At the Coalface: Gender Responsive Local Government

AT THE COALFACE: GENDER RESPONSIVE LOCAL GOVERNMENT

Result statement

Nearly half (425 out of 970 councils) covering 26% of the population of ten SADC countries have joined the Centres of Excellence (COE) for Gender in Local Government. In mid-2015, 325 had developed costed gender action plans aligned to the SADC Protocol on Gender and Development to ensure gender responsive budgeting and governance within councils and communities. The Gender and Local Government Score Card comprises 25 questions used each year to measure the gender responsiveness of local government COEs, with more stringent evidence requirements during the 2014/2015 verification. Overall, since the project began the score has increased from 54% to 65% - an eleven percentage point increase. Councils contributed 71% to COE costs, showing buy-in for the process. The South Africa council of Capricorn, twice winner of the best Centre of Excellence (COE) for Gender in Local Government, provides a close up example of how the SADC Gender Protocol has been used to inform every aspect of the council’s planning and service delivery. Context and Theory of Change

Southern Africa must confront a myriad of challenges as it attempts to address the needs and aspirations of its 100 million people, 40% of whom live in extreme poverty with per capita incomes ranging from $256 per annum in Zimbabwe to $5099 in Mauritius. The greatest challenge of the Southern Africa Development Community (SADC) continues to be the need to build a life for its people free from poverty, disease, human rights abuses, gender inequality and environmental degradation. The majority of those affected by these conditions are women. Across the globe, there is a consensus that gender equality is integral to economic growth and poverty eradication.

1 Approaches, methods and tools

In its work on gender and governance, GL makes use of Thenjiwe Mtintso’s access- participation- transformation framework. Mtintso posits that for women to make a difference, they must first have access to decision-making positions from which they have been excluded through formal and informal barriers.

Globally, the only way in which woman have experienced a rapid increase in political participation is through special measures, including voluntary and legislated quotas. Mtintso argues that access alone is not enough. Women can be in decision-making positions but still be excluded as a result of not occupying leadership positions in those structures, capacity constraints, and or informal barriers that effectively still silence women. Measures therefore need to be taken to enhance women’s effective participation. Access and effective participation provide the basis for transformation or change. This is measured internally through changes in institutional culture, and externally through the services delivered. At a personal level change is measured through the increased agency of women, and changes in the attitudes of men.

In 2003, GL undertook the first comprehensive study of the impact of women in politics in Southern Africa. One of the key findings of “Ringing up the Changes, Gender in Politics in Southern Africa” was that local government is a sadly neglected area of the gender and governance discourse. Taking heed of this finding, GL conducted ground breaking research in 2006/2008, At the Coalface, Gender and Local Government. Having piloted five countries the study covered a total 10 countries Botswana, Lesotho, Madagascar, Mauritius, Mozambique, Namibia, South Africa, Swaziland, Zambia and Zimbabwe. The process: The COE process arose from the realisation that the only way to make a difference at the local level is to work at the coalface, council by council. GL identified ten councils in each of ten countries for the pilot phase of the COE’s. This began with six stages that expanded to ten stages as follows:

2 Stag Process Principles e 1 Meetings with Political support: Getting buy-in at decision-making management and level. political teams and adoption of COE process. 2 Undertaking a gender An evidence-based approach: Conducting a situation audit of the council. analysis that is council-specific and will help to address the needs of that council. 3 Mobilising meeting with Community mobilisation through SADC Gender council representatives Protocol village level workshops that familiarise and popularising the communities with the provisions of the sub-regional SADC protocol on instrument and empower them to hold their council’s Gender and accountable. Development. 4 Inception workshop. Action planning: Conducting council-specific gender 5 Action planning and action plan workshops that localise national and workshop district gender policies and action plans. 6 Adoption of the action Commitment: Getting councils to make a public plan. statement about their intentions with regard to the action plan. 7 Media, campaigning Capacity building through on-the-job training with skills. council officials and political leaders. Assisting 8 IT for advocacy. councils and communities to apply these new skills through running major campaigns, e.g. 365 Days to End Gender Violence; the 50/50 campaign etc. 9 Monitoring and Tracking: Administration of score cards and other evaluation monitoring and evaluation tools that can be used to measure change in the immediate, medium and long terms. 10 Summit Knowledge creation and dissemination: Working to gather and disseminate best practises, case studies, etc. that can be presented at the annual gender justice and local government summit.

Monitoring and evaluation: The M and E strategies in place allow for gathering and documenting evidence of change in every step. Key qualitative and quantitative data gathered over time is saved in a repository using the Epi –Info system which enables real-time data analysis to inform progress in reaching set targets. This information is vital for programme monitoring as well as addressing shortfall in implementation in time within implementation. The table below presents key monitoring and evaluation tools that guide the design, implementation and overall monitoring of the programme to ensure quality and the desired impact is achieved:

