GENDER PROGRAMMATIC REVIEW Sudan Country Office

GENDER PROGRAMMATIC REVIEW Sudan Country Office This independent Gender Review of the Country Programme of Cooperation Sudan-UNICEF 2013- 2017 is completed by the International Consultant: Mr Nagui Demian based in Canada matic Review UNICEF Sudan: Gender Programmatic Review

Khartoum 7 July, 2017

FOREWORD

The UNICEF Representative in Sudan, is pleased to present and communi- cate the final and comprehensive report of an independent gender programmatic review for the country programme cycle 2013 – 2017. This review provides sounds evidence towards the progress made in Sudan in mainstreaming Gender-Based Programming and Accountability and measures the progress achieved in addressing gender inequalities. This analytical report will serve as beneficial baseline for the Government, UNICEF and partners, among other stakeholders, to shape better design and prioritisation of gender-sensitive strategies and approaches of the new country programme of cooperation 2018-2021 that will accelerate contributions to positive changes towards Goal 5 of the Sustainable Development Goals (SDGs) on gender equality in Sudan. The objective of the gender review was to assess the extent to which UNICEF and partners have focused on gender-sensitive programming in terms of the priorities of the Sudan’s Country Programme, financial invest- ments, key results, lessons learnt and challenges vis-à-vis the four global priorities of UNICEF’s Gender Action Plan 2014-2017. We thank all sector line ministries at federal and state levels, UN agencies, local authorities, communities and our wide range of partners for their roles during the implementation of this review. In light of the above, we encourage all policy makers, UN agencies and development partners to join efforts to ensure better design and prioritisation of gender-sensitive strategies and approaches that will accelerate the positive changes towards the Goal 5 of the SDGs and national priorities related to gender equality in Sudan. Putting girls in the centre of the national development agenda is important for the future of Sudan.

Signed on …………………………..2018, by:

Signature______

Mr Abdullah Fadil UNICEF Representative in Sudan TABLE OF CONTENTS

Acronyms 6 Acknowledgements 8 Executive Summary 9

1. Introduction, Objectives and Methodology 13 1.1 Objectives and scope 14 1.2 Methodology and Process 15

2. General Context of Sudan and Gender Issues 17 2.1 Political, Social and Economic Context 18 2.2 Main Gender Bottlenecks and Barriers 21

3. Gender Mainstreaming within National Policies and Strategies 23 3.1 Legal Framework 24 3.2 National Policies and Strategies Related to Gender Equality 25 3.3 Institutional Mechanisms 27

4. Gender Mainstreaming within UN Coherence in Sudan 29 4.1 United Nations Development Assistance Framework (UNDAF) 2013 - 2016 30 4.2 Gender Sensitivity in UNDAF (2013 – 2016) 30 4.3 Evaluation of UNDAF Implementation and Gender Mainstreaming 31 4.4 Recommendations to Improve Gender Mainstreaming within UN Coherence in Su- 32 dan

5. Gender Mainstreaming in UNICEF Programmes: Quality of Planning 33 5.1 UNICEF mandate on gender equality 34 5.2 UNICEF Sudan Country Programme (2013 – 2017) 35 5.3 Gender Sensitivity in Programme Planning in the CPD/CPAP 2013 – 2017 36 5.4 Recommendations to improve next CPD, CPAP (2018 – 2021) 38

6. Gender Mainstreaming in UNICEF Programmes: Assessment of Progress 39 6.1 WASH 40 6.2 Child Protection 42 6.3 Education 44 6.4 Health 46 6.5 Nutrition 49 6.6 Consolidated progress in achieving GAP Results 51

7. UNICEF Sudan Gender Balance and Capacities 54 7.1 Gender Initiatives 55 7.2 Gender Balance 55 7.3 Gender Skills 55 7.4 UNICEF Guidance on Gender Staffing 56 Recommendations to Improve UNICEF SCO Gender Balance and Capacities 57

8. Consolidated Observations and Recommendations 58 8.1 Cross-cutting Concerns 59 8.2 Consolidated Recommendations 59 A. Work on Ending Child Marriage (First gender-targeted priority) 60 B. Promoting Girls’ Secondary Education (Second gender-targeted priority) 60 C. Integrate Gender Analysis in Programme Surveys 60 D. Engage Girls, Boys, Women and Men in Gender Equality 61

9. UNICEF Sudan CPD 2018 – 2021: Gender Prospective Review 62 9.1 The CPD (2018 – 2021): Goals, Priorities and Objectives 63 9.2 Gender Sensitivity in CPD (2018– 2021) 64 9.3 Recommendations to Improve Gender Sensitivity in the CPD 65

Conclusion 69

ANNEX 1: Bibliography ANNEX 2: Sources Consulted 71 ANNEX 3: Questions for individual interviews with UNICEF Section Chiefs 73 ANNEX 4: Questions for individual interviews with UNICEF Section Chiefs 74 ANNEX 5: List of Participants from Workshops and Interviews 75 ACRONYMS

ARI Acute Respiratory Infection ARV Antiretroviral AWD Acute Watery Diarrhoea BCA Basic Cooperation Agreement CEDAW Convention on the Elimination of All Forms of Discrimination against Women CFS Child Friendly Space CMAM Community-based Management of Acute Malnutrition CPA Comprehensive Peace Agreement CPAP Country Programme Action Plan CPD Country Programme Document CPMP Country Programme Management Plan CRC Convention on the Rights of the Child EMIS Educational Management Information System ESSP Education Sector Strategic Plan FCPU Family and Child Protection Unit FGD Focus Group Discussion FGM/C Female Genital Mutilation/Cutting GAP Gender Action Plan GBV Gender Based Violence GDWFA General Directorate for Women and Family Affairs GDP Gross Domestic Product GEM Gender Equality Marker GNI Gross National Income GPI Gender Parity Index GR Gender Review HIV/AIDS Human Immunodeficiency Virus / Acquired Immune Deficiency Syndrome IASC Interagency Standing Committee IBES Interim Basic Education Strategy ICT Information and Communication Technology IDP Internally Displaced Person ICCM Integrated Community Case Management of childhood illness IMCI Integrated Management of Childhood Illnesses INC Interim National Constitution of the Republic of Sudan IR Inception Report; also Intermediate Result IYCF Infant and Young Child Feeding

8 GENDER PROGRAMMATIC REVIEW JEM Justice and Equality Movements MENA Middle East and North Africa MICS Multiple Indicator Cluster Survey MoE Ministry of Education NGO Non Governmental Organization NLA National Learning Assessment OCHA United Nations Office for the Coordination of Humanitarian Affairs PMT Programme Management Team PPP Purchasing Power Parity PTA Parent Teacher Association RUTF Ready to use therapeutic food RAM Results Assessment Module S3M Simple Spatial Survey Methodology SAM Severe Acute Malnutrition SCO Sudan Country Office SDGs Sustainable Development Goals SHHS Sudan Household Health Survey SIP School Improvement Planning committee SITAN Situation Analysis SNBHS Sudan National Baseline Household Survey SPAP Strategic Priority Action Plan SPLM Sudan People’s Liberation Movement SUN Scaling Up Nutrition UASC Unaccompanied and Separated Children UNCT United Nations Country Team UNDAF United Nations Development Assistance Framework UNDP United Nations Development Program UNFPA United Nations Population Fund UNICEF United Nations Children’s Fund UN Women United Nations Entity for Gender Equality and the Empowerment WASH Water, Sanitation and Hygiene WFP World Food Programme WHO World Health Organization

GENDER PROGRAMMATIC REVIEW 9 ACKNOWLEDGEMENTS

I would like to express my sincere gratitude to the Chief Planning, Monitoring and Evaluation at UNICEF Sudan, Mr. Robert Ndamobissi, who guided this gender review process and ensured the review and the quality assurance of the report. His commitment, ensuring the active participation of key partners and discussing findings and recommendations with senior management, is highly appreciated. I wish to acknowledge with much appreciation the crucial role of Ms. Dina Ali, Knowledge Management Specialist, for coordinating the entire review process, including meetings, workshops, focus group discussions, in-country mission, online survey and particularly for ensuring that I had access to all available documents and information. Thanks to the Planning, Monitoring and Evaluation team, especially, Ms. Aala Ra- hamtalla, Monitoring and Evaluation Specialist and Mr. Habeeb Abdulmageed, Pro- gramme Assistant, for their continuous support. Special thanks are also due to Ms. Tamador Ahmed Khalid, Gender Focal Point, for her technical inputs and relevant key documents that helped in understanding the national context. My gratitude also extends to UNICEF team in Kassala: Mr. Abu Obeida El Siddig Mohamed, Chief Field Officer, for bringing up and discussing local communities’ challenges, Ms. Wisal Abdalla, Monitoring and Evaluation Officer, for her commitment and involvement during the in-country mission, and, UNICEF staff. I am thankful for Section Chiefs and programme staff, who provided time and valu- able inputs during individual meetings. Thanks are due to UN and Government partners who participated in interviews and workshops. I am especially thankful to Ms. Asako Saegusa, UNICEF Deputy Representative and Ms. Shoubo Jalal, Regional Gender Advisor, for their guidance and orientation. I hope my contribution through this review will be helpful to my colleagues in UNICEF Sudan and contribute in creating an environment where girls, boys, women and men can enjoy equal rights.

Nagui Demian Gender Review Consultant

[email protected]

10 GENDER PROGRAMMATIC REVIEW EXECUTIVE SUMMARY

This Gender Review (GR) aims to make available sound evidence of the progress made in Sudan in mainstreaming the Gender-Based Programming and Accountability and to measure progress achieved in addressing gender inequalities. Based on the GR analytical report and recommendations, UNICEF SCO, Government and key partners will develop gender-sensitive strategies and approaches in the new country programme 2018–2021 toward gender equality in Sudan. The GR was conducted in four phases: (i) inception phase aimed at preparing the methodological framework; (ii) data collection which involved conducting individual meetings, focus group discussions, workshops, field visits and an online survey; (iii) data analysis aimed at developing synthesising and categorising all data collected in order to develop a common understanding for the findings related to results; and (iv) reporting, validation and finalisation of the report in June 2017. Key Findings • Based on national surveys, the main gender issues in Sudan related to girls and women include gender disparities in education, child marriage and domestic violence. Main gender bottlenecks and barriers are: women’s and girls’ lack of knowledge and limited access to information, women’s and girls’ limited access to services, detrimental masculine and feminine ideals expectations, dual responsibilities experienced by women, and women’s and girls’ lack of participation and decision making. • The Interim National Constitution of the Republic of Sudan (INC) adopted on 6 July 2005, recognises under Article 32 that ‘women and men have equal entitlement to all civil, political, economic, social and cultural rights’. Based on this article, the State has to guarantee the right for equal pay, equal work and professional benefits to men and women. Gender equality was reflected in national strategies and policies such as the Twenty-Five-Year National Strategy (2007 – 2031), the National Women Empowerment Policy (2007), the Interim Basic Education Strategy and the National Strategy to Combat HIV/AIDS. Moreover, institutional mechanisms were created to support national strategies implementation. • The United Nations Development Assistance Framework (UNDAF) (2013 – 2016) reflects concepts of ‘gender equality’, ‘women empowerment’, and ‘gender responsive planning and budgeting’, in different sections of the document. It states clearly that ‘the United Nations System will offer support in areas such as gender equality, particularly legislation and policies that protect women from Gender-Based Violence’. In addition, increasing commitment to social inclusion, with special attention to women, youth and groups in need is considered as a crosscutting strategy that requires collaborative or joint programmes or funding. • A number of weaknesses in the UNDAF results matrix prevented assessment of results’ effectiveness such as: difficulties in finding evidence that results are attributable to a common UN approach promoted by the UNDAF; outcomes were too broad and the internal logic was poor, in addition to the poor use and monitoring of risks and assumptions. Main challenges in the UN- DAF’s gender mainstreaming implementation entailed: the lack of Government capacities to work on gender mainstreaming, lack of qualitative and quantitative sex-disaggregated data, lack of a common understanding and interpretation of gender mainstreaming, and, lack of knowledge about gender mainstreaming tools. • In order to improve gender mainstreaming within UN Coherence, the UN system’s overall ap-

GENDER PROGRAMMATIC REVIEW 11 proach to coordination, it is important to: develop a common understanding on gender equality and gender mainstreaming between UN agencies and the Government on gender equality and gender mainstreaming in programmes; develop a gender equality strategy based on the current gender issues, bottlenecks and barriers identified in Sudan; review and clarify roles and responsibilities of each UN agency to promote gender equality and mainstream gender; identify evidence-based results in the UNDAF frameworks toward promoting gender equality and reactivate the Gender Team within UNDAF committees to coordinate gender equality interventions. • The CPD and CPAP (2013 – 2017) were guided by the Convention on the Rights of the Child, the convention for the Elimination of All Forms of Discrimination Against Women, the Convention on the Rights of Persons with Disabilities, the Millennium Declaration and Millennium Development Goals. Both documents used comprehensive data on children and women’s situation from the Sudan National Baseline Household Survey (SNBHS, 2009) and Sudan Household Health Survey (SHHS, 2010). Moreover, UNICEF SCO confirm its commitment to gender equality in the CPD (2013 – 2017) by ‘taking into account a gender perspective in all interventions’. The proposed programmes and results matrix for the CPD used terms like “gender equality”, “gender perspective”, “focus on equity”, “tracking gender disparities” and “gender sensitive” to put a focus on gender. However, the CPD and CPAP do not provide a meaning for the term “gender sensitivity” or how to promote “gender equality”. In addition, the situation analysis of children and women in the CPD/CPAP (2013 – 2017), does not highlight areas of gender inequality or gender issues, except in enrolment rates in basic education and female genital mutilation/cutting FGM/C. • The CPD and CPAP (2013 – 2017) were developed in 2012, while the Gender Action Plan (GAP) was developed in 2014. Therefore, the GAP four gender-targeted priorities were not integrated in the CPD and CPAP (2013 – 2017) and UNICEF SCO do not have an (or many) articulated gender priority. However, gender mainstreaming (the second approach of the GAP) was taken in consideration during the implementation of the CPAP and UNICEF SCO worked on integrating gender in its programmes. • To improve gender mainstreaming in the next CPD and CPAP it is important to: integrate a gender analysis in needs assessments and situation analyses in order to guide the design, implementation, monitoring and evaluation of programmes to promote gender equality in Sudan; formulate gender-sensitive qualitative and quantitative indicators; and choose and implement at least one (maximum three) from among the four GAP priorities as relevant for Sudan local context and overall programme. The four targeted gender priorities of the GAP are: (1) promoting gender-responsive adolescent health; (2) advancing girls’ secondary education; (3) ending child marriage; (4) addressing gender-based violence in emergencies. • UNICEF Sudan made progress on mainstreaming gender in programmes and achieving GAP targeted results. The Gender Result Matrix on targeted priorities includes 20 indicators; only two of them are included in current UNICEF programmes (indicators on FGM/C and early marriage). Progress is noted in both indicators meeting the GAP target. The GAP Result Matrix also includes 20 indicators for gender mainstreaming in programming, nine of them are currently included in UNICEF programmes while 11 are not. Only one indicator (related to exclusive breastfeeding rates) is exceeding the GAP target while work on other indicators is still needed. Health indicators are the GAP targets showing the least progress. • Main cross-cutting issues for UNICEF programmes on planning, implementing and assessing gender equality actions are: (1) the need for an in-depth gender analysis to help in understanding different reasons behind gender disparities in each sector and develop targeted interventions that tackle disparities and promote gender equality; (2) the lack of qualitative gender disaggregated data; (3) the need for an integrated approach to gender equality, that consolidates efforts of different programmes and emphasises gender equality outcomes; (4) risk of gender evaporation during programme implementation; (5) lack of a common understanding on gender equali-

12 GENDER PROGRAMMATIC REVIEW ty, and; (6) the lack of human resources capacities for gender mainstreaming. • The assessment of UNICEF staff on gender skills shows the lack of a common understanding of gender concepts. Half of UNICEF staff members have not been oriented or oriented to a limited extent on UNICEF’s gender policy, GAP, GEM and Gender Guidance Notes. The majority of staff (84%) say that UNICEF SCO is women friendly and that office meetings are not dominated by men, while 62% believe that the working environment for women has improved over the past two years. However, more than half of staff (65%) think that gender is not discussed during programme staff meetings while 50% believe that there is a gradual increase of gender expertise among staff members. Moreover, 60% see that partners do not show same understanding on gender equality as UNICEF SCO staff. Finally, only two staff members highlighted that staff meetings are dominated by men and that men do not accept easily to be supervised by women. • To improve UNICEF SCO gender balance and capacities it is important to encourage qualified women to apply for UNICEF SCO vacancies; keep awareness on gender equality and gender mainstreaming as recruitment criteria that form part of all jobs requirements; support Gender Focal Points, clarify their roles and responsibilities, and build their capacities on gender equality and gender mainstreaming; conduct a capacity-building programme to all staff on gender equality and gender mainstreaming; focus on gender during programme staff meetings and build accountability mechanisms that monitor gender-equality results; recruit a Gender Programme Specialist or Senior Gender Programme staff to support the programmatic achievement of gender equitable results.

Main recommendations In addition to recommendations presented to improve gender mainstreaming on programme planning and implementation as well as on gender balance and skills within UNICEF staff, the review rec- ommends two targeted gender priorities and two general suggestions as follows: • The first gender priority is to work on ending child marriage by: working closely with the Gov- ernment, UN agencies, human rights bodies and civil society to make any child marriage illegal; engaging religious leaders to change social norms related to child marriage; supporting girls’ education, especially the secondary education and life skills programming, in schools and out-of -school settings, and developing communication campaigns and community mobilisation plans to address social norms that define child marriage as a desirable and acceptable option for girls. • The second gender-targeted priority is to promote girls’ secondary education by: supporting evidence-based advocacy for improved financing and policy reform for secondary education; ensuring transition of girls from primary to secondary education; and addressing social norms and cultural barriers that prevent girls from accessing secondary education and promote education as a channel to girls’ empowerment. • Integrate Gender Analysis in programme surveys to help in understanding practices, social norms and cultures that reveal differences in women and men’s activities. A Gender Analysis will identify gaps and allow the planning of targeted interventions. • Engage girls, boys, women and men in gender equality even on topics that are perceived as ‘women related’ from communities’ perspective. A first step toward engaging girls, boys, women and men in gender equality is to promote equal participation in decision-making and a shared responsibility at the household and community levels.

Key Decisions The Gender Review Report has been reviewed by the UNICEF Sudan Senior Management Com-

GENDER PROGRAMMATIC REVIEW 13 mittee including the UNICEF Sudan Representative, Deputy Representative and Section Chiefs in June 2017. The Committee approved the report findings and recommendations and made the following five key decisions: • The country programme must become girl-sensitive in all programmatic aspects including in pro- curement and supply. UNICEF should ensure gender mainstreaming across the full programme. • The Country Management Team, UNICEF SCO, decision vis-à-vis GAP gender priorities is to focus on gender-based violence which is a cross-cutting issue/barrier for all programmes. This GBV flagship programme for gender will include FGM, child marriage and sexual violence against girls. Those are already well referenced into the CPD document. However, UNICEF SCO will seize the opportunity to highlight this priority in the CPAP 2018-2021 that will be signed with Government. • UNICEF must strengthen the internal level of understanding of gender concepts and gender mainstreaming; there is urgent need for training of all staff on gender. Therefore, UNICEF SCO will request the Regional Office support for in-country capacity building. • UNICEF SCO internal office capacity for coordination of gender must be strengthened. For example, the office could explore partnership with Ahfad University for Women in order to bring periodic volunteers into the office who will provide adequate timely support to UNICEF SCO to lead on gender. • UNICEF SCO gender balance in staffing is very low: efforts will be made to develop an innovative strategy to attract new female staff members during the massive recruitment of staff that will happen in 2018 for the new office structure under the Country Programme Management Plan (CPMP) 2018-2021 being submitted to the Regional Office and Headquarters against the new Country Programme Document (CPD) 2018-2021.

