Council Resolutions 1325 (2000), 1888 (2009), 1889 (2009) and 1820 Executing Entity: UNDP Implementing Agencies: The Federal Ministry for Women and Human Rights Development (MoWHRD), the Ministry of Labour and Social Affairs (Somaliland), the Ministry for Women Development and Family Affairs (Puntland) other relevant line ministries, departments and agencies; CSOs, CBOs, and research institutions across Somalia.

Brief Description: This project updates the first GEWE Project (2012 – 2014) and builds on its achievements to address gender imbalances in Somali society and respond to the acute challenges faced by Somali women today. The project aims at strengthening women’s representation and participation in public decision-making processes rendering them more inclusive; engaging community structures to transform negative traditions which limit women’s and girls’ rights; and addressing challenges of limited capacity and insecurity all of which adversely affect women’s ability to voice out their concerns, put forward their agenda, negotiate their interests, claim their rightful space in society and enhance their access to resources and opportunities. The project will leverage on partnerships built with ministries of government, other governing institutions and CSOs to promote legal and policy reforms that eliminate structural barriers to gender equality and put in place policies to empower women and girls. To achieve these aims, the project will substantially contribute to four critical priorities identified through comprehensive consultations with the Somali Federal government (MoWHRD), Somaliland and Puntland government authorities as well as CSOs and gender equality advocates nation-wide. The priorities are: 1) women’s participation and representation in decision making and peace building; 2) increasing economic opportunities for women; 3) preventing and reducing GBV and harmful traditional practices; and 4) gender-responsive legal and policy frameworks.

Programme Period: 3 Years Total resources required $8,373,901 Key Result Area (CPD): Outcome 4 Total allocated resources: $3,625,000, Atlas Award ID: 00076211 • Regular (TRAC) $1,500,000 • • Other: Project start date: January 2015 DANIDA $1,125,000 End Date: December 2017 o Norway $1,000,000 o Unfunded budget: $4,748,901 PAC Meeting Date: 27th Jan, 2015

Management Arrangements: DIM

Agreed by the Ministry of Women and Human Rights Development (MoWHRD), Hon. Zahra Mohamed Ali Samatar

Agreed by United Nations Development Program (UNDP) Country Director, George Conway

I. SITUATION ANALYSIS

Somalia has gone through significant developments since the first UNDP GEWE Project for Somalia was launched in 2012. The long transitional phase ended in 2012 with a new (provisional) Constitution, a new government and a new parliament installed in the country capital of Mogadishu. With the support of AMISOM, the control of Al-Shabaab has been significantly weakened and large areas of south central Somalia liberated; however insecurity, targeted killings and fear remains a major challenge with continuing impact on security. The year 2013 started with high expectations for a better Somalia and high demands on the new government to implement the new provisional constitution and lead development of the country. A significant milestone was reached on September 16 2013, when a Compact for Somalia was endorsed by the Somali government and its international partners in Brussels under the New Deal framework. The Compact lays out the priorities for peace building and stabilization over the next three years and will provide the overall framework for the government’s work and international support to Somalia in this period. Gender has been mainstreamed within the Compact as a cross-cutting priority, requiring all key interventions to ensure equitable participation of women (and other marginalized groups) and to respond directly to the acute challenges contributing to sustained gender disparities across multiple sectors. The Compact contains a special arrangement for Somaliland integrating region-specific goals and priorities.

Despite these achievements, the entire country is still burdened by the ravages of conflict and the women bear unequal brunt of the hardships occasioned by poverty, ongoing insecurity and a deeply clan-based culture which promotes strict male hierarchy and authority and subordination of women. This is further exacerbated by religious misinterpretations and cultural limitations on the role and status of women in Somali society. As a result, deeply rooted gender inequality prevails. Women continue to be marginalized in almost all spheres of society despite their contributions to maintaining everyday life. The role of women in peace building has been very visible and they are now playing a tremendous part in reconstruction yet proportion of seats held by women in national parliaments in all three regions of Somalia was last measured at 9.6% in January 2014 (Only 38 out of 275 MPs in the FGS are women. In Puntland, there are only 2 women of 66 MPs and in Somaliland only 2 women of 82 MPs). With no guarantees of justice gender-based violence continues to be widespread in Somalia and is perpetrated mostly by armed men.1. Across the country, traditional or customary law continues to override the state judiciary. Girls are married early, with 45% of women aged 20 to 24 married before the age of 18.2Somalia maintains an informal economy, with about 40% of GDP and 50% of export earnings largely based on livestock which represents the family’s wealth and has traditionally been the property of men. Women manage the sale and exchange of livestock products such as milk and ghee, and spend their earnings on household needs.3 Women’s participation in wage employment in the non-agricultural sector is at an average of 35% with majority of their functions occurring in the non-technical/support roles.4 Women’s access to health services is limited, and Somalia’s maternal mortality rates remain the highest in the world, at 1,600 per 100,000 live births.5 Female Genital Mutilation still persists with a prevalence of 98 percent, especially affecting girls between four to 11 years of age.6 Support for FGM from community members is a key barrier to its eradication.7The illiteracy level remains high; only 26% of women can read and write compared to 36% for men.8 A significant IDP problem remains with over 1.12million displaced. 70-80% of IDPs and refugees are women and children.9 IDPs remain extremely vulnerable to violence and sexual violence, and suffer ongoing human rights abuses.

1 UNICEF Somalia SitRep #12 | December 2013 2 United Nations Development Programme (2012). Somalia Human Development Report 2012: Empowering Youth for Peace and Development, p.xviii.3 United Nations Entity for Gender Equality and the Empowerment of Women (2012). Somalia Humanitarian Strategy 2012-2015 (draft), p. 11.4 See http://www.so.undp.org/index.php/Millennium-Development-Goals.html 3 United Nations Entity for Gender Equality and the Empowerment of Women (2012). Somalia Humanitarian Strategy 2012-2015 (draft), p. 11.4 See http://www.so.undp.org/index.php/Millennium-Development-Goals.html 4 See http://www.so.undp.org/index.php/Millennium-Development-Goals.html 5. UNFPA Somalia Consolidated Appeals Process, 2007. 6 United Nations Development Programme (2007). United Nations Development Programme (2007) Millennium Development Goals Report for Somalia, p.26. Available from http://www.so.undp.org/MDG%20Report%20for%20Somalia%20English%20Version.pdf7 World Bank and United Nations Population Fund (2004). Female Genital Mutilation/Cutting in Somalia 7 World Bank and United Nations Population Fund (2004). Female Genital Mutilation/Cutting in Somalia 8 United Nations Development Programme (2012). Somalia Human Development Report 2012: Empowering Youth for Peace and Development, p.54. 9 Conflict and Gender in Somalia March 2013 p.18 para.2

A closer examination of the situation of Somali women against four key perspectives identified through comprehensive consultations with partners, counterparts and stakeholders in the third quarter of 2014 will help to explore the challenges more specifically but also highlight strategic entry points and opportunities for the promotion of gender equality and women’s empowerment. The four perspectives are: - a) participation and representation of women in politics, peace building and decision making; b) The role and the status of women in the economic sphere; c) Gender Based Violence (GBV) and harmful traditional practices; and d) Legal and policy frameworks in line with CEDAW, the Maputo Protocol and Security Council Resolutions. These perspectives inform the determination of the four outputs of this project.

a) Participation and representation of women in politics, peace building and decision making

Undoubtedly, women and women’s groups in Somalia have been a central pillar of resilience to conflict and the ravages of natural catastrophes such as draught. Many of the top Somali civic figures promoting peace and development have been women, including several who have earned international awards for their work – such as Dr. Hawa Abdi, Dekha Ibrahim, Asha Haji Elmi, and Edna Aden Ismail. However, women’s leadership roles have mainly been confined to civil society, as government and politics at all levels continues to be heavily male-dominated, often excluding women. Somali women’s participation in national politics, in state formation and reconciliation processes is severely hampered by their position and role within clan structures and lack of adequate institutional support and engagement. The Somali national review of the implementation of the Beijing Platform for Action conducted in July 2014 revealed that, the prevailing culture and clan system of Somali society continue to serve as a challenge to addressing and overcoming the issue of women’s lack of representation and participation in politics10. The review further suggests that ‘the absence of party-based politics as opposed to clan-based social system also imposes challenges for women’s participation.11’

At federal level, the Provisional Federal Constitution provides at Article 3(5) that, ‘Women must be included in all national institutions, in an effective way, in particular all elected and appointed positions across the three branches of government and in national independent commissions.’ This provision while positive is vague in the sense that it does not specifically define a proportion of representation by either sex. In addition the constitution does not accord women a temporary special measure to address historical imbalances in representation (for example the universally recommended 30% quota) despite advocacy by women’s groups for inclusion in all political institutions, the new federal cabinet appointed on 17th January, 2014, increased the ministerial portfolios from 10 to 25. These new appointments, though increasing the number of women ministers, significantly reduced the proportion of women in cabinet from 20% in 2013 to 10% in 201412. The 30% quota for women in the parliament that was reflected in the Garowe II agreement was not realized. With strong advocacy, 25% representations of women in the National Constituent Assembly was achieved and eventually 14% of women in the parliament (37 women out of 275 MPs)13.

State formation processes are currently ongoing in potential state capitals and regional centers in the south central like Baidoa, Beletwein and Kismayo and the pattern of under-representation if not outright exclusion continues to emerge. The new federal cabinet, appointed on February 2015, includes 5 women (3 full ministers and 2 deputies) out of 65 positions. The 18-person technical committee does not include a woman. In the formation of the Juba Interim Administration, only three women were appointed out of 26 members of the technical and reconciliation committee. The 5-person Independent Constitutional Review and Implementation Commission include one woman; and the Technical Committee for the establishment of the State of the Central Regions includes 4 women among its 27 members. It is therefore paramount important that women are involved in the evolving state formation processes including the proposed inter-regional dialogue on the formation of federal states, constitutional review, electoral and reconciliation14.

10 Implementation of The Beijing Platform for Action, Beijing+20 Review, Somalia Country Report, 2014, P. 32. 11 Ibid. 12 UNDP Somalia, (2014), Gender in Somalia, brief II 13 Ibid 14 United Nations Somalia, Integrated Strategic Framework, 2014-2016, P.

In Puntland, the last presidential election was held on 8 January 2014 in Garowe. Following the elections, women’s representation in the cabinet is approximately 10% (4 ministerial and 1 director general post out of 55) while the proportion of women in the parliament is about 3% (2 women out of 66 seats). Only two women were among the 66 newly selected legislators to the Puntland Parliament in December 201315 despite the fact that out of the six officially registered political associations four had pledged to uphold the 30% quota for women. A 2007 Presidential Decree required all public institutions to adhere to 30% representation of women, but not yet enforced. The percent of women in district councils is relative higher than the other regions at 18%16 (44 women out of 250 councillors).

Described as an oasis of peace in an unstable region, Somaliland has managed to have successive democratic elections since 2002. Notwithstanding, analyses of historical trends indicate that, since the start of Somaliland democratization process, women have been kept out of decision making circles. In the first ever elected national district councils in 2002, women won only 2 seats out of 375. In the 2005 elections, women secured only 2 out of 82 parliamentary seats with no woman in the House elders. This is an irony given the fact that women form the majority of electorates. Nonetheless, a recent study17, on women’s participation in the Somaliland district council elections in 2012, revealed that women made slight progress with their representation increasing from 2 seats in 2002 to 10 seats out of 375(2.67%)18. Some of the reasons cited were the preference of men candidates over women by the clan and traditional elders and political parties. The study noted that this gain by the women in the local elections is attributed to the educational background and political orientation of women candidates; strong campaign financing and the improving public perceptions about women’s political participation together with personal endeavours. The proportion of women in the cabinet is now 9% (out of 47 minsters, there are 4 women).