3 M and E for the COE programme ACTION What is involved By who When SADC Protocol pack Citizen score card and Country March every year – knowledge and knowledge quiz, SADC Manager, M and for country and citizen assessment Protocol E Officer regional of efficacy barometer (August) COE verification – Councils score Country Annually in March Gender Score Card themselves against 25 Manager, M and (GSC) institutional gender E Officer indicators and use these to benchmark progress Drivers of change Qualitative evidence of GL Knowledge Ongoing profiles; Changing impact at individual and Learning Lives Analysis level Manager; M and E Officer GBV indicators Local GBV level GL GBV Beginning and research – Gender prevalence and attitude indicators end of the Progress Score survey manager; programme (GPS) Country Manager Gathering and Annual district, country Governance March/April every disseminating best and regional summit manager, year practices country staff COE Learning Paper Summative paper on all Country May/June each the above Manager year

The experience of implementation

GL’s COE programme is demand driven with keen interest from councils in most of the countries GL works in to join the programme. GL’s outreach to about half the total number of councils in the ten countries has been made possible through “smart models” in cascading the COEs to all councils, while ensuring support for the existing COEs. The COEs cover vast areas and mostly all regions in countries, including all capital cities of the 10 target countries which include the Anglophone, Lusophone and Francophone regions of SADC.

4 NO OF % NO OF COUNCILS POPULATION OF POPULATION population COUNTRY COUNCIL GL IS THE COEs GL IS OF COUNTRY covered by S WORKING WORKING IN COE’s IN Mauritius 133 83 1 331 155 1 264 645 95% Lesotho 75 40 2 074 000 1 968 668 91% Botswana 37 31 2 040 000 1 531 418 75% Zimbabwe 92 34 14 599 325 7 298 207 50% Zambia 73 34 15 021 002 7 229 119 48% Swaziland 278 24 1 267 704 572 461 45% Namibia 65 36 2 198 406 624 028 28% Madagascar 119 67 22 293 851 4 975 717 22% Mozambique 45 19 25 833 752 4 903 447 19% South Africa 67 14 48 770 560 5 311 712 11% TOTAL 984 382 135 429 755 35 117 822 26%

The table shows that indirectly the COE councils covers a population of 35, 679, 422, approximately 26% of the population in the 10 countries of the SADC region where the COE programme is in operation. In three countries (Mauritius, Lesotho and Botswana), the COE’s now cover three quarters or more of the country. In Zimbabwe, Zambia and Swaziland, COE councils cover approximately half the population. There are four countries in which the COE’s constitute significantly less than half the population. These countries are large geographically and/ or have large populations. They are: Namibia, Madagascar, Mozambique and South Africa. The difference in reach achieved to date, along with local political factors, and different models for cascading piloted to date, have a significant bearing on the direction that the COE programme needs to take in each country going forward (see next steps).

Enhancing local capacity and ownership: In 2014, GL intensified efforts to cut costs and enhance local ownership through training Drivers of Change who consist of:  Gender Focal Points (GFP), within each Council, as well as in the provincial or district offices of local government associations; gender ministries and or local government ministries. For example in Lesotho, the gender ministry has made available its Principal District Gender Offices (PDGO) to work with GL in cascading the COE model across the country, on the basis that for every council GL works with, the PDGOs work with at least one council, using GL’s training, monitoring and evaluation framework. GFP within each council are expected to carry out the situation analysis, assist in administering the score card, and drive the process from within.  Gender Champions (GC), who have emerged from the first phase of COE work. These mainly consist of councillors who provide the political vision and guidance to the process. They are tasked with community mobilisation (stage

5 three), signing the statement of commitment (stage six) and generally ensuring the process remains on course. Working with governments: Following a partnership with the Ministry of Gender, in Lesotho, GL conducted a TOT where 10 of the ministry’s provincial district gender officer were trained on facilitating the COE process. The workshop was held in June 2012 and the cascading was started in September. GL provided the training material, laptops and data cards for the officers. The officers started with facilitating stage 3 of the COE process but now have extended to cover stages 2 and 4 of the COE process with co-facilitation of the stage 5. Through this model, GL has been able to cover an additional 10 COEs bringing the 2013 target to 20.

In August 2012, GL held a training of trainers with regional gender coordinators from the Ministry of Gender in Namibia. The coordinators were also accompanied by the trainer from the ministry. The coordinators and trainers have been accompanying GL to the COE workshops ever since. In February 2013, GL signed an MOU with AMICAALL Namibia. This MOU has paved way for GL to co-facilitate some of the COE workshops with AMICAALL representatives with both parties sharing materials and responsibilities. A draft MOU will be tabled with the Ministry of Gender to finalise the training arrangement. This will enable GL and its partners to cover at least 15 COEs in Namibia. GL held a follow up TOT in Namibia towards the end of 2014, following the ending of the NEPAD grant, and in effort to sustain the COE work in Namibia with the support of the Ministry of Gender and Child Development.

Working with partners: GL has succeeded in working closely with local government associations of each country where the relationship has been cemented with MOUs. GL has MOUs with 10 local government associations and machineries and key Gender Ministries in seven countries. The COE process has resulted in high level political support across ministries and political parties, as reflected in the high level attendance at the District level and national summits. After winning at the regional summit in Johannesburg in 2011, all members of the Malagasy delegation decided to create an association called "Association of Elected Gender Responsive - AESG". The association is now formal and has the general objective to popularize the gender approach in all localities in Madagascar. The members believe that they cannot talk about development without the equal participation of men and women. Members of the associations are mayors, councilors, representatives of the Ministry of Population and Social Affairs and also the Ministry of Decentralisation and various technicians.