14 GENDER PROGRAMMATIC REVIEW Introduction, Objectives and 1 Methodology

GENDER PROGRAMMATIC REVIEW 15 1.1 Objectives and scope sector strategic programming, implementation, and This Gender Review (GR) aims to make available sound monitoring and evaluation (M&E); evidence of the progress made in Sudan in mainstream- 4. To assess how the organisational structures and pro- ing Gender-Based Programming and Accountability and cesses within the UNICEF SCO uphold principles of to measure progress achieved in addressing gender ine- equality and equity; qualities. The GR also assesses the extent to which the Sudan Country Office (SCO) has focused on targeted gen- 5. To establish levels of gender skills, knowledge and der parities in terms of the number of priorities targeted, national institutional capacities to support gender the level of priority and reflecting on key results, lessons responsive policies, programmes and subsequent learnt and key challenges. application of gender mainstreaming concepts and tools to address gender gaps in the country; The analytical report will be used by UNICEF, the Govern- ment and partners to shape better design and prioritisa- 6. To highlight new emerging gender issues based on tion of gender-sensitive strategies and approaches of the evidence of recent nationwide surveys (MICS 2014, new country programme of cooperation 2018-2021 that Budget and Income Survey 2014–2015, 2013 Simple will accelerate UNICEF’s contributions to positive chang- Spatial Survey Methodology (S3M) etc.), studies es towards Sustainable Development Goal 5 related to (out of school study, FGM/C study, WASH Gender gender equality in Sudan. Review, socio-economic study on WASH in North Darfur, Vulnerability Assessment, Child Multiple Specific Objectives Deprivation Analysis), evaluations and operational The GR aims to monitor the progress made in Sudan in research; gender mainstreaming and to measure progress 7. To recommend innovative ways in which to improve achieved in addressing gender inequalities in regard to efforts to reduce gender inequalities within Govern- the four targeted priorities: ment and the UNICEF Country Programme. • Promoting gender-responsive adolescent health; Scope • Advancing girls’ secondary education; The GR assesses, in a holistic perspective, gender mainstreaming in five of UNICEF integrated programmes in • Ending child marriage; UNICEF SCO: Education, WASH, Child Protection, Health • Addressing gender-based violence in emergencies. and Nutrition. The Gender Review focuses on the following aspects: Hence, the GR assesses the extent to which UNICEF SCO has focused on gender parities in terms of the number of Gender issues: It highlights the main gender issues as priorities targeted, the level of priority and reflect key well as main gender equality bottlenecks and barriers in results, lessons learnt and key challenges. Based on the Sudan using recent accurate evidence from MICS and GR analytical report and recommendations, UNICEF SCO, other information; the Government and key partners will develop gender- Quality of planning: It assesses the gender sensitivity of sensitive strategies and approaches in the new country the initial and revised strategic planning of the current programme 2018–2021 toward gender equality in Su- country programme 2013-2017 (assesses the relevance dan. and coherence of gender sensitivity of result chains re- Therefore, the GR specific objectives are: lated to impact, outcomes and outputs statements and indicators). It also assesses if the CPD/CPAP priorities 1. To assess, from a holistic perspective, the extent to have covered the GAP priorities and how well the result which UNICEF SCO has implemented gender main- matrix formulation integrates gender principles; streaming in the current Country Programme (2013– 2017) in programme planning, budgeting, implemen- Measuring results achieved: It assesses progress made tation and performance monitoring and evaluation; by the UNICEF SCO towards achieving the targeted results of the GAP 2014-2017; 2. To measure progress made in Sudan in achieving the four-targeted priorities of the GAP: i) promoting gen- Human resources and office structure capacity: It assess- der-responsive adolescent health, ii) advancing girls’ es the staff knowledge of concepts and UNICEF Policies secondary education, iii) ending child marriage, iv) and Guidance of Gender. In addition, it assesses if addressing gender-based violence in emergencies; UNICEF SCO has adequate practices of responsibility for gender mainstreaming and also if the gender parity of 3. To assess how UN agencies are organised to staffing is adequate in respect of UNICEF policy; strengthen gender mainstreaming within the United Nations Development Assistance Framework Gender mainstreaming within UN Coherence in Sudan: (UNDAF), national development frameworks and Assess the strengths and weaknesses of gender main-

16 GENDER PROGRAMMATIC REVIEW (FGDs) with UNICEF staff and partners. The GR used a mix of primary and secondary data collection and was based on UNICEF global standards and tools. Data collection methods The data collection methods included: Desk review: UNICEF SCO provided the consultant with relevant country documents prior to his field trip to Sudan. In addition, the consultant conducted desk research for additional national and international material. Therefore, more than 50 documents were reviewed. This includes: International and national legal frameworks, policies and strategies such as: • International instruments signed and ratified by Sudan, the Interim Na- tional Constitution 2005, the Twenty- Five- Year National Strategy 2007 – 2031, the National Women Empower- ment Policy 2007, the Interim Basic Education Strategy 2012 – 2016 and other national policies. • National UNICEF reports and pa- pers on gender equality, such as: GAP, Gender Programmatic toolkit, Gender Equity Operational Guidance, Gender Marker. • Sudan situation analysis documents such as: Analysis of the Situation of Women and Children (SITAN), MICS reports, House Hold Survey. streaming within UNDAF and UN coordination in Sudan; • Sudan Country Office documents and reports: CPD 2013, CPAP 2013–2017, Results Gender mainstreaming with national policies and strate- Matrix 2017, Annual Rolling Work Plans 2013– gies: Assess the national capacities, strengths and weak- 2016, Mid Term Reports, Results Assessment Mod- nesses regarding the country progress towards SDG 5 ule (RAM). related to gender; • Joint programme documents on gender equality: Prospective review - quality assurance of the new CPD donor gender analyses, gender strategies and gen- 2018-2021: Review the coherence and adherence to der situation analyses. A list of the reviewed docu- gender-based programming of the first draft of CPD and ment is presented in Annex 1. Strategy Notes/Results Framework for improvement. Individual interviews were conducted with UNICEF Sec-

tion Chiefs for the five programmes: Child Protection, 1.2 Methodology and Process Education, WASH, Nutrition, and Health. The meetings’ The methodology used in the GR relies on a cross- objectives were: to identify the main gender equality section of information sources using a mixed methodol- bottleneck and barriers related to programmes; to doc- ogy (e.g. quantitative, qualitative and participatory) to ument Section Chiefs’ opinions on available data relat- ensure the triangulation of information through a varie- ed to gender; to examine how gender equality is inte- ty of means. The approach includes statistical analysis, grated in programmes design, implementation and e.g. desk study, key informant interviews with stake- monitoring and evaluation phases; to document chiefs’ holders, including beneficiaries, focus group discussions opinion on staff skills related to gender and to identify

GENDER PROGRAMMATIC REVIEW 17 programmes’ needs for a better gender mainstreaming. were: In addition, a focus group discussion was conducted with the Gender Focal Points in UNICEF SCO to discuss Inception phase, which was aimed at preparing the the same issues. methodological framework to carry out the Gender Re- view. After deepening his knowledge about the national Interviews with UN agency partners. Three individual context of Sudan and UNICEF SCO interventions, the interviews were held with United Nations Development consultant designed the plan and tools, which was re- Programme (UNDP) and United Nations Population viewed and finalised in consultation with the UNICEF Fund (UNFPA) Section Chiefs to discuss the gender Chief of Planning Monitoring and Evaluation and the equality approach during the development of the UN- UNICEF Gender Focal Point. DAF, and coordination of gender mainstreaming in programmes and activities. Interview questions are pre- Data collection entailed conducting individual meetings, sented in Annex 3. focus group discussions, workshops, field visits and an online survey using the validated tools. A one-day workshop was conducted with Government key partners working with UNICEF on gender related The data analysis, aimed at developing synthesising and issues. Representatives from the Ministry of Social Se- categorising all data collected in order to develop a curity and Welfare, Ministry of Health, and Ministry of common understanding for the findings related to the Education attended the workshop and discussed the results, management and future directions of the pro- following: gender equality bottlenecks and barriers in grammes under review. Analysis incorporated varied the country, gaps and challenges in gender main- approaches suited the components of the review de- streaming, the coordination mechanisms between the sign, such as: a) Content and narrative analysis, by classi- Government and UNICEF, Government staff skills on fying and analysing qualitative and quantitative infor- gender and recommendations to support gender main- mation based on identified issues; b) Comparative analy- streaming. sis, to highlight best practices and/or lessons learned, related to the different methods and approaches used A 5-day field visit to Kassala state was held to meet the to support results achievement. The data analysis phase UNICEF field office staff, Government partners, UN was supported by follow-up interviews to ‘fill in infor- agencies and members from a local community includ- mation gaps’. Validity was ensured through data triangu- ing girls, boys, women and men. Focus group discus- lation (using convergence of multiple data sources). sions mainly aimed to identify gender roles and responsibilities, discuss gender equality issues in the communi- Reporting, validation and finalisation. A first draft of the ty context, discuss how UNICEF programmatic interven- Gender Review Report was developed and shared with tions related to gender mainstreaming are perceived UNICEF SCO management and key actors for feedback and to identify needs to support gender equality in local and validation. A debriefing session was held in April communities. 2017 and the report was reviewed accordingly. The final report was shared with UNICEF management June 2017. An online survey was conducted with UNICEF staff in Khartoum and field offices in order to: assess their skills Due to several internal planning constraints on gender and gender mainstreaming, assess gender- (unavailability of UNICEF programme staff and key ac- sensitivity in the working environment, document gen- tors) and external lengthy governmental procedures der equality good practices in UNICEF Field Offices and (travel permits for field visits) the Gender Review time- identify gender gaps and challenges in UNICEF’s gender line was delayed. This time constraint was resolved by equality internal practices. The survey questions are updating the review plan regularly in coordination with presented in Annex 3. UNICEF management. Moreover, the main phases for the Gender Review

18 GENDER PROGRAMMATIC REVIEW General Context of Sudan and 2 Gender Issues

GENDER PROGRAMMATIC REVIEW 19 2.1 Political, Social and Economic Context mother and foreign father now have the right to obtain 2 Geography and population Sudanese nationality as well. With a total land area of nearly 2 million square kilometres, Sudan is considered the third largest country in Afri- Political Context ca (the first before the secession of South Sudan). Only In 2005, Sudan signed the Comprehensive Peace Agree- less than 20,000 square kilometres is irrigated land. Pe- ment (CPA) and the secession of South Sudan occurred troleum is Sudan’s major natural resource, and there are important mineral resources including gold. The Nile River is the dominant geographical feature, flowing 3,000 km from Uganda in the south to the Mediterranean Sea in Egypt in the north. Although Sudan lies within the tropical zone, the climate ranges from dry in the north to tropical wet-and-dry in the far southwest. Temper- atures do not vary greatly with the season at any location; the most significant climatic variables are rainfall and the length of the dry season. In Khar- toum, the warmest months are May and June, when average highs are 41 °C in 2011. However, several issues remained unresolved, and temperatures can reach 48 °C. including the demarcation of borders, oil processing and exportation fees, responsibility for external debt and the Sudan has a population of approximately 40 million peo- remaining northern Sudan People’s Liberation Move- ple, comprised of various ethnic groups and tribes. High ment (SPLM) armed forces in Blue Nile and South Kor- population growth of about 2.4% per annum implies dofan. These issues have led to instability and tensions enormous challenges in terms of service provision, accel- across borders and the resumption of conflict in the eration of economic growth, environmental sustainabil- states of Blue Nile and South Kordofan. Peacekeeping ity, resource management and social equity. troops have struggled to stabilise the situation and have Most of Sudan’s population is rural (66%), with an urban increasingly become targets for attacks by armed population of approximately 44%.1 The largest metropol- groups. The past and present conflicts, together with itan area in Sudan is Khartoum and it is quickly growing natural disasters, have created and sustain about three with a population that ranges between six and seven million internally displaced persons (IDPs). IDPs live million people. Sudan is both a temporary and long-term largely in camps (for instance in Darfur) while others are host country to an extensive population of refugees, asy- either in squatter settlements (Khartoum) or invisible to lum seekers and migrants. Sudan is also a country of the outside world (Nuba Mountains and Blue Nile). origin for migration because of its conflicts and insecuri- However, the role of women in peace building, and the ty, as well as its economic situation, marked by wide- gender dimensions of peace processes and conflict reso- spread unemployment. lution were largely ignored. There was no accountability According to the Interim Constitution of the Republic of Sudan every person born to a Sudanese mother or father 1 World Bank Data, available on: http://data.worldbank.org/indicator/ has the right to Sudanese nationality and citizenship. The SP.RUR.TOTL.ZS, [accessed on 27 May 2017] Nationality Act has been amended in line with the transi- 2 Committee on the Rights of the Child, Consideration of Reports Sub- tional constitution so that children born to a Sudanese mitted by States Parties under Article 44 of the Convention, Third and Fourth Periodic report of Sudan, CRC/C/SDN/3-4, 2010 20 GENDER PROGRAMMATIC REVIEW in peace agreements negotiated specifically for Gender safe water supply and sanitation facilities is one of the Based Violence (GBV) or sexual violence against women immediate causes of dropping out of school, especially and girls. among girls. The quality of the educational system is impacted by a shortage of qualified teachers and a poor

distribution of teachers between urban and rural areas. Economic There is a lack of textbooks and other learning and Sudan is the fourth-largest economy in Sub-Saharan Af- teaching materials. Life skills programmes are not well rica, with a gross domestic product (GDP) of US$160 supported in the current education system, which ques- billion when measured in purchasing power parity (PPP) tions the quality and relevance of the curriculum to terms. Sudan has a gross national income (GNI) per per- show progress on learning outcomes. In addition, the son of US$1,920, as of 2015, which following the World Government budget for education is too low and the Bank guideline, would classify it as a lower-middle- government is unable to implement the policy of free income country. However, Sudan was ranked at 165 out and compulsory basic education. (UNICEF Sudan, of 187 countries in the UNDP Human Development Re- 2017a) port for 2016, and is therefore regarded as one of the Sixty percent of Sudanese women ages 15-24 years are countries in the world where human development is literate, although only 44% who had attained primary least advanced. Poverty is widespread with over 46% of school as their highest educational level were literate. the population living below the poverty line. (UNICEF Literacy is defined as the ability to read a short simple Sudan, 2017a) sentence. (UNICEF Sudan, 2017a) Historically, agriculture remained as the main source of income and employment in Sudan, employing over 80% Health and Nutrition of Sudanese and making up a third of the economic sector. Despite this strong agricultural orientation, oil pro- The average Sudanese woman gives birth to 4.5 chil- duction drove most of Sudan’s post-2000 growth. dren in her lifetime. (UNICEF Sudan, 2017a) High fertili- (UNDP Sudan, 2017a) However, following the secession ty has profound effects on the risk of maternal mortali- of South Sudan, Sudan lost 75% of its former oil reve- ty and the ability to care for children given limited fi- nue, though this source of revenue remains the most nancial and other resources. High fertility is largely due important component of GDP. The country has a sub- to child marriage and early pregnancy, an issue that stantial external debt amounting to about $45 billion in also greatly affects an adolescent girl’s health and com- nominal terms (more than 70% of GDP) in 2015. pletion of education. The major immediate causes of maternal deaths are complications during pregnancy or birth, and high fertility rates. A major underlying cause Education of both child and maternal death is malnutrition. The Sudan net primary attendance rate is 76%, while the The overall prevalence of child malnutrition is high: one net secondary attendance rate is only 28%. Out-of- -third (33%) of under-five children are underweight. school children are predominantly rural and poor. Over Two in five children (38.2%) under-five years are stunt- a fifth of pre-school children attend organised early edu- ed (too short for their age) and one in six (16.3%) chil- cation, and only 37% of Sudanese children start primary dren are wasted (too short for their height). (MICS, school at six years old. Children who attend primary 2014) Although rates of exclusive breastfeeding in Su- school enrol later than their appropriate age, leading to dan are surpassing global targets, almost half of chil- significant proportions of secondary age children attend- dren (45%) are still not exclusively breastfed for their ing primary school. (UNICEF Sudan, 2017a) first six months of life, while 60% of children under two Gender parity for primary school is 0.98, indicating no years old do not receive the recommended number of difference in the attendance of girls and boys to primary meals per day and 70% do not receive the recommend- school. The indicator increases to 1.07 for secondary ed diet diversity. (MICS, 2014) education, in favour of boys. There are outliers to the With regard to gender variation in undernutrition, boys national figure for primary school gender parity. For in- were reported to be slightly more underweight, stance, the disadvantage of girls at the primary stage is stunned and wasted than girls. The age pattern shows particularly pronounced in Eastern Darfur State as well that a higher percentage of children who are 12-13 as among children living in the poorest households. months are undernourished according to the three indi- (MICS, 2014) ces (underweight, stunted and wasted). (MICS, 2014) In the basic education system, there is a relatively high Furthermore, about 30% of under-five-year-old children ratio of pupils to classrooms and the state of school in- have a reported case of diarrhoea disease in the last frastructure is poor with about two-thirds of classrooms two years, caused by use of unsafe water and poor san- in need of repair or rehabilitation. A lack of adequate itation and hygiene practices. About 18% of under-five-

GENDER PROGRAMMATIC REVIEW 21 year-old children have a reported acute respiratory in- variations by state. At the national level, 86.6% of wom- fection (ARI) in the last two years, with treatment being en in the reproductive age have undergone a form of sought by caregivers in only half of cases. In more than FGM/C (Type III). Girls are already at risk since 31.5% of 50% of cases of diarrhoea and ARI, caregivers of sick chil- girls aged 0-14 years are already cut. There is a trend of dren do not seek care from a health facility. This is due increased medicalisation of FGM/C with MICS reporting to generally poor knowledge of child illnesses, lack of 64% of FGM/C performed by trained midwives. (MICS, credible health facilities in the vicinity and inability to 2014) meet the costs of health care. Health costs represent An analysis in MICS 2014 indicated that there is a differ- about a fifth of total household expenditures. (UNICEF ence of -21% in the prevalence of the practice of FGM/C Sudan, 2017a) comparing the older generation aged 15 – 29 years with Mothers’ knowledge of danger signs is an important de- the younger age group 0–14 years, after adjusting for terminant of care-seeking behaviour. In the Sudan MICS risk of being cut, which typically takes place between 2014, 26.9% of women knew at least one of the two the ages of 5–7 years in Sudan. This is one indication danger signs of pneumonia – fast and/or difficult breath- that parents and families have been choosing to leave ing. The most commonly identified symptom for taking a their daughters uncut over the past 5–15 years. child to a health facility is fever accounting for more than The “Saleema” campaign to end FGM/C, led by UNICEF, 80% of respondents. About 11.7% and 20.9% of mothers was one of the most effective interventions that lead to identified fast breathing and difficult breathing respec- this decrease in FGM/C in Sudan. The initiative has tively as symptoms for taking children immediately to a shown promise not only in influencing the social norms health care provider. relating to the practice, but also in engaging in dialogue on children’s rights. (UNICEF Sudan, 2013) Prevalence Child Marriage indicates that FGM/C is actually declining in the Suda- nese society. Child marriage is defined here as marriage before the age of 18. Sudan has a high prevalence of child marriage, Interestingly, a study conducted by UNICEF SCO on FGM with 40% of women in the 20-24 age group reporting in 2016, estimates that by following the same pattern in being married before the age of 18, and 15% of girls who FGM/C prevalence, the practice will be eliminated married before the age of 15. (UNICEF Sudan, 2017b) among girls born after 2040. The practice is slightly more common in rural than in urban areas and varies considerably across the states, from a minimum of 5.1% in Northern to a maximum of 18.6% Birth registration in Kassala. (Thiam, 2016) MICS 2014 reported that 67% of under five-year-old Marriage among adolescent girls is widespread. More children were registered at birth (compared to 59% ac- than one in five adolescents (21.2%) are, or have already cording to 2010 SHHS). This rate was 89% in urban areas been, married. It is more common in rural areas (26%) and 59% in rural areas. This ratio is significantly higher than in urban areas (11.2%). Variations across states are for better-educated mothers and wealthier households. marked, with the prevalence varying from a minimum of There are wide disparities between states varying from 12% in Khartoum to 33.1% in Gedaref. Kassala and Blue 31% Central Darfur to 98% for Northern State. 35% of Nile, are the two other states with the highest preva- caregivers of unregistered children knew how to register lence (30%). (Thiam, 2016) the birth. Interestingly, a study conducted by UNICEF SCO on child Among the most important factors that impact a coun- marriage in 2012, showed that many girls were forced by try’s ability to deliver civil registration services are popu- their families, parents or siblings to marry at young age lation density, population’s disposable income, cultural because it’s “sutra” (a protection) for them or a percep- barriers, community awareness on the importance of tion that children of young mothers will be healthi- birth registration, and available government resources. er. 24% of females participating in the study and who were married before 18, reported dropping out of school without completing their education because one of the Gender-Based Violence following reasons: distance (8%), fees (15%) and mar- Gender-based violence is defined as any violence that is riage (32.6%). The majority of women consider child directed at a person because of his or her gender: in all marriage a social norm. (UNICEF Sudan, 2012) of its forms it is both an expression and a reinforcement of women’s often subordinate status with respect to Female Genital Mutilation/Cutting (FGM/C) men. (UNICEF, 2008a) In Sudan, there is no specific law against domestic violence. However, there is a high sen- FGM/C is widely practised in Sudan, but exhibits marked sitivity in addressing gender-based violence especially in

22 GENDER PROGRAMMATIC REVIEW Main Gender Bottlenecks and Barriers rural areas. 2.2 Main Gender Bottlenecks and Barriers Furthermore, there are no reliable surveys of violence in The diagram summarises main gender issues in Sudan. school settings, however, adolescents in particular are Based on national surveys, girls and women’s fertility more subject to different forms of violence and exploita- rate (number of live births per woman during her life- tion including child recruitment and sexual abuse. time) is 5.2. 86.6% of women have undergone FGM/C (UNICEF Sudan, 2017a) Moreover, around 34% of girls and 39.6% are out of primary school. This number in- and women think that a husband is justified in hitting or creases for secondary school where 42.3% of girls are beating his wife in at least one of the following circum- out of school. 38% of girls get married before 18 and stances: (1) she goes out without telling him; (2) she 34% justify domestic violence. Finally, 23% had a live neglects the children; (3) she argues with him; (4) she birth before the age of 18. 33.5% of boys are out of pri- refuses sex with him; (5) she burns the food. (MICS mary schools while 37.7% are out of secondary schools. 2014) 20.7% of boys and men are working under hazardous conditions, mainly in mining.

GENDER PROGRAMMATIC REVIEW 23 Sudanese women are increasingly playing a stronger role protections they require. Over one third of Sudanese in ensuring the livelihood of their families and 14% of women 15-49 years old are either pregnant or lactating, households are female-headed, and siblings care for and have an inordinate burden of work both in terms of younger children. These factors may lead to weaker domestic duties and earning a livelihood for their fami- childcare practices and increasing protection risks for lies. They suffer early marriage, the risk of sexual abuse children. Poor children, and mainly adolescents, are and physical violence including FGM, and have an inferi- more likely to work and drop out of school, and come or social position in what is still a patriarchal society. into conflict with the law, which may not afford them (UNICEF Sudan, 2017a)

Bottlenecks and barriers Example (UNICEF Sudan, 2017) Women’s and girls’ lack • Only 35.2% of mothers of unregistered children know how to register a child’s of knowledge and limited birth. access to information • Only 8.9% of women know both primary ways of preventing HIV/AIDS transmission (having only one faithful uninfected partner and using a condom every time). Women’s and girls’ lim- • 50.1% of women have fewer than four antenatal care visits (by any provider). ited access to services • 5.2% of women have been tested for HIV/AIDS. Detrimental masculine • In considerable number of localities, women are less valued than men. and feminine ideals and • Low estimation for girls’ education as she will get married before 15-18 and do not expectations need to go to secondary school. • Girls are perceived to better support the family when a husband pays a bride price for her marriage. • In six out of the 17 states, more than 60% of households depend on the women and girls to collect water. Dual responsibilities ex- • Females have an inordinate burden of work both in terms of domestic duties and perienced by women earning a livelihood for their families. • It is usually women who must fetch for water (for long distance in many cases) while having other household responsibilities. Women’s and girls’ lack • Girls and women, in a considerable number of states, do not exercise their choices of participation and deci- in marriage. sion making • Lack of women’s involvement in resource management (water management, operation and maintenance).

24 GENDER PROGRAMMATIC REVIEW Gender Mainstreaming within National 3 Policies and Strategies

GENDER PROGRAMMATIC REVIEW 25 3.1 Legal Framework ever, Sudan is one of two countries in the Middle East International Human Rights Instruments and North Africa (MENA) region – the other being Iran - that has not ratified the Convention on the Elimination The table present Sudan’s status of ratification to gender of All Forms of Discrimination against Women (CEDAW) related human rights treaties. and the optional protocol. Moreover, the country has Treaty Year of Year of signed but not ratified the Protocol to the African Char- signature Ratification, ter on Human and People’s Rights on the Rights of Accession Women in Africa. (a) Succession (s) 3 Convention on the Political -- -- The Interim National Constitution of the Republic of Su- Rights of Women (1953) dan 2005 Convention on Consent to -- -- The Interim National Constitution (INC) of the Republic Marriage, Minimum Age for of Sudan adopted on 6 July 2005, recognises under Arti- Marriage and Registration of cle 32 that women and men have equal entitlement to Marriages (1962) all civil, political, economic, social and cultural rights.4 International Covenant on 1986 (a) Based on this article, the State has to guarantee the Economic, Social and Cultural Rights (1966) right for equal pay, equal work and other professional International Covenant on Civil 1986 (a) benefits to women and men. On the societal level, the and Political Rights (1966) State is required “to combat harmful customs and tradi- tions that degrade women’s dignity and status. It shall Convention on the Elimination -- -- of All Forms of Discrimination provide maternity, childhood and pregnancy healthcare, against Women (1979) and protect child rights as stipulated by international 5 Optional Protocol to the Con- -- -- and regional conventions ratified by Sudan.” Of great vention on the Elimination of importance is Article 31 on equality before the law, All Forms of Discrimination which affirms that “equality of all people before the law against Women (1999) and right to enjoy legal protection without discrimina- Convention on the Rights of 24 Jul 1990 3 Aug tion because of race, colour, sex, language, religious be- the Child (1989) 1990 liefs, political opinion or ethnic origin.” Amendment to article 43 (2) of 2000 the Convention on the Rights The Constitution also iterates that “the State shall eman- of the Child (1995) cipate women from injustice, promote gender equality Optional Protocol to the Con- 2002 2005 and encourage the role of women in family and public vention on the Rights of the life.” (Article 15) According to Article 7 of the Constitu- Child on the involvement of tion, “every person born to a Sudanese mother or father children in armed conflict shall have an inalienable right to enjoy Sudanese nation- (2000) ality and citizenship”. The National Act has been amend- Optional Protocol to the Con- 2004 (a) ed in line with the transitional constitution so that chil- vention on the Rights of the dren born to a Sudanese mother and foreign father have Child on the sale of children, the right to obtain Sudanese nationality. (UNICEF 2011) child prostitution and child pornography (2000) Moreover, Chapter II of the INC “The Bill of Rights”, rec- Optional Protocol to the Con- -- -- ognises social justice prohibition of discrimination in em- vention on the Rights of the ployment or work for qualified persons, and the right of Child on communication pro- elderly persons and people with special needs to partici- cedures (2014) pate in social, professional, and creative activities. Convention on the Rights of 2007 2009 (a) Persons with Disabilities Under the Bill of Rights, a citizen enjoys series of civil (2006) and political rights. This includes the right to life, dignity, Protocol to the African Charter 30 June protection against torture or cruel, inhumane or degrad- on Human and People’s Rights 2008 ing treatment, liberty, security and personal integrity, on the Rights of Women in Africa 3 United Nations Treaty Collection, http://treaties.un.org [accessed on 16 April 2017] It is worth noting that of the 11 international treaties 4 Article 32 (1) Interim National Constitution of the Republic of the Sudan, and optional protocol Sudan has signed/ratified seven Government of Sudan (2005). include the Convention of the Rights of the Child. How- 5 The Constitutional Protection of Human Rights in Sudan: Challenges and Future Perspectives, University of Khartoum, Faculty of Law, 2014.