Since its coming to office in late 2012, the Federal Government of Somalia embarked on the development of its peace and state building agenda dubbed “Vision 2016 Roadmap”. Further, on 16 September 2013, the FGS and the international community endorsed the Somali Compact under the New Deal Arrangement for Fragile states. The Compact contains a special arrangement for Somaliland integrating region-specific goals and priorities drawn from its development plan19. The Vision 2016 and the Somali Compact provide the overarching framework for peacebuilding efforts in Somalia. Initiatives are organized around the five Peace and State-building Goals (PSGs)20 of the Compact. Women’s enhanced participation in political processes is preserved in the Compact.21

The interventions of the Federal Government of Somalia (FGS) and its partners including the UN are aligned with the PSGs. Inclusive Politics, which is considered a key strategy for conflict prevention and attainment of peace is the essence of the PSG 1. Preparing for-and holding-credible elections, with a special attention to women’s participation as candidates and voters, by 2016 is a key priority in the PSG 1. Prior to the elections, the provisional Constitution has to be reviewed and finalized, an electoral system agreed on and electoral institutions established. State formation processes are currently ongoing and newly accessible territories are emerging across Somalia. This presents a huge opportunity to forge gender equality and women’s equal participation as an integral part of all political processes and ensure all new legislations created; institutions built are fully aligned with the Provisional Federal Constitution. To attain it, multi- pronged approach and strategy and concerted efforts and initiatives are required.

In Somaliland, concerted advocacy efforts in support of women’s participation in politics by stakeholders continue with the aim of realizing tangible result from a positive political gesture at the highest level when in 2011, the President of Somaliland, declared commitment to increase women’s representation in parliament through a quota. Efforts by women’s groups to secure the Presidential commitment through quota legislation met with stiff opposition from the House of Elders.

15 UNDP Somalia, (2014), Gender in Somalia, brief II 16 Ibid 17 Ministry of Labour and Social Affairs (MOLSA) (2014) with the support of UNDP GEWE project 18 Republic Of Somaliland Ministry of Labor And Social Affairs: “Somaliland post-election study report”, February 2014 19 The Somali Compact: Somaliland Special Arrangement , P.21 20 The Somali Compact entails five Peacebuilding and Statebuilding Goals (PSGs) namely: Inclusive Politics (PSG1), Security (PSG2), Justice (PSG3), Economic foundations (PSG4) and Revenues and Services (PSG5). 21 “…emphasis on improved participation in political and decision-making fora, access to justice and protection from sexual and gender-based violence, economic empowerment, and access to basic services such as health and education, particularly for the most vulnerable populations e.g. female-headed households”, Federal Government of Somalia, The Somali Compact, page. 11.

In Puntland, a new Ministry of Constitution, Federal Affairs and Democratization was established in January 2014, headed by a woman with strong gender background. The new Minister has expressed her intention to ensure gender issues are effectively mainstreamed into the mandate of the Ministry. This will include establishing Puntland’s position in the federal structure, review of the Puntland Constitution and reconciliation with the Federal Constitution, laying foundations for the Puntland elections in 2018.

Across the regions, intensification of efforts and investment to women representation and participation in the public sphere is critical at this pivotal time in which Somalia is undergoing momentous change and particularly in the event of several scheduled elections nation-wide (Somaliland – 2015; Federal level – 2016 and Puntland – 2018).

Women’s organizations continue to organize and advocate to the various government authorities and traditional institutions to support the aspirations of women and lay the required policy, legal and administration foundations to secure increased women’s representation in decision-making.

b) The role and status of women in the economic sphere Despite the lack of an effective central government for decades, a relatively strong private sector emerged in Somalia; and is engaged in several major infrastructure services such as electricity, telecommunication, water supply, urban water disposal and Liquefied Petroleum Gas (LPG) supply with the concentration of these services in urban centres. Sectors such as remittance companies, telecommunications, and fisheries have seen growth in the past few years – although fisheries remain a marginal source of income. Agriculture is the most important economic sector and accounts for 65% of the GDP, the service sector 35% and industries only around 7%. Livestock, hides, fish, charcoal, and bananas are Somalia's principal exports, while sugar, sorghum, corn, qat, and machined goods are the principal imports.22 Livestock contributes about 40% of the GDP.23 Somali diaspora continues to play a vital role through the substantial inflow of remittance24 and “growing proportion of the remittances are coming from women in the diaspora”.25

Although women are facing increased economic opportunities with improved political stability, many women still work in menial positions, involving ‘sacrifice, risk and humiliation,’ and often only making enough money to sustain themselves and their families.26 A 2002 socio-economic survey estimated that 14% of households are headed by women in urban areas, and 12% in rural areas, adding critical element of hardship as women increasingly take on roles as providers of basic needs – particularly as these are often extracted from scarce natural resources (land, water, vegetation, etc.).27. Most Somali women are either excluded from decision making and asset ownership or operate through a patriarchal filter in these areas. Women are also often the first to suffer when natural resource access/attainment comes under pressure, due to cultural restrictions on movement, ownership, etc. This can be seen, for example, in times of drought, when men migrate with camels to find water, while women and children are expected to stay at home and are for the other livestock. A consultation with women Khat sellers in Somaliland in 2013 revealed the vulnerability of women in the Khat business to GBV28.

According the UNDP study on women in the private sector29, the Somali private sector is dominated by Micro, Small and Medium Enterprises (MSMEs), and women are the main drivers of especially the micro sector. Usually, women enter the sector as a coping mechanism and remain trapped for very apparent reasons. These would include costly electricity, lack of access to credit, lack of business development services, restricted mobility due to insecurity, and/or complex taxation policies. The study also found that the more educated female entrepreneurs (and returned diaspora) are breaking into sectors that were traditionally dominated by men; for instance the livestock, fishery, construction and petroleum importing sectors. Nevertheless, women struggle to function in an environment where vital business information is

22 Somali Economy Profile 2013, http://www.indexmundi.com/somalia/economy_profile.html 23 Ibid 24 According to a UNDP report (Somalia’s Missing Millions), it is estimated that most of the visible businesses in Hargeisa is either own or managed by returnees. 25 Musse F, and Gardner J., A Gender Profile of Somalia (Updated from the 2007 version), EU Somalia mission, October 2013 26 United Nations Development Programme (UNDP) (2012). Somalia Human Development Report 2012: Empowering youth for peace and development, p. 27 United Nations (2002). Somalia: Socio Economic Survey 2002, cited in ‘United Nations Development Programme (2014), Gender in Somalia, brief II’ also Available from http://www.un.int/wcm/webdav/site/somalia/shared/documents/statements/1086802685.pdf 28 Ministry of Labour and Social affair (2013) “ Women Khat sellers consultation report” 29 UNDP(2014).The Role of Women in the Somali Private Sector Study

still shared in a very informal manner, and where belonging to a strategic network and having strong clan connections persistently determine success. Although women serve on boards of Chambers of Commerce in the three regions, their representation in the core of private sector interaction remains considerably low. The study did find that representation positively impacts on the visibility of business women, and grants women access to people in positions of power.

In addition, women experience higher unemployment than men (74% for women and 61% for men)30. Few women are active in the areas of the economy where high profits are seen through exports and imports; in livestock export and in the fishing industries, women are hardly represented. The unemployment rate is 45.5% overall (57.7% in urban areas and 42.8% in non-urban areas). The unemployment rate for youth aged 14 to 29 is 67%, one of the highest in the world.31 The proportion of youth who were neither working nor in school is more pronounced among young women at 27% than young men at 15%.32 The UNDP study on the role of women in the private sector33 found that, “the representation of women in the private sector, or bodies supporting the sector, remains meagre”. For example, the study shows that women’s employment in dominant telecommunication and financial institutions is as low as 1%, discounting the large number of women often employed as cleaners by firms. The study analysed the reasons for women’s exclusion to include among others: reproductive functions women are burdened with, their lack of technical skills or English language skills, clan-biased recruitment practices, and the private sector not providing female- friendly working environments. Some of the reasons are highly tangible, while others are largely based on individual perceptions.

Opportunities for girls and young women in education in Somalia have been limited by over two decades of conflict and poverty. Families unable to send all of their children to school have typically prioritized male child education over girls. This attitude of exclusion made girls unsuccessful and incompetent in the fragile system of education resulting in higher illiteracy for women, as well as lower levels of participation in the workforce and in decision-making bodies. On average, girls make up only a quarter of university and college students in Somaliland34. One of the main causes cited for these are: poverty compounded by gender inequality, lack of girl’s friendly environment, limited guidance and mentorship for girls to select applicable career as well as lack of counselling services helps girls to enrol and complete tertiary education. Today however, there are noticeable changes in attitude as Somalis now appreciate contributions made by educated women to the family and society.

The above mentioned UNDP study as well as other studies and programs have recommended several actions to enhance the role of women in the economy and uplift them from poverty. Key among these recommendations are actions towards creating enabling environments such as laws and policies, use of business service facilities to support capacity enhancements and entrepreneurships skills development and adoption of guided market analysis to identify lucrative entry points for women in the productive value chains.

c) GBV and harmful traditional practices against women and girls in Somalia The Gender and Inequality Index 201235 shows that gender inequality in Somalia is “extreme”, ranking Somalia fourth lowest behind Yemen, Mali, Afghanistan and Papua New Guinea.36

Despite lack of comprehensive and accurate data on rate of GBV in Somalia, the phenomenon continues to constitute a significant protection concern for women and girls. The justice system is ill-equipped to provide effective recourse for victims as the Penal Code defines rape as a moral crime rather than a crime against the person, so that survivors fear being stigmatized if they disclose incidents of rape or other sexual violence37. Incidents of sexual and physical violence are widespread and may be rising, although

30 United Nations Development Programme (2014), Gender in Somalia, brief II 31 Ibid 32 Ibid 33 Op. cit., 34Ministry of National Planning and Development, Somaliland (2010).Somaliland in Figures 35 Gender Inequality Index used in UNDP Human Development Reports reflects women’s disadvantage in three dimensions—reproductive health, empowerment and the labour market 36 Somalia National Human Development Report (NHDR), 2012. 37 Secretary General’s Report, December 2013

insufficient information is available measuring prevalence and extent38. According to Baahikoob, the sexual assault referral centre in Hargeisa, Somaliland 290 rape cases were reported in Hargeisa in the month of September 2013, compared to the figures for the entire year of 2012, which was 195. Furthermore, according to a report released by the United Nations on August 16, 2013, gender-based violence continued to be widespread in Somalia and was mostly perpetrated mostly by armed men. In 2012, 1,700 rapes were recorded in 500 camps in Mogadishu while additional 800 GBV cases were recorded in the same city during the first half of 201339. Even so, due to the sensitive nature of such crimes, reported figures are likely to only represent a small number of actual cases. In the South particularly, women and girls in IDP camps are vulnerable to rape and sexual exploitation and abuse due to the general insecurity, worsened by the deplorable living conditions. In January 2013, a court case for defaming the state against an alleged rape victim and a journalist, who interviewed her, constituted a setback for efforts to improve the government’s response to GBV and led to a drop in the number of women reporting rape to providers of clinical response and legal aid.