6 GLs Emerging Cascading Models for Local Government COE work % Trainin Working Twinning Worked Av Councils g GFP Government and hubs through Gender joined / Local Gvt partners and Local COEs Associations Gvt Score Small countries/ population, all councils covered; need backstopping Botswana 100% X X 77% Lesotho 67% X X 63% Mauritius 62% X 80% Swaziland 100% X About half the councils covered, scope to expand, but also consolidate Zambia 60% X X 68% Namibia 55% X X X 55% Zimbabwe 48% X X X 64% Huge countries, low coverage, need new approaches to breadth and depth Madagascar 56% X X X 68% Mozambique 44% X X X 59% S Africa 9% X X 71% Political prospects Malawi New; previously worked through Alliance partner in X To lobbying and advocacy for women’s rights. establish baseline DRC New; previously worked through Alliance partner in X To lobbying and advocacy for women’s rights. establish baseline

The table above shows GL’s categorisation of the ten countries according to the proportion of councils now covered, as well as the different methods that have been piloted for rolling out and strengthening the work. The table also shows the key models used to cascade, strengthen and ensure the sustainability of the COE programme with the latest average institutional scores councils gained during verification in April 2015. As seen above, in all countries, gender focal persons and champions, or Drivers of Change within the councils are key to enhance in-house buy-in support and ownership.

The table reflects the fact that most countries are collaborating with government ministries and local government associations, a model pioneered in Lesotho and rolled out through peer learning and sharing between country managers. Namibia and Zimbabwe are piloting twinning models, where larger town councils support village councils. Following local elections held for the first time in Malawi last year, GL has been approached by the gender ministry there to implement its COE model through the NGO Gender Coordinating Council, GL’s Alliance partner, presenting another innovative way of creating multiplier effects.

7 8 Long term impact

Putting gender on the local government agenda: The COE programme has singularly put gender on the agenda of local government in Southern Africa, and is localising the targets of the Southern African Gender Protocol through the local-level gender action plans. When GL began research on gender and local government, the region had no figures or database on women’s representation and participation in this critical sphere of governance. Now these figures are known, canvassed and used for advocacy.

% women % women in in local COUNTRY Variance local government government in COE Madagascar 6% 15% 9% Lesotho 41% 45% 4% South Africa 38% 42% 4% Zambia 6% 9.07% 3% Botswana 18% 20% 2% Zimbabwe 16% 18% 2% Mauritius 24% 24% 0% Swaziland 12% 12% 0% Mozambique 38% 28% -10% Namibia 42% 29% -13% TOTAL 23% 25% 2% Women’s representation in local government:

The adjacent table shows women’s representation in local government overall as well as in the COEs. The table shows that the highest variance between women’s representation in COE’s and overall is in Madagascar (9%). In two out of the ten countries covered (Mozambique and Namibia) there is a lower proportion of women in COEs than overall.

These figures reinforce GL’s conclusion that the only way to increase women’s political representation, both at national and local level, is through legislated quotas. GL’s work in Lesotho contributed to the modification and retention of the quota for women in local government in 2011. In Mauritius, GL is credited with the advocacy that led to a quota for women in local government in the 2012 elections, necessitating a constitutional amendment that also makes way for Mauritius to sign the Protocol. In 2014, GL documented how a combination of special measures, lobbying and advocacy contributed to increasing women’s representation in local government in Lesotho and Mauritius and how failure to do so affected outcomes in Zimbabwe.

GL produced a 50/50 policy brief: “Women in politics in Southern Africa”i analysing different special measures in the region to increase women’s political representation. The study visit prizes that GL organised after last year’s SADC Protocol@Work

9 summit included Madagascar winners going to Mauritius to learn about the quota that led to a fourfold increase (to 30%) of women in local government in the December 2012 elections. A key focus of GL’s is to lobby for legislated quotas in at least ten SADC countries using the highly successful Mauritius campaign as a springboard. In 2015, local government and electoral officials from Zimbabwe went on a study visit to Mauritius and have made a submission on a quota for women in local government in the 2018 Zimbabwean elections. In the meanwhile, individual councils have taken up the 50/50 campaign.

10 Zimbabwe: Ruwa City Council raises 50:50 awareness

Ruwa Local Board has embraced the 50-50 gender concept. Through the council’s employment strategies, Ruwa council is amongst the few which is under the leadership of a woman. The council also boasts female Heads of Sections up to Heads of Departments. The council’s 50:50 campaign objectives are to:  Increase council’s level of awareness 50/50 gender balance and to make sure there is a gender policy in council and it is implemented.  To increase the representation of women councillors in the next elections.  To ensure equal representation of women in leadership position in the council.  T o educate communities and raise awareness about the importance of women’s equal representation in local councils.  To empower women councillors to advocate for gender equality.  To empower men on gender issues and mobilise their support. The council partnered with organizations like Zimbabwe Integrated Youth Survival Alternative (ZIYASP) Programme Trust, Ministry of Women Affairs, Gender and Community Development in the 50/50 gender awareness campaigns march held on 5 March 2015. The march was comprised of Ward Representatives, Teachers, Police, School children, Informal Sector which included vendors, home industrialists, business community, Councillors and Council employees. Both men and women were encouraged to report any violence to the Police. Each group gave advice on what role they play to the community in the 50/50 Gender Awareness Campaign. Gender Focal persons from Goromonzi Rural District Council and Chitungwiza Town Council witnessed the occasion. The council budgeted $5000 for this awareness campaign. The council is encouraging equal participation of both men and women during its public meetings, budget consultative meetings and awareness campaigns. During the meetings, ensures priority to issues to do with women especially on water and waste management. Excerpt from the 50:50 case study presented by Ruwa City Council, June 2015 Zimbabwe Summit