26 GENDER PROGRAMMATIC REVIEW privacy, equality before the law, fair trial and adjudica- and plans. The strategy targets all Sudanese people tion, participation in public life as prescribed by law, and across the country and searches for a decent life and the right to vote and to be elected. Women are entitled justice for them (Article 5). (Sudan National Council for to the freedom of belief and worship, expression and Strategic Planning, 2007) “Honour and dignity, unity assembly, and the right to form political parties, as well and full participation” are included in the leading val- as freedom of association, movement and residence.6 ues. The strategy consists of five sections: sovereign affairs strategy, economic strategy, capacity building As for economic and social rights, the Constitution guar- and community development strategy, and social ser- antees the right of possession and ownership, education vice strategies. Each section includes sectorial strate- without discrimination on the grounds of religion, race, gies, objectives and policies. ethnicity, gender or disability, and to primary healthcare and emergency services free of charge. It further recog- Under the Sovereign Affairs Strategy, the National nises the right of ethnic and cultural groups to enjoy Council objectives include providing a legitimate repre- their distinctive cultures without restriction and the en- sentation of “all Sudanese”. It aims to establish political titlement of persons with special needs to all rights and parties on non-regional or sectarian bases, emphasises freedoms provided by the constitution, in particular re- the representation of youth, encourages political dia- spect and dignity, provision of suitable education and logues and activates the role of civil society making work, and full participation in society. Furthermore, it them a partner in political lives, in addition to other obliges the State to ensure the right of the elderly, to means. Moreover, the Judicial Institution Strategy em- respect their dignity and to provide the required medi- phasises “justice” within the society and the respect of cal care and services as regulated by law.7 human rights reaffirmed by religion and international instruments. In the light of the strategy, these rights In the context of the above human rights international should be respected and entailed in national legislation. instruments and the Interim National Constitution of the (Sudan National Council for Strategic Planning, 2007) Republic of Sudan 2005, the Government developed and adopted different policies and strategies to promote The Economic Strategy advances “justice” and gender equality. The following part will present some of “equality” in the distribution of wealth and work oppor- these approaches and policies. tunities based on ‘personal merits’ without isolation or seclusion. One of the strategy objectives is to provide a

“freedom to earn” to the population without being sub- 3.2 National Policies and Strategies Related to jected to any discrimination practices. The strategy Gender Equality states that “all economic ministries shall undertake to Awareness about women’s rights and equality started by meet the basis needs of citizens in justifiably and equi- 1907 with the opening of the first girls’ school in Sudan tably realising social justice and well-being.” (Sudan promoting an equal access to education for boys and National Council for Strategic Planning, 2007) girls. The evolution of women’s rights movements con- The Capacity Building and Community Improvement tinued after this step and a first women’s league was Strategy pledges for an equal opportunity to excellent established in 1947. Since the 1950s, several pro- education in a healthy environment to all. In addition, grammes targeting women’s welfare were undertaken the strategy prioritises the realisation of balanced edu- by the Government, women’s unions and non govern- cational opportunities for the population. Interestingly, mental organizations (NGOs). Programmes provided the Youth and Sports strategy set among its objectives political, economical and social support to girls and to “make sport compulsory in the education syllabus for women in different areas such as literacy, education, both sexes.” The Non-Governmental Organisations reproductive health, capacity building, women’s em- Strategy recognises the challenge to activate the wom- powerment and elimination of harmful practices.8 en’s sector and develop women’s capacity to play an It is important to note that Sudan does not have a spe- active role in family and community building. Therefore, cific strategy related to gender equality, therefore the the strategy seeks to prepare and implement special following section will present different national strate- programmes in the area of balanced and sustainable gies that could reflect gender equality, as well as, ex- capacity building with “all sectors” equally. (Sudan Na- isting institutions working on topics related to gender 9 such as women’s empowerment or girls’ rights. 6 The Constitutional Protection of Human Rights in Sudan: Challenges and The Twenty-Five-Year National Strategy (2007– 2031) Future Perspectives, University of Khartoum, Faculty of Law, 2014. 7 Ibid. In 2006, the Sudanese government developed a Twenty- 8 Mainstreaming Gender Equality and Women’s Empowerment, Ahfad Five-Year National Strategy (2007 – 2031) providing a University for Women, Institute of Women, Gender and Development reference point for successive Five-Year plans during Studies, Khartoum 2003. this period. It is the framework for government policies 9 Strategies and policies presented under this section are based on available documents for the consultant and discussions with partners. GENDER PROGRAMMATIC REVIEW 27 tional Council for Strategic Planning, 2007) al strategy to combat violence against women; pre- The Social Services Strategy’s goal is to provide advanced venting negative discrimination against women and services in education, health, shelter, water supply, elec- combat harmful traditional practices; developing nation- tricity, transportation and communication to all citizens. al policies for the protection of women with disabilities; The overall vision of the health system is to improve and incorporating the national strategy to combat HIV/ health based on: equity, efficiency, modernity and com- AIDS. munity participation, with a focus to in-need sectors. While two of the Social Welfare and Development Strat- egy objectives target women highlighting the importance The Interim Basic Education Strategy (2012– 2016) and of “strengthening the role of women as a partner in Girls’ Education Directorate- Ministry of General Educa- community building” and “mobilising women to partici- tion pate in sustainable development.” The Population Strat- The Interim Basic Education Strategy (IBES) (2012 – egy, as well, aims to support the process of female em- 2016), developed by the Ministry of General Education, powerment, to guarantee women’s civil and political provides the overall structure, rationale, specific objec- rights and to strength their role in spreading the culture tives and launches a key set of activities for the five-year of peace. To this end, the strategy would like to “unleash plan. It forms part of the longer-term vision for the de- women’s energies in the development struggle and pro- velopment of the basic education sector through 2020. vide equal opportunity production and participation in (Sudan Ministry of Education, 2012) national issues.” (Sudan National Council for Strategic The IBES recognises the compounding effects of gender Planning, 2007) and rural location in terms of access to education. In the light of the Twenty-Five Year National Strategy Therefore, the strategy highlights the fact that being a (2007 – 2031) and the international and national legal girl in a rural area is more of a disadvantage than being a framework, Ministries and Departments developed sever- girl in urban settings: “girls were 4 percentage points al sectorial policies and procedures. less likely than boys to attend school in urban areas whereas the gender gap is 11-12 percentage-points in rural areas.” (Sudan Ministry of Education, 2012, pg 13) The National Women Empowerment Policy (2007) To fill this gap, the strategy focuses on three pillars in- The National Women Empowerment Policy, endorsed by cluding improving access to schooling for all children the President in 2007, focused on six pillars for empow- with a particular focus on girls, children in rural locations ering women: education, health (including environment and other vulnerable groups such as nomads and disa- and hygiene), political participation, peace and conflict bled children. The strategy goes further and set ups a resolution, economic empowerment, and human rights. second pillar that focuses on improving learning out- The General Directorate for Women and Family Affairs in comes while the third pillar aims at strengthening the the federal Ministry of Welfare and Social Security was system. named for coordinating and providing technical assis- Moreover, the IBES prioritises basic education during tance for gender mainstreaming and implementation of the five years of the strategy. It incorporates a policy the Women Empowerment Policy throughout the gov- framework to focus attention and resources towards ernment institutions and civil society. The Directorate states and localities hosting disproportionate pockets of was replicated at state level. disadvantaged and marginalised groups, including girls, The two Five Year Plans of 2007 - 2011 and 2012 - 2016 with a focus on rural areas. To this end, the framework concentrate on economic empowerment, combating entails national campaigns to stimulate demand for edu- poverty, creating opportunity for work and equal oppor- cation in the targeted states and localities with four tunity for women in the fields of agriculture, industry campaigns per state yearly. (Sudan Ministry of Educa- and commerce, supported by microfinance schemes tion, 2012, pg 58) which tackle the poverty of rural women and generates In addition, the IBES provides strategies to reduce the small business opportunities for women, poorer families costs of education for households, therefore facilitate and female-headed households. In the formal sector, access to schooling, especially in low-income communi- women have access to the social insurance funds, health ties that lack a revenue base. Another highlighted strate- insurance and pensions. Social assistance has been intro- gy to reduce household costs and promote access is duced for families in need, including in-kind support and support for school feeding in coordination with the cash transfers. Promotion of water projects is regarded World Food Programme (WFP). Community consulta- as essential for economic empowerment of women. tions are suggested in the IBES as a method to increase The two Five Year National Plans entailed different activi- demand on schooling and ensuring gender equality. The ties including; conducting surveys to identify gender necessity to conduct separate consultations with men gaps, in macro-policies of the State; developing a nation- and women in some states is raised as well as working 28 GENDER PROGRAMMATIC REVIEW with partners to carry out specific campaigns with vul- except in administrative and technical jobs or in any nerable groups, including girls and women. other jobs related to health and social services (Article 20.1). However, the competent authority can authorise Nevertheless, the Ministry recognises the vital role of the employment of women at night for purposes relat- learning environment, therefore the IBES requires the ed to public interest (Article 20.2). In addition, daily pe- implementation of the teachers’ codes of conduct, legis- riods of rest for women are fixed to a minimum one lation and school prevention and response mechanisms paid hour (Article 20.3). against violence including policies on corporal punish- ment, GBV, bullying, school management committees Moreover, a female worker is, after six months of ser- with student representation, gender sensitive sanitation vice and for each further year of service, entitled to facilities, clean water, safe school infrastructure, psycho- maternity leave with full pay for a duration of eight social support for students and teachers. (Sudan Minis- weeks; four weeks before delivery and four weeks after try of Education, 2012, pg 37) As outcome indicators delivery or two weeks before delivery and six weeks and targets the Ministry set an increase of the Gross after delivery (Article 46).10 Enrolment Rate from 37% (baseline in 2009) to 52% in

2016 and 60% in 2020 and a decrease the Gender Dis- parity index from 0.9 (baseline in 2010) to 0.95 in 2016. Policies in National Assembly Selection, Federal Minis- tries and State Ministries Furthermore, in 2000, the Ministry of General Education established the Girls’ Education Directorate in each Currently, a quota system has been introduced in the state. The Directorate is responsible for all girls’ and National Assembly of Sudan to allow female political women’s education affairs including primary and sec- representation. Under the National Election Act of 2008 ondary school education, illiteracy and vocational train- (Article 29), 25% of seats in the lower house of parlia- ing. A main objective for the Directorate is to close the ment are reserved for women. Voters can only vote gap between girls’ and boys’ enrolment rate in schools. one women’s list of their choice and only parties whose It has four departments: Coordination with NGOs, Coor- women’s lists clear the 4% threshold qualify to access dination with States, Mass Media & Communication, seats reserved for women. Seats are allocated accord- and Statistics & Research. After a restructuring of the ing to proportional representation among these parties. Ministry in 2006, the Girls’ Education Directorate was In addition, Article 33 of the same Act clarify that “seats downgraded under the umbrella of the General Direc- designated to women’s lists shall be won by the candi- torate of Planning. During the implementation of the dates of those lists in order their names appear in the strategic plan (2007 – 2011) the Directorate was focus- list concerned from top to bottom” (National Election 11 ing on primary schooling while in the next strategic plan Act 2008, Article 33). Currently the total number of (2012- 2016) more interventions were planned for sec- seats in the National Assembly are 354 seats, women 12 ondary schooling and training for women teachers. held 109 seats (31%) while men held 245 seats (69%). (Sudan Ministry of Welfare and Social Security, 2011) Moreover, the new government in Sudan consists of 31 The Directorate is supported by UNICEF in planning and federal ministers, with four women federal ministers implementation of programmes. The staff has an orien- (13%) and 27 men federal ministers (87%). The number tation and background on gender equality. However, of state ministers is 43 that entails five (12%) women there is no policy or specific mandate or action plan to state ministers and 38 (88%) men state minister. integrate gender in programmes or project preparation, implementation or monitoring and evaluation. Accord- ingly, there is no specific budget for gender mainstream- 3.3 Institutional Mechanisms ing in the Ministry global budget or in the Directorate General Directorate for Women and Family Affairs- Min- annual budget. The Directorate collects sex- istry of Welfare and Social Development disaggregated data for planning and benefit from the Educational Management Information System (EMIS), The Ministry of Welfare and Social Development is re- which is the main educational database in Sudan. sponsible for designing and implementing policies, plans and programmes for organising the activities of the Zakat and Rakaful (charity tax fund), at the national The Labour Code – Ministry of Labour Public Service and 10 Human Resources Labor Act 1997, http://www.ilo.org/dyn/natlex/docs/ WEBTEXT/49122/65103/E97SDN01.htm#a42 [accessed on 20 May 2017] The Labour Code (1997), under Chapter 3, discusses the 11 The Quota Project, accessible at http://www.quotaproject.org/country/ employment of women and young people. The Code sudan. [accessed on 20 May 2017] prohibits the employment of women in occupations that 12 National Assesmbly, accessible at http://www.parliament.gov.sd/ar/ are hazardous or harmful to their health (Article 19). It is index.php/site/currentPalriament [accessed on 6 June 2017] forbidden to employ women between 10 pm and 6 am

GENDER PROGRAMMATIC REVIEW 29 level as well as the integrated social policies and family tigators and prosecutors. (UNICEF Sudan, 2008) planning programmes. The ministry also manages integrated health, pensions and social insurance schemes.13 For programme design, the Unit staff conducts an analy- Social development entails disability issues, social work- sis on gender issues, such as gender-based violence. ers, and women and family affairs. The Zakat remains the Gender is put on focus during implementation and mon- main source of funds for social support to the population itoring and evaluation phases. Moreover, the Unit is a in need. An assessment on zakat at the state level deter- member of a committee at the Council of Ministers re- mines the use of this fund and programme priorities. A sponsible for drafting the second national strategic plan policy committee was formed under the leadership of for combating violence against women in Sudan. the Minister of Welfare and Social Development and the participation of Ministries of Education, Finance and Advisory Council for Human Rights – Ministry of Justice Health to link social policy with issues raised in other sectors and determine impacts on men and women. The Advisory Council for Human Rights gathers representatives from different ministries led by a female head The Ministry has eight affiliated Units that include the judge and meet periodically under the leadership of the National Council for Child Welfare and five Directorates including the General Directorate for Women and Family Ministry of Justice. The mandate of the Council is to review all national laws and suggest revisions needed in Affairs (GDWFA). The GDWFA mandate entails develop- order to comply with international and regional conven- ing and implementing women empowerment and family tions ratified by Sudan. In addition, the Council attends policies, developing women’s capacities and enhancing the hearing of the UN human rights committees and the their skills, and coordinating efforts related to women’s 14 African human rights commission regarding any com- empowerment and family affairs. The Directorate led plaints submitted to them. The Council also receives the development of the Women Empowerment Policy complains about human rights from individuals or or- and an action plan. However, it was noted that a more in ganisations and refers them to the relevant authority for -depth gender analysis is needed to use sex- further investigations. disaggregated data in all sectors of the policy. (Sudan Ministry of Welfare and Social Security, 2011) The work plan of the Council includes several activities such as conducting studies on women’s rights, work- GDWFA is supported by several international organisa- shops on discrimination against women and girls, aware- tions for programme development and implementation. ness for reducing maternal mortality and human The staff is familiar with concepts of gender and gender trafficking. A specialised Unit responsible for women equality. However, the challenge is to articulate these within the Council leads these activities and reports to concepts in daily practices and in the coordination with the council head. other ministries and departments. (Sudan Ministry of Welfare and Social Security, 2011) Gender Focal Points Family and Child Protection Unit- Ministry of Interior In addition to the previously mentioned units and departments working on areas related to gender equality The Ministry of Interior established the Family and Child and women’s empowerment, other Ministries have as- Protection Unit in 2005 following the Administrative De- signed a gender focal person who is in charge of working cree No. 48 issued by the General Director of Police on gender integration in all gender-related activities Forces. The Unit started in Khartoum as a pilot phase, within the Ministry. Usually, the Gender Focal Point liais- then 15 units were established after 2008. Each Unit in- es with other federal ministries and organisations on cludes three departments: the Department for psycho- gender topics. This could include, but not limited to, par- logical and social support that studies the psychosocial ticipation in meetings, workshops, development of na- and social state of the child’s family and provides ade- tional strategies, and evaluation of action plans. quate support, the Child Agency responsible for children investigations and a Children’s Court. Among the institutions that assigned a gender focal person are: the National Council for Strategic Planning, Min- The Unit focuses on providing a child and family-friendly istry of Irrigation and Water Resources, Ministry of La- environment, which lessens the trauma of women or bour and Human Resources, Ministry of Health. child survivors of crimes and reduces secondary victimi- sation. Support is provided to children and women victims of violence throughout the court process including 13 The Ministry of Welfare and Social Security: http:// making of a complaint, notifying police, investigation and www.esudan.gov.sd/department/20 [accessed on 20 May 2017] physical separation of the victim/perpetrator in court- 14 ibid rooms. Services currently provided include professional 12 National Assesmbly, accessible at http://www.parliament.gov.sd/ar/ medical care, counselling, and access to dedicated inves- index.php/site/currentPalriament [accessed on 6 June 2017]

30 GENDER PROGRAMMATIC REVIEW Gender Mainstreaming within UN 4 Coherence in Sudan

GENDER PROGRAMMATIC REVIEW 31 4.1 United Nations Development Assistance • Outcome 2: Populations vulnerable to environmen- Framework (UNDAF) 2013 - 2016 tal risks and climate change become more resilient, The Sudan UNDAF is a collective, coherent and integrat- and relevant institutions are more effective inthe ed response by the United Nations System to national sustainable management of natural resources. priorities set out in the Five-Year National Development Pillar 2: Basic Services Plan 2012 – 2016. It was developed and signed by 18 UN agencies and the Government of Sudan during 2012. • Outcome 3: Government and stakeholders have evi- This work was the result of an inclusive process involving dence-based policies, strategic plans and mecha- the Government and the United Nations Country Team nisms to ensure an enabling environment for im- (UNCT) and was guided by the goals and target of the proved basic services. Millennium Development Goals and Millennium Declara- • Outcome 4: People in Sudan, with special emphasis tions. The UNDAF recognised the interface between hu- on populations in need, have access to equitable manitarian and development engagement, and that and sustainable quality basic services. these stages often occur simultaneously. Therefore, achieving a smooth transition to recovery and longer- Pillar 3: Governance and Rule of Law term development was the cornerstone of the UNDAF. • Outcome 5: Governance institutions at all levels are A formal launch of the UNDAF occurred in January 2012 strengthened to effectively plan, deliver and moni- followed by a 3-day programming principles training tor their mandates, particularly public services, in an workshop. Four interrelated pillars of cooperation were equitable and accountable manner. identified (1) Poverty Reduction, Inclusive Growth and • Outcome 6: People in Sudan are protected under an Sustainable Livelihoods, with particular attention to enabling environment that guarantees rule of law, youth, women, groups in need; (2) Basic Services, fo- human rights and fundamental freedoms. cused at both policy and service delivery levels; (3) Gov- ernance and Rule of Law, including broad institutional Pillar 4: Social Cohesion, Peace Consolidation and Peace strengthening and deepening of basic rights and justice Dividends for all; and (4) Social Cohesion, Peace Consolidation and • Outcome 7: Government and civil society initiatives Peace Dividends, with high-level efforts at the centre that promote social cohesion, peace, consolidation complemented by comprehensive development initia- and pluralism are strengthened tives at local levels. In addition, six crosscutting issues were identified including protection, gender, environ- • Outcome 8: Peace dividends are delivered for sus- ment, emergency preparedness and disaster risk reduc- tainable return, reintegration and recovery. tion, and HIV/AIDS.