Female Genital Mutilation or FGM persists in Somalia. In 2006, UNICEF found that the FGM prevalence in Somalia overall was 98%, of which its most severe form of infibulation was reported to be practiced at 80%, especially affecting girls between four to eleven years of age. Moreover, a recent study on FGM prevalence and social change commissioned by NAFIS Network in Somaliland in 2014 - with support of UNDP - has confirmed these figures. The study revealed that the prevalence rate of FGM/C in Somaliland is 99.8%40. The 0.2% of uncut women was found to be living in urban settings. The study concluded that in rural/pastoral areas the rate is 100 per cent. 82.3% and 80.7% of women have undergone the ‘pharaonic’ type (or type 3 according to the WHO classification)41 in rural and urban areas respectively. FGM/C was found to be performed at an average age of eight years, with two years as the minimum age and 14 years maximum age. Despite the staggering rate of FGM, the study documented positive social change in terms of attitudes as discussion of FGM/C is no longer considered a taboo. Whilst there is shift towards the Sunna type of FGM, there is still much ambiguity at to what it means in practice and support for FGM from rural community members is a key barrier to its eradication. A study of 1,744 women between the ages of 15 and 49 in North East and North West Somalia, 90% reported that they supported the custom.42

In December 2011, the state of Puntland adopted legislation which legalizes certain forms of FGM/C; a retrogressive step in the protection of women’s rights. The Federal Provisional Constitution bans the practice in Somalia, stating, “Circumcision of girls is a cruel and degrading customary practice, and is tantamount to torture. The circumcision of girls is prohibited.” This injunction has however has not yet translated into enforcement and concrete legal action.43

Lack of justice for sexual violence and gender based violence remains the norm in Somalia; this is so because traditional Somali society does not openly discuss these issues. Across the country, traditional or customary law continues to override the state judiciary (often because they respond much more quickly and are more accessible than formal legal mechanisms)44. Girls are married early, with 45% of women aged 20 to 24 married before the age of 18.45

On May 7 2013, the government of Somalia and the United Nations signed a Joint Communiqué on the Prevention of Sexual Violence. This aimed at, inter alia, strengthening the rule of law and building the capacity of the justice system to prevent and prosecute crimes related to sexual violence, protect survivors, witnesses and journalists reporting on this issue and ensure access to services for survivors46. The team of experts (TOE) on Sexual Violence established under Security Council Resolution 1888 (2009) visited Somalia in December 2013. One of the key recommendations from their report is the inclusion of sexual violence issues into all stages of peace processes.47 The UN, under the coordination of the GBV-WG has supported

38 See Violence in the lives of Girls and Women in Somalia, UNDP, UNPOS and UN Women. 39 UNICEF Somalia SitRep #12 | December 2013 40 NAFIS, FGM prevalence and social change study, 2014 41 Ibid 42 World Bank and United Nations Population Fund (2004). Female Genital Mutilation/Cutting in Somalia 43 LOGICA 44 Violence in the Lives of Girls and Women in the Somali Republic, UNDP, UNPOS, UN Women, 2012, pg. 54 45 United Nations Development Programme (2014), Gender in Somalia, brief II 46http://unsom.unmissions.org/Portals/UNSOM/130507%20Joint%20communique%20on%20prevention%20of%20sexual%20violence.pdf 47 Security council report 2014

the MWHRD to develop and Action Plan on Sexual Violence in Conflict which implements the recommendations of the TOE Report. Under the auspices of the inter-agency gender-based violence working group (GBV-WG) a three year (2014 to 2016) strategy was developed with the main goal of helping Somalis reduce GBV through prevention and provision of quality and timely multi-sectorial services to survivors.

d) Legal and policy frameworks for promoting Gender Equality and Women’s Empowerment Somalia has ratified three out of the four international bills on human rights, including the International Covenant on Economic, Social and Cultural Rights; the International Covenant on Civil and Political Rights; and the Optional Protocol to the International Covenant on Civil and Political Rights (but has not acceded to the Second Optional Protocol to the International Covenant on Civil and Political Rights).48 Somalia signed and ratified the African (Banjul) Charter on Human and Peoples’ Rights, in 1985,45 and has signed but not ratified the Protocol to the African Charter on Human and People’s Rights on the Rights of Women in Africa (the Maputo Protocol) in 2006.46 Somalia remains one of the few countries worldwide that has not yet ratified the Convention on the Elimination of All Forms of Discrimination against Women (CEDAW), although the Cabinet has approved it subject to ratification by parliament.49 The new Provisional Federal Constitution, under the General Principles of Human Rights, articulates provisions prohibiting discrimination across numerous categories, including on the basis of ‘gender’. The federal constitution has provisions that protect the following women's rights: participation rights including inclusion of women across all the three branches of government and in all national independent commissions; prohibition of discrimination based on gender; equality of rights and duties before the law-regardless of sex; prohibition of FGM/C; provisions for abortion in order to save the life of the mother and protection from sexual abuse; segregation and discrimination in the work place; prohibition of child and forced marriage and non- discrimination in the recruitment of women in the military.50 Specifically, Article 11(4) which provides, ‘All State programs, such as laws, or political and administrative actions that are designed to achieve full equality for individuals or groups who are disadvantaged, or who have suffered from discrimination in the past, shall be deemed to be not discriminatory,’ serves as a viable entry point for affirmative action towards increasing women’s representation in politics, public institutions and other avenues of decision-making.

Notably absent from the constitution is language providing for a 30 percent quota for women in representative bodies of government, for which political and women’s rights organizations had vigorously advocated and which had appeared in earlier drafts. The 30% allotment had been earlier enshrined within the ‘Garowe II Principles,’ an agreement signed in February 2012 which set forth the new institutional structures to replace the transitional government. 51

Principles of gender equity and women’s rights are enshrined in the individual constitutions of Somaliland and Puntland. The Puntland Constitution (2009) specifies the duty of the government to protect and promote the rights of women in consistence with Islamic religious norms; and that women have the same rights as men. Advocates in Puntland are actively lobbying for inclusion of a 30% quota for women.52

There is slow adoption and implementation of gender policies and strategies. The Federal Government of Somalia (FGS) has a draft Gender Policy that was developed in 2013 with assistance of the African Union Mission in Somalia (AMISOM). In Puntland: A proposal for a Gender Policy developed since 2008 continues to receive resistance from Cabinet, Parliament, as well as religious leaders, and has still not been adopted. Puntland’s Five Year Development Strategy (2012-2016)53 developed by the Ministry of Planning appears to be gender sensitive. Unlike other regions, Somaliland adopted a comprehensive National Gender Policy in 2009 that recognized women’s empowerment at all levels under the leadership of the Ministry of labour and Social Affairs (MOLSA). It recommended specifically, the elimination of gender inequalities and women’s access to equitable development in its National Gender Action Plan (NGAP). There is currently draft FGM/C policy and newly initiated zero-draft rape act in Somaliland. With support from UNDP and UNFPA, the Ministry for Women and Human Rights Development has drafted a Sexual Offences Bill.

48 United Nations Development Programme (2014), Gender in Somalia, brief II, page 21 49 UNDP, CPD (2011-2015) 50 Women in Development (IIDA) Policy brief on constitution - http://allafrica.com/stories/201210310067.html 51 LOGICA 52 USAID, Gender Assessment Report, 2014, 53 Puntland’s Five Year Development Strategy (2012-2016)

However, across the regions, neither the constitutions nor the relevant legislations adequately address the historical discrimination of women from the public life as they do not encompass provisions that particularly present special measures for women to increase women’s political participation. Neither a quota nor any form of affirmative measures for women’s political participation is in place.

II. STRATEGY

The promotion of gender equality and the empowerment of women is central to the mandate of UNDP and intrinsic to its development approach. This effort includes advocating for women’s and girls’ equal rights, combatting discriminatory practices and challenging the roles and stereotypes that affect inequalities and exclusion. In line with this mandate, UNDP Somalia established the GEWE Project in 2012 to further gender equality and women’s empowerment as distinct programme outcome under the CPD (2011-2015), Outcome 4: ‘Somali Women and Men Attain Greater Gender Equality and are Empowered’.

Achieving sustainable impact of project interventions is a long term endeavour. Given the specific contextual challenges, there is need to consolidate on efforts undertaken within the first three years of the GEWE project. At the same time, drawing on lessons learnt, adaptions will be made to project approach to increase innovation, efforts showing potential for significant transformative impact will be scaled up and strong evidence-base to support project interventions will be pursued. It is also critical to respond to and align the project with the emerging priorities and strategic frameworks setting out the overarching peace and state building objectives which Somali federal government and the international community have endorsed.

a) Project Outputs

The project is consistent with the goals and priorities set forth in the Somali Compact, the UN Integrated Strategic Framework (ISF) and the Provisional Federal Constitution and placed within the framework of CEDAW and the UN SCRs 1325, 1888, 1889 and 1820. Implementation of the project will also contribute to the attainment of UNDP’s Eight-Point Agenda for Women’s Empowerment and Gender Equality in Crisis Prevention and Recovery and the UN Secretary General’s 7 Point Action Plan on Women’s Peace and Security. UNDP’s Strategic Plan (2014-2017) and the Gender Equality Strategy (2014-2017) are equally instructive.

The scope of the project and the opportunities generated through it will have direct impact on women’s ability to negotiate their ways through national processes, which is a precondition for inclusive and equitable peace-building and state-building, including Constitutional review processes, state formation, dialogues on Federalism, reconciliation and electoral processes. Gains made at this stage of the emerging processes, will have multipliers effect facilitating longer-term change in the culture of politics, policy and law-making across Somalia. Project gains will also impact upon broader protections for women and girls from GBV and harmful traditional practices such as FGM and child marriages. Education and economic empowerment opportunities will have a strong correlation to women’s empowerment in other areas such as women’s decision-making in the family, community, and engagement by women in governance and democratization processes. Capacity building, advocacy and networking across women’s civil society and national gender machineries will stimulate contributions to policy development towards equitable service delivery and economic recovery.

Within the context of UNDP Somalia’s CPD these interventions will complement ongoing gender-related work being done by the other programmes and projects by focusing on the root causes of gender inequalities thereby responding to a more a gender transformative agenda and preparing women to take advantage of the opportunities which will be opened to them through mainstreaming. Women and girls will be engaged not only as beneficiaries but also as change agents in key areas of the project.