Empowering women candidates is one part of three parallel strategies: empowering women candidates; working with political parties on voluntary quotas and lobbying for legislated quotas. One of the participants in the Ongwediva Women in Politics workshop in Namibia had this to say: “The Women in Politics training offers women a unique opportunity of gaining knowledge and critical skills as well as networking.” However, to achieve long lasting effects, there need to be follow up sessions where to build on the knowledge acquired by the participant and to strengthen the emerging networks. It is not enough to have training only before elections.

If the 50/50 target of equal representation of women and men in politics is be achieved interventions like this needs to be continuous. Although training and capacity building for female politicians can have a big impact on individual women, it is also necessary that interventions be directed to the political parties in order to change structures and cultures that are holding women back in the organisation. A possible continuation of Women in Politics is a training programme for political

11 parties to become “gender certified”, looking over everything in the organisation that could be a hindrance to women’s advancement as well as stereotypical practices, assumption and expectations that influence both and women to reach their full potential. The stories of successful women candidates confirm that having these Drivers of Change as change agents in councils is critical:

Women councillors drive change in their councils Nirmala Mohur, District Councillor of Grand Port, Mauritius, is now among the three women who sit on a previously all-male Council. Trained by GL for the elections, she also presented a paper at the national summit on Legal and Constitutional Rights. “I make sure that my community understands that men and women should be treated the same and have the same opportunity in all spheres of society including treatment in the house.” She does not miss the opportunity to talk about talking on the low representation of women in politics and wants to make sure that the SADC Protocol is implemented on gender and governance so that by the next local elections in 2018 there are even more women councillors. “Meeting Gender Links has been a blessing for me,” she says. “I never thought that politics was made for me but all the training I got for Gender Links prepared me to stand as candidate. And when I was asked to be a candidate at the village elections in 2012 I immediately accepted as I was confident in running a campaign and talking in public meetings.”

Manoosi Khetsi is currently a councillor and the chairperson of the council in Lesotho. She has inspired many people in her village with the work she has been doing as a woman. Women look up to her for the good work she is doing as a woman leader. There have always been challenges of cultural beliefs of the village, but she is able to lead discussions as women. Bit by bit, she has been able to change the altitudes of men towards care work, and now they begin to become involved in care work. She has inspired other women to take part in politics. More conflicts are now resolved at village level with the help of local leaders. She has encouraged women to participate in economic development at the village level by forming women farmers' associations in order to produce marketable agricultural commodities. As a result, the majority of women are now able to support their families through the small projects that she has started. She has also demonstrated her leadership role by empowering women with knowledge about their property rights. Property dispossession takes place in Lesotho under both customary Law and common law, which did not previously support or recognise women at all. The law has now been amended, and Khetsi attended a workshop which was held by Women and Law in Southern Africa (WLSA) about the amended property dispossession law. She is now holding public gatherings on property rights in Lesotho, making women aware of amendments to the law that now recognise women.

12 “ I have now been challenged,” says Edna Ntshangase, Deputy Mayor of the_Mlolozi municipality in KwaZulu Natal, South Africa. “As a deputy mayor, it is now my responsibility to use everything I have learned in such a short space of time with Gender Links. I never would have known how the budget we use in the council benefits women in the fields. Gender Links comes to us and helps us understand the Protocol, so we can all plan our work, our budgets, and our priorities in an effective way.” “As a gender champion so many changes have happened at a personal level and at the council that I must give credit to Gender Links,” adds Lucia Mujoka, Grootfontein Council, Namibia. “I have learnt that information sharing is very important in championing gender equality. I have been put on the political map of Grootfontein council. Now I confidently bring issues of gender in our various discussions as a council.” Joyce Ntenga, a councillor in Lusaka, Zambia, is one of the ten-member development Ward Committee. This committee oversees gender- responsive development from the community to the local authority where she is an ex-officio member. In 2011 before the nomination day, a demonstration opposed her as a woman standing as Councillor. She got support from her party to stand as a councillor despite threats from community members. Ntenga has trained 200 community leaders on HIV/AIDS awareness. She has facilitated women empowerment projects supported by her council and the International Labour Organisation. Excerpt from leadership case study of Councillor Joyce Ntenga Banda, Lusaka Town Council, 2015

Gender responsive governance

GL uses the Gender Score Card (GSC) comprising 25 questions on gender in councils to measure the degree of responsiveness to gender issues. Councils score themselves. The score is verified by an independent panel of judges at summits. The score card has been administered annually since 2012, and disaggregated by council and score for the benefit of the councils. Overall, since the project began the score has increased from 54% to 65% - an eleven percentage point increase.