Subsequent to the articulation of the four pillars of the 4.2 Gender Sensitivity in UNDAF (2013 – 2016) UNDAF, outcomes and areas of interventions under each pillar were agreed upon during several discussions be- UNDAF uses ‘gender equality’, in addition to other relat- tween stakeholders, including members of the Govern- ed concepts such as ‘women’s empowerment’ and ment, staff from regional institutions, donors, national ‘gender responsive planning and budgeting’, in different and international NGO and key United Nations staff. The sections of the document. It is stated clearly that “the UNDAF Results and Resources Framework was devel- United Nations System will offer support in areas such as oped and validated marking the start of the UNDAF im- gender equality, particularly legislation and policies that plementation. Participating UN agencies and the Govern- protect women form Gender-Based Violence.” Moreo- ment agreed to keep UNDAF as a ‘living document’, flexi- ver, UNDAF highlighted that “increasing commitment to ble to respond to Sudan’s evolving socioeconomic con- social inclusion, with special attention to women, youth texts. and groups in need” will be considered as a crosscutting strategy that requires collaborative or joint programmes Each of the UNDAF pillars had two outcomes as follow: or funding. The term “especially youth, women and Pillar 1: Poverty Reduction, Inclusive Growth and Sustain- groups in need” was used in several sections of the UN- able Livelihoods DAF, highlighting the need to put a focus on them. • Outcome 1: People in Sudan, with special attention This focus was also emphasised under the first outcome to youth, women and populations in need, have im- that seeks to enhance the economic empowerment for proved opportunities for decent work and sustaina- people in the informal sector, particularly for rural wom- ble livelihoods and are better protected from exter- en. Developing women’s capacities is discussed in order nal shocks, thereby reducing poverty. to promote decent work. For example, women were targeted for capacity building in improved methods of feeding household animals while prioritising improved

32 GENDER PROGRAMMATIC REVIEW agriculture production. DAF. The M&E group was established to provide technical assistance supporting an effective M&E system The second UNDAF pillar included improving institution- and to support Pillar Groups in monitoring the imple- al capacities for service delivery, such as health services mentation and progress toward each UNDAF Outcome. to reduce neonatal and maternal mortality; prevention of malnutrition in children and women; and strength- The UN system provided a wide range of expertise to ened capacities for reproductive health management strengthen capacities at federal and state level institu- and delivery. A focus was put on increasing access to tions as well as communities and individuals. The UN basic education for girls and provision of alternative assistance has strengthened, governance, justice and learning and empowerment opportunities for adoles- rule of law, has increased access to quality basic ser- cents, while women’s participation in training on com- vices and sustainable livelihoods. munity water management was emphasised. However, a number of weaknesses in the UNDAF re- The third UNDAF pillar highlighted the importance of sults matrix prevented the assessment of results effec- supporting the Government at national, state and local tiveness such as difficulties to find evidence that results levels, and developing their capacities to develop gender are attributed to a common UN approach promoted by -responsive constitutions and gender-responsive plan- the UNDAF. In addition, it was noted that outcomes ning and budgeting in policies, plans, programmes, laws were too broad and the internal logic was poor, in addi- and budgets. Strengthening the protection system to tion to the poor use and monitoring of risks and as- protect women from gender-based violence, including sumptions. Moreover, the UNDAF document did not FGM/C and child marriage is also stated under the third continue as a living document for long after its signa- pillar. ture in June 2012 due to the lack of regular and effective coordination with the Government and the ab- Furthermore, the roles of women and youth in peace sence of effective coordination and leadership from the consolidation and peace dividends were emphasised UNCT. (UN Country Team, 2015) under the fourth pillar. The United Nations system planned to develop and support evidence-based return, A Gender Team was established by UN Women in 2013 reintegration and recovery processes with a focus on to monitor and coordinate interventions related to gen- women and children, community security and environ- der. Another team coordinated gender under the hu- mental protection. manitarian sector, led by OCHA. Representatives of UN agencies interviewed during the data collection phase

of this review highlighted the lack of effective and regu- 4.3 Evaluation of UNDAF Implementation and lar coordination meetings in both teams. The first team Gender Mainstreaming was operating for almost two years then stopped due The UNDAF was implemented through the Country Pro- to lack of human resources in some of the participating grammes and Country Cooperation Frameworks by UN UN agencies, while the second team had only two partner organisations in Sudan. Individual agencies’ meetings during 2016. Internal discussions are taking Country Programmes and project documents specified place to merge both teams and reactivate regular how to contribute to UNDAF objectives and cooperation meetings during the new UNDAF (2017– 2021). strategies. In addition, interviewees highlighted the effective role The United Nations Country Team (UNCT), under the played by UNICEF in promoting gender equality and leadership of the Resident Coordinator, was responsible discussing gender issues during meetings. Other chal- for the effectiveness of United Nations system develop- lenges related to planning, implementing and monitor- ment activities. The Programme Management Team ing gender equality targeted interventions were high- (PMT) was the key coordinating body for the UN’s devel- lighted. This includes the lack of Government capacities opment programming activities facilitating coordination to work on gender mainstreaming, lack of qualitative around the UNDAF pillars. The PMT, grouping heads of and quantitative sex-disaggregated data, lack of a com- programmes from all UN agencies, provided strategic mon understanding and interpretation of gender main- leadership at the technical level and was responsible for streaming, and lack of knowledge about gender main- overseeing the work of UNDAF Pillar Groups and the streaming tools. In addition, gender experts serving UNDAF M&E group. Pillar Groups, comprising represent- within UN agencies may not be engaged in Gender atives of UN agencies and the Government were created Teams. to be the main mechanisms for implementing the UN-

GENDER PROGRAMMATIC REVIEW 33 4.4 Recommendations to Improve Gender Mainstreaming within UN Coherence in Sudan In order to improve gender mainstreaming within UN Coherence in Sudan, it is recommended to: • Develop a common understanding on gender equality and gender mainstreaming between UN agencies and the Government in programmes. • Develop a gender equality strategy based on the current gender issues, bottlenecks and barriers identified in Sudan. • Review and clarify roles and responsibilities of each UN agency to promote gender equality and mainstream gender. • Identify evidence-based results in UNDAF frameworks toward promoting gender equality. • Support the Government on national, state, and local levels to generate qualitative and quantitative sex-disaggregated data in order to plan, implement, and monitor gender equality interventions. • Merge the two Gender Teams in one team and engage UN agencies and Government gender experts to take part of the team.

34 GENDER PROGRAMMATIC REVIEW Gender Mainstreaming in UNICEF 5 Programmes: Quality of Planning

GENDER PROGRAMMATIC REVIEW 35 5.1 UNICEF mandate on gender equality in programming. UNICEF policy on gender equality Therefore, the GAP defined four cross-sectoral targeted The promotion of gender equality and the empower- priorities: ment of women and girls are central to the mandate of • Promoting gender-responsive adolescent health; UNICEF and it focus on equity. Having a strong field pres- ence in more than 153 countries and working in key sec- • Advancing girls’ secondary education; tors including nutrition, health, education, child protec- • Ending child marriage; tion, water, sanitation and hygiene, UNICEF has a comparative advantage to address the intersecting forms of • Addressing gender-based violence in emergencies. gender discrimination. This mandate is grounded in both These four priorities span the strategic plan outcomes the Convention on the Rights of the Child (CRC), and the (health, HIV/AIDS, nutrition, WASH, education, child pro- Convention on the Elimination of All Forms of Discrimina- tection, and social inclusion). In essence, gender main- tion against Women (CEDAW) in addition to the Beijing streaming means that the impact of all policies and pro- Declaration, which reinforces the rights of children and grammes on women and men should be considered at promotes gender equity. every stage of the programme cycle – from planning to In 2010, UNICEF adopted a policy on gender equality and implementation and evaluation. Furthermore, the four the empowerment of girls and women, which consti- priorities are inherently interconnected. Therefore a tutes the basis for the organisation’s work in the field of gender focus can create synergies and efficiency that gender equality. This gender policy mandates that all simultaneously improve more than one outcome. UNICEF-assisted programming, including in emergencies, The GAP encourages each UNICEF country office to contributes to gender equality in clearly defined and choose at least one of the targeted priorities, depending measurable ways. The establishment of the gender poli- on their local context and overall programmes. Then cy was followed by the development of a three-year they are invited to address the underlying factors relat- Strategic Priority Action Plan (SPAP), on gender equality, ed to selected priority, or priorities, through: 2010–2012. The SPAP was extended by one year to cov- er 2013 in order to allow the development of the Gender • Enhancing the enabling environment for better out- Action Plan (GAP). comes by working with local governments to develop policies and plans for addressing girls and boys Moreover, in 2013, an end-cycle review was conducted needs, support systematic legal and policy reform, to assess the implementation of the SPAP and to provide collecting, analysing and using disaggregated data information that supports the GAP development. The and strengthen the evidence base on effective strat- result of this review indicated that while institutional egies; systems and processes in support of gender equality have been significantly enhanced, a stronger focus is • Increasing and integrating gender-responsive ser- needed on gender programming and results. The review vices by maximising opportunities to deliver inte- highlighted the progress made by UNICEF on leadership grated services, supporting capacity-building, ensure commitment, interagency partnerships, strengthening of access to services and support service delivery; planning and reporting processes and the ownership by regional country offices with regard to gender as an insti- • Creating demand at the community and family level tutional priority. However, the review noted some areas by raising awareness and support structural change that require further improvement such as: monitoring that address gender norms and socio-cultural barri- and tracking of gender equality results and adequate ers to gender equality. technical capacity and expertise on gender. Furthermore, successful programmes should be aligned to the five following principles: The Gender Action Plan (GAP) • Scale: Programmes should focus on coverage in terms of beneficiaries reached, systems and design Based on the review findings, UNICEF developed the of programmes to be sustained. Gender Action Plan (GAP) 2014–2017, which aligns with the SPAP and specifies how UNICEF will promote gender • Resources: Programmes should have adequate fi- equality across all of the organisation’s work. As defined nancial and human resources. in the GAP, gender equality means that women and • Experts: Experts, with the right combination of gen- men, girls and boys, enjoy the same rights, resources, der, sectoral and cross-sectoral expertise and strong opportunities and protections. To that end, the GAP partnerships should implement programmes. shifted the approach of UNICEF and offered a dual programmatic approach addressing gender inequality: multi • Measurement and evaluability: Programme should -sectoral targeted priorities and gender mainstreaming measure and evaluate gender equality addressing 36 GENDER PROGRAMMATIC REVIEW results that are strong, meaningful, relevant and systems at the federal and state levels and pro- feasible. moting social mobilisation in support of the achievement of results for children. • Innovation: Programmes should explore and employ new technologies, new partnerships and new ap- • Transition from Emergency to Early Recovery and proaches to cross-sectorial collaboration to address Sustainable Development. With a focus on transi- gender bottlenecks and barriers. tioning to early recovery, this programme component entailed the protection of children recovering

from the effects of conflicts and natural disasters as 5.2 UNICEF Sudan Country Programme (2013 – well as children living in states with global acute 2017) malnutrition rates of above 15 per cent. Another Country Programme Document (CPD) and Country Pro- key focus in post-conflict settings was the restora- gramme Action Plan (CPAP) (2013- 2017) tion of the rule of law and basic services that may have been disrupted during the emergency phase. In 1994, UNICEF and the Government of Sudan signed the Basic Cooperation Agreement (BCA) that was • Social Policy, Monitoring and Evaluation, and Com- amended in March 2010. Based on the BCA, both part- munication. This programme component aimed to ners agreed on the content of the Country Programme Action Plan (CPAP) for the period 1 January 2013 to 31 December 2017. The overall goal of the CPAP (2013–2017) was to support a more equitable development for children while protecting the fundamental rights of all children recovering from the effect of conflict and natural disasters. With an equity focus, the CPAP addressed key bottlenecks and barriers to the needs of disadvantaged children. These children are living in low-performing localities in terms of access to decentralised basic services, in • Cross-sectoral/Management Support. rural areas, in urban slums or in nomadic and internally displaced persons’ communities, children living with disabilities, as well as children affected by conflict. The CPAP underlined UNICEF support to the Government to transport, logistics and provide sub-state level information on disparities so that warehousing, the resources are allocated to the most disadvantaged populations within a state based on statistically solid evidence. The programme addressed the continued high rates of In addition to the four components, UNICEF’s work was child and maternal mortality, low enrolment and stand- guided with four key programming strategies that are ards of quality of basic education, inadequate protective integrated in a crosscutting manner throughout its sec- environments for children, the adolescent population toral programme interventions. These programming bulge and associated demands and vulnerabilities, and it strategies could be summarised as follows: advocated for the establishment of appropriate policy • Setting a human-rights-based approach to all inter- and legal frameworks and needed budgetary provisions. ventions. This also takes into account a gender per- Furthermore, the programme aimed to facilitate inter- spective and pays particular attention to program- sectoral convergence and the mainstreaming of the in- ming that includes boys and girls with disabilities, in ter-sectoral approach. addition to a focus on policy, legal and institutional The CPAP structure proposed four programme compo- reform for achieving equity and empowerment of nents: the rights holders. • Prioritising knowledge management and improvement of data quality and adequacy for strategic • Child Rights and Disparity Reduction. This pro- analysis of the situation of children to ensure a sol- gramme component supported development in Su- id basis for the programme design, evidence-based dan with a focus on service delivery and advocacy programming, and up-streaming child and adoles- for increased public investment in nutrition, educa- cent rights into development strategies at national tion, health (including HIV/AIDS), WASH, child pro- and state levels. tection and adolescents, as well as strengthening

GENDER PROGRAMMATIC REVIEW 37 • Building the national and institutional capacity, in into account a gender perspective in all interven- partnership with other development actors to ena- tions.” (UNICEF Sudan, 2013, pg 10) Moreover, in the ble the Government and other stakeholders to un- proposed programmes and results matrix, terms like dertake their role as key duty-bearers for the rights “gender equality”, “gender perspective”, “focus on equi- of children and women. ty”, “tracking gender disparities” and “gender sensitive” are used to put a focus on gender. For example, • Follow strategic partnership and communication for “UNICEF will support the Government to generate development approaches to deliver uniform infor- knowledge on the situation of adolescent girls and boys mation about children and their rights, promote pos- between 10 and 18 years old with a focus on tracking itive behaviour and social change, and reinforce pos- disparities…” (UNICEF Sudan, 2013, pg 17) and itive societal norms that acknowledge and reinforce “interventions for adolescents target girls and boys the rights of children and women, especially those equally.” living in the most disadvantaged communities. In addition, some intermediate results (IR) include spe- UNICEF Sudan Country Office CPAP (2013-2017) has cific reference to boys and girls in targeting, for exam- three main outcomes: ple, “IR 1.3.1 – By 2014, government systems have the Outcome 1: At least 3.8 million of the most vulnerable capacity to design multi-sectoral strategies that address children (girls and boys) including children affected by and monitor undernutrition, and then plan nutrition in- the humanitarian crisis have access and use scaled-up terventions that identify and reach the most disadvan- proven sustainable, high impact, integrated quality ser- taged girls and boys.” Other results emphasis interven- vices for life saving, learning, development and protections for girls, for example, “IR 1.5.2 – By 2015 social tion in the most deprived localities in Sudan. practices that are harmful for children – and especially Outcome 2: Children, especially adolescents (boys and girls – are reduced;” and “IR 1.6.3 – By 2015, out of girls), families and communities in the most deprived school adolescents, especially girls, in targeted states localities are resilient and adopt appropriate practices to have increased access to life skills, entrepreneurship reduce their vulnerability. preparation and referrals to vocational skills training as part of the Alternative Learning Programme.” Outcome 3: Evidence and coordination enable the Gov- ernment, communities and partners to improve capacity Based on the revised results matrix rate, the first out- and systems for equity-focused funding, advocacy, poli- come (33% of outcomes) is rated under category 3 of cies and legislation, strategies, planning and supply chain the GEM while the second and third outcomes (67% of management to scale up results for children. outcomes) are rated in category 2. The 20 outputs are rated as follows: 16 outputs (80%) are rated in category

5.3 Gender Sensitivity in Programme Planning in The Gender Equality Marker (GEM) classifies outcomes the CPD/CPAP 2013 – 2017 and outputs into four categories, based on their expected contribution to advancing gender equality, as Achievements follows: (from high to low) The CPD/CPAP were guided by the Convention on the Category 3: Gender equality and/or empowerment of Rights of the Child, the convention for the Elimination of girls and women is a principal objective of the interme- all Forms of Discrimination against Women, the Conven- diate result and one of the main reasons the result was tion on the Rights of Persons with Disability, the Millen- formulated, with corresponding indicators to measure nium Declaration, and Millennium Development Goals. how gender equality will be advanced. (UNICEF Sudan, 2016) Both documents used comprehensive data on the situation of children and women from Category 2: Gender is not the principal objective of the the Sudan National Baseline Household Survey (SNBHS, IR. However, it is a secondary objective expected to 2009) and Sudan Household Health Survey (SHHS, 2010). make a significant contribution advance gender equali- Disaggregated data by sex and age group in basic educa- ty, with corresponding indicators to measure how gen- tion is mentioned, for example, “3.2 million children der equality will be advanced. aged 6–16 are out of school, 53 per cent of whom are Category 1: Intermediate results that make a marginal girls.” Issues like gender disparities in education, early contribution advance gender equality. Gender equality marriage, and FGM/C prevalence were highlighted. In is not an objective of this intermediate result. At least addition, the CPAP describes how the attitude of parents one indicator refers to gender in some way but the indi- in rural areas toward child marriage contributes to gen- cator(s) does not show how gender equality will be ad- der disparity in girls’ education. vanced. UNICEF SCO confirm its commitment to gender equality Category 0: Not Expected in the first key crosscutting strategy that includes “taking

38 GENDER PROGRAMMATIC REVIEW 2, while four outputs (20%) are rated in category 1. It is to be breastfed than boys”, but does not present rea- important to note that the highest-ranked outcome, sons regarding this issue. Likewise, the MICS 2014 high- based on the GEM has the highest budget for 2015- light a “considerable variation in the net school attend- 2016 ($55,278,568), compared to the second outcome ance rate ratios between boys and girls, even within ($40,291,055) and the third outcome ($31,844,914). states.” A further in-depth analysis is needed to understand reasons behind both issues. In the first example Interestingly, the SITAN 2017 took further steps into more inquiries are needed to understand breastfeeding qualitative data and analysis on gender in few areas. For circumstances and answer the question: why are girls example, concerning the girls’ low attendance rate in more likely to be breastfed? In the second example, secondary education, the report says that “a lack of ade- closer analysis is needed in each state to know why girls quate safe water supply and sanitation facilities is one of do not attend secondary schools. Answering these the immediate causes of dropping out of school, espe- questions will allow tackling gender disparity in both cially among girls.” (UNICEF Sudan, 2017a) In addition, issues in future targeted interventions. girls “suffer early marriage, risk of sexual abuse and physical violence including FGM, and have an inferior Even though there is a focus on gender while using the social position in what is still a patriarchal socie- Gender Equality Marker to code intermediate results/ ty.” (UNICEF Sudan, 2017a) This further analysis allows a outputs, some of the outputs are overrated. For exam- better understanding of gender disparity in secondary ple: Output 2.4 indicates, “Schools in deprived localities education. By exploring other gender and quality as- are empowered to enhance quality inclusive educa- pects of secondary education, barriers and bottlenecks tion”, indicators are “(1) Number of functioning school could be identified and targeted actions could be management committees (PTAs) in selected localities. planned in order to advance girls’ secondary education. (2) Number of schools with report cards on the status of quality at school level. (3) Number of adolescent girls Furthermore, the WASH section in CPD/CPAP conducted and boys in formal and non-formal education partici- a gender review in 2015. The review added considerable pating in skills-based extra curricula activities.” The qualitative and quantitative data on gender disparities main objective of this IR is to address empowerment to and provided recommendations toward gender main- enhance quality inclusive education – there is no men- streaming in WASH interventions. tion made of analysing gender gaps in inclusive education and taking any targeted action to address these Challenges gaps. The first indicator monitors the increase in the number of school management committees; the gen- Remarkably, the situation analysis of children and wom- der balance in these committees or how women will be en, in the CPD/CPAP (2013 – 2017), does not highlight involved or empowered is not clear. Also, the third indi- areas of gender inequality or gender issues, expect in cator includes participation of adolescents (boys and enrolment rates in basic education (77% for boys, and girls) but there is no clear indication on how this partici- 69% for girls) and FGM/C. This could be due to the lack pation will promote gender equality. This IR is rated in of sex-disaggregated data that helps in identifying these the category (2) as significant, based on the Gender areas. In addition, the CPD/CPAP does not provide a Equality Marker; it should be rated in the category (1). meaning for the used term “gender sensitivity” or how to promote “gender equality”. The CPD and CPAP (2013 – 2017) were developed in 2012, while the Gender Action Plan (GAP) was devel- The MICS 2014, which was developed after the CPD/ oped in 2014. Therefore, the four gender targeted priori- CPAP, includes quantitative sex-disaggregated data that ties in the GAP were not integrated in the CPD/CPAP can show gender disparities in some areas such as sec- (2013 – 2017) and UNICEF SCO does not have an articu- ondary education, economic activities and household lated gender priority. However, gender mainstreaming chores, early marriage, domestic violence and (the second approach of the GAP) was taken into consid- knowledge of HIV transmission. However, both the SHHS eration during the implementation of the CPAP and 2010, and MICS 2014, lack gender qualitative data that UNICEF SCO worked on integrating gender in its pro- helps to understand reasons and bottlenecks of gender grammes. disparities.

For example, the SHHS 2010 states “girls are more likely

GENDER PROGRAMMATIC REVIEW 39 5.4 Recommendations to improve next CPD, CPAP (2018 – 2021)

- A gender analysis examines the relationship between women and men. It examines their roles, access to and control of resources and the constraints they face relatively to each other. In addition, it explores gender differences so policies, programs and projects can identify and meet the different needs of men and women. It also facili- tates the strategic use of the distinct knowledge and skills women and men possess. Therefore, a gender analysis should be integrated in need assessment and situation analysis in order to guide the design, implementation, monitoring and evaluation of programmes to promote gender equality in Sudan.

- Formulate gender sensitive qualitative and quantitative indicators for intermediate results that help in keeping a continuous focus on gender equality during planning, implementation and monitoring and evaluation of interventions. Qualitative gender sensitive indicators can measure the desired change toward gender equality such as changes in behaviours, attitudes and quality. The Gender Equality Marker as well as UNICEF Guidance Notes provides examples and ways to develop gender indicators.

- The targeted approach suggested by the GAP (2014 – 2017) through the four gender priorities allows for sharpened articulation of particular outcomes from a gender perspective. The four GAP priorities facilitate crossing of sectoral boundaries that might otherwise limit the visualisation of both the problem and the solution from a holistic perspective. In addition, they are interconnected and can create synergies and efficiency that simultaneously improve more than one outcome. Therefore, UNICEF SCO needs to choose at least one (maximum three) from among the four GAP priorities as relevant for Sudan local context and overall programme. This selection should be followed by: (1) an in-depth analysis of gender bottlenecks and barriers that prevent the achievement of priority gender results; (2) formulation of programmatic responses that address these gender bottlenecks and barriers; (3) modification of relevant indicators to measure progress for gender programmes and (4) defining required resources to achieve gender results. (A suggestion for two gender priorities is presented in the consolidated recommendations of this report. This suggestion is based on discussions with UNICEF SCO GFP partners, staff and management).