The concrete outputs expected are fourfold:

i. Output 1: Increased Participation and Representation of Women in Politics Aligning with Compact PSG 1: Inclusive Politics; priorities 1, 2 & 3

The project will generate a significant push to advance the role of Somali women as peace-builders and be catalytic in empowering them in claiming their due space in decision-making structures and politics both as voters and candidates for public offices. As immediate priorities, the project will support the mobilization of women to participate and/or present their concerns in all national, regional and international peace-building, state building and Compact implementation structures. Achievement of affirmative action through quota commitments in Constitutional review and electoral law reform processes in Somaliland, Puntland and the South Central will be given adequate urgency. National gender machineries and women’s groups will be supported to organize and intensify advocacy and lobbying for women’s representation in parliament as well as build capacities of women candidates in the forthcoming elections and conduct civic education and awareness campaigns on the emerging political structure in Somalia (the constitution review process, democratization (elections), federalism) and the importance of women’s role. The project will identify, empower and support a carefully selected group of “champions,” to lead advocacy efforts for women’s participation and representation in Somalia. The champions will include women and men from government, grass-roots civil society, youth, religious and community leaders, the media and the private sector. They will be provided with leadership, conflict management and advocacy skills training as well as mentoring so that they can actively participate in formal institutions and processes, including peace building, governance institutions and state building. Advocacy will also target traditional and religious elders as the custodians of culture in Somalia to visibly and publicly support the women’s participation in politics and public life. Additionally, women’s advocacy campaigns will be supported by tools, briefing papers, research and public information campaigns to promote women’s political participation and inform gender responsive policy dialogues; including across all PSGs.

ii. Output 2: Enabling environment for increased economic opportunities for women in the private sector Aligning with Compact PSG 4: Economic Foundations; priorities 1 & 2

This output is closely related to work that will be supported in output 4.4 below, and the results to be achieved under Outcome 3 of the CPD, ‘Somali women and men benefit from increased sustainable livelihood opportunities and improved natural resources’ and also has correlating links to women’s participation in decision-making and advocacy to prevent violence against women and FGM. The strategy will therefore ensure that the promotion of women’s social and economic empowerment will be undertaken in collaboration with the women’s livelihood outputs under Outcome 3 as informed by the study on women’s role in the private sector. Already, to take forward the findings of the study, the PREP Livelihoods project is conducting a feasibility study on marketability of existing vocational skills and women’s accessibility to skills training centres/institutes towards establishment of business support centres for women. This output will enhance the Livelihoods intervention by building capacity of national gender machineries to collect sex disaggregated data and conduct gender-sensitive value-chain analysis as well as critical research in key income sectors. As a long term social and economic empowerment strategy, the scholarships for tertiary education for young women (in non-traditional career fields) will be scaled up by introducing a new batch of recipients in 2015 with complementary leadership capacity and counselling components initiated. Building on the findings of the consultations and efforts by women khat sellers, the project in 2015 will expand consultations to seek commonalities in the situation of other market women and look to develop an advocacy campaign for promoting the rights of women in markets in general. The private sector institutions will be engaged through advocacy and dialogue forums to being the process of gender transformation of sectorial policies and practices to open up more spaces for women to engage as entrepreneurs and as employees. Capacity building support to enhance women’s employment opportunities will be an important component of this output.

iii. Output 3: Measures Implemented to Prevent GBV and Reduce the Prevalence of Harmful Traditional Practices against Women and Girls; especially FGM. Aligning with Compact PSG 3: Justice; priorities 1 & 3

The project will support initiatives that complement the efforts of other UN Agencies in addressing FGM and GBV through sustaining and up scaling ‘community conversations’ and inter-generational dialogues towards developing a preventative approach, supporting advocacy for legislative reforms and striving for abandonment of harmful traditional practices. Given the conflict context and that the majority of perpetrators of violence against women and combatants are young men, it is critical that the project explores the variables exacerbating and fuelling violence, in particular how it relates to gender identities – the way in which men and women are socialized, the roles and expectations that are placed on them by family and society – “what it means to be a woman” and “what it means to be a man”. The project will work with young men and women to gain an understanding of their experiences and identify potential alternatives and positive role models to prevent and reduce incidences of violence and move beyond militarized forms of manhood. Furthermore, national gender machineries will be supported to continue to lead national level sensitization on GBV and FGM abandonment.

iv. Output 4: Women supported by appropriately designed, implemented and enforced legal and policy frameworks in line with CEDAW, the Maputo Protocol and Security Council Resolutions 1325 (2000), 1888 (2009), 1889 (2009) and 1820. Aligning with Compact PSG 5: Revenue and Services and cross-cutting issues (capacity development, human rights and results)

Gender responsive governance requires that gender equality and the realization of women’s rights are at the core goals and practices of governance. The - federal government of Somalia and the existing states are consolidating their governance and rule of law public institutions – which make available opportunities for policy reforms in the government. Of the three main regions only Somaliland has a gender policy. Actively involving Somali women in defining policies and in shaping the ministries or agencies that produce them, means they are more likely to respond to the needs and situations of women and men and contribute to gender equality. Specific priority will be placed on the constitutional review processes occurring at the Federal level and in Puntland. A major effort will be made to incorporate the primary UNSCRs 1325, 1888, 1889 & 1820 addressing women, security and peace and sexual violence in armed conflict, into new legislations and policy implementation plans. In addition, efforts will be made to encourage Somalia to become a State party to CEDAW. The project will further support the development, enacting and enforcement of legal frameworks that ensure women’s representation in politics, peace and security and economic institutions and promote the protection of women’s and girl’s rights in line with international standards. Support will continue for the development of Sexual Offences Laws for Somalia. Technical and logistical capacity building support will be provided to the gender machineries to continue to strengthen coordination on GEWE and gender mainstreaming into all other government policies and programmes. The project will also continue to provide South-south exchange and international exposure for Somali women’s rights advocates; fostering engagement with broader regional and global discourse on gender equality and women’s empowerment.

Underpinned by the situation analysis and description of project outputs provided above, a theory of change is employed to draw the logical and the conceptual framework linking outputs to the outcome and indicating the progression of interventions to the outputs envisaged in this project.

b) Theory of change

In November 2014, discussions and working group sessions on the theory of change for GEWE in Somalia were facilitated at project reformulation consultative meetings with partners, key counterparts and diverse range of stakeholders across Somalia. As a result of the consultations, stakeholders agreed that to achieve progress in gender equality and women’s empowerment in the context of Somalia, interventions should be centered around four priority areas as necessary preconditions: 1) increasing representation and participation of women in decision-making, 2) increasing economic opportunities for women, 3) reducing FGM prevalence and prevention of GBV; and 4) gender-responsive policy and legal frameworks.

To increase the representation of women in decision-making at all levels, given the patriarchal filters and the multi-faceted formidable challenges facing Somali women today, temporary special measures such as quotas are indispensable. In that respect, massive advocacy campaigns through comprehensive advocacy

strategy development, mobilisation and capacity building of stakeholders, engaging and sensitizing traditional and religious leaders will be implemented to win over gate-keepers and transform the mind-set of public towards support for quotas. Interventions like training, sensitization meetings, dialogue and awareness will be deployed to increase knowledge and change attitudes. Mobilized partners will conduct community outreach forums and have structured advocacy interactions with decision-makers. While supporting the quest for specific measures, the project will further motivate and support women candidates in elections as a complementary and equally important measure. Partnership with media is integral as well to increase positive profiling of women and effectively get messages across to the public. The chain of result proceeds from the premise that awareness and capacity building will lead to attitudinal change; mobilization of stakeholders, training for women groups, activists, MPs and community leaders and advocacy to political parties will amount to an increased number of women candidates. And eventually, civic education for the general public will broaden the women politicians’ constituency or electorates; tailor-made trainings for women candidates and legislation of quota will eventually increase the number of women in decision making at all levels.

Since socio-economic and political status of women is intricately inter-related, women’s economic opportunities will be improved through increased scholarships and leadership capacities for young women, trainings in entrepreneurship for women businesses and provision of support for women job seekers. The theory of change process envisaged here is based on the following key assumptions or drivers that need to be present to strengthen women’s resilience in the economic sector: (a) availability of sex- disaggregated data and value chain analysis will open new entry points for women in the private and the economic sector. The data and the analysis are also useful for advocacy on policy or legal reform to ascertain conducive and supportive environment for women. (b) Service provisions of information, knowledge (scholarships) and practical experience through internships, self-marketing and networking skills will enhance the employability of women in the market. Sensitizing companies or employers on gender sensitive recruitment, linking women job seekers to the available opportunities and availing continuous mentorship and counselling services will increase employment and resilience for women in the market.

The change process towards reducing FGM prevalence and prevention of GBV is based on the perspective that gender inequality and discriminatory practices are deeply embedded in cultural and traditional norms. The values and beliefs underpinning these harmful practices are intricately woven into the fabric of the society. Community capacity enhancement through community conversations (CCE-CC) methodology recognizes the inherent abilities that communities have in preventing the harmful practices and challenging stereotypes and stigmas by drawing on their historical strengths and internal resources. The project has built lessons from previous implementation of CCE-CC to identify, initiate, implement, own, sustain and transfer change. It gives sensitivity to and utilization of individual, family and local community experiences, resources and competencies in the change process to prevent harmful attitudes and behaviours threatening their life. Through its methodological frameworks and facilitation skills CCE-CC works with existing social dynamics and concerns of local communities, and generates authentic community responses. The project will support local organizations and communities to encourage dialogue, create space for mutual learning, and foster new perspectives and help local communities mobilize around agreed actions. Following an intense reflection and analysis on personal and collective beliefs and practices on GBV/FGM, communities have the capacity to make their own decisions based on identified concerns. It will reinforce community capacity to generate and transfer knowledge through support of community-to-community transfer of lessons learned. Once begun, this process of transfer repeats itself, from community to community, as well as among an ever-growing pool of skilled implementers and trainers, contributing to an expanded response to GBV. In this respect, communities can envision the future and make decisions. By providing an opportunity to link community decisions and actions to planning and implementation, the theory contributes to democratization and good governance in communities and local organizations.

However, as decisions addressing socio-cultural practices may be more challenging to implement and may need support from policy makers and other stakeholders, the facilitators and hosting CCE-CC organizations act as a link to other systems, keeping the community informed of available resources that may be helpful. This may include making community plans available to service providers and ensuring that they ‘buy into’ the process. This is expected to increase the reporting of GBV incidents. Reflection and review is a way of

looking back at what has transpired – shifts in practices that achieved the objectives of the decision- making process. Once buy-in of decision makers is ensured, this will lead to an improved enabling environment where GBV responsive policies and programmes are in place; and eventually in a situation where FGM practice is criminalized and GBV is regarded as crime against humanity to witness reduction in actual GBV incidents as well as increased prosecutions in courts.

With regard to legal and policy framework, UNDP will support advocacy, policy and legal reforms to accelerate the equal participation of women, including young women and marginalized groups, in decision making across all branches of the state. A review of existing laws, policies and procedures with gender lens will reveal gender gaps. Specific gender responsive policies and laws will be supported to address the historical disadvantages and the plight of women today. Hence addressing these gender gaps will furnish enabling environment for women which in turn will trickle down to and reflect in the lives of women. Therefore, the legal and policy framework will under-cut all the thematic areas and sectors to address gender inequality and empower women.

Finally, the four outputs of the project are mutually reinforcing to contribute to the CPD Outcome4 ‘Somali Women and Men Attain Greater Gender Equality and are Empowered’. Somalia is a deeply clan-based culture which promotes strict male hierarchy and authority. Strongly held beliefs about the status and roles of women in Somali society–with the added dynamics of conflict, militarization, poverty and historical exclusion of women–will likely take a whole generation to shift. The project will therefore contribute to catalytic processes in the immediate term such as community sensitization and advocacy, policy and legal reforms. Evidence shows that women's economic and educational empowerment is part of the overall process of evincing concrete shifts in women's status and kick-starting the process of transforming social and power relations. These seeds will begin the process of transformation and generate immediate results in increased willingness of traditional institutions and public authorities to dialogue on women's rights and implement temporary special measures for women. Women and men who are empowered will increase demand for their rights to be respected and address manifest imbalances by supporting GEWE-specific interventions. On the other hand, the theory also assumes that equitable participation and representation of women in decision making will be catalytic to change in a number of areas such as gender responsive policies and programmes, ensuring the provision of equitable services and opportunities; and guarantee a protective environment for women from GBV and other harmful practices. Increasing the visibility of women in the public sphere will also prove their contributions and build their confidence to continue to challenge and end stereotypes.

For these changes to happen, the project anticipates the key drivers of change to be young men and women, gender equality champions, women’s organizations, government authorities, religious leaders, traditional leaders, political parties and community leaders.