Botswana: Chobe Council walks the talk of gender equality

With a score of 70%, Chobe District is a leading COE, supporting survivors of gender violence to become entrepreneurs. The council has a gender committee which oversees the implementation of the gender action plan. Since the implementation of open days and market days the community feels free to come in and ask for services from the council with confidence because they have knowledge of the services available to them. Through the GBV campaigns and awareness activities people have been enlightened on the other aspects of GBV that they were not aware of.

13 As a COE, Chobe District Council is empowering women in the workplace by recruiting women in previously male-dominated jobs for example firemen, electrical engineers, mechanics, architects and builders. Job adverts for traditionally male dominated posts carry the rider: ”Position not reserved for men only. Women are particularly encouraged to apply.” The COE is currently reserving a certain proportion of land title within its domain for women. Chobe ensures sustainability of gender equality through training of departmental focal persons on gender mainstreaming as well as continued reporting to keep the management at par with gender events in the district as well as internationally. Excerpt from Chobe Council case study, presented at the Botswana summit 2015

Service delivery

Source: Protocol Summit reports, 2015 COEs submitted 191 best practices in gender mainstreaming through service delivery during the 2015 summits Gender specific projects emerging from the COEs include adequate provision of water, improving health care access to women, reducing GBV through safety and awareness campaigns, climate change mitigation through education and greening projects. Although the councils still have challenges in funding gender mainstreaming, they have come up with innovative ways of streamlining activities within service delivery.

No to GBV At least half of the COEs have been involved in the Sixteen Days of Activism campaigns with some COEs taking part every year. The COEs collaborate with the community and institutions that work to fight GBV and HIV and AIDS. The campaign has become a platform for dialogue between policy makers and the community. With some members of the community now able to use IT for advocacy during the Sixteen Days campaigns, networking has become stronger and accountability aspects more visible for local government. The most important outcome of the campaign is the community being able to articulate their stories and concerns on violence against women. Intertwined with Human Rights Day and World AIDS Day, the Sixteen Days has become a series of events that leave the community with tangible evidence of the councils’ commitments to create safer environments and to end GBV.

SADC Protocol@work Botswana: Lobatse works with police to end GBV

14 Lobatse Town Council has partnered with the Botswana Police Service to reduce Gender Based Violence (GBV) in the locality. The partnership provides confidential support to victims of GBV by having focal persons at the police station trained on GBV matters. Institutions such as churches, schools, institutions, clinics, hospitals teach and sensitise people about GBV with help of police services. The community was encouraged to report any form of GBV to the police.

The local police stations now have a secluded and private office with police counsellors who deal with GBV cases directly. A front desk officer deployed at the reception, has an officer trained in GBV issues who is also the first point of contact for all GBV victims. The police stations are working with the council to improve record keeping of all the GBV cases Support services include therapy sessions and counselling. Some instances involve referrals to local psychologists especially in cases whereby the victim has gone through the most traumatic violence. Follow up visits and calls by the police station’s GBV unit ensure continuous support to survivors. The GBV campaign has really promoted partnerships between the town council, police and local businesses. Excerpt from the Protocol@work case study submitted by Lobatse Police station; SADC Protocol@Work Summit 2015

Economic empowerment leads the way: The importance of local economic development is apparent in many COEs, and is reflected in action plans which highlight gender equality in procurement strategies, for example. In some COEs such as Masvingo, women have been linked to microfinance through the New Development Fund. This has enabled women to access small to medium business opportunities in the municipality. Grand Port, Mauritius is supporting women in business by giving entrepreneurship courses free of charge to interested women. Mossel Bay has launched a Recycle Swop Shop, pictured to the right, is run by the community, for the community. Recyclable items are collected, and exchanged for household essentials and school supplies. LED in Action -

15 Witzenberg in the Western Cape is a farming region with seasonal work opportunities. The situation analysis or gender audit conducted as part of the COE process showed that during the low seasonal work periods women suffer most from unemployment. The development of the LED strategy within the Council ensured a focus on creating economic opportunities for women, through the Integrated Development Plan. This identified women as the main beneficiaries of small and emerging businesses within the region. The council developed a database of unemployed women identified as beneficiaries’ of job opportunities through the Extended Public Works Programme (EPWP), which allowed women to be part of income generating projects. The Small Medium, Micro Enterprise Training (SMME) also ensured that small emerging businesses led by women were trained through the Community Works Programme (CWP) and the Department of Economic Affairs, to gain skills on how to operate and manage emerging business, whilst also creating employment opportunities for other women. Climate Change: The COEs as the sector that experiences the climate change effects first-hand have taken steps in dealing with climate change innovatively. Tree planting as part of greening the councils and reducing global warming is now a planned event in most councils. This is coupled with cleaning up the localities as part of environment management practices. The city of Harare for example has taken a step further by training female refuse truck drivers to be part of the waste management systems. Selebi Phikwe is integrating climate change into their Gender Action plan, by including vegetable gardens and other climate friendly activities in their budget for gender. 9 women and one disabled man work at the garden pictured. All of the women have quit receiving food parcels earmarked for destitute members of the community. Not only are they growing enough produce for household consumption, they are making a profit by selling excess produce. Concerted council efforts have been implored in most councils to combine projects such as recycling with empowerment. In Victoria Falls, the council has allocated land to SMEs particularly women in community based organisations. Individual SMEs have been allocated land by Council for business projects. In addition members of the community benefit through income to be earned from sales of waste plastic and beverage cans. A winner in both the 2013 and 2014 summits, the COE of Grand Port, Mauritius has committed to planting 5000 trees in 2014, in conjunction with a campaign on keeping a clean environment. The Council is providing tree cuttings and nursed plants to community members and councillors to plant, and even organising planting competitions. This non-traditional role of women has boosted the city’s gender

16 mainstreaming approaches whilst clearly benefiting the community by providing these services.