40 GENDER PROGRAMMATIC REVIEW Gender Mainstreaming in UNICEF 6 Programmes: Assessment of Progress

GENDER PROGRAMMATIC REVIEW 41 Introduction To increase access to improved sanitation services, This chapter aims to monitor, in a holistic approach, gen- UNICEF supported the construction of sanitation facili- der mainstreaming in UNICEF Sudan Country Office pro- ties in emergency-affected areas and the promotion of grammes in WASH, child protection, education, health, improved sanitation practices in the underserved rural and nutrition. For each key programme, selected areas. 386,688 people affected by emergencies and achievements and challenges will be presented from a those in vulnerable rural areas (178,219 males, 208,469 gender perspective, as well as recommendations for im- females) gained access to improved sanitation facilities. provement. Information was gathered from UNICEF Su- In addition, 2,100,600 emergency-affected and rural dan Country Office’s reports, literature review, meetings populations (53% female) were reached with hygiene with section chiefs and staff and focus group discussions promotion interventions with a focus on hand washing with partners and community members. Data analysis with soap. was conducted based on available information for each Moreover, in order to promote girls’ education, UNICEF sector. supported 53 schools to establish improved sanitation facilities. Separated, child-friendly and gender sensitive latrines (for boys and girls) were established to serve 6.1 WASH more than 31,500 students (53% girls and 47% boys). Achievements This intervention had a positive impact on school environment and enrolment rate, especially for girls. UNICEF’s WASH interventions contribute to providing the most vulnerable population in emergency affected Furthermore, as a response to the arrival of more than areas with equitable, sustainable and gender sensitive 20,000 IDPs, especially in North Darfur state, UNICEF access to new or improved drinking water sources and provided daily sustainable water supply (15 litres per sanitation facilities. To this end, UNICEF, in collaboration person per day) even in high-risk areas. Transforming with key partners, provided lifesaving improved water service provision from emergency to development is supply to an average of 2.2 million vulnerable people considered as a high priority to UNICEF WASH, especially (half of them are children) in emergency and un-served in IDP camps. Therefore, UNICEF developed a gender- rural areas. The increased access and use of improved sensitive framework transitioning from emergency to drinking water sources has significantly contributed to recovery and development and advocate for promoting the reduction of child diarrhoea as shown in Ministry of sustainability of water supply. Health reports. UNICEF supported improved water In addition, UNICEF builds the capacity of WASH part- sources for around 70,000 South Sudanese refugees. ners, including around 510 people (45% females) on key Massive interventions, mainly water disinfection, against WASH technical issues mainly community approaches Acute Watery Diarrhoea (AWD) epidemics that affected for total sanitation and M&E. At the community level, seven states with the total case load of 5,054 cases and trainings are provided to community members, includ- 138 deaths (November 2016) has effectively contributed ing 5,000 individuals (49% females) in operations and to the dramatic reduction of the reported cases with no management of WASH facilities, water chlorination and new reported cases in six out of seven affected states. hygiene promotion. Currently 36 communities were supported and enabled to manage their WASH services in Progress in achieving GAP Gender Mainstreaming targets in the WASH programme Mainstreaming Indicator Baseline Target Progress Gender in (MICS (GAP) (MICS, 2014) Programming 2010)

Access to water and Percentage of households having an improved 60.5% 75% 68% sanitation at home source of drinking water Percentage of the population having improved 27.1% 50% 41% sanitation facilities Percentage of the population practicing open N/A <33% N/A defecation Note: This indicator is not part of CPAP Indica- tors Implementation of national strategy to eliminate 0 1 0 open defecation Note: This indicator is not part of CPAP Indica- tors 42 GENDER PROGRAMMATIC REVIEW emergency areas (total target is 100 communities). drinking water increased from 60.5% in 2010 to 68% in 2014, as well as the percentage of the population hav- Advocacy efforts and capacity development contributed ing improved sanitation facilities increased from 27.1% to an allocation of USD 1,448,230 from key national in- in 2010 to 41% in 2014. There was no available infor- stitutional focal points for WASH (Ministry of Water Re- mation on the percentage of the population that prac- sources and Electricity and the Ministry of Health). This ticed open defecation. amount was dedicated to improve sanitation at national and state levels, as well as the establishment of a na- Challenges tional water atlas to monitor the water supply sources in During 2016, sanitation coverage in Sudan fell short of Sudan, in partnership with the African Development the planned target. The main constraints identified by Bank and the Government. In addition, UNICEF support- staff are inadequate financial access by households to ed WASH sector reform including stronger sector coor- construct, use and maintain their own improved la- dination, the development of 2017-2021 WASH sector trines along with the low allocation of overseas devel- strategic plans, national policy, and institutional capacity opment aid and government funds to support promo- development. tion of improved sanitation and hygiene activities at The WASH section was the first to work on gender main- scale. streaming within UNICEF key programmes. An evalua- Interestingly, the WASH gender review conducted in tion for the WASH programme in 2011 suggested a fo- 2015 highlighted the need to: cus on gender. Therefore, a gender review was conducted in 2015. The review highlighted the high awareness • Ensure UNICEF WASH staff and WASH partners’ and knowledge level of the UNICEF WASH team. The capacity-building at the federal level in order to team used several standard tools such as the Interagen- promote gender mainstreaming cy Standing Committee (IASC) Gender Marker and Gen- • Enhance WASH sector commitment to gender der Equality Checklist. The recommendations included equality supporting equal participation for women and men, supporting programmes at the institutional level, and rein- • Strengthen the incorporation of gender issues into forcing WASH communication and advocacy interven- WASH sector analysis and studies tions. • Promote and monitor women’s leadership and par- Percentage of households having an improved source of ticipation in decision-making at the community and

Recommendations to improve gender mainstreaming in the WASH sector • Incorporate an in-depth gender analysis to regular WASH situation analyses and surveys. The analysis should bring more disaggregated data by sex and age and more qualitative data on women’s participation, influences and networking. The analysis should help in understanding communities’ behaviours, social habits, cultural norms and gender disparities related to WASH services. • Strengthen information and data collection systems to get more accurate sex-disaggregated qualitative and quantitative data. In addition, ensure that the needs of girls, boys, women and men are differentiated to enable interventions to respond to all of them. • Provide more efforts to ensure girls’ and women’s participation in decision making related to water and sanitation facilities management. Cultural- and gender-awareness workshops can be an opportunity for an equal and effective participation of women and men in discussions related to the design and location of sanitation facilities. • Work separately with women’s and men’s groups, where necessary, to counter the exclusion and prejudice related to water, sanitation and hygiene practices. • Reinforce partners’ capacities on gender equality and gender mainstreaming in WASH programmes and provide equal opportunities to women and men for capacity building. • Undertake small impact assessments that monitor impact of WASH interventions on girls, boys, women and men and facilitate learning and replication of gender mainstreaming good practices. • Support the Government to develop a national strategy to eliminate open defecation as well as to plan, implement and monitor relevant interventions.

GENDER PROGRAMMATIC REVIEW 43 household level children in all forms, and also seek to create a protective • Reinforce men, women, and adolescent boys’ and environment. (UNICEF 2008b) girls’ awareness and capacities to ensure ownership, To that end, in 2016 more than 303,702 children maintenance and hence sustainability of household (150,123 girls and 153,579 boys) at risk and victims of sanitation facilities violence, abuse and exploitation benefited from preven- tive and responsive child protection services. With the • Promote men and boys’ greater involvement in tra- support of UNICEF to the justice for children system, ditionally female WASH tasks mainly the Family and Child Protection Units (FCPU), a • Promote women’s participation in water manage- 40% reduction (238 per 100,000 children) in the rate of ment, operation and maintenance in detention was achieved and ‘diversion’ outside the justice system was implemented. During 2015 and 2016, UNICEF’s WASH section worked on carrying out the gender review recommendations in The FCPU also delivered protection services to an aver- different areas. However more efforts are needed espe- age of 23,000 children (45% girls), including children cially in promoting women’s participation in water man- victims of sexual and physical violence and children in agement. conflict with the law in 18 states during 2016. 40% of children in conflict with the law were diverted outside Moreover, there is a highlighted need for more disaggre- the judicial system (23% females) and a total number of gated data by sex and age and more qualitative data on 4,474 children (2,466 girls, 2008 boys) were reunified or women’s participation, influences and networking. placed in family-based alternative care services. Therefore, an in-depth gender analysis at the state level will help in providing the required qualitative data. Furthermore, UNICEF supported the establishment of Child Friendly Spaces (CFSs) as a humanitarian response Although school internal water connection systems are to provide quality and integrated psychosocial support available, the external connections to water sources are not established in considerable number of schools. This in 51 localities. An average of 83,000 children were affects the school environment and enrolment rate, es- served through CFSs (50% boys and 50% girls). This pecially for girls. number is considered to be 60% of the 2016 target. Due to the influx of South Sudanese refugees from the Challenges stated by UNICEF’s WASH staff are: insuffi- cient sector funding and disparities in the sector financial armed conflict in South Sudan, the number of unaccompanied and separated children (UASC) increased. During flow, unavailability of equity-focused M&E systems, inad- 2016, a total number of 3,750 UASC (47% girls) in five equate institutional management capacity, inadequate states have been placed with relatives or placed in fami- motivation for the sector competent staff to stay, and ly-based alternative care services (UNICEF’s target was low private sector involvement. 2,200 children in 2016).

In the justice for children system, UNICEF supports ca- 6.2 Child Protection pacity building of judges, prosecutors and police officers Achievements working with children. A training manual was developed in collaboration with the Judicial and Legal Sciences In- UNICEF’s child protection programmes aim to prevent stitutes to be integrated into the Institutes’ curriculum and respond to violence, exploitation and abuse against in 2017. Support is also provided on institutional and

Progress in achieving GAP Gender Mainstreaming targets in the Child Protection programme

Mainstreaming Indicator Baseline Target Progress Gender in (GAP) (MICS (MICS, Programming 2010) 2014)

Reduction in gender Percentage of reduction in proportion of girls aged N/A 10% re- N/A -based violence 15-17 years who have ever experienced sexual vio- duction lence (forced to have sexual intercourse), in countries with prevalence of at least 5% Note: Not part of CPAP Indicators Gender responsive Revised or improved child protection policies on 0 1 0 legislation and poli- the basis of a gender review supported by UNICEF cies Note: Not part of CPAP Indicators 44 GENDER PROGRAMMATIC REVIEW legal levels. As an example, UNICEF initiated a decree munities and four million families in 18 states. Most that prevents transfer of judges in children’s cases for at recently, during 2016, around 17,655 parents were least two years and a Criminal Circular that directed consulted in health facilities, of which 13,261 decided judges to use the Beijing Rules. to leave their daughters uncut. The scale-up for the community’s engagement was coordinated with part- In 2013, the joint programme between UNFPA-UNICEF ners, and capacity building for local facilitators (720 was established, and the Sudan Free of FGM/C pro- facilitators, 50% females) was conducted in nine target- gramme was launched. As part of these efforts, the Na- ed states. As a result, 42 communities in 2016 tional Council on Child Welfare coordinates a national (cumulative since 2013 is 951 communities) declared task force and a national initiative, Saleema, aimed at the abandonment of FGM/C and prevalence of FGM/C changing the social norms associated with FGM/C. Qual- declined by 21% in 2014. (MICS 2014) itative and quantitative studies were conducted to understand cultural and social norms behind FGM/C. Inter- On a policy level, after five years of advocacy and tech- ventions were designed to accelerate the abandonment nical advice support from UNICEF and UN partners, the of FGM/C. Government of Sudan signed the Action Plan on Protec- tion of Children in Armed Conflict in March 2016. Advo- However, the impact of such interventions has yet to cacy with other parties of the conflicts, including Sudan produce a substantial decline in FGM/C prevalence. Liberation Movement (SPLM) and Justice and Equality (UNICEF Sudan 2016) By the end of 2016, more than Movements (JEM), is planned as they are invited to pro- 995 communities declared collective abandonment of tect children in the armed conflict and sign similar ac- FGM/C and community dialogues reached 2,357 com- tion plans. Alliances to end child recruitment and en-

Recommendations to Improve Gender Mainstreaming in Child Protection • Carry out a gender analysis to better understand culture, social gender and issues related to girls and boys protection such as GBV, access to the justice system, gender disparities that may appear in birth registration. This could help identifying the “push factors” to violence and women, girls, boys and men perception on violence. • A gender analysis of birth registration data and trends will identify the imbalance regarding the registration of boys and girls and the need for further research and action. For gender in conflict with the law, a gender analysis can reveal different patterns and root causes of detention between boys and girls, as well as violence that boys and girls might face during the judicial process. This analysis can be used to help informing strategies to protect children and keep them out of prison. • Assess the needs of vulnerable boys and girls including adolescents. This should include children in detention centers, unaccompanied and separated children, children with disabilities and internally displaced children who may face different protection risks. Boys and girls have different needs and choices, and possess different skills, knowledge and coping strategies. Therefore, different needs will lead to different targeted interventions. • Reinforce partners’ capacities on gender equality and gender mainstreaming based on human rights. This will help in building a common understanding on gender and gender equality interventions. This should be followed by a collaborative work on gender analysis, gender sensitive planning, monitoring and evaluation. • Include modules on gender equality, gender sensitivity and boys and girls needs in training courses for police, prosecutors and child judges and provide equal training opportunities for male and female practitioners working in the justice for children systems, including FCPU staff. • Work with local communities leaders to monitor gender-based violence cases. And encourage female police officers recruitment. This may encourage girls to disclose cases of sexual abuse or violence they might be facing. • While the parents of girls may be responsible for the child marriage of their daughters, they are, in turn, subject to prevailing cultural sentiments, which place value on young brides and contribute to child marriage. These drivers should be identified in assessments, along with more specific information about the types of girls who are more likely to marry early. • Support the Government in undertaking a Gender Review for national policies and strategies and use results for improvement.

GENDER PROGRAMMATIC REVIEW 45 hance protection of children in armed conflict in Sudan Therefore, it is very sensitive to address sexual violence was expanded, in collaboration with several donors such especially in rural areas, and responses to gender-based- as the Governments of Sweden and Canada who created violence are limited. Rapid assessments for children’s a 'Group of Friends' to support protection in armed con- needs were conducted to inform programme planning. flict with 18 other member states. However, further analysis of vulnerability and risk for There is no available data on gender-based violence and adolescent girls and boys is needed, especially for ado- especially sexual violence. Social norms may prevent lescent UASC in foster care settings. case reporting in a considerable number of states which During focus group discussions with UNICEF child pro- consist a main challenge facing the child protection protection staff and partners, participants highlighted the gramme (discussed in next section on challenges). Un- lack of a common understanding on gender equality. dertaking a gender review for child protection policies Even though the child protection programme is working was not part of the CPAP. on gender equality, a lack of gender sensitivity and gen- Challenges der capacities exist in partners. The child protection programme is supporting several 6.3 Education systems initiatives on the national and state levels to Achievements generate child protection disaggregated data (generated by the governmental bodies responsible for justice, inte- UNICEF, in partnership with the Ministry of Education rior and social welfare). However, systems are still not (MoE) and partners, enabled 276,091 rural, nomadic, reliable enough to generate and analyse data for pur- and emergency affected previously -out of-school chil- pose of planning and programming. For example, there dren (48% girls) to enrol in basic education. The number is a noted lack of qualitative data on gender issues such of out-of-school children was reduced from 1,286,265 in as GBV including sexual violence for boys and girls that 2014 to 326,551 in 2016, representing a 78.9% per cent prevent assessing GBV in communities. reduction in out-of-school children in UNICEF targeted localities. Enrolment increased from 5,229,455 children Moreover, during field visits to rural areas, some com- (48.2% girls) to 5,618,103 (52.6% girls) between the munity members shared that parents could be less likely 2014/15 and 2015/16 academic years. The Gender Pari- to register the birth of girls than boys. Their perception is ty Index (GPI) registered significant progress and in- that a girl will grow up at home and then get married, creased from 0.93 in 2014/15 to 0.98 in 2015/16 indi- handle her household tasks, and take care of children. cating that more girls are enrolling. Therefore she will not need a birth certificate. A further qualitative and quantitative analysis is needed to identify In order to create access to basic education for children, gender disparities in birth registration. especially girls, and promote student retention, integrated efforts between UNICEF child protection and educa- Furthermore, there is a high cultural sensitivity to ad- tion teams were provided to the (MoE) to plan, imple- dressing themes related to GBV within local partners and ment and assess ‘child-friendly’ interventions in schools communities. Community members in a considerable in 15 states. Social assistance was delivered through dis- number of states justified domestic violence as a disci- tribution of teaching and learning materials and school pline method where the household head (the father) has supplies to approximately 509,000 school children the right to beat his wife and children. In addition, in (51.8% girls) to offset the cost of schooling for poor some localities, families have a tendency not to report households. As a result, girls showed a considerable in- cases of sexual violence in order to avoid stigmatisation. crease in the basic education completion rate from 55% Progress in achieving GAP Gender Mainstreaming targets in the Education programme Mainstreaming Gender in Indicator Baseline Target Progress Programming (MICS (GAP) 2010) Gender equality in edu- Number of primary school-age children out of 1,965,068 GPI= 1.0 326,551 cation school and related gender parity index (GPI) (2014) (2016)

Primary completion rate (expressed as Gross 62.7% 100% Intake Ratio in the last grade of primary) and GPI= 0.94 GPI= 1.0 79.3% related Gender Parity Index (GPI) (2014) GPI= 0.98 (2016)

46 GENDER PROGRAMMATIC REVIEW in the 2010/11 academic year to 74.3% in 2014/5, ac- states of which 212 SIP grants were provided by cording to the MICS (2014) data. UNICEF. In capacity building, UNICEF enhanced the capacities of Gender balance was also taken in consideration in Parents-Teacher Associations (PTAs) and School Im- teachers’ capacity building programmes and life skills provement Planning (SIP) committee members in 212 training for adolescent students. Around 6,300 primary schools in seven states to: develop implement and mon- school teachers (48% women) received training on im- itor School Improvement Plans; enhance quality and plementing child friendly inclusive learner centred inclusive education, and; contributed in improving learn- methodologies and 34,500 adolescent students (48% ing outcomes, retention and completion rates among girls) received training on various life-skills-based edu- students. Gender balance was taken in consideration cation topics such as negotiation skills, reconciliation, during the creation of committees and currently 40% of joint problem solving and leadership skills. In vocational the SIP committee members are women. Training on training for youth, around 90,000 adolescents received education in emergencies and psychosocial support to training where 40% were girls. Moreover, UNICEF sup- manage school and to enhance resilience of conflict- ported the (MoE) in revising the child club training affected children were delivered to PTA and SIP com- manual to incorporate life skills education. mittees. In total, 3,171 SIP grants were provided in 18 Furthermore, UNICEF and partners supported the Recommendations to Improve Gender Mainstreaming in Education • Review current curricula and learning materials from a gender equality perspective and suggest gender- sensitive curricula that address the specific needs of boys and girls such as reproductive health and girls and women’s empowerment. • Develop strategies to support female teachers’ education especially in rural areas and encourage qualified teachers to work in rural areas. • Carry out research and baseline studies on the current situation in secondary schools accompanied by gender- based analysis to identify gender disparities in secondary education. A focus on the transition from primary to secondary education for girls is also needed. • Conduct an education gender analysis at school, community, regional and/or national levels to help in understanding gender disparities. To this extent, quantitative sex-disaggregated data needs to be updated. Infor- mation such as enrolment, retention and completion rates for students in pre‐school, primary and secondary schools are necessary. In addition, a gender analysis will reveal disparities in terms of the sex ratios of male and female teachers, as well as their place in the hierarchy. • It is helpful to collect and analyse data about issues that affect educational access and achievement, such as distance between a child’s school and home, measures of parental awareness about educational opportunities, adult (female and male) literacy rates, school quality, socio‐economic status of families and regional constraints on accessibility to qualified teachers. • Furthermore, qualitative data is necessary for an in-depth gender analysis. It can include gender-based violence in school environment, gender roles and responsibilities, gender roles highlighted in curricula, expectations for boys and girls in classrooms, and gender stereotypes. For example, an indirect lowering of expectations for girls in math or science can lead to very real differences in performance. All this data must be taken into account while analysing gender roles in education. • Promoting girls’ secondary education can be a powerful transformative force toward gender equality and girls’ empowerment, especially in rural areas. Issues like child marriage and adolescent pregnancy will be positively influenced. Even though, UNICEF SCO is mainly supporting primary education, it is recommended to put a focus on increasing access to secondary education for girls. • UNICEF can start by collaborating with key partners and local NGOs on promoting girls’ secondary education in a selected number of localities as a pilot, and then expand interventions to other localities while taking in consideration the evaluation results of the pilot. • Include gender equality in life skills programme that is currently under review and support the MoE staff in promoting equal participation of boys and girls in school activities. UNICEF can also integrate gender-sensitivity in curricula review criteria.

GENDER PROGRAMMATIC REVIEW 47 (MoE) to develop a five-year Education Sector Strategic There are geographic disparities for girls’ enrolment Plan (ESSP) for the period of 2017 - 2021. A national sys- rates in emergency zones. However, due to budget con- tem for monitoring student learning outcomes has been straints on funds dedicated to emergency zones, the developed and the first National Learning Assessment UNICEF education team is not able to fully respond to (NLA) report was completed. Findings from the NLA re- these needs. An additional budget for is needed to support shows poor learning outcomes for early grade read- port girls and boys in emergency and promote their ing and early grade mathematics showing that over 40% rights to education. of grade 3 students are unable to read. The results from the NLA report have been used to inform the design of Despite the efforts of UNICEF and key partners to in- the national school grant roll out plan which will target crease female enrolment in schooling, many girls still localities with the worst learning outcomes during the face social, cultural and physical barriers to attend 2017 cycle of the school grants. school, especially in rural areas. Increasing girls’ access to education, however, does not necessarily lead to the The number of out-of-school children is decreasing, from promotion of gender equality. Schools can advertently 1,286,265 in 2014 to 326,551 in 2016, while the primary or inadvertently perpetuate societal gender inequalities completion rate for primary education is increasing from through power relations within schools, pedagogy and 62.7% in 2010 to 79.3% in 2014. The Gender Parity Index portrayal of male and female roles in textbooks and (GPI) for primary completion rate is also increasing from learning materials. Therefore, there is a need to assess 0.94 in 2010 to 0.98 in 2016 closing the gap to the target gender equality within the school environment such as (GPI=1). assessing the curriculum gender sensitivity, gender roles Challenges and relations and risks of gender-based violence. The UNICEF education section builds the capacities of The UNICEF Education section recognises the im- MoE staff on monitoring and evaluation. Approximately portance of gender equality and gender mainstreaming 1,900 of the MoE staff were trained on data collection, in education. However, the focus on gender main- analysis and reporting on the local and national level. streaming happens during the planning phase but is lost However, timely and quality data is one of the main chal- during implementation. lenges affecting the education system. The last available data is from 2012-2013 and the need for up-to-date data, especially sex-disaggregated qualitative and quantita- 6.4 Health tive data, is highlighted to measure progress and inform Achievements planning of further interventions. UNICEF supports the delivery of quality maternal and Furthermore, social norms in some states could be a bar- new-born life-saving interventions through capacity rier to accessing formal education. This can be seen in strengthening of health services providers (doctors, rural areas in several cases. For example, parents may medical assistants and midwives) and the provision of prefer religious education (khelwa) rather than formal essential reproductive health supplies to health facilities education. In other cases, parents may not allow to girls and community midwives. Therefore, health pro- to attend mixed schools (for boys and girls) or to have grammes support an integrated management of child- male teachers. In addition, parents could be in favour of hood illnesses services (IMCI) at health facilities and boys’ education rather than girls because, in their opin- community level, and an integrated community case ion, girls will get married, leave home and have childcare management of childhood illness (ICCM). responsibilities, while boys can stay in the same locality, During 2016, more children affected by the humanitari- work and generate revenue. an crisis had access and used quality lifesaving immun- Gender disparities in terms of the percentage of girls in isation and maternal and new-born services. The nation- secondary education are visible, especially in rural areas. al annualised coverage of routine measles vaccination of The gender parity index for secondary school is 1.07 children under one year old reached 84% and work is while it is 0.98 for primary school. Child marriage is not- still in progress to reach the target of 90%. In addition, ed to be the main reason for girls dropping out in sec- 88% of live births (annual target 90%) were attended by ondary education, and even in primary education in skilled health personnel (doctor, nurse, midwife, or aux- some communities, in addition to the lack of adequate iliary midwife). This has been achieved through increas- water and sanitation facilities. However, other barriers ing geographic coverage of feeding centres, where may prevent girls from attending school such as commu- women can receive key messages on life saving inter- nities’ perceptions that girls are expected to help in ventions and family practices, from 893 to 1172, en- household tasks, underrepresentation of female teach- hancing the capacity building of health service providers ers, long walking distance to schools and risks of experi- (doctor, nurse, midwife, or auxiliary midwife) and the encing gender-based violence in school. provision of essential nutrition and reproductive health