Theory of Change Diagram

Outcome Somali Men and Women Attain Greater Gender Equality and are Empowered IMPORTANT ASSUMPTIONS

Empowered women demanding and accessing their rights; behavioural, attitudinal and perceptional changes about the role and status of women in society; movement towards gender equality; increase in representation and participation Awareness and capacity of women at all levels (public and private); increased economic and employment opportunities for women; reduction building will in prevalence of FGM and SGBV; international instruments on gender equality and women rights integrated into lead to Visible Change Processes institutional, regulatory, and policy frameworks; support and reinforce gender mainstreaming behavioral changes

Measures implemented to Legal and policy National Increased participation prevent GBV and reduce Enabling environment for frameworks Integrate structures and and representation of harmful traditional increased economic CEDAW, Maputo Protocol policies will women in politics and practices against women opportunities for women and Relevant Security support gender decision making and girls; especially FGM in the private sector Council Resolutions on mainstreaming women Outputs

Sufficient financial Change Drivers: young men and women, gender equality champions, women’s resources will organizations, government authorities, MPs, religious leaders, traditional leaders, be available to political parties, community leaders support GEWE activities

Advocacy for Capacities for sex- women’s political Social marketing of Coordination CCE-CC to prevent disaggregated data participation women capacity of gender Availability of SGBV and reduce and research entrepreneurs machineries FGM Sensitization and sex- Advocacy for Capacity building of advocacy for disaggregated

Change Actions Temporary special Private sector policy Economic Gender-sensitive women candidates response to GBV/ data will measures for women reform opportunities for policies FGM young women influence private sector policy reforms

Patriarchal culture Low representation and Low/uneven economic Weak legal and policy promotes harmful framework for realization of participation of women at and employment Engaging social traditions like FGM and human rights with low dynamics and all levels opportunities for women prevalence of GBV implementation concerns of local communities, will generate

Context authentic Gender inequality in opportunities and access to resources, women’s lack of economic opportunities; disrespect for community human rights; high prevalence of GBV and harmful traditional practices such as FGM; discriminatory practices prevail responses

III. PROJECT BENEFICIARIES

The major beneficiaries of this Project are the people of Somalia because the activities are aimed at strengthening gender equality and women’s empowerment overall as a necessary ingredient for good governance, peace consolidation and ensuring balanced and sustainable development. One of the key strengths of this project is its inherent potential to shape politics, demonstrate behavioural change and influence policies in a post-conflict, fragile state. At the political level, unless women’s rights and equality are addressed in constitutional and legislative processes, Somalia will miss yet another opportunity to reverse the trend and attain gender equality and ensure women’s voice and views are counted in shaping national priorities and peace and state-building processes. The project will therefore directly contribute to the realization of the commitments to gender equality made by the FGS in the Compact.

Somali Civil Society Women’s Groups and Networks (CSOs) and national gender machineries pursue a shared goal to ensure that government commitments to the advancement of gender equality and women’s empowerment are fully realized. The project will support national gender machineries and women CSOs by facilitating and building their capacity for improved access to various decision-making fora.

Women and girls who have been particularly affected by gender based violence, are marginalized from decision-making, ignored by the legal system and bear the greatest effects of poverty and insecurity, will be specifically targeted to ensure that they are empowered to claim their rights and advocate for change. It will further strengthen women’s role and their ability to negotiate for political and economic justice. The alliance and networks of women across the project areas will be strengthened throughout the implementation which will further enhance their abilities in terms of number and capacity to influence policy decisions.

Other potential beneficiaries from the programme interventions include, but are not limited to: public institutions, heads/custodians of traditional and religious institutions, women at all levels of decision- making, women-headed households, IDPs, male and female youth, local communities/local governments, academia, the media and public and private sector institutions.

IV. PARTNERSHIPS UNDP Somalia works with multiple partners to implement its projects. It is important to build alliances with these stakeholders (donors, international and local NGOs/CSOs, CBOs and rural communities, traditional sector, the media, private sector and public authorities) and other UN agencies in gender work so that unity is achieved in putting gender equality commitments into action, ensure complementarities and avoid overlap.

In implementing this GEWE project, the most critical partners will be the gender ministries in each region (MoWHRD at the federal level, MOLSA in Somaliland and MoWDAFA in Puntland) as well as other relevant line ministries, agencies or public institutions who have a specific role to play in implementing certain components of the project. NGOs/CSOs, CBOs and the media will be instrumental to helping the project reach more local communities. Efforts will also be made to engage the private sector. To strengthen the contributions of the partners, it is important to guarantee that they have capacities to address gender issues and where lacking, this capacity will be built or strengthened throughout the project implementation. Trainings on gender mainstreaming, UN GEWE frameworks and how to apply these in local contexts will be provided to ensure that all project partners can incorporate principles of gender equality and women’s empowerment into their work.

Building on UNDP’s strategic leadership role within the UN system coordination, the project will ensure information sharing, coordination and synergies with other similar initiatives through the mechanism of the UNCT’s Gender Theme Group (GTG). Consultation with members of the GTG on the project document will properly highlight potential areas for collaboration and help ensure strategies for joint implementation where this will maximize resources for more effective programming. Already, UNDP is the lead implementing agency in a joint proposal with UNSOM and UNWomen to the Peace Building Fund – Gender Promotion Initiative (PBF-GPI II). The proposed project is titled Strengthening women’s role and participation in peacebuilding - Towards just, fair and inclusive Somalia.

V. RESULTS AND RESOURCES FRAMEWORK

Intended Outcome as stated in the Country Programme Results and Resource Framework: Outcome 4: Somali Women and Men Attain Greater Gender Equality and are Empowered Outcome indicators as stated in the Country Programme Results and Resources Framework, including baseline and targets: 1. Proportion of decision-making positions occupied by women at national and sub-national levels. Baseline: Proportion of seats held by women in national parliaments in all three regions of Somalia was last measured at 9.6% in January 2014. Proportion of women in cabinets nationwide is approximately 10% while proportion of women in district councils is 18% for Puntland and 2.67% for Somaliland; figures for South central are not known. Target: Proportion of women in decision-making at all levels increased by at least 5% 2. Proportion of women in wage employment and women with new and strengthened business opportunities. Baseline: Limited representation of women in public and private sector employment and low access by women to advanced entrepreneurial opportunities. Target: Increased access to tertiary education, employment and entrepreneurial opportunities for women. 3. Percentage of FGM prevalence and GBV incidents reduced. Baseline: Average FGM prevalence rate in Somalia is 98%; GBV incidents remain high though coherent data is unavailable. Target: FGM prevalence and GBV incident rates reduced by 5% 4. Extent to which CEDAW, the Maputo Protocol and SCRs 1325, 1888, 1889 and 1820 are integrated into institutional, regulatory and policy frameworks. Baseline: Gender is cross-cutting in the Somali Compact. Somaliland Gender policy incorporates principles of CEDAW. No Gender Policies in Puntland or Federal level; and limited integration of CEDAW and lack of gender review in other policies or legislations. Target: Integration and implementation of CEDAW, the Maputo Protocol, SCRs 1325, 1888, 1998 and 1820 in relevant institutional, regulatory and policy frameworks Applicable Key Result Area (from 2014-17 Strategic Plan): Outcome 1: Growth and development are inclusive and sustainable, incorporating productive capacities that create employment and livelihoods for the poor and excluded Outcome 2: Citizen expectations for voice, development, the rule of law and accountability are met by stronger systems of democratic governance Outcome 4: Faster progress is achieved in reducing gender inequality and promoting women’s empowerment Partnership Strategy: Line ministries, UN organizations, international and national NGOs, academia and think-thank institutions, Media, private sector institutions and donor community Project title and ID (ATLAS Award ID): Gender Equality and Women’s Empowerment – AWARD: 00076211 INTENDED OUTPUTS OUTPUT TARGETS FOR (YEARS) INDICATIVE ACTIVITIES RESPONSIBLE PARTIES INPUTS Output 1: Increased participation and representation of women in politics Compact PSG 1: Inclusive Politics; priorities 1, 2 & 3 Baseline: Targets (Year 1) Activity Result 1.1 Strengthened advocacy for Partners: 1,200,000 1. No quotas for women in all 3 regions. 1. At least one region adopts a women’s political participation and representation MoWRHD, MoWDAFA, MOLSA 2. Data on women candidates for electoral Quota in decision making Other line ministries, AR 1.1: offices at national level not available 2. 150 Women political aspirants and Action 1.1.1. Support to 6 women’s groups/networks to UN organizations, 500,000 3. No gender mainstreamed electoral candidates identified and develop and implement quota advocacy strategies International and national policies supported nationwide (engaging in particular, religious leaders, NGOs, AR 1.2: 3. At least one Gender sensitive political parties, electoral institutions, clan and CBOs, 300,000 Indicators: electoral policy traditional elders, MPs, policy makers, youth and the Local/traditional institutions 1. Number of regions that adopt quota media). Male & female opinion leaders AR 1.3: system for women Targets (Year 2) Action 1.1.2. Support national gender machineries and (or champions) 400,000 2. Number of women that contest in national 1. Quotas for women enacted in all women’s groups to participate and contribute to peace Youth elections supported by UNDP. (3) regions and state building efforts focused on newly accessible Media 3. Number of electoral policies that 2. Continued support to 150 Women areas and regional state administrations. mainstream gender equality political aspirants and candidates Action 1.1.3 Train media houses and journalists on 3. Three Gender sensitive electoral gender and women’s rights in the emerging political policies in all regions. processes Action 1.1.4 Conduct training on transformational Targets (Year 3) leadership for 150 MPs, DGs, officials of electoral 1. Quotas for women in place in all institutions and other relevant decision makers (3) regions nationwide as champions for women’s quota. 2. Capacity building for at least 50 elected women in all regions Activity Result 1.2 Enhanced capacity for women 3. Three Gender sensitive electoral candidates to run in elections policies in all regions. Action 1.2.1 Campaigning, public speaking and leadership trainings for 150 identified women political

aspirants and candidates nationwide Action 1.2.2 Establish database of women in politics in Somalia Action 1.2.3 Media visibility for women candidates in the elections

Activity Result 1.3 Key policy making institutions adopt policies, legal and administrative frameworks to enable women’s participation in political and peacebuilding processes Action 1.3.1. Trainings for electoral institutions and legislative bodies on gender equality and sensitisation to adopt gender-sensitive regulations and procedures for elections. Action 1.3.2. Support study tours and exchange visits for men and women MPs to the global south Action 1.3.3. Sustain capacity building for women in political positions on influencing policy and legislative processes from a gender perspective. Action 1.3.4 Continue engagement with media to raise awareness of gender issues in emerging policy and legislations and women’s political rights

Output 2: Enabling environment for increased economic opportunities for women in the private sector Compact PSG 4: Economic Foundations; priorities 1 & 2 Baseline: Targets (Year 1) Activity Result 2.1 Capacities of key ministries and Partners: 1,500,000 - Ministries not collecting sex- 1. 3 Ministries identified for capacity local NGOs built to collect and analyse sex- MoWRHD, MoWDAFA, MOLSA disaggregated data at present. building on collecting sex disaggregated data and develop gender-sensitive Other line Ministries (Education, AR 2.1 - Media does not profile women in disaggregated data value chain analysis and research Commerce, Planning) 400,000 business/private sector.54 2. At least 5 media stories on women Action 2.1.1 Conduct workshops on sex-disaggregated NGOs - Non-gender friendly private sector in the private sector data collection and analysis for staff of NGOs and line UN Agencies AR 2.2 3. 10 private sector companies ministries. Chambers of Commerce 300,000 policies55 advocated adopting gender- Action 2.1.2 Develop basic systems/data bases for sex- Women Entrepreneurs - Women employment in private sector is sensitive policies and recruiting disaggregated collection, analysis, storage and Associations AR 2.3 very scanty e.g. the dominant women. reporting hosted by the gender ministries. 400,000 telecommunication and financial Action 2.1.3 Placement of young women interns in key institutions is as low as 1%56 Targets (Year 2) ministries to assist in collection and harmonization of AR 2.4