Capricorn council an all- rounder on gender

“My goodness where does one even begin to describe the relationship that Capricorn District Municipality (CDM) and Gender Links (GL) have forged all these years?” asks CDM Gender Focal Person Naledi Masipa. For two years running, the Council has won the award for best gender and local government COE across the SADC region. From a baseline Gender Score Card (GSC) score of 75% in 2010, Capricorn progressed to 96% in 2012 – the highest COE score during the verification; well above the regional COE average of 63%.

“Well, our journey as (CDM) with Gender Links started at the first Gender Justice and Local Government after we had seen the application calls online. I do not think we had any idea of the process and the wonderful journey we were about to embark upon with GL. The council did not have a gender action plan. The council had also not had any gender mainstreaming workshop before. GL facilitated the process, and I know that after the workshops and also the continuous support we received from GL a lot of things started to function effectively within the council,” Masipa reflects.

The council has completed all ten stages of the COE process and adopted a mentoring role to the two other local councils of the council- Aganang and Polokwane. The district council has encouraged local municipalities to keep gender disaggregated data. The Integrated Development Plan (IDP) has also become more gender sensitive. Special efforts are now made to ensure that women attend these consultations.

The council developed its gender action plan in 2011, when South Africa held its last local government elections. Women constitute 47% of the councillors and half the managers and members of the mayoral committees. The council has established a women’s caucus to ensure that service delivery includes women. Overall, women comprise 38% of council employees. HR policies on recruitment include affirmative action. Other HR policies include sexual harassment, bereavement policy, staff development and wellness.

There is a stand-alone GBV action plan spearheaded by the community including faith based groups. The council has victim support centres. The public participate actively in Take back the Night campaigns held during the Sixteen Days of Activism.

Local economic development is supported by a strategy paper prioritising youth and women. The councils has held several investor conferences to boost Local Economic Development (LED). The council supports this with training women entrepreneurs to the tune of R310,000 (EURO 19,498) per annum. The council procurement policy uses a scoring system that gives preference points to disadvantaged groups

17 including women based on an established formula. The scoring system is supported by a procurement policy which encourages women to participate in the tendering process. The whole supply chain management system is closely monitored and audited regularly. Between 2012 and 2013, the Council issued 64 out of 145 contracts to women. 3157 women have benefited over the years from local projects.

The council uses the environmental management plan developed for all municipalities and has cascaded this to smaller councils such as Aganang municipality to conduct waste management on their own. Capricorn ensures that women benefit equally in land and housing ownership through a financial support scheme. Water and sanitation is heavily supported by a budget and infrastructure, which incorporates job creation for women and youth.

Women are involved in water and sanitation and this is monitored through sex- disaggregated data. The council encourages women to apply for bursaries in various areas of service delivery. The council has a draft HIV/AIDS policy and an operational plan for response. The council has home based care centres. For recreation, the council has upgraded two stadiums and a community hall where the public actively participated.

The training budget for councillors and officials includes gender. A gender forum, which meets regularly, oversees the gender mainstreaming efforts. Capricorn has mobilised the community and Community Based Organisations around the SADC Gender Protocol.

“In July 2012 I attended a Gender Links workshop which was being hosted by Polokwane Local Municipality,” recalls Jane Dimakatso Bambo of the Kuseleka VEP Centre. “This is where I learned about the SADC Gender protocol and the different targets and thematic areas. Now I have a much broader perspective about my work. I realise that it is not just about the Centre anymore or even Polokwane, but about Southern Africa.” In 2014, Capricorn organised its own SADC Protocol@Work summit, and invited neighboring councils to attend, reflecting the extent of local ownership for the COE processes.

Challenging homophobia at the local level

GL recognises that gender intersects with multiple aspects of people’s identities including race, sexuality, class and ability. To advance women’s rights and gender equality, strategies must take into account other forms of inequality. Discrimination and violence perpetrated on the basis of sexual orientation and gender identity, fuels GBV and hinders women’s rights and equality. Thus, Lesbian, Gay, Bisexual, Transgender, Intersex, Asexual (LGBTIA) equality is connected to gender equality. Last year witnessed a rise in state-sponsored homophobia and transphobia as well as homophobic legislation across the world. GL produced a policy briefiito examine

18 the situation in Southern Africa, where attitudes remain mixed and legislation varies between countries. It delves into the history of homophobic legislation, and looks at the factors driving prejudiced attitudes in the region. The brief offers recommendations for protecting LGBTIA rights, in order to advance gender equality.

Gender Links convened three workshops with four councils in Namibia – Windhoek, Walvis bay, Swakopmund to pilot the campaign on LGBTI rights with local government partners in Namibia because this is a country with a vibrant civil society and open democratic traditions that allow space for debate and discussion.