48 GENDER PROGRAMMATIC REVIEW supplies at health facilities and to community midwives. social and behavioural change. In addition, UNICEF was able to support: 65% of primary The initiative also strengthened the knowledge and health facilities in targeted localities to provide IMCI ser- skills of approximately 1,800 key frontline staff includ- vices, 35% of communities to provide ICCM and to build ing health promoters, community mobilisers and volun- the capacities of more than 253 of community midwives teers to be engaged in community dialogue through to perform safe delivery. Around 74% of HIV-positive house-to house visits, drama, group discussions, school pregnant women received antiretroviral services (ARVs) events and mobile cinema to promote the six essential and 95% of children (six months old to 15 years old) family practices. During 2015 and 2016, an average of were vaccinated against measles. 700,000 individuals acquired comprehensive knowledge on the six practices (including 24% boys and Several training of trainers, national courses and train- 23% girls). ings were delivered to health providers in the 72- targeted localities, in addition to medical kits and sup- Moreover, UNICEF supported the Ministry of Health in plies. Moreover, UNICEF aims to increase mothers’ developing the new National Health Sector Strategic knowledge and capacities to seek appropriate neonatal, Plan (NHSP 2017-2021) which guides the implementa- child and maternal health care including HIV services by tion of health sector interventions in the coming five supporting social change communication initiatives. years. In addition, a new 5-year strategy for maternal and child health, the Reproductive, Maternal, New- In 2015, UNICEF launched the Alshuffa’a Alsoghar Com- born, Child and Adolescent Strategy (RMNCAH 2017- munication Initiative in targeted localities to promote six 2021), was launched in August 2016. essential household practices including: (1) exclusive breast-feeding; (2) complementary feeding; (3) immun- Sex-differentiated infant and child mortality estimates isations; (4) hygiene and sanitation; (5) home manage- are available in MICS reports. Percentage of live birth ment of sick children; and (6) using long-lasting insecti- attended by a skilled health personnel (doctor, nurse, cide treated bed nets. Community leaders and religious midwife or auxiliary midwife) increased from 72.5% in were engaged to support community engagement for 2010 to 77.5% in 2014. As well, the percentage of wom- Progress in achieving GAP Gender Mainstreaming targets in the Health programme

Mainstreaming Indicator Baseline Target Progress Gender in Pro- (MICS (GAP) (MICS, gramming 2010) 2014)

Gender equality in Produce sex-differentiated infant and child mortality esti- 1 1 1 child survival mates Improved maternal Percentage of live births attended by a skilled health per- 72.5% 80% 77.5% and neonatal sonnel (doctor, nurse, midwife or auxiliary midwife) health Percentage of women attended at least four times during 47.1% 80% 50.7% their pregnancy by any provider (skilled or unskilled) for reasons related to the pregnancy Percentage of children aged 0-59 months with suspected 55.8% 80% N/A pneumonia taken to an appropriate health provider Note: Data for 2014 is not available. However 26.9% of women knew at least one of two danger signs of pneumonia Coverage of triple drug anti-retroviral regimens for all N/A 80% N/A pregnant women living with HIV Note: This indicator is not part of CPAP Indicators Number of HIV-positive pregnant women (out of those N/A 80% N/A targeted by UNICEF) in humanitarian situations who receive treatment (either initiated or continuing) to prevent mother-to-child-transmission Percentage of women of reproductive age with anaemia N/A TBD N/A Note: This indicator is not part of CPAP Indicators Gender responsive Gender Review of the HIV policy/strategy of the current 0 1 0 legislation and pol- national development plan with UNICEF support icies Note: This indicator is not part of CPAP Indicators

GENDER PROGRAMMATIC REVIEW 49 en who attended at least fours visits to any health ser- ing focus group discussions and meetings with staff and vices provider increased from 47.1% in 2010 to 50.7% in partners that focus on women is considered as “gender 2014 but remain far from GAP target (80%). responsive” and “gender-sensitive” interventions. This Data on the percentage of children aged 0-59 months raises a concern on “gender” and “gender-responsive” with suspected pneumonia taken to an appropriate understanding. UNICEF needs to support partners in health provider for 2014 are not available, however, the clarifying concepts of “gender” and “gender equality” in MICS 2014 shows that 26.9% of women knew at least addition to identifying gender responsive interventions one of two danger signs of pneumonia. and gender bottlenecks and barriers in order to develop more targeted actions. As an example, an assessment of Number of HIV-positive pregnant women is unknown as gender inequalities, such as inequalities that prevent the HIV test is optional in national clinics, therefore, not women from accessing health services, could be con- all pregnant women consent to it. Thus, there is no accu- ducted and the results of these assessments can guide rate information about coverage of triple drug anti- intervention planning to increase women’s access to retroviral regimens for all pregnant women living with services. HIV. Moreover, no available data are available on women of reproductive age with anaemia and there are no spe- Gender disparities are noted especially in rural areas. cific interventions related to this issue in the CPD and Community members in some localities recognise that CPAP. Moreover, there is a national strategy for HIV families are more concerned with boys’ health rather (2004 -2009), however, no gender review has been con- than that of girls. This is due to their perception that ducted. The development of a new strategy based on a boys will work and generate future revenue. Disparities gender review was not planned in the CPAP. may not be noticed in immunisation as interventions seek to reach all children, in targeted localities, regard- Challenges less the sex of the child. However, some inequalities can UNICEF health interventions mainly focus on women, be noticed during the childhood and adolescence peri- especially pregnant women. However, it was noted dur- od. Further in-depth analysis is needed to identify and

Recommendations to Improve Gender Mainstreaming in Health • Conducting a gender analysis can be very useful in identifying cultural and social aspects related to the provision of health care, as well as, main bottlenecks and barriers that may limit women’s access and use of health services. A gender analysis can identify decision making on health seeking by caregivers and how it is influenced by social norms. • Several tools can guide practitioners in conducting the analysis such as: UNICEF operational guidance on promoting gender equality in HIV/AIDS programming and the IASC Gender Handbook. The Gender Handbook provides a checklist to assess gender equality in the health sector that includes: analysis of gender differences, design of services, access to services, participation, training and capacity building, action to address GBV, targeted actions, monitoring and evaluation based on sex and age disaggregated data, and coordination with partners. Health practitioners can then use the analysis results to improve gender equality in programmes. • Increase the participation of girls, boys, women and, especially, men in decision making for health interventions and encourage boys and men’s involvement in separated capacity building and training on childcare. This will contribute in changing social norms in localities where childcare is an exclusive responsibility of mothers. • Expand communication initiatives that engage community members (girls, boys, women and men) in public dialogue through house-to house visits, group discussions, and school events to raise awareness on health practices, especially the importance of visiting a skilled health services provider during pregnancy. • Promote gender-responsive adolescent health for boys and girls by focusing on the needs and vulnerabilities that adolescents experience during important times in their life to ensure prevention of health risks. Currently, UNICEF addresses adolescent health through adolescent pregnancy and maternal health. A more integrated approach that takes in consideration boys and girls, and not only pregnant adolescents, is recommended. UNICEF can coordinate with key partners such as UNFPA and WHO regarding this issue. • Ensure prevention and response to GBV including treatment, referral and support mechanisms for GBV survivors. UNICEF can collaborate with UNFPA on GBV interventions • Support the Government in developing an HIV Strategy/Policy and monitor HIV prevalence among all pregnant women. This could be achieved through the integration of HIV tests in all antenatal national hospitals and clinics.

50 GENDER PROGRAMMATIC REVIEW understand reasons behind gender disparities in health. who will accompany the girl. This gender issue needs to In addition, decision making on health seeking by care- be more studied and identified in the targeted localities givers, and the influence of social norms, needs further as it has a large impact on services accessibility and de- study. (UNICEF Sudan, 2017a) livery. Moreover, cultural and social norms may affect the ser- One of the concerns raised by community members in vices delivery in a considerable number of states. For rural areas is the lack of access to emergency health example, cultural and social norms prevent girls and services during childbirth. Most deliveries are per- women from accessing health facilities where men deliv- formed by midwives. However, complications related to er services and where girls and women think there is a pregnancy and childbirth may lead to the mother’s and lack of privacy (for example, circulating information baby’s death as access to hospitals may take hours. about patients or lack of privacy in the examination

room). Even though there are efforts to encourage female service delivery, there is a need for more targeted 6.5 Nutrition interventions to change these norms and provide more Achievements privacy in health facilities. In Sudan, the overall prevalence of child malnutrition is A lack of knowledge on health issues is widespread and high; 33% of under-five children are underweight, a challenge while implementing health interventions. 38.2% are stunned (too short for their age) and 16.3% For example, several years ago UNICEF faced difficulties are wasted (too thin for their height). (MICS, 2014) Chil- in tetanus vaccination for adolescent girls, as there was dren living in rural areas are the most affected by child a stigma among women that vaccination, especially malnutrition especially in the states affected by con- when done by international organisations, may affect flicts and displacement of the population such as Dar- girls’ fertility rates. As a result, UNICEF limited the teta- fur, Kordofan and Kassala. Therefore, one of the main nus vaccination to pregnant girls or women to avoid re- UNICEF outputs in nutrition is to reach malnourished sistance in targeted localities. children in the highest prevalence and high burden lo- In addition, misconceptions about HIV are common and calities. can confuse adolescents and young people and hinder UNICEF, in collaboration with key partners and the Min- prevention efforts. (MICS, 2014) Only 2.1% of women istry of Health, work on establishing treatment sites for with no education have comprehensive knowledge children with Severe Acute Malnutrition (SAM) in 75 of about HIV transmission. The lack of knowledge prevents UNICEF’s high-priority localities and camps. By the end girls and women from accessing important health ser- of 2016, 215,078 children had received treatment for vices. The Alshuffa’a Alsoghar Communication Initiative severe acute malnutrition. is a good example of interventions that engage a public dialogue, raise awareness and change communities’ per- At the end of 2016, around 1,175 health clinics were ceptions. A scale up of this initiative in terms of health delivering SAM treatment services, which increased the practices and geographic coverage could help filling the proportion of health facilities with SAM treatment to knowledge gap. 46%. Cases of severely malnourished children are identified through the community-based screening empha- In addition, a lack of male partner support is highlighted sised by UNICEF and referred to treatment. in different states. Childcare and adolescent health care, especially for girls, are perceived as an exclusive respon- The Community-based Management of Acute Malnutri- sibility of mothers in some localities. In others, it de- tion (CMAM) is supported in 13 states through tech- pends on the sex of the child. The father will take his son nical support and maintenance of the national nutrition to a health facility when he is sick while it is the mother pipeline including therapeutic food. For example, dur-

Progress in achieving GAP Gender Mainstreaming targets in the Nutrition programme Mainstreaming Gen- Indicator Baseline Target Progress der in Programming (MICS (GAP) (MICS, 2010) 2014)

Gender equality in Exclusive breastfeeding rate among children 0-5 41% 50% 55.4% child survival months old Undertake a gender review of nutrition policy/ No Yes No strategy in the current national development plan cycle with UNICEF support Note: Not part of CPAP Indicators

GENDER PROGRAMMATIC REVIEW 51 ing 2016, UNICEF procured 244,000 cartons of ready to with the World Food Programme. This is an advocacy use therapeutic food (RUTF) and was able to maintain tool that argues for an evidence-based package of multi- the supply pipeline without any breaks. A CMAM data- sectoral interventions in terms of lives saved and cases base was created, completed and currently functioning of child malnutrition (both wasting and stunning) ad- for all of Sudan’s 18 states. dressed. This initiative successfully contributed to policy In 2015, UNICEF, in collaboration with the Ministry of advocacy in bringing the subject to the highest national Health, developed a strategy that aims to support moth- agenda. As a result, the leadership role of the Govern- ers and caregivers to provide infant and young children ment of Sudan in multi-sector planning to tackle malnu- feeding (IYCF) services. UNICEF support focused on com- trition was strengthened. Sudan officially joined the munity-level interventions in 22 deprived localities Scaling Up Nutrition (SUN) movement in October 2015 th through a network of 1,480 mother support groups as its 57 member. which provided individual counselling, support and infor- A maternal and child health strategy and a hygiene and mation to mothers to promote breastfeeding and com- sanitation framework, which include a nutrition compo- plementary feeding practices to address one of the ma- nent, have been also launched. Nutrition surveillance jor known causes of child malnutrition. data continues to be collected in six states and data for During 2016, an average of 476,500 mothers and prima- two years and programme monitoring indicators are ry caregivers have received counselling and support for now available. improving IYCF. This is achieved by encouraging exclusive Furthermore, UNICEF strength the Ministry of Health breastfeeding for the first six months of life, continuing and the Ministry of International Cooperation’s capacity breastfeeding up to two years old, and teaching mothers to plan for scale up of nutrition interventions including about nutritious food to give to their babies from six CMAM and IYCF. To this extent, UNICEF reviewed and months old and onwards. An IYCF database was created. disseminated CMAM national guidelines, training mate- An equal number of girls and boys received vitamin A rials and incentives. An integrated community outreach supplementation in 118 localities (3,842,000 children, strategy was developed to engage the existing formal almost 50% girls and 50% boys). Vitamin A capsules were and informal initiatives. supplied by UNICEF and distributed by the Ministry of Exclusive breastfeeding rates among children 0-5 Health. months old increased from 41% in 2010 to 55.4% in In addition, in 2016, UNICEF supported the launch of the 2014, exceeding the GAP target (50%). Conducting a Nutrition Investment Case for Sudan in collaboration Gender Review of nutrition policy/strategy in the nation-

Recommendations to Improve Gender Mainstreaming in Nutrition • Conduct an in-depth gender analysis to understand social norms, cultures and practices related to nutrition. A gender analysis will allow UNICEF to identify and understand reasons behind gender disparities, such as girls, boys, women and men’s equal access to food and livelihood strategies of women and men to overcome food insecurity and vulnerability. This analysis should be incorporated in regular nutrition situation analysis. • Collect and analyse data with a gender perspective, taking into account the division of tasks, access to and control over productive resources and decision-making patterns between women and men at household and community levels. • Advocate for equal and meaningful participation for women, girls, boys and men while formulating, implementing and managing supplementary feeding programmes. • Formulate a core set of gender-sensitive indicators to monitor and evaluate the impact of nutrition policies, strategies and programmes on girls, boys, women and men in rural and urban areas. • Formulate supplementary feeding programmes for at-risk sections of populations, especially in the states of Darfur, Kordofan and Kassala, with an active participation of girls, boys, women and men. These programmes should aim to reach vulnerable persons and decrease the high prevalence of child malnutrition. • Promote a balanced distribution of household tasks between men and women in nutrition programmes and interventions, especially in rural areas. While childcare is frequently provided by women, nutrition interventions may encourage fathers to acknowledge their responsibility and play a role in childcare. • Support the Government to conduct a Gender Review of nutrition policy/strategy in the national development plan.

52 GENDER PROGRAMMATIC REVIEW al development plan was not included in the CPAP and and understand gender disparity in nutrition practices. neither was revising domestic legislation and administra- In addition, MICS 2010 shows a gender disparity in tive guidance in the line with CRC and CRPD committee breastfeeding where girls are more likely to be observations related to nutrition. breastfed than boys. During a focus group discussion Challenges with women in a local community, participants shared that a long breastfeeding period for boys would in- The MICS 2014 highlights an increase in the prevalence crease their attachments to their mothers, which pre- of stunting for under-five children: 32.5% in 2006, 35% vent them from being independent men in the future. A in 2010 and 38.2% in 2014. Several key factors for in- further analysis is needed to identify misconceptions creased child malnutrition in Sudan are mentioned: a related to nutrition practices. gap in knowledge of mothers on malnourishment of children, a gap of capacities of health facilities, the low- effective use of health services due to limited geograph- 6.6 Consolidated progress in achieving GAP ic access and financial barriers, low coverage of use of Results improved sanitation facilities (33%), the high prevalence of diarrhoea among children (29%), and the continuous As noted before, the CPD and CPAP were developed in influx of displaced populations and refugees. (MICS, 2012, two years before the GAP (2014). Therefore, the 2014) four GAP gender priorities were not integrated in the CPD/CPAP (2013 – 2017) and UNICEF SCO do not have Furthermore, in a considerable number of communities, one (or many) articulated gender priorities. Thus, there especially in rural areas, female roles include food seek- is no data related to the majority of the four gender ing from nutrition facilities. However, in some conserva- priorities’ results. Only two results were achieved: per- tive localities, male partners in the family often restrict centage of reduction in FGM/C prevalence for girls 0-14 women’s access to nutrition information and services. years (31.5%) and the development of a national strate- For example, in these communities, women are not al- gy to end child marriage. lowed to walk alone to service facilities. Male involvement should be encouraged especially in conservative However, gender mainstreaming (the second approach communities. of the GAP) was taken in consideration during the implementation of the CPAP and UNICEF SCO worked on Subsequently, the UNICEF nutrition section team seeks integrating gender in its programmes. to support closer service delivery to these localities. Walking distance to nutrition service facilities and the The two following tables present UNICEF SCO’s pro- waiting time for service delivery are assessed in order to gress in achieving GAP targets on: (1) Gender targeted inform planning of interventions. However, UNICEF nu- priorities, and (2) Gender mainstreaming in pro- trition staff highlight the challenge of having accurate grammes, based on the GAP Results Matrix. and up-to-date data. A lack of caregivers’ knowledge of The Gender Result Matrix for targeted priorities in- malnutrition as an illness and knowledge about available cludes 20 indicators. Only two of them are included in treatment services are also highlighted by the nutrition current UNICEF programmes (indicators on FGM/C and team. early marriage). Progress is noted in both indicators Remarkably, available research and surveys assess dis- meeting the GAP target. parity of child malnutrition by wealth index and moth- As shown in the table, the matrix includes 20 indicators er’s education. However, there is a lack in gender dispar- related to gender mainstreaming in programming, and ity data that allow understanding of cultures, social nine of them are currently included in UNICEF pro- norms and practices related to nutrition. For example, grammes while 11 are not. Only one indicator (related during field visits to communities in rural areas, staff to exclusive breastfeeding rates) is exceeding the GAP members recognised the existence of gender disparities target while work on other indicators is still needed. in nutrition practices. Boys and men are provided with Health indicators are the less satisfying GAP targets. food before girls and women who will receive the lefto- ver food. Further in-depth analysis is needed to identify

GENDER PROGRAMMATIC REVIEW 53 Consolidated progress in achieving GAP Results 1- Gender Indicator Baseline Target Achiev targeted (MICS (GAP) ed priority 2010) (MICS, 2014) Promoting Percentage of live births attended by a skilled health personnel N/A 80% N/A gender- (doctor, nurse, midwife or auxiliary midwife), disaggregated for the 15 responsive –19 age group. Note: there is no disaggregated data for ages 15-19 adolescent Percentage of women attended a skilled health personnel at least 80% N/A health four times during their pregnancy, disaggregated for the 15–19 age N/A group. Note: there is no disaggregated data for the age group 15-19 Plans with an allocated budget to reduce pregnancy among teens N/A 1 N/A Note: not part of CPAP Indicators Percentage of antiretroviral treatment (ART) coverage among eligible N/A 80% N/A children aged 0–14 years and eligible adolescent girls and boys aged 10–19 years. Note: not part of CPAP Indicators Percentage of adolescents aged 15–19 years having comprehensive N/A 80% N/A knowledge about HIV/AIDS in targeted areas, disaggregated by sex Note: not part of CPAP Indicators Reports that include age and sex disaggregated data on HIV testing N/A 1 N/A and counselling among adolescents 15–19 years and by sex Note: not part of CPAP Indicators National HIV/AIDS strategies that include proven high impact evi- N/A 1 N/A dence-based interventions to address HIV among adolescents Note: not part of CPAP Indicators National policies to implement sexuality or life skills-based HIV educa- N/A 1 N/A tion in upper primary schools. Note: not part of CPAP Indicators Percentage of primary schools having access to adequate sanitation N/A 50% N/A facilities for girls. Note: not part of CPAP Indicators Implementation of menstrual hygiene management in WASH N/A TBD N/A Note: not part of CPAP Indicators Policy or plan targeting anaemia reduction in women and girls N/A 1 N/A Note: not part of CPAP Indicators Percentage of reduction in proportion of girls 0–14 years undergoing 31.5% 30% 31.5% female genital mutilation/cutting (2014) (2016) Advancing Out-of-school rate in primary/lower secondary. Note: not part of N/A Below N/A girls’ sec- CPAP Indicators 5% ondary edu- Percentage of primary and secondary schools with WASH facilities N/A 50% N/A cation meeting national standards. Note: not part of CPAP Indicators Level of gender parity in lower secondary education N/A 0.97- N/A Note: not part of CPAP Indicators 1.03 Existence of an education policy or plan that specify prevention and N/A 1 N/A response mechanisms to address gender-based violence in and around schools. Note: not part of CPAP Indicators Ending child Percentage of women aged 20–24 who were married or in a union by N/A TBD N/A marriage age 18. Note: not part of CPAP Indicators Reduction in proportion of women 20–24 years married by age 18 N/A 10% N/A Note: not part of CPAP Indicators Existence of national strategies or plans with a budget to end child 0 1 1 marriage. Note: The strategy is available but still remaining as draft (2014) (2016) Gender- Number and percentage of UNICEF targeted children and women in N/A > 80% N/A based vio- humanitarian situations who experience sexual violence receive multi- lence in sectoral support services (health, psychosocial, livelihoods/economic emergencies strengthening and justice). Note: not part of CPAP Indicators

54 GENDER PROGRAMMATIC REVIEW

Consolidated progress in achieving GAP Results

2- Main- Indicator Baseline Target Pro- streaming (MICS (GAP) gress Gender in 2010) (MICS, Programming 2014) Gender Existence of sex-differentiated infant and child mortality estimates Yes Yes Yes equality in Exclusive breastfeeding rate among children 0-5 months old 41% 50% 55.4% child survival Undertake a gender review of nutrition policy/strategy in the cur- No Yes No rent national development plan cycle with UNICEF support. Note: not part of CPAP Indicators Improved Percentage of live births attended by a skilled health personnel 72.5% 80% 77.5% maternal and (doctor, nurse, midwife or auxiliary midwife) neonatal Percentage of women attended at least four times during their preg- 47.1% 80% 50.7% health nancy by any provider (skilled or unskilled) for the pregnancy Percentage of children aged 0-59 months with suspected pneumo- 55.8% 80% N/A nia taken to an appropriate health provider. Note: Data for 2014 is not available. However, 26.9% of women knew at least one of two danger signs of pneumonia. Coverage of triple drug anti-retroviral regimens for all pregnant N/A 80% N/A women living with HIV. Note: not part of CPAP Indicators Number of HIV-positive pregnant women (out of those targeted by N/A 80% N/A UNICEF) in humanitarian situations who receive treatment (either initiated or continuing) to prevent mother-to-child-transmission Percentage of women of reproductive age with anaemia. Note: not N/A TBD N/A part of CPAP Indicators Access to wa- Percentage of households with improved source of drinking water 60.5% 75% 68% ter and sani- Percentage of the population having improved sanitation facilities 27.1% 50% 41% tation at Percentage of the population practicing open defecation N/A <33% N/A home Note: not part of CPAP Indicators Implementation of national strategy to eliminate open defecation. 0 1 0 Note: not part of CPAP Indicators Gender Number of primary school-age children out of school and related 1,965,0 GPI= 326,5 equality in gender parity index (GPI) 68 1.0 51 education (2014) (2016) Primary completion rate (expressed as Gross Intake Ratio in the last 62.7% 100% GPI= grade of primary) and related gender parity index (GPI) GPI= GPI= 0.98 0.94 1.0 (2016) Reduction in Percentage of reduction in proportion of girls aged 15-17 years who N/A 10% N/A gender-based have ever experienced sexual violence (forced to have sexual inter- reduc- violence course), in countries with prevalence of at least 5%. Note: not part tion of CPAP Indicators Gender re- Existence of revised or improved child protection policies on the ba- 0 1 0 sponsive leg- sis of a gender review supported by UNICEF. Note: not part of CPAP islation and Indicators policies Number of ratified Conventions with regular reporting on obliga- 4 6 4 tions: Convention on the Rights of the Child and Three Optional Pro- CRC, CRC, OP1, OP1, tocols, Convention on the Elimination of all Forms of Discrimination OP2, OP2 against Women; Convention on the Rights of Persons with Disabili- OP3 ties. CEDAW CRPD CRPD Gender Review of HIV policy/strategy of the current national devel- 0 1 0 opment plan with UNICEF support. Note: not part of CPAP Indicators Revised domestic legislation and administrative guidance in line with 0 1 0 the concluding observations of CRC, CEDAW and CRPD committees GENDER PROGRAMMATIC REVIEW 55 UNICEF Sudan Gender Balance 7 and Capacities

56 GENDER PROGRAMMATIC REVIEW 7.1 Gender Initiatives • Gender imbalance is obvious in the NO2 level UNICEF Sudan Country Office is seeking to create a gen- where men are approximately 70%. der-friendly working environment through different ini- • There is a slight difference between male and fe- tiatives and actions. As an example, in 2015, UNICEF male staff in the P3 and P5 levels. launched the Pink Initiatives that aims to make UNICEF an attractive environment for women. A staff associa- Furthermore, UNICEF SCO has a Gender Parity and tion with five women staff members formed a com- Equality Policy that seeks to address the gender imbal- mittee and held several meetings and discussions with ance through recruitment and placement in order to other colleagues, especially women, to identify their achieve gender balance by 2021. An overall goal is set needs and suggested action plans. Main challenges high- to recruit two women for every three vacancies where lighted for female staff were: a gender imbalance exists. In addition, the Policy under- line the commitment to encourage female candidates • The need for secured, safe and woman-friendly ac- to apply, incorporate gender awareness into recruit- commodations for female staff working in the field ment criteria. and for female staff while travelling to field offices. • Mixed latrines in the workplace. 7.3 Gender Skills • Supportive environment for mothers who breastfeed. An online survey for UNICEF staff was conducted to as- Subsequently, the committee held meetings with man- sess their gender skills and needs. Despite several re- agement and actions were planned accordingly. Secure minders, only 30 staff members participated in the sur- and friendly accommodation was guaranteed in two vey (out of over 250 persons). Results show the follow- field offices for national female staff and work is still in ing: progress in other states. In addition, a private There is a lack of a common understanding of gender breastfeeding space was established as well as separat- concepts. ed latrines for women and men. • Around 50% have not been oriented at all, or to a Notably, during focus group discussions and meeting limited extent, on UNICEF’s gender policy, gender with UNICEF staff, participants appreciated efforts made guidance notes, gender equality marker and GAP. to promote a woman-friendly working environment. • 20% are not familiar with the CEDAW.