4. Basic data bases for sex sex-disaggregated data. 400,000 Indicators: disaggregated data exist in all Action 2.1.4 Capacity building training for women 1. Number of Ministries, NGOs and other three regions hosted by the business owners to document their day today business agencies collecting sex-disaggregated gender ministries experiences to feed into the National data bases data. 5. 12 Monthly column/feature on Action 2.1.5 Gender-sensitive value-chain analysis in 2. Number of positive media products on the women entrepreneurs in national livestock, agriculture and construction sectors in role of women in business/private sector media Somaliland and Puntland. in Somalia. 6. 1 private sector company adopts 3. Number of gender-sensitive private sector gender-sensitive policy Activity Result 2.2 Advocacy to foster dialogue and policy reforms 7. At least 20 women graduates of synergy aimed at private sector policy reform or 4. Number of women newly recruited into

54 UNDP Somalia, 2014, Role of Women in Somali Private Sector Study 55 Ibid 56 Ibid.

the into the big private sector companies UNDP tertiary scholarships for formulation targeted for advocacy from 2015 to 2017. young women employed in the Action 2.2.1 Establish task forces to review national private sector laws regulating employment issues in public and private institutions from a gender perspective and Targets (Year 3) develop an advocacy strategy. 8. Databases updated. Action 2.2.3 Conduct workshops and technical support 9. 12 Monthly column/feature on to large companies to adopt policies on gender- women entrepreneurs in national sensitive recruitment. media Action 2.2.3 Public dialogue forums on addressing the 10. Human Resource policies and policy challenges for women in the private sector. practices of at least 5 large companies are gender-sensitive. Activity Result 2.3 Conduct social marketing to 11. At least 40 young women increase profile of women in the private sector employed in the private sector Action 2.3.1 Host 3 workshops on gender-sensitive reporting for local journalists (Theme: “Changing attitudes and perceptions about women’s role in the private sector and women’s Somali contributions to the economy”) nationwide Action 2.3.2 Paid internships for 5 young women journalists/writers to draft features on women entrepreneurs. Action 2.3.3 Run monthly Women Entrepreneurs column in local newspapers nationwide. Action 2.3.4 Support at least 6 women entrepreneurs to participate in national, regional and international economic platforms and forums. Action 2.3.5 Consultations on women’s social and economic rights (targeting women khat sellers and other women in micro-capital businesses) in each region; develop recommendations for gender considerations and advocate for their inclusion in the review of the relevant bills e.g. on personal status law before parliament in SL.

Activity Result 2.4 Support provided to young women to increase their economic opportunities. Action 2.4.1 Arrange and support job fairs for young men and women; including training sessions or seminars on ‘soft-skills’ (CV writing, interviewing). Action 2.4.2 Continued scholarships provided for 60 young women in PL and SL with additional 30 (per region) to pursue tertiary education in science, math, energy, economics, political science and public administration. Action 2.4.3 Incentives/stipends to secure entry-level employment opportunities for young women graduates of the initial scholarship phase with private and public sector institutions Output 3: Measures implemented to prevent GBV and reduce the prevalence of harmful traditional practices against women and girls; especially FGM Compact PSG 3: Justice; priorities 1 & 3 Baseline: Targets (Year 1) Activity Result 3.1: Enhanced community awareness Partners: 900,000 - No FGM policy adopted at FL, SL & PL; 1. Advocacy for adoption of and ownership to prevent GBV and reduce FGM MoWRHD, MoWDAFA, MOLSA

No GBV laws laws/policies on FGM and GBV prevalence Other line ministries, AR 3.1 - Currently no community have abandoned 2. CCE-CCs conducted in 12 Action 3.1.1 Select and build capacity of a team of Local government, 500,000 FGM communities nationwide. national trainers to function as a national resource and NGOs, facilitation team on CCE-CC for Gender. CBOs, AR 3.2 Indicators: Targets (Year 2) Action 3.1.2 Double the number of CCE-CC sessions Local/traditional institutions 400,000 - Legal and/or policy framework in place to 3. Sexual Offences and GBV bills at being conducted by CSOs across the regions UN organizations, prevent and address FGM and GBV SL and FL presented to Action 3.1.3 Support advocacy meeting between the International and national - Number of CCE-CC practicing parliament. CCE-CC hosting communities and the local authorities communities declaring total 4. At least three CCE-CC practicing to foster collaboration abandonment of FGM communities declare total Action 3.1.4 Support peer review exchange between abandonment of FGM CCE-CC practicing communities Action 3.1.5 Establish CCE-CC online platform and Targets (Year 3) create linkages with the CCE-CC practicing communities 5. At least one region adopts across the regions GBV/FGM policy or act Action 3.1.6 Conduct onsite support visits and peer 6. At least one District council reviews to observe the CCE-CC on action champions support of CCE-CC to Action 3.1.7 Organize exposure visits in liaison with prevent GBV/FGM CCE-CC experts to CCE-CC practicing countries Action 3.1.8 Document and disseminate significant changes made through CCE-CC as well as best practices

Activity Results 3.2 Strengthened advocacy and sensitization at national levels for policy and legal response to GBV and FGM Action 3.2.1 Support public consultation on Sexual Offences and GBV bills at SL and FL. Action 3.2.2 Support CSOs to sustain advocacy for FGM policy adoption Action 3.2.3 Support CSOs to sustain sensitization on GBV and FGM eradication through (inter-generational dialogue between women custodians of the FGM practice and younger generation of women; training and support traditional elders and religious leaders to advocate for FGM eradication; dialogues between men and women youth on prevention of GBV and FGM in each region) Action 3.2.4 Gender machineries lead sensitization on GBV and FGM prevalence through commemorative events. Action 3.2.5 Learning/exchange opportunities for Justice sector actors on mainstreaming gender and human rights into the justice and security sector policies and interventions

Output 4: Women supported by appropriately designed, implemented and enforced legal and policy frameworks in line with international and regional instruments Compact PSG1: Inclusive politics; priorities 1, 2 & 3 Compact PSG5: Revenue and Services and cross-cutting issues (capacity development, human rights and results)

Baseline: Targets (Year 1) Activity Result 4.1 Existing policies and legislation Partners: 900,000 - SL has a Gender Policy; No framework for 1. Technical support and advocacy reviewed from gender perspective to identify MoWRHD, MoWDAFA, MOLSA implementation of UNSCRs 1325 – 1820 for adoption of Gender policies in gender gaps and new policies/laws developed. Other line ministries, AR 4.1 nationwide. Puntland and Federal Action 4.1.1 Support mobilization of women groups Parliaments, 700,000 - Constitutional provisions on GEWE are Government and organizations to proactively participate in the FL UN organizations, weak or ambiguous 2. Review of Provisional Federal and Puntland Constitutional review processes; Academia or think-tanks AR 4.2 - Lack of inter-ministerial gender focal Constitution and PL Constitution Action 4.1.2 Support to MoWHRD to review existing International and national 200,000 points (GFP) and coordination mechanism ensures consultations with roadmap and implement actions towards adoption of NGOs, in SC and PL; 13 ministries have GFP in SL women’s groups. Gender Policy CBOs, 3. Gender coordination mechanisms Action 4.1.3 Support MoWDAFA to review and or Local/traditional institutions Indicators: established under the leaderships reformulate the Gender Policy Paper 2008 and to Men and women opinion - Gender sensitive polices adopted in PL of the Gender Machineries in implement the Ministry’s Strategic Plan 2014 – 2018; leaders (or champions) and FL South Central, Puntland and Action 4.1.4 Technical and programmatic support to Youth - Revised Constitutions in Puntland and Somaliland inter-agency gender the new Ministry of Constitution, Federal Affairs and Media Federal level include specific provisions on coordination mechanism Democratization in Puntland to mainstream Gender women’s rights e.g. quotas reformulated to strengthen into its programmes and operations. - Number of ministries with gender focal Gender mainstreaming Action 4.1.5 Study on impact of gender policy points (GFP) and umber of regions with implementation on the status of women. inter-ministerial gender coordination Targets (Year 2) mechanism 4. Gender Policies adopted at FL and Activity 4.2 Enhanced capacity of gender PL; including implementation machineries to lead and coordinate gender framework for UNSCRs 1325 – mainstreaming in government policies and 1820 programmes 5. Review of Provisional Federal Action 4.2.1 Gender Machineries in each region Constitution and PL Constitution supported to establish and/or strengthen inter- includes gender perspectives ministerial and multi-sectorial gender coordination 6. At least 50% of all ministries mechanism to enhance their effectiveness in gender appoint gender focal points to mainstreaming in all government policies and coordinate with the gender programmes across all sectors and enhance machineries on mainstreaming implementation of the National Gender Policy. Action 4.2.2 Gender mainstreaming toolkit finalized Targets (Year 3) and used for gender focal persons training 7. Review of implementation and Action 4.2.3 Technical capacity of inter-ministerial impact of gender policies in all gender coordination mechanisms enhanced through regions on the status of women. workshops/trainings on gender mainstreaming 8. 2 policy reviews from gender Action 4.2.4 Support government authorities of perspective per region by Gender Somalia and CSOs to participate in international and coordination mechanisms. regional forums related to Gender and women’s rights e.g. CSWs, learning and exchange events in the Arab region.

Project management and support costs Staff and other Personnel Costs: Gender Specialist, Programme Manager (P4) Gender Project Manager (NOC) - New $ 970,782.00 Gender Programme Analyst (I-UNV) SL - New $ 127,983.00 Gender Programme Analyst (I-UNV) PL $ 183,000.00 Gender Programme Officer (SC9) SL $ 183,000.00 Gender Programme Officer (SC9) PL UNDP Somalia, $ 83,472.00 Gender Programme Officer (SC9) MOG $ 83,472.00 Project Assistant (SC6) Nairobi $ 83,472.00 Project Associate (SC6) Mogadishu - New $ 77,034.00

$ 54,246.00 HACT Capacity Assessments for 10 partners@ $9,900 Consultancy firm $ 99,000.00

M&E: Outcome ... perception surveys Consultancy firm 50,000.00 Partners Annual Audit for 10 partners @ $ 10,000 Consultancy firm 100,000.00 Equipment, Vehicles and Furniture including UNDP 60,000.00 Depreciation 6,655,461.00 Total Direct Cost (Project-specific) Direct Costs (shared between projects)

Premises and Facilities UNDP 232,941.00 Security and Equipment UNDP 166,387.00 Monitoring, Evaluation and Oversight UNDP 332,773.00

Communications Support UNDP 66,555.00 Direct Project Costing (Finance, HR, ICT & Office UNDP 299,496.00 Support) Total (Direct Cost project specific + Shared) 7,753,612.00 General Service Management (GMS) 620,289.00 GRAND TOTAL 8,373,901.00

VI. MANAGEMENT ARRANGEMENTS

Under the supervision of the Deputy Country Director Programmes (DCDP), the Gender Specialist (P4) and Head of Cross-cutting Unit is Gender Programme Manager overseeing implementation of the GEWE project as well as the CO Gender Mainstreaming strategy. A National Project Manager (NOC) will be recruited to be based in Mogadishu and responsible for day-to-day project implementation and delivery of all project outputs. The National Project Manager will therefore supervise a team of at least 3 persons: three Area Project Officers based at the Federal level, Somaliland and Puntland. The overall Gender Programme will enjoy the complement of a Project Assistant (G6) and 2 Gender Programme Analysts (I- UNV) to be based in Garowe and Hargeisa.

The National Project Manager under the supervision of the Programme Manager will be responsible for day-to-day management and decision-making for the project, including the work plan, budget planning and oversight, drafting terms of reference for the acquisition of services and goods, elaborating and implementing a procurement plan, oversight of operations in the field and reporting to the Project Board.