The aim of the workshops was to gather “I” stories or personal accounts of violence and/or discrimination experienced by LGBTIAQ people and to sensitise councillors about LGBTIAQ issues. Councils were encouraged to review the local Gender Based Violence (GBV) action plans towards strengthening the response, support and prevention strategies for GBV and discrimination levelled against people on the basis of their gender identity, sexual orientation and expression. These pioneering workshops reflected an openness to engage with the issues at the local level.

The current SADC Gender Protocol makes no mention of sexual orientation and gender identity. Although most member states (with the notable exception of South Africa) criminalise homosexuality some softening of the ground is evident.

At the 2013 SADC Gender Minister’s meeting in Maputo, Emma Kaliya, an NGO activist from Malawi, and chair of the SGP Alliance appealed to Minsters to respect the rights of all marginalised groups including LGBTIA. Malawi has demonstrated willingness to decriminalise homosexuality. In late April 2014 the African Commission on Human and Peoples’ Rights (ACHPR) adopted a resolution condemning violence against LGBTIA people— the first time an African human rights body has advocated that LGBTI people be protected under human rights law.

At the post-2015 Alliance meeting held at the 2014 SADC Protcol@Work Summit, LGBTIA rights created division and heated debate. GL continues to ensure this discussion is included on all agendas. GL has also updated Theory of Change (ToC) and added questions on LGBTIA to its Gender Progress Scorecard.

19 Strength of evidence – Self scoring = 88% Principle Criteria Comments / evidence Score 1) Voice and 1a. Are the perspectives of the most The programme is centred on 9/ 10 Inclusion excluded and marginalised groups the promotion of women’s We present included in the evidence? rights through local beneficiaries’ views on institutional strengthening of the effects of the local government. Gender intervention, and Links targets 60% men and identify who has been 40% women in the training affected and how workshops. Other marginalised groups such as the disable and people marginalised due to their sexual orientation and gender identity and expression (SOGI) are also focused on in providing an inclusive approach to programming. Some councils are still conservative in fully including other groups especially based on their sexual orientation and gender identity at community level. GL partners and works with all groups to advance gender equality. 1b. Are findings disaggregated according Administrative data is 8/ 10 to sex, disability and other relevant social captured during workshops. differences? However often participants do not fill some identifying data making it difficult to analyse for them. Total score for voice and inclusion: 17/ 20

20 Principle Criteria Comments / evidence Score 2) Appropriateness 2a. Are the data collection methods The programme is evidence 8/ 10 We use methods that relevant to the purpose of the enquiry based. In-depth research, are justifiable given the and do they generate reliable data? findings and nature of the recommendations inform intervention and programme design and purpose of the implementation. This also assessment informs the target groups. The use of both qualitative and quantitative data collection tools such as the Gender progress Score, Local Government Score Card, Drivers of Change Case Study templates and Workshop Evaluation forms enables a comprehensive monitoring and evaluation system. These have provided useful baseline and follow-up data for strengthening implementation and programme design. 2b. Are the data analysed in a systematic GL has used statistical 8 / 10 way that leads to convincing conclusions? methods and software to analyse data as appropriate. Gender Links generates reliable data that is scientifically analysed using data analysis tools with configured reports. Such systems and tools used include Epi Info, the Gender progress Score (attitudes survey), Statistical package for Social Sciences (SPSS). Total score for appropriateness: 16/ 20

21 Principle Criteria Comments / evidence Score 3) Triangulation 3a. Are different data collection GL has employed both 9 / 10 We make conclusions methodologies used and different types of quantitative and qualitative about the intervention’s data collected? methods of research as effects by using a mix appropriate to the objectives of methods, data of the investigation sources, and 3b. Are the perspectives of different GL engages different 9 / 10 perspectives stakeholders compared and analysed in stakeholders including, local establishing if and how change has government elected and occurred? administrative officials, policy makers, national government officials and gender machineries, other civil society organisations in determining issues that need to be addressed and programme implementation. This is also achieved through regular stakeholder meetings. Such meetings are also used in ensuring collaboration on specific gender issues through campaigns. This has enabled a nuanced approached to promoting gender equality within local government and in communities. Total score for triangulation: 19 / 20 4) Contribution 4a. Is a point of comparison used to GL established institutional 9/ 10 We can show how show that change has happened (eg. a baselines in all the COEs and change happened and baseline, a counterfactual, comparison upon engagement and these explain how we with a similar group)? are tracked during verification contributed to it each year. As part of stage 2 the local government institutional scorecards are used to determine baselines

22 Principle Criteria Comments / evidence Score and these are implemented annually to track progress. The gender progress score is used to track attitudinal changes within the councils and communities towards gender issues and equality between men and women. The SADC Protocol Gender Barometer is published on an annual basis to monitor progress in women’s representation locally, nationally and in the region. 4b. Is the explanation of how the GL holds annual verification of 9 / 10 intervention contributes to change the COEs and engages with explored? communities to determine improvements or challenges towards achieving different aspects of gender equality, women’s decision making, improvements in service delivery and women’s safety and security within communities. Drivers of change case studies from community beneficiaries are also gathered to objectively explore the change by the interventions. Social change is affected by patriarchal, cultural beliefs and individual perceptions hence can deter progress towards gender equality and mainstreaming.