7.2 Gender Balance • 30% have not received a training on gender equali- The gender imbalance exists within UNICEF SCO, where ty, or received it on a limited extent. men made up 71% of employees and women were 29%. • 30% do not know how to use the gender equality More precisely, national male staff represent the large marker, or know how to use it on a limited extent. percentage of UNICEF SCO at 60%, followed by national • 65% state that gender is not discussed during pro- female staff at 21%, then international female staff 11% grammes staff meetings. and finally international male staff at 8%. • 50% believe that there is a gradual increase of gen- While the staffing gender balance per level shows that: der expertise among staff members. • Number of male staff exceeds females in all levels, • 60% see that partners do not show same under- except in P2. standing on gender equality as UNICEF SCO staff. • G levels (G2 - G3 – G5 – G6 – G7) are mainly men.

Int. Female, Int. 11% Ma le, Female 8% , 29% Nat. Female, Nat. Male, 21% Male, 71% 60%

GENDER PROGRAMMATIC REVIEW 57 • 84% see that UNICEF SCO is women friendly and that office meetings are not dominated by men. • 62% believe that the working environment for women has improved over the past two years. During the focus group discussions with staff, two staff members highlighted that staff meetings are dominated by men and that men do tors aim to meet a standard of having at least one not accept easily to be supervised by women. full-time dedicated Gender Programme Specialist (IP Moreover, in order to support gender equality and gen- P4) or Senior Gender Programme Specialist (IP P5). der mainstreaming in programmes, a Gender Focal Point • Country Offices with a total annual budget of $20-39 was assigned in each programme section and field office. million and medium to high gender inequality indi- A Gender Team was formed and is having regular cators aim to meet a standard for having at least meetings. However, during focus group discussions and one full-time dedicated Gender Programme Special- meetings, there were challenges shared such as: ist at Level 3 or Level 4 (P3/P4 IP level or NO-C or • Lack of terms of references that highlight the Gender NO-D level). Focal Point’s main roles and responsibilities. • Country Offices with total annual budgets of less • Lack of orientation and support on how to main- than $20 million and/or with low gender inequality stream gender in programmes. indicators to appoint one or more Gender Focal • Lack of coordination between the Gender Focal Point (GFP) at the Level 3 or Level 4 (P3/P4 IP level Point staff; only two meetings were held during or NO-C or NO-D level) meeting minimum skills re- 2016. quirement and with clearly defined job accountabil- In addition, a need for a dedicated gender staff is high- ity on gender. lighted. This person can support gender analysis in pro- As UNICEF SCO fits in the first category of this classifica- grammes, highlight gender issues, work on emphasising tion, a Gender Programme Specialist (IP P4) or a Senior gender in UNICEF SCO frameworks, build the capacity of Programme Specialist (IP P5) should be hired. staff and ensure the mainstreaming of gender. However, it is well noted that gender equality is everyone’s re- The main role of a Gender Programme Specialist or Sen- sponsibility and assigning a dedicated staff should not ior Gender Programme Specialist is to support the pro- negatively affect this commitment. grammatic achievement of a prioritised set of gender equitable results within and across specified programme

areas. Funding for these gender posts can be drawn 7.4 UNICEF Guidance on Gender Staffing from Regular Resources, Other Resources, or ORE funds, In 2014, following the GAP, UNICEF issued an Action Plan as appropriate for the country context. It is also recom- on the accountability and progress on the implementa- mended to hire Gender Programme Specialists/Senior tion of the GAP. The Guidance on Gender Staffing was Gender Programme Specialists for their technical profile elaborated accordingly and requires UNICEF offices to rather than simply for having a background in or com- meet the following staffing standards starting from Sep- mitment to gender and rights, or experience with policy tember 2014: engagement, gender trainings or advocacy. The most • Country Offices with a total budget of $40 million, or critical qualifications for this person include sectoral and higher, including regular and other resources com- field background in gender programming and strong bined, and medium to high gender inequality indica- measurement and quantitative skills. (UNICEF, 2014)

58 GENDER PROGRAMMATIC REVIEW Recommendations to Improve UNICEF SCO Gender Balance and Ca- pacities • Maintain current practices and initiatives that promote a woman-friendly working environment. • Put more effort on encouraging and attracting qualified women to apply for UNICEF SCO vacancies. • Keep awareness on “gender equality” and “gender mainstreaming” as recruitment criteria that form part of all jobs requirements. • Provide support to Gender Focal Points, clarify their roles and responsibilities and build their capacities on “gender equality’ and “gender mainstreaming”. • Organise and conduct a capacity-building programme to all staff on gender equality and gender mainstreaming. • Provide an on-going support to programmes staff on gender mainstreaming tools and methods for programme planning, implementation and evaluation. • Focus on gender during programmes staff meetings and build accountability mechanisms that monitor gender-equality results. • Recruit Gender Programme Specialist or Senior Gender Programme to support the programmatic achievement of gender equitable results within and across specified programme areas. This includes supporting gender mainstreaming in programmes, highlighting gender issues, working on emphasising gender in UNICEF SCO frameworks, building the capacity of staff and ensuring the mainstreaming of gender.

GENDER PROGRAMMATIC REVIEW 59 Consolidated Observations and 8 Recommendations

60 GENDER PROGRAMMATIC REVIEW 8.1 Cross-cutting Concerns Therefore, it is important that UNICEF SCO chooses at least one (max. three) among these targeted priorities The review examined, in a holistic approach, UNICEF and work accordingly under these gender focuses. Sudan Country Office’s key programmes from a gender perspective. The analysis raised challenges that could be • Risk of loss of focus on gender: Gender equality is presented as follows: one of UNICEF SCO priorities. However, during focus group discussions with staff, several individuals • Need for an in-depth gender analysis: A need for a highlighted that ‘gender equality’ interventions gender analysis is highlighted in all programmes. could be discussed during two phases: (1) the plan- This analysis will help in understanding different rea- ning phase, while developing the CPD or annual sons behind gender disparities in each sector and work plan and (2) the evaluation phases, while de- develop targeted interventions that tackle dispari- veloping annual reports. During implementation ties and promote gender equality. The diagram be- and follow up, ‘gender focus’ could be lost due to low represents the current approach in programme the overload of administrative and other technical design where programmes are informed by needs responsibilities. This highlights the risk of ‘gender assessment surveys such as SITAN and MICS. Gen- evaporation’ especially during the implementa- der sensitivity might be taken into consideration tions. during implementation and achieved outcomes • Lack of a common understanding on gender equality: Even though programme staff recognise the importance of promoting gender equality and gender mainstreaming, a difference in understanding and interpretation of concepts of gender and gender equality is noted within UNICEF SCO staff and between UNICEF and key partners. More capacity building on “gender equality” and “gender mainstreaming is needed”. Train- ing provides practical and useful tools and methods that promote gender equality might be reported in terms of girls, boys, women and mainstream gender in programmes. and men. Gender disparities may not be taken in consideration, and gender could be easily forgotten • Human resource capacity for gender mainstreaming: during the process. UNICEF SCO assigned a Gender Focal Point in addition to Gender Focal Points assigned in each pro- • Lack of qualitative data: There is a highlighted gap in gramme and field office. However, more guidance qualitative gender disaggregated data. This gap is needed to support GFPs as well as capacity build- affects programme design, planning and implemen- ing that provides them with tools and methods to tation. In addition, there is no allocated budget for a support gender mainstreaming in programmes. gender analysis or gender review. • Need for an integrated approach to gender equality: Regarding the gender balance within UNICEF SCO, Sections are working on gender mainstreaming in there is a need to encourage more qualified women to programmes. However, there is a noted need to join the UNICEF team – especially national staff - and establish an integrated focus that consolidates these keep awareness on ‘gender’ and ‘gender equality’ as efforts and emphasises gender equality outcomes. recruitment criteria for all UNICEF jobs. A need for a This integrated focus could be achieved through the dedicated gender focal point staff is highlighted. four target GAP priorities: • Promoting gender responsive adolescent 8.2 Consolidated Recommendations health In addition, to the recommendations presented in earli- • Advancing girls’ secondary education er sections, the following provides general consolidated • Ending child marriage recommendations that are common for UNICEF SCO programmes and are important to be taken in consider- • Addressing gender-based violence in emer- ation for designing the next country programme. gencies

GENDER PROGRAMMATIC REVIEW 61 A. Work on Ending Child Marriage (First gender-targeted education can be a powerful transformative force, for priority) girls themselves and for entire societies. Girls’ education As presented in the second and fourth chapters of this — especially at the secondary level – is the one con- review, the prevalence of child marriage is high in Sudan. sistent factor that can positively influence not only girls’ The consequence of child marriage for girls and society lives, but practically every desired development out- in general are serious. It denies a girl her childhood, dis- come: from reducing child and maternal mortality, to rupts her education, limits her opportunities, exposes ending poverty and achieving equitable growth, and her to risk of pregnancy and complications from child changing social norms. birth, and increases her risk of contracting sexual trans- Sudan has a low girls’ enrolment rate for secondary edu- mitted infections, including HIV, as well as her risk of be- cation. However, UNICEF SCO and several partners put ing a victim of violence and abuse. more focus on supporting basic education while pro- Therefore, it is important that UNICEF SCO works, in moting the transfer to secondary schools. During field partnership with the Government, national and interna- visits, focus group discussions and workshops with tional NGOs and UN agencies, on ending child marriage UNICEF SCO its partners, participants raised weakness in Sudan. Consultation with UNICEF SCO staff and man- and challenges of secondary education, especially for agement led to the selection of ‘ending child marriage’ girls, in terms of accessibility and quality. Participants as a first gender-targeted priority. agreed on the importance of promoting girls’ secondary education as a gender-targeted priority. Thus, UNICEF SCO can work on the following areas: UNICEF SCO can work to achieve this goal by: Supporting the enabling environment to end child marriage. Work closely with the Government, UN agencies, Strengthening enabling environments to support girls’ human rights bodies and civil society to support interna- secondary education. Build the national capacity – at tional standards (based on human rights international state and national levels - to improve qualitative and treaties signed and ratified by Sudan), that define the quantitative data collection and analysis in order to minimum age for marriage as 18 and make any child identify specific barriers faced by girls and inform plan- marriage illegal. Working and engaging religious leaders ning as well as track progress. Efforts could be made to to achieve this goal is essential, to challenge misconcep- include more gender qualitative data into the next MICS. tions that early marriage is rooted in Islamic principles. In Support evidence-based advocacy for improved financ- addition, continue to support the Government’s efforts ing and policy reform for secondary education. This to develop a National Strategy and a Nation Action Plan could include encouraging the recruitment of qualified to end child marriage. female teachers and providing training and incentives. Religious leaders can help the progress towards ending Increasing and improving secondary level educational child marriage by speaking out against child marriage opportunities for the most vulnerable girls. Ensure transi- and identifying and championing community led strate- tion of girls from primary to secondary education gies for ending the practice, they can create environ- though multiple flexible approaches in the formal and ments where parents who decide not to marry their non-formal learning environment. Ensure safe, sup- daughters early are supported. (Plan International, 2013) portive and gender-sensitive learning environments for girls. This entails working with partners on: providing Increasing opportunities for girls to acquire education, life secondary schools with WASH facilities (separated from skills and health information and services. Support girls’ boys) and school materials and ensure that schools are education, especially the secondary education and life free from all forms of GBV. Support the delivery of good skills programming, in school and out-of-school settings quality of education. and pair it with delivery of health integrated services for adolescent girls. (See section 4: recommendations to im- Creating demand for education of girls at the community prove gender equality in health and in education) and national levels. Address social norms and cultural barriers that prevent girls from secondary education and Creating demand at the community and family level, and promote education as a channel to girls’ empowerment. among girls for ending child marriage. Develop communication campaigns and community mobilisation plans to address social norms that define child marriage as a de- C. Integrate Gender Analysis in Programme Surveys sirable and acceptable option for girls. Gender analysis is the cornerstone of gender mainstreaming and arguably the most useful tool available to organisations seeking to promote equality between girls B. Promoting Girls’ Secondary Education (Second gender- and boys, and men and women, though their regular targeted priority) programmes. (UNICEF, 2011) Gender analysis helps in There is overwhelming evidence that girls’ secondary understanding practices, social norms and cultures that

62 GENDER PROGRAMMATIC REVIEW reveal differences in women and men’s activities. It an- To this end it is important to engage both males and swers questions such as what are the conditions, needs, females even on topics that are perceived ‘women re- access to and control over resources and benefits for lated’ from communities’ perspective. A good example women and men, as well as decision‐making power. is the Saleema Initiative for the abandonment of FGM/ Identifying these differences can help understand why C. Having male advocates for a Saleema Girl (intact girl - the differences exist and reveal entry points for design- not cut) had a positive impact in many localities that ing programmes that can successfully address gender declared the abandonment. disparities and remove or reduce these obstacles to Moreover, in a considerable number of localities, men gender equality. and women could have distinct and separate roles and A gender analysis will identify gaps. However, targeted responsibilities. Men are involved in decision making interventions are needed to close these gaps. Furthering for main activities that affect their localities such as the equality frequently requires providing disproportionate - place for a new school construction, or where to place or unequal - resources and services to the group facing new WASH facilities and how to use it, while women discrimination. This will generate a new gender equality are mainly involved in decision related to childcare and programming approach that is based on qualitative and nutrition. A first step toward engaging girls, boys, wom- quantitative analysed data as presented in the diagram en and men in gender equality is to promote equal par- below. ticipation in decision-making and a shared responsibility

Gender Mainstreaming A gender Gender analysis informs equality is programme achieved planning Targeted Gender Priorities

Gender Equality Programming (Based on the GAP dual approach)

of the household and community level. Useful toolkits and guidance notes such as UNICEF’s Gender Programmatic Guidance, UNICEF’s Promoting Additionally, UNICEF SCO can: Gender Equality, IASC Gender Handbook for Humanitari- • Encourage men’s participation in decision-making an Actions and other resources can lead UNICEF SCO related to childcare and nutrition and encourage team in conducting the gender analysis. women’s participation in meetings related to resource management. D. Engage Girls, Boys, Women and Men in Gender Equali- • Carry out capacity building for community leaders ty that emphasise and promote a shared responsibil- Gender equality is not a women’s issue. Engaging boys ity between men and women. and men in gender equality efforts is critical to lasting • Build a network of influential leaders (men and social change. Men have political, religious, social and women) in addition to girls and boys who can act as economic power. Therefore, it is important to convince catalysts and initiate changes toward gender equal- them to use their power to advance gender equality ity. rather than obstruct it. (UNICEF, 2011)

GENDER PROGRAMMATIC REVIEW 63 UNICEF Sudan CPD 2018 – 2021: Gender 9 Prospective Review

64 GENDER PROGRAMMATIC REVIEW The implementation of the Gender Review came at education and learning; (c) child protection; (d) policy same time with the development of the first CPD (2018 evidence and social protection; and (e) program effec- – 2021) draft. Therefore, UNICEF management and the tiveness. consultant wanted to seize this opportunity to make use Outcomes for WASH, nutrition and health are integrat- of the Gender Review results and include it in the new ed under the first component ‘child survival and devel- CPD (2018 – 2021). To this end, an evaluation of the CPD opment’ in order to seek more synergy. The health and first draft from a gender perspective was added to the nutrition outcome will contribute to increased use of mandate of the current Gender Review. high-impact nutrition and health services working closely with the Ministry of Health, UN agencies and national and international NGOs. A focus will be put in reducing 9.1 The CPD (2018 – 2021): Goals, Priorities and neonatal mortality, stunting and strengthening of ca- Objectives pacities to implement vaccination programmes. Nutri- Work on the new CPD (2018 – 2021) started in January tion and health services will also target adolescents. 2017 and is expected to be finalised by the end of 2017. WASH outcome will contribute in increasing access to Several national and international strategies underpin equitable water and suitable basic services for children the CPD such as the 25-Year National Strategy (2007 – and their families. A focus will be put on ensuring 2031), the National Strategic Development Plan (2017 – WASH availability in schools, nutrition and health insti- 2020), the Poverty Reduction Strategy Paper (under tutions, as well as on scaling up access to basic sanita- preparation) and the SDGs. To ensure the alignment tion facilities, eradicating open defecation and hygiene with national priorities, the CPD was developed in close promotion. collaboration with the Government. The education and learning component will contribute The CPD recognises the humanitarian difficulties faced in improving equitable access to quality basic education by Sudan triggered by armed and inter-tribal conflicts, and improve learning outcomes in targeted states and as well as, climate conditions and development chal- localities. Therefore, UNICEF, in collaboration with part- lenges. Disparities in child-specific social indicators be- ners, will seek to provide education to children in hu- tween states, the high rate of deforestation and the rap- manitarian situations and isolated areas. A focus will be id urbanization are noted. Despite the progress made put on out-of-school children including girls, nomads, during the last few years, the CPD highlights challenges displaced children and adolescents, to get them into related to health, nutrition, education, WASH and pro- schools and keep them. Support to non-formal educa- tection outcomes. This includes the high maternal mor- tion will be provided in order to provide learning oppor- tality ratio, HIV prevalence rate, the limited availability tunities to children and adolescents who missed out on of services, unchanged rates of acute malnutrition, poor formal education opportunities. Moreover, UNICEF will water and sanitation conditions, high prevalence of poor work on improving the quality of education by building hygiene practices, high incidence of diarrhoeal disease, teachers’ capacities, strengthening the curriculum, sup- gaps in primary school completion rates, wide disparity porting life skills and expanding WASH in schools. between urban and rural in early childhood education, Child protection components will support the child pro- and the high prevalence of FGM/C. tection system reform to ensure children’s access to The overall goal of the CPD is to contribute to national integrated child protection services. UNICEF will focus efforts enabling all children and adolescents in Sudan, on building the institutional capacity at state and locali- especially the most vulnerable, to have their rights pro- ties levels, endorsing legal reform, and strengthening gressively fulfilled and to develop their potential in an the Child Protection Management Information System. inclusive and protective environment. Moreover, the Moreover, UNICEF will work on strengthening the pre- CPD points to the importance of strengthening policies vention of, and responses to, violence, abuse, exploita- and plan on national and subnational levels. This will aim tion and neglect of children in coordination with other to enhance social inclusion, build organisational capaci- sectors. A focus will be put on prevention and response ties to deliver equity-based and resilient social services, to separated children including children on the move; and promote positive and healthy behaviours and atti- improving access to justice and diversion; promoting tudes of individuals and communities. positive changes on social norms related to harmful Interestingly, the programme will seek to mainstream practices including FGM/C and child marriage. three crosscutting issues: emergency preparedness and The policy, evidence and social protection component response, disaster risk reduction, and climate change will focus on supporting the development and imple- adaptation. mentation of policies and strategies that address the The CPD identifies five main components for UNICEF structural causes of child multidimensional poverty and programming: (a) child survival and development; (b) inequities. Support will be provided on national and sub -national levels to strength the Government’s capacities