Heads of Area Offices in Somaliland and Puntland play an integral role in overseeing the day-to-day management and implementation of projects in the respective regions. Quality assurance is handled by the programme team based in Mogadishu.

A GEWE Project Board comprised of donors, government representatives and CSO partners funded by the Project will meet on a quarterly basis to review progress and provide policy guidance. The overall implementation of the GEWE Project in the field will be undertaken in line with UNDP Somalia’s Area Office Guide.

The project will also build synergies with other UN Agencies and partners for effective coordination of gender programming and information sharing through participation in the GTG.

Project Organization Structure

Project Board

Senior Beneficiary: Executive: Senior Supplier: Government, CSOs, UNDP Donors Communities

Project Assurance: Gender Specialist/Programme Manager (P4)

Mogadishu Project Support National Project Manager Project Assistant (G6) (SC10)

Hargeisa Garowe Mogadishu Gender Programme Officer (SC9) Gender Programme Officer (SC9) Gender Programme Officer (SC9) Gender Analyst, Women’s Gender Analyst, Women’s Political Project Associate (SC6) Economic Empowerment (I-UNV) Participation(I-UNV)

VII. MONITORING AND EVALUATION FRAMEWORK

In accordance with the programming policies and procedures outlined in the UNDP User Guide, the project will be monitored through the following:

Within the annual cycle  On a quarterly basis, a quality assessment shall record progress towards the completion of key results, based on quality criteria and methods captured in the Quality Management table below.  An Issue Log shall be activated in Atlas and updated by the Project Manager to facilitate tracking and resolution of potential problems or requests for change.  Based on the initial risk analysis submitted (see annex 1), a risk log shall be activated in Atlas and regularly updated by reviewing the external environment that may affect the project implementation.  Based on the above information recorded in Atlas, a Project Progress Reports (PPR) shall be submitted by the Project Manager to the Project Board through Project Assurance, using the standard report format available in the Executive Snapshot.  a project Lesson-learned log shall be activated and regularly updated to ensure on-going learning and adaptation within the organization, and to facilitate the preparation of the Lessons- learned Report at the end of the project  a Monitoring Schedule Plan shall be activated in Atlas and updated to track key management actions/events

Annually  Annual Review Report. An Annual Review Report shall be prepared by the Project Manager and shared with the Project Board and the Outcome Board. As minimum requirement, the Annual Review Report shall consist of the Atlas standard format for the QPR covering the whole year with updated information for each above element of the QPR as well as a summary of results achieved against pre-defined annual targets at the output level.  Annual Project Review. Based on the above report, an annual project review shall be conducted during the fourth quarter of the year or soon after, to assess the performance of the project and appraise the Annual Work Plan (AWP) for the following year. In the last year, this review will be a final assessment. This review is driven by the Project Board and may involve other stakeholders as required. It shall focus on the extent to which progress is being made towards outputs, and that these remain aligned to appropriate outcomes.

A final evaluation will be conducted at the end of the programme to compare achievements with the objectives and to document lessons learnt and best practices. This will feed into the future planning of the programme and other interventions.

Quality Management for Project Activity Results The present document is based on an assessment of past experience. The first GEWE project recorded significant achievements and documented lessons learnt over the three years of its implementation. A CO Assessment of Development Results (ADR) exercise in May/June 2014 with specific focus on Outcome 4 concluded amongst other things that the GEWE project contributed visibly and significantly to development results for gender equality and women’s empowerment in the areas of promoting more equal representation and participation of men with women as decision makers and enhancing quality of women’s participation, e.g. building capacity of women and women organizations and networks; contributions to prevention of GBV and women accessing legal protection; creating public awareness on GEWE and contributions to policy frameworks and awareness of international policy instruments for GEWE. The ADR recommended that the GEWE Project continue to prioritize increasing women’s political participation through the elections as well as advocacy for adoption of a quota for women in all decision- making bodies. This would require significant capacity building and networking support for women’s civil society groups as well as coordination with national gender machineries. The project was also encouraged to continue its support to elimination of GBV; making use of innovative models from other countries and engagement with global campaigns against VAW. Support to women’s economic empowerment should diversify efforts from male/female dominated skills and explore opportunities in areas not previously attracting women. Studies should continue to inform programming. Whilst ensuring programming alignment with the Compact PSGs, the Project should support and facilitate representation and strong participation of the national gender machineries and women civil society

24 representatives in the Compact decision-making structures; and ensure the coordination structure on gender is in line with mainstream decisions and timeframes.

This project is designed drawing inspiration from the ADR findings, extensive consultation of partners, stakeholders and key counterparts nationwide and internal lessons gained from the first project implementation. Baselines and initial expectations have been established to allow appropriate reflection on contributions made to desired development.

Quality assurance will be ensured throughout the project through various mechanisms: • The Project Board has the function of overall quality assurance throughout the project period. • The Project Team has the function of ensuring the quality of service delivery in the individual components. • The UNDP Office (Gender Programme Manager) will through regular visits to the project review and asses the quality of work and alignment with the expectations of the different parties. • Independent reviews of the approaches developed in each of the outputs will ensure that the proposals are up to present day quality standards. • A final evaluation will assess the project according to regular evaluation criteria.

VIII. LEGAL CONTEXT

This project document shall be the instrument referred to as such in Article 1 of the Standard Basic Assistance Agreement (SBAA) between the Government of Somalia and the UNDP, signed on 16 May 1977.

Consistent with the Article III of the Standard Basic Assistance Agreement, the responsibility for the safety and security of the executing agency and its personnel and property, and of UNDP’s property in the executing agency’s custody, rests with the implementing partner.

The implementing partners shall:

Put in place an appropriate security plan and maintain the security plan, taking into account the security situation in the country where the project is being carried; Assume all risks and liabilities related to the executing agency’s security, and the full implementation of the security plan.

UNDP reserves the right to verify whether such a plan is in place, and to suggest modifications to the plan when necessary. Failure to maintain and implement an appropriate security plan as required hereunder shall be deemed a breach of this agreement.

The implementing agency agrees to undertake all reasonable efforts to ensure that none of the UNDP funds received pursuant to the Project Document are used to provide support to individuals or entities associated with terrorism and that the recipients of any amounts provided by UNDP hereunder do not appear on the list maintained by the Security Council Committee established pursuant to resolution 1267 (1999). The list can be accessed via http://www.un.org/Docs/sc/committees/1267/1267ListEng.htm. This provision must be included in all sub-contracts or sub-agreements entered into under this Project Document.

IX. RISK ANALYSIS

Possible risks impacting on the implementation of the project may stem from different causes some of which are beyond the control of the intervention. The risks anticipated in implementing this project include resistance from clan-leaders; lack of adequate physical safety and security as the project implementation will involve women’s movement between regions and organization of events; increased threat to women from extremist groups; deterioration in security situation may involve risks for the implementation of the project and delivery of results; weak financial management capacity may lead to poor accountability. Any gap in required funding or resources may also pose a certain degree of risk in 25 meeting the requirements and maintaining an adequate level of intervention to meet the project’s stated results. This may emerge as one of the potential areas to address if the demand surges beyond the funding available under the project.

The risk management matrix below describes the most critical risks and reflects potential mitigating strategies that will be deployed to address them.

Impact (I) – 6 highest, 1 lowest Probability (P) – 6 highest, 1 lowest PM = Project Manager

Description Category Impact & Probability Countermeasures / Owner Date Management response Identified Deterioration in Environmental Programme activities UN Field Security Officers PM, DSS, Nov 2014 security situation Security disrupted, possible and staff from the FSOs may involve risks for destruction of government Department of Safety and the implementation institutions, possible Security to provide regular of the project and removal of staff from Area updates on security delivery of results; offices. situation in Somalia. I = 5; P = 5 Project team (with guidance from CO) will adjust project activities to changes in the security situation. Increased use of NGOs, CBOs to implement activities. Lack of acceptance Security Potential for serious Participatory planning and PM Nov 2014 or resistance by backlash on implementing community mobilization; communities to partners and personal risk practical support for project to project team. I=5; P=2 community; culturally interventions e,g, sensitive strategies and on gender equality messages to be used in awareness, FGM implementation. Significant shortfall Operational Scarcity of resources for Strengthening of PM Nov 2014 in resource Organizational programme relationships with bilateral mobilization from implementation, necessity donor partners, involving bilateral partners of scaling-back activities timely reporting, regular and revising expected meetings and alignment of outputs programme priorities with I = 5; P = 3 articulated donor interests. Poor cooperation Operational Confusion, inefficiencies, Effective engagement in PM Nov 2014 with UNCT Organizational loss of political support GTG and other UNCT agencies, and buy-in gender-related competition coordination mechanisms between these I = 3; P = 3 to establish clear division organisations, weak of roles and coordination coordination strategies National partners Security Reduce exposure through PM Nov 2014 are targeted Organizational Personal safety and low-profile approach in because of security of partners sensitive areas; adopt collaboration with jeopardized with effect of culturally sensitivity UNDP frustrating/undermining strategies in gender partnership equality interventions; I=3; P=3 increased delivery through government counterparts and NGOs Weak financial Operational Poor accountability Initiate HACT capacity PM, PPU Nov 2014 management Organizational I=5; P=3 assessment modality for all capacity potential partners and follow HACT guidelines for mitigating risk.

Training of all partners on financial management arrangements and modalities; close monitoring of financial management by IPs.

X. ANNEX: SUMMARY OF REGIONAL CONSULTATIONS ON THE PRODOC REVISION AND PARTICIPANTS LISTS

Strengthening Gender Equality and Women’s Empowerment (GEWE) GEWE Programme Reformulation Consultation Meeting 1 - 12 November 2014

Introduction The Gender Equality and Women’s Empowerment (GEWE) programme was formulated in 2012 to contribute to the realization of Gender equality and Women’s empowerment through a two-pronged strategy i) Specific interventions in support of Gender Equality and Women’s Empowerment (CPD Outcome 4) and ii) Mainstreaming GEWE outputs and indicators under Outcomes 1, 2 and 3 of the CPD. Within the three years of implementation, the project team has accumulated experiences and documented significant achievements that need to be sustained and built upon and some challenges that require to be addressed. The team also learnt that the change process has to be clearly delineated in order to observe and monitor the change results and progression towards the desired change. Spurred by the dynamic situation in Somalia, emerging priorities prompted an update of the PRODOC to align to these strategic overarching priorities. Among these strategic documents are the Somali Compact including the Somaliland Special Arrangement and the then United Nations Somalia Integrated Strategic Framework (ISF).

In this vein, the GEWE team convened a series of consultative meetings for the project reformulation process with partners and the stakeholders, UN agencies and representatives from donor communities. The consultations were held in Garowe, Hargeisa and Mogadishu on 1st, 5th and 12th November 2014 respectively. The consultative meeting in Mogadishu was attended by representatives at federal level as well as members from the emerging states.

The consultations were highly participatory in nature and a facilitated rigorous process was used to critically review achievement of the project to date, highlight changes, and identify new priorities, entry points and key actors. Participants were led through stocktaking exercises where they reflected on the progress, achievements and challenges of the GEWE project to date. To achieve this, the project team presented gender-specific findings and recommendations of the Assessment of Development Results (ADR) exercise conducted in June 2014. After discussions on the ADR report, UNDP corporate strategic agenda for GEWE (2014 – 2017) was presented and aligned with national priorities. These presentations and ensuing discussions manifested strong linkages between UNDP corporate priorities on GEWE and national commitments such as the Compact and state-specific development plans. To facilitate ease of identification and prioritization of interventions needed to contribute to the outcome of ‘Somali Women and Men Attain Greater Gender Equality and are Empowered’, an introduction to the Theory of Change was deployed. The theory of changes was new to most of the participants but proved an indispensable planning tool according to most of them.