23 Principle Criteria Comments / evidence Score Total score for contribution: 18/ 20 5) Transparency 5a. Is it clear who has collected and GL staff collect data and they 9 / 10 We are open about the analysed the data, and is any potential are governed by a code of data sources and bias they may have explained and ethics. Report authors are methods used, the justified? indicated in each report to results achieved, and ensure there is accountability. the strengths and Actual forms administered are limitations of the submitted for quality checking evidence to ensure data inputted in systems is accurate. 5b. Is there a clear logical link between GL uses the findings to 9 / 10 the conclusions presented and the data construct conclusions and collected? recommendations that inform models of cascading the COE programme, lobbying and advocacy for women’s representation in all tiers of government and also in strengthening programme implementation. Total score for transparency: 18 / 20 88/100

24 Value for money analysis

Economy and efficiency

Beneficiary unit cost analysis -2014 Total cost EURO 8, 069, 762 Direct beneficiaries 14 105 EURO 572 Indirect beneficiaries 35 117 822 EURO EURO 0.22

The COE programme is one of GL’s most economic and efficient because of its reach. In 2014, GL and the Councils (see below) invested a total of Euro 8,069, 762 in the COE process, with 14,105 direct beneficiaries, and 35,117,822 indirect beneficiaries. The cost per head per direct beneficiary was Euro 572; and per indirect beneficiary less than one euro.

Effectiveness

During the annual Gender Links District Level Summits, councils are asked to submit their entries with information on their contributions to gender specific budget allocations and gender mainstreamed projects. This budgetary information is backed by verifiable evidence around the kind of work that was enabled by their budget.

Local Government Contributions to Gender Mainstreaming in 2014 Country Gender Gender in In Kind Amount Total (Rand) specific mainstream Contributions Raised allocation projects

Botswana 921 864 11 819 637 718 728 137 533 13 597 762 Lesotho 170 400 3 114 176 391 000 61 685 3 737 261 Madagascar 413 958 343 754 338 921 373 360 1 469 993 Mauritius 244 253 683 599 1 711 729 1 033 160 3 672 741 Mozambique 727 558 560 005 32 - 1 287 595 Namibia 1 353 070 8 910 000 164 342 2 500 10 429 912 South Africa 1 058 750 150 000 10 000 - 1 218 750 Swaziland 264 000 7 229 220 540 900 700 000 8 734 120 Zambia 3 396 315 7 395 134 1 083 722 593 257 12 468 428 Zimbabwe 3 298 206 17 242 254 975 907 1 742 709 23 259 076 Total- R 11 848 374 57 447 779 5 935 281 4 644 204 79 875 638 Total – Euro 846 312 4 103 413 423 949 331 729 5 705 403 Percentage 15% 72% 7% 6% 100%

The table shows that in 2014 councils contributed €5,705,403 towards gender mainstreaming: 15% in gender-specific allocations; 72% in projects that have a strong gender mainstreaming component; 7% in in-kind contributions; and 6% as donations towards gender mainstreaming raised by the Councils.

25 AMOUNT AMOUNT GENDER MAINSTREAMING CONTRIBUTED IN CONTRIBUTED IN PERCENTAGE CONTRIBUTORS RANDS EURO CONTRIBUTED COEs 79 875 638 5 705 403 70.7% DFID PPA 485 191 33 461 0.4% NEPAD 2 220 333 153 126 1.9% FLOW 1 20 188 222 1 392 291 17.3% FLOW 2 4 892 949 337 445 4.2% CFLI 131 630 9 078 0.1% EU Lesotho 1 036 050 71 452 0.9% UN Women - FGE 1 204 312 83 056 1.0% SIDA Zimbabwe 2 094 040 144 417 1.8% EU Madagascar 1 057 430 72 926 0.9% DIALOGO - Mozambique 283 150 19 528 0.2% UNFPA - Botswana 689 905 47 580 0.6% Total other donors 33 798 021 2 330 898 28.9% Total 113 673 659 8 069 762 100.0%

The next table shows that COE’s contributed 71% of the total funds for the development and implementation of gender action plans in the Council, providing considerable leverage to donor funds that accounted for just 29% of the total. The contribution by councils creates multiplier effects and enhances agency. In order to encourage this trend, GL created a special award for the most resourceful COE (urban and rural) at the 2015 SADC Protocol@Work Summit.

Lessons learned  The limited capacity of councils means that flexibility is required in planning workshops as these are usually spearheaded by the gender focal persons.  Some councils performed poorly due to the huge gaps between resource access for rural and urban councils.  Councils have been reluctant to sign individual Statements of Commitments.GL has worked around this through MOU’s with the umbrella associations.  Women’s representation in local government COEs though marginally increased requires a holistic approach and mindset shift for not only political party leaders but for the entire electorate.  Highly contested political terrain especially during elections pose political and scheduling challenges.  The limited financial resources limit the extent to which councils can showcase the gender mainstreaming efforts as these are usually allocated small budgets.  There is still a gap in aligning national processes with the local actions in the case of constitution making, National action plan and various legislatures.  Getting more men involved still needs more efforts but GL has made strides in a number of COEs in Namibia, South Africa and Zimbabwe.

26 i Gender Links 50/50 Policy brief ii LGBTIAQ Policy brief : http://www.genderlinks.org.za/article/lgbtiaq-issues-2014-01-07