Below are the notes of the three consultative meetings with the list of participants and some pictures.

Garowe, November 1, 2014 The project reformulation involved partners, beneficiaries and key stakeholders, totalling 44 people. A brief analysis on the state of Women and Girls was deliberated upon from the general to specific aspects - community, family, market, state and interstate. The analysis revealed, women and girl’s socio-economic and political vulnerabilities. These included: GBV; FGM/C; Early marriages; male dominated traditions and institutions; illiteracy; gender stereotypes–as reflected in the roles, values, and identity women and girls possess–experiences of food insecurity; poor health; poverty, un-employment; low access and control over resources and property; low political representation. Over and above, women and Girls lack protection due to low/non-existent policy and legislation on GEWE to mitigate the gendered socio-economic and political discrimination, at the community, family, and market, state and inter-state contexts. Further, heightened by the clan ideologies and domination; low accountability on gender and women specific budgets; programs, measures such as research, sex/gender disaggregated data etc.

Based on the contextual analysis, participants identified, the most desired long term socio-economic and political outcomes to include: justice for women; gender sensitive laws and policies; women’s political participation; increased education opportunities, poverty reduction, eradication of FGM/C, GBV and early marriages; employment opportunities, reduced clan influence in public decision-making; democracy, peace and security; health and economic empowerment. Overall participants reached consensus on the most desired change for GEWE in Puntland for 2015-2017 as: 1) Increased participation of women in decision making; 2) measures to reduce GBV and FGM/C, 3) increasing economic opportunities and 4) adequate gender-specific legal and policy frameworks.

To achieve the long term outcomes, participants identified the needed change processes and complimentary actions. For change to happen, participants identified key role players for GEWE in Puntland as UN agencies; line Ministries, private sector and institutions; media, individual women and men, and youth.

Hargeisa, November 5, 2014 The consultation brought together 22 people from CSO partners, counterpart institutions and broader stakeholders. The representative of the main GEWE Project donor (DANIDA), Michael Thyge Poulsen, the head of the Hargeisa office was also in attendance. The consultation drew inspiration from the Somaliland Special Arrangement (SSA) of the Compact, national development plan and Somaliland national gender policy to identify area specific priorities and challenges.

By employing the theory of change, the team facilitated brainstorming of the contextual challenges perpetuating patriarchy and gender inequality in Somaliland, from individual, family, community, state to inter-state perspectives. In line with these, the desired change was envisioned. To sharpen the focus more, the most desirable change was identified with specific entry points and key actors. The exercise produced four concrete priority areas for intervention in Somaliland in the next three years as: 1) women’s political participation and representation 2) women’s economic empowerment; including education 3) prevention and response to SGBV and other harmful practices; and 4) gender-specific legal and policy frameworks. These areas of interventions (framed as outputs) provided a blueprint in identifying the change processes and actions which in turn produced the activities, indicators, assumptions, actors, and resources required.

Mogadishu, November 12, 2015 UNDP Deputy Country Director (Programmes), Mr. David Akopyan officially opened the event. He re-iterated UNDP’s commitment towards gender equality and women’s empowerment by stating that out of the UNDP’s four CO outcomes, one is specific for Gender Equality and Women Empowerment (GEWE). In addition, he observed that GEWE should be central to all development endeavours. He noted that we need to align our interventions with the new priorities of the Somali people; specifically the Compact and gave specific examples. He wished the consultation fruitful deliberations and expressed his anticipation of forward-looking recommendations to enrich UNDP’s work from a gender perspective, given the situation of women in Somalia.

GEWE project partners, Government counterparts, CSOs, Students, women lawyers associations and other stakeholder including UN agencies attended the consultation. A total of 34 persons were in attendance. The consultation objective–similar to other regions–was to reflect on the overall changes in the country context since 2012, discuss how the GEWE Project has contributed towards achieving gender equality and women’s empowerment and collectively identify the new priorities and issues to contribute to the development of the PRODOC for the next three years.

After lively discussions and group exercises informed by the theory of change process, participants envisioned the most desired changes for Somalia from a gender perspective and the change process that would mark the ensuing transformations. The most desired changes were prioritized bearing in mind the process and reforms at federal level and the issues and needs of the emerging states/administrations. The four key priorities identified were: 1) more women in decision making, 2) justice/legal/policy frameworks, 3) education and economic empowerment for women; and 4) eradication of FGM and SGBV

Participants, Garowe No. Name Location Organization E-mail Mobile 1. Minister Anisa Hajimumin Garowe MoWDAFA [email protected] 252907080370 2. Ladan Abdi Farah Garowe MoWDAFA 252907647144 3. Sunatr Sooyan Garowe MoWDAFA 252907828873 4. Adna Ali Ahmed Isuduwe MoWDAFA 252907449189 5. Sahra Said Mohamed Isuduwe MoWDAFA [email protected] 6. Xaawo Jaamac More Golsool MoWDAFA 252 907364827 7. Deefo Warsame Abdi Galikayo MoWDAFA 252907769716 8. Luul Jamac Aw-Nuur Garowe MoWDAFA 252907796842 9. Hawo Ali Kaar Garowe MoWDAFA 252907718254 10. Amin Ahmed Mohamed Galikayo TAGF [email protected] 11. Hamdi Ahmed Said Garowe RDI [email protected] 252907796139 12. Sawado Hussen Garowe RDI [email protected] 252907796139 Mohamed 13. Mohamed Said Nuur Garowe RDI [email protected] 14. Ayeen Ahmed Mohamed Isuduwe Haylaan 252 907735158 15. Deefo Yususf Eid Bosaso WAWA 252907796674

16. Hawa Yusuf Ahmed Galikayo GECPD [email protected] 252907791149 17. Faduma Diriye Nur Garowe SAMOFAL [email protected] 252907797004 18. SamSam Ali Ateye Garowe 252907003325 19. Saudo Hussen Mohamed Garowe 252907744022 20. Gasro Gaan Cali Sool 252907771801 21. Nasra Irbad Sool Garowe 252907745350 22. Abdirizak B. Mohamed FAWESOM [email protected] 252907794383 23. Amina Mohamed Yusuf Garowe YESO 24. Kowther Yasin Abdi Garowe Dayeel 252907739102 25. Hawo Mohamed Muse Garowe GRT 252907720321 26. Khadro Mohamed Ahmed Garowe TASS 252907796842 27. Nima Abdrizak Garowe MOPIC 252907829955 28. Mohamed Ali Isse Bossaso MOPIC 252907729473 29. Saalah Mohamed GARDFU PDA 252907668364 30. Mohamed Jelle Dubow Garowe PUNCHAD 252907555968 31. Suleikha Hassan Garowe TIDES 252907315947 32. Ali Farah Samator Garowe TIDES [email protected] 252907795486 33. Halumo Mohamed Kaorax Garowe Palups 252907740479 34. Suliman Said Nor Molceh Garowe 252907709331 35. Mahamed Osman Bosaso Bossaso 252907592061 36. Saadumo A. Mohamed Garowe MOPIC 252907761577 37. Mohamed Aden Jama Sanag SSDO 252907946209 38. Saleban Ali Isse Alula SDDO 39. Farah Omar Abdi Bosaso YESO 40. Catherine Nyakato Garowe UNDP [email protected] 252907824184 41. Marcus Tan de Bibiana Garowe UNDP [email protected] 252907020431 42. Sayed Sahibzada Garowe UNDP [email protected] 252907794366 43. Victoria Nwogu Mogadishu UNDP [email protected] 252907949794 44. Hamza Abbas Garowe UNDP [email protected] 252907791875

Participants, Hargeisa No Name Organization Title Mobile 1. Abdiaziz Saed Salah YOVENCO Executive Director 063444603 2. Khadar Ahmed Dirie Ministry of Justice Director general 0634240555 3. Halimo ahmed YOVENCO CCE facilitator 0634447070 4. Jama Mohamed Askar MOLSA Technical advisor 0634848440 5. Harun yusuf NAGAAD Programme coordinator 0634426935 6. Victoria Nwogu UNDP Gender Specialist 0634819448 7. Stephen Kinloch UNDP Head of office 0634000294 8. Shukri harir Ismail MOLSA Vice minster 0634428779 9. Michael Thyge DANIDA Head of Office 0634000437 10. Amina Mohamoud Warsame NAFIS Chairperson 0634090828 11. Abdirahman Osman Gas NAFIS Executive Director 0624000692 12. Amina Mohamed Rodol NAFIS Programme manager 0634427559 13. Amren Ibrahim Yasin UNDP Programme specialist 0634425707 14. Fardawsa obsiye MOLSA Gender officer 0634869330 15. Muna Esse Mohamed MOLSA Gender officer 0633440700 16. Faysal ahmed NAGAAD Project manager 06334470192 17. Sahra Osman Muse SOWLA Lawyer 0634110168 18. Awale Moahmed Muse MOLSA Director of planning 06334424550 19. Naima Hussein Daud MOLSA Family unit/ dispute 0634480548 20. Luul Aden Gedi MOLSA Head of Gender Unit 0644460607 21. Umalkhyr Jama MNP&D Gender officer 06389475 22. Asha Abdi Robleh BAAHI-KOOB center Executive director 0634793972

Participants, Mogadishu 29

No. Name Institution Title 1. Mohamed Omar Nor Ministry of Women and Human Right Development Director General 2. Berlin M. Ali Ministry of Women and Human Right Development Legal advisor 3. Muna Ali Abdullahi UNICEF GBV Officer 4. Amina Nur Abdinor UNWomen Gender NPO 5. Paola Foschiatto UNWomen Gender PM 6. Mohamud Mohyadin Afrah Ministry of Justice Charger 7. Mohamed Haji Ministry of Religion & Endowment Director 8. Zaynab Mohamed Hassan Ministry of Higher Education Project Director 9. Hawa Hassan Mohamud Ministry of Education GBV advisor 10. Dr. Keif Hersi Kheyre Ministry of Health GBV/CS officer 11. Maryam Mohamed Omar Ministry of Planning Head coordinator 12. Fatima abdi mohamed TARDO Gender manage 13. Issa shidey HDC Project manager 14. Maryam taqal Hassan SWDC Community Mobilizer 15. Zahra mohmaed Ahmed SWDC Legal Advisor 16. Nadiya sufi Abdi SWDC Program coordinator 17. Abukar Mohamed Jimcale HINNA Program Manager 18. Fatima ibraahim SSWC GBV coordinator 19. Hinda Ahmed Farah SSWC Acting Chair person 20. Hani mohmed Hussien JUMBO Secretary 21. Hawa Mohamed Elimi JUMBO Supervisor 22. Leyla Abukar Ibrahim UGASO Manager 23. Fatima Hassan Mohmed UGASO Secretary 24. Asha Abukar omar AAWDO Project assistant 25. A/karim Mohamed Sharif AAWDO Executive Director 26. Sacdiaya mohamed Elmi CERWOD Project Manager 27. Halima ismacil Ibrahim SWLI Coordinator 28. Duniya ali mohmed COGWO Chair person 29. Khadija Abdullahi COGWO Vice chair person 30. Ruqiya ali Abdullahi SOWDAN Char person 31. David Akopyan UNDP Deputy CD 32. Victoria Nwogu UNDP GEWE project manager 33. Bihi Egeh UNDP NPO Hargeisa 34. Leila Daud UNDP NPO Mogadishu

Annex2: Pictures:

Annex3: sample of group work exercises