GENDER PROGRAMMATIC REVIEW 65 to develop sound evidence-based and equity -focus policy and plans. UNICEF will continue collaborating with the Central Statistics Bureau to monitor the situation of children, adolescents and women through multiple indicator cluster surveys. Finally, the programme effectiveness component will ensure the programme is effectively managed, coordinated, monitored and evaluat- ed. Communication for social and behavioural change will be coordinated to increase knowledge and skills. The programme will provide cross- the problem and the solution from a holistic perspec- sectoral support for mainstreaming of gender responsive tive. In addition, priorities are interconnected and can programming, and accountability to affected popula- create synergies and efficiency that simultaneously im- tions. prove more than one gender equality outcome. There- fore, it is recommended that UNICEF implements two gender priorities: ending child marriage and promoting 9.2 Gender Sensitivity in CPD (2018 – 2021) girls’ secondary education, and elaborate strategies toward achieving their results. The CPD (2018 – 2021) starts with a presentation of the current context of Sudan’s humanitarian difficulties and Furthermore, other aspects of gender inequality in Su- tackled issues related to the GAP gender mainstreaming dan are not reflected in the situation analysis part of the indicators such as maternal and neonatal mortality, CPD, such as roles of men and women in the society pregnant women living with HIV, feeding practices, ac- (household responsibilities, employment, participation cess to water and sanitation at home, improved drinking in decision making) in addition to disparity in access to water and sanitation facilities in schools, open defeca- services. The result of a gender analysis could highlight tion, gender disparities in education, FGM/C practices, needs for promoting gender equality and open new are- and child marriage. Subsequently, programme strategies as of interventions that fit under the five programme show the intention to work on these topics, which is components. mentioned under relevant components, except for inter- Information about gender bottlenecks and barriers, pro- ventions with pregnant women living with HIV where no vided in Chapter 2 of this report, could be useful to en- further work is mentioned. rich the situation analysis section of the CPD. In addition, However, despite the fact that awareness of the priority recommendations to improve gender mainstreaming in of gender equality is present among UNICEF staff and UNICEF programmatic areas (Chapter 6) could be useful previous efforts were made to promote it, the CPD (2018 while developing gender equality strategies under each – 2021) first draft does not reflect gender equality ade- of the CPD’s five programme components. quately. For example, gender equality is not included In addition to the need to include strategies that pro- among the programme priorities that will be main- mote gender mainstreaming in nutrition, WASH, health, streamed during the next four years and strategies to education and child protection, support to the Govern- promote gender equality are not reflected under each of ment on the national and state level to develop gender the five-country programme components. strategies and promote gender equality policies is need- Moreover, the new CPD (2018 – 2021) has not selected ed, especially that the analysis of current national poli- one or more gender priority aligned with the global Gen- cies (Chapter 3) shows the lack of a Gender National der Action Plan (GAP). Targeted gender priorities facili- Strategies to inform gender policies and actions. tate the gender equality crossing over sectoral boundaries that might otherwise limit the visualisation of both

66 GENDER PROGRAMMATIC REVIEW Key progress indica- UNICEF out- Indicative country pro- tors, baselines and Comments/Recommendations comes gramme outputs targets

Child Survival and Children <1 year old Government at national Gender Equality Marker rating: Development receiving measles- and sub-national levels Based on the GEM, the outcome is rated in category 2. containing vaccine have strengthened capac- Rationale: By 2021, more ities and develop evi- The aim of this outcome is to provide quality health and under-five chil- Baseline: 60% (2014) dence-based and equity- nutrition services to children and women of reproduc- dren and women Target: 80% (first multi sector focussed tive age. of reproductive dose) policies, plans and budg- age utilize high ets to improve health and One output address main gender bottlenecks in Sudan, impact, quality nutrition services which are the lack of women’s knowledge and limited health and nutri- Live births attended access to information, through targeted capacity build- tion services by a skilled health The health systems and ing. In addition, there are several indicators that meas- personnel communities in targeted ure progress on this issue. localities have strength- Baseline: 77.5% ened capacities and deliv- Suggested modifications: Target: 90% er integrated high impact Outcome: By 2021, more under-five boys and girls, and health and nutrition ser- women of reproductive age utilize high impact, quality vices health and nutrition services Number of children Output 1: Government at national and sub-national lev- aged 6-59 months More severely malnour- els have strengthened capacities and develop evidence- affected by severe ished children receive based, gender sensitive, and equity-multi sector fo- acute malnutrition quality treatment with cussed policies, plans and budgets to improve health who are admitted integrated WASH, infant and nutrition services into treatment and young child feeding Output 2: The health systems and communities in tar- and birth registration geted localities have strengthened capacities and deliver Baseline: services integrated high impact and gender sensitive health and 224,118 (2016) nutrition services Target: Mothers and other care- Output 3: More severely malnourished boys and girls 250,000 (Annual) givers in targeted locali- receive equal quality treatment with integrated WASH, ties have improved skills infant and young child feeding and birth registration and knowledge on key services Percentage of chil- family practices. dren aged 0-5 Suggested additional indicators, in alignment with GAP months who are ex- results matrix: clusively breastfed • Percentage of children aged 0-59 months with sus-

pected pneumonia taken to an appropriate health Baseline: 55.4% provider (national) (2014) • Percentage of women attended at least four times Target: 76% during their pregnancy by any provider (skilled or unskilled) for reasons related to the pregnancy • Coverage of triple drug anti-retroviral regimens for all pregnant women living with HIV • Number of HIV-positive pregnant women (out of those targeted by UNICEF) in humanitarian situations who receive treatment (either initiated or continuing) to prevent mother-to-child- transmission • Percentage of women of reproductive age with anaemia

9.3 Recommendations to Improve Gender note that the aim of this exercise is to open more dis- Sensitivity in the CPD cussions between UNICEF staff on how to promote gender equality in each programme and how to reflect it in The following table presents the CPD framework Out- the CPD. comes, Indicators and Outputs and recommended modification for improvement based on the Gender Equality Marker, Global Guidance and GAP. It is important to

GENDER PROGRAMMATIC REVIEW 67 Key progress indica- UNICEF out- Indicative country pro- tors, baselines and Comments/Recommendations comes gramme outputs targets

Education and Gross enrolment Increased number of out- Gender Equality Marker rating: Learning ratio of-school girls and boys, Based on the GEM the outcome is rated in category 2. especially those in the By 2021, more Baseline (2015): most vulnerable situa- Rationale children have 1 year pre-primary tions, accessing quality The main objective is to guarantee access to education access to early (age 5) – 47.5% pre-primary, primary and and provide quality education in a safe learning environ- stimulation, qual- (Girls: 46.4%, Boys: alternative learning opment. ity basic educa- 48.6%) portunities tion and learning Primary (age 6-14) – Promoting gender equality is essential for creating a safe in inclusive and 70.2% (Girls: 68%, Teachers, PTAs and chil- learning environment; also teachers, and learning pro- safe school envi- Boys: 72.3%) dren have improved cesses will be gender sensitive, therefore gender equali- ronments. knowledge and skills to ty could be identified as a secondary objective. Secondary – 40.9% contribute to quality (Girls: 42.6%, Boys: learning in inclusive safe In addition, there is one indicator on number of out-of- 39.3%) and protective school school children (boys and girls) accessing pre-education, environments primary and alternative learning opportunities and an- Target (2021): TBD other on building teachers, PTAs and children’s skills on Strengthened capacity at how to contribute in creating a safe protective environ- sub-national and national ment. levels to legislate, plan, coordinate and budget Suggested modifications: provision of equitable and Outcome: By 2021, more girls and boys have access to Percentage of stu- inclusive education op- early stimulation, quality basic education and learning in dents able to read portunities inclusive, gender-responsive and safe school environ- with comprehension ments. on the grade 3 learning assessment Output 1: Increased number of out-of-school girls and boys, especially those in the most vulnerable situations, Baseline (2015): accessing quality pre-primary, primary, secondary and Reading: 60% alternative learning opportunities Target: TBD Output 2: Teachers (females and males), PTAs, girls and boys have improved knowledge and skills to contribute Primary education to quality learning in inclusive safe and protective school completion rate environments, mitigating the risks of GBV Output 3: Strengthened capacity at sub-national and Baseline (2015): 79.3 national levels to legislate, plan, coordinate and budget (Boys: 84.8; Girls: provision of equitable, gender sensitive and inclusive 74.3) education opportunities Target (2021): TBD Output 4 (suggested): Reduced gender disparities in ESSP (2018-2022) women’s employment in primary and secondary schools

Number of out-of- Advancing girls’ secondary education indicators school children ac- (targeted gender priority): cessing formal or • Out-of-school rate in primary/lower secondary non-formal educa- • Level of gender parity in lower secondary education tion with direct sup- • Existence of an education policy or plan that specify port from UNICEF prevention and response mechanisms to address gender-based violence in and around schools Baseline (2016): 276,091 (48.1% Girls) Target (2021): 1,000,000 (50 per cent girls)

68 GENDER PROGRAMMATIC REVIEW UNICEF out- Key progress indicators, Indicative country Comments/Recommendations comes baselines and targets programme outputs

Child Protection Number of children who Strengthened and Gender Equality Marker rating: have experienced grave more effective child Based on the GEM the outcome is rated in category 2. By 2021, more violations protection legisla- children are pro- Baseline: 916 (2016) tion, policies and Rationale tected from vio- Target: 458 (2021) - 50% budget integrated The outcome and corresponding outputs aim to pro- lence, abuse and decrease across sectors. tect children from violence including practices includ- exploitation and ing FGM and child marriage. However, only one output benefit from Service providers at and one indicator is tackling gender inequalities (or improved re- Children in detention per state and locality form of violence) and measuring its progress. sponse and pre- 100,000 child population levels in UNICEF tar- vention systems. Baseline (2016): 238 geted areas have Suggested modifications: Target (2021): 150 strengthened capaci- Outcome: By 2021, more girls and boys are protected ties and deliver qual- from violence, abuse and exploitation and benefit Percentage of girls 0-14 ity specialized child from improved response and prevention systems. years undergoing FGM/C protection services Set disaggregated target for indicators 1, 2 and 4 Baseline: 31.5% (2014) with appropriate Target: 25.5% referral mechanisms Ending child marriage indicators (targeted gender pri- in place. ority): • Percentage of women aged 20–24 who were mar- Percentage of UNICEF- More communities ried or in a union by age 18 targeted children in humani- have strengthened • Reduction in proportion of women 20–24 years tarian situations receiving mechanisms to pro- married by age 18 years old psychosocial support tect children from • Existence of national strategies or plans with a Target: 100% violence, abuse, and budget to end child marriage exploitation including FGM/C and child marriage

Evidence- Based Number of children covered National and sub- Gender Equality Marker rating: Policy and Advo- by social protection systems national Govern- Based on the GEM the outcome is rated in category 0. cacy Baseline: 500,000 (2016) ment partners have Target: 1,000,000 strengthened capaci- Rationale: By 2021, disad- ties for evidence- Outcomes and outputs refer to children as a group and vantaged and informed child- there is no mention for any targeted actions related to excluded chil- Existence of two new Gov- centred policy for- gender equality policies and advocacy. Indicators also dren are bene- ernment-approved national mulation, planning monitor children as a group and do not measure pro- fiting from im- surveys with reliable and and budgeting gress in achieving gender equality. proved policy disaggregated data on the environment and situation of children. The national and sub Suggested modifications: strengthened Baseline: 2 (S3M 2013 and -Government part- Outcome: By 2021, disadvantaged and excluded boys social protection MICS 2014) ners have strength- and girls are benefiting from improved policy environ- system Target: S3M (2017-2018) ened institutional ment and strengthened social protection system and MICS 2019 capacities to develop Output 2: The national and sub-Government partners and deliver child- have strengthened institutional capacities to develop Public expenditure for chil- sensitive social pro- and deliver child-sensitive and gender-responsive so- dren by sector: tection, particularly cial protection, particularly to girls, boys, women and Baseline: to the children and men in the most vulnerable situations. Education: 11.3% (2016) their families in the Health: 10% government most vulnerable situ- Suggested additional indicators, in alignment with GAP contribution (2015) ations. results matrix: Sanitation: 0.01% of GDP • Existence of a Gender Review of nutrition policy/ (2014) strategy in the current national development plan Social Welfare: 0.5% of GDP cycle with UNICEF support (2012) • Existence of a Gender Review of the HIV policy/ Target: strategy of the current national development plan Education: 5% increase with UNICEF support Health: 15% (Abuja target) • Number of advocacy interventions encouraging Sanitation:>0.05% of GDP the ratification/signature of the CEDAW Social Welfare:>0.5% • Public expenditure on promoting gender equality GENDER PROGRAMMATIC REVIEW 69 UNICEF out- Key progress indicators, Indicative country Comments/Recommendations comes baselines and targets programme outputs

Programme Percentage of management UNICEF staff and N/A Effectiveness and programme priority partners are provid- indicators meeting score- ed with guidance, Country pro- card benchmarks tools and resources gramme is effi- to effectively design, ciently designed, Target: 100% plan and manage coordinated, programmes managed and supported to UNICEF staff and meet quality partners are provid- programming ed with tools, guid- standards within Percentage of funds re- ance and resources the priorities for ceived as OR against 2018- for effective advoca- affected popula- 2021 country programme cy on child rights tions in achieving planned amount. issues results for chil- Target: 100% dren Strategies to address cross-cutting issues related to child rights are developed and applied.

70 GENDER PROGRAMMATIC REVIEW CONCLUSION

The review process started by identifying the main gender issues and gaps in Sudan, as well as national strategies and policies. Then, it went through the assessment of gender-responsive actions in general within UNDAF and UN agencies’ collaborative efforts followed by a more focused assessment of progress made by UNICEF programmes. Achievements and challenges related to gender mainstreaming were presented for the five key programmes of UNICEF SCO. Even though it was planned to carry out this assessment from a holistic perspective, the review went through an in-depth analysis of outcomes, outputs and actives of each programme in order to suggest actions on improving gender mainstreaming. Analysis and assessments of each programme, in addition to UNICEF staff gender skills, were then consolidated in main recommendations to promote gender equality. Finally, the review assessed the new CPD (2018 – 2021) based on the GEM, GAP and Global Guidance to suggest modifications on outcomes and outputs levels as well as providing additional indicators that help in measuring progress in gender mainstreaming. It is evident that UNICEF SCO management and staff are committed to enhancing gender responsiveness in programmes even though they are overwhelmed responding to a considerable number of girls, boys, women and men in need whether they are in emergency areas or unreached zones. De- spite the fact that they are operating in different states with different needs, resources, social norms and cultures, there is always an effort made by UNICEF staff to understand each context and address needs accordingly. The gender review takes this effort to a further step by focusing on gender issues, main gender bottlenecks and needs of each community. Therefore, it is important to start by building the capacities of UNICEF staff on gender by providing them with tools that help in understanding gender roles, responsibilities, challenges, and issues of each targeted community. Subsequently, efforts should be made to build a common understanding, with the Government, UN agencies and national and international NGOs, on gender equality, putting in action international instruments signed and ratified by Sudan and revise national policies and strategies to reflect gender equality and women’s empowerment standards. Advocating for the signature/ratification of the CEDAW is crucial and will raise discussions on girls and women’s rights. Thus, the enabling environment to promote gender equality will be strengthened. Furthermore, putting a focus on gender equality during programme planning and developing a gender-sensitive results matrix with indicators that help in measuring progress, will reflect programme responsiveness to gender issues and tackle main gender bottlenecks. As the review highlighted, working on ending child marriage, promoting girls’ secondary education (the two main gender-targeted priorities) in addition to other previous mentioned gender mainstreaming actions will increase opportunity for girls, boys, women and men to gender responsive services. Then comes community mobilisation and campaigns addressing social norms promoting gender equality. Interestingly, the Gender Review draft has been reviewed by the UNICEF Sudan Senior Management Committee including UNICEF Sudan Representative, Deputy Representative and Section Chiefs in June 2017. The Committee approved the report findings and recommendations and made the following five key decisions: 1. The country programme must become girl sensitive in all programmatic aspects including supply items. So UNICEF should ensure the full programme mainstreaming of gender. 2. The Country Management Team, UNICEF SCO, decision vis-à-vis GAP gender priorities is to focus on gender-based violence which is a cross-cutting issue/barrier for all programmes. This GBV flagship programme for gender will include FGM, child marriage and sexual violence against girls. Those are already well referenced into the CPD document. However, UNICEF SCO will seize the opportunity to highlight this priority in the CPAP 2018-2021 that will be signed with Government. 3. UNICEF must strengthen the internal level of understanding of gender concepts and gender mainstreaming; there is urgent need for training of all staff on gender. Therefore, UNICEF SCO will request the Regional Office support for in-country capacity building.

GENDER PROGRAMMATIC REVIEW 71 4. UNICEF SCO internal office capacity for coordination of gender must be strengthened. For example, the office could explore the way of partnership with AHFAD University for Women in order to bring into the office periodic volunteer who will provide adequate timely support to UNICEF SCO to lead on gender. 5. SCO staffing gender balance very low: efforts will be made to develop innovative strategy to attract new female competency during the massive recruitment of staff that will happen in 2018 for the new office structure (CPMP 2018-2021) being submitted to the Regional Office and HQ with the new CPD 2018-2021. The prompt reaction of UNICEF SCO management to put in action several recommendations highlighted in this review shows the commitment of UNICEF SCO toward improving gender mainstreaming and gender equality. Hopefully, these key decisions and the review analysis, findings and recommendations will guide UNICEF SCO staff in developing programme actions and participate in creating an environment where girls, boys, women and men can enjoy equal rights.

72 GENDER PROGRAMMATIC REVIEW ANNEX 1: BIBLIOGRAPHY

Mainstreaming Gender Equality and Women’s Empowerment, Ahfad University for Women, Institute of Women, Gender and Development Studies, Khartoum 2003. Multiple Indicator Cluster Survey (MICS) (2014). Plan International (2013). A Girl's Right to Say No to Marriage: Working to End Child Marriage and Keep Girls in School. Available at: http://plan-international.org/girls/childmarriagereport Sudan Federal Ministry of Health (2010). Sudan Household and Health Survey Second Round 2010. Sudan Ministry of Education (2012). Interim Basic Education Strategy. Sudan Ministry of Welfare and Social Security (2011). Evaluation of Gender Mainstreaming in Federal Line Ministries in Sudan, General Directorate for Women and Family Affairs (CDWFA). Sudan National Council for Strategic Planning (2007). The Twenty-Five Year National Strategy (2007 – 2031). Khartoum, 2007. The Constitutional Protection of Human Rights in Sudan: Challenges and Future Perspectives, University of Khartoum, Faculty of Law, 2014. Thiam, Macoumba. (2016). Female Genital Mutilation/ Cutting (Fgm/C) and Child Marriage in Sudan - are there Any Changes Taking Place? An In-Depth Analysis Using Multiple Indicators Cluster Surveys (MICS) and Sudanese Household And Health Surveys (SHHS). UNICEF-UNFPA-WHO Sudan Free of FGC Programme. UN Country Team (2013). Sudan United Nations Development Assistance Framework 2013-2016 UN Country Team (2015). Evaluation Report of Sudan UNDAF (2013-2016). UNDP (2005). Supporting the Role of Women Leaders in Sudan and South Sudan in the Post-separation Peri- od. www.un.org/democracyfund/sites/www.un.org.democracyfund/files/Evaluation%20Report% 20Women%20Leaders%20In%20Sudan%20final.pdf. [Accessed on 16 April 2017] UNICEF (2008a). From Invisible to Indivisible: Promoting and protecting the right of the girl child to be free from violence, UNICEF, New York. UNICEF (2008b). Child Protection Strategy, . Accessed on 16 April 2017. UNICEF (2011). MENA Gender Equality Profile, Sudan. UNICEF (2011). Promoting Gender Equality: An Equity-Focus Approach to Programming UNICEF (2014). Guidance on Gender Staffing In Alignment with the Gender Action Plan 2014 – 2017 UNICEF Sudan (2008). Family Protection Unit: Technical Briefing Paper. UNICEF Sudan (2012). KAP study, Early/Child Marriage in Six States (South Darfur, East Darfur, West Darfur, Central Darfur, Gedarif and Khartoum) in Sudan UNICEF Sudan (2013). Country Programme Document (2013-2016) UNICEF Sudan (2016). Female Genital Mutilation/Cutting and Child Marriage in Sudan. An In-depth analysis using Multiple Indicators Cluster Surveys (MICS) and Sudan Household Health Surveys (SHHS) UNICEF Sudan (2017a). Situation Analysis UNICEF Sudan (2017b). Sudan Regional Study on Child Marriage.

GENDER PROGRAMMATIC REVIEW 73 ANNEX 2: SOURCES CONSULTED

Sudan Legal Framework The Interim National Constitution of the Republic of Sudan 2005 The Twenty-Five Years National Strategy (2007 – 2031) The National Women Empowerment Policy 2007 The Interim Basic Education Strategy (2012 – 2016) The Labour Code UNICEF Guidance Note UNICEF Gender Action Plan 2014–2017 Promoting Gender Equality – Equity-Focused Approach to Programming Memo on Gender Action Plan Gender Programmatic Toolkit Gender Handbook in Humanitarian Action Clarification on Gender Expenditure Gender Marker – Frequently Asked Questions UNICEF Zimbabwe Gender Review Report 2014 Situation analysis of Sudan Executive Summary Simple Spatial Surveying Method (S3M) Survey in Sudan Sudan National S3M: Key Results Socio-economic assessment of Water Supply in IDPs Camp Multiple Indicator Cluster Survey 2000 Multiple Indicator Cluster Survey 2014 Sudan Household Health Survey (SHHS-II) 2010 FGM/C and Child Marriage in Sudan 2016 End-Project Evaluation of the Youth Leadership, Empowerment, Advocacy and De- velopment in Sudan Brief Overview of Key Gender Issues, Darfur Sudan Cost and Financing of General Education 2012–2015 Child Poverty and Inequality in Sudan 2017 KAP study Report 2012/13 Evaluation of Gender Mainstreaming in Federal Line Ministries Government of Sudan and UNICEF M & E Framework of the Country Programme 2015 - 2017 joint documents Government of Sudan – UNICEF Mid Term Review Report 2014 Government – UNICEF Results Matrix 2017 in Sudan The Country Programme Action Plan Between The Government of Sudan and UNICEF Work Plans and Budget 2016 The Government of Sudan and UNICEF Rolling WorkPlan 2015–2016 UNICEF Sudan Country office Reports UNICEF Country Annual Report 2014 UNICEF Country Annual Report 2015 Country Office Annual Report 2016 Wash Gender Review Report 2015

74 GENDER PROGRAMMATIC REVIEW ANNEX 3 Questions for individual interviews with UNICEF Section Chiefs

1. How do you address gender equality in your section? How are you guided (Gender Action Plan, Gender policy, Operational guidance on Promoting Gender Equality, etc.)? 2. Do you have sufficient qualitative and quantitative sex disaggregated data and research analysis on gender issues that support your work? Do you carry out gender analysis during the planning phase of your programme? 3. Is gender equality integrated in your work during the planning, implementation and evaluation processes? 4. Are gender priorities (promoting gender-responsive adolescent health; advancing girls’ secondary education; ending child marriage; addressing gender-based violence in emergencies) guiding your planning? What is the level of the priority (outcome or output level, national or zonal level)? 5. What are the main interventions that address the selected GAP priorities? Do you consider these interventions effective? Why? 6. Addressing gender equality, what is the coverage of your programmes in terms of beneficiaries and reached systems? 7. Do you have adequate financial and human resources to implement your programme? 8. How can you assess your programme staff in terms of combination of gender, sectoral and cross-sectoral expertise and strong partnerships? 9. For monitoring and evaluation, do you use gender sensitive indicators to measure and evaluate gender equality? 10. How can you assess the innovation in employing new technologies, new partnerships and new approaches to cross-sectorial collaboration to address gender bottlenecks and barriers? 11. What are the main mainstreaming issues that you encounter in your sector? 12. What do you recommend for a better gender mainstreaming in programmes? What are the gender priorities that you consider high priority for Sudan?

GENDER PROGRAMMATIC REVIEW 75 ANNEX 4 Questions for individual interviews with UNICEF Section Chiefs Staff category: Assistant Professional Management Area: Programmes Operations Note: For Programmes staff, please answer all sections (A, B, C) For Operations staff, please answer Q1 in section A, and all questions in section C Questions Not To a To a To the Do not at limited mod- fullest know all extent erate extent extent A – Personal skills in gender equality 1- I can define Gender as ………………………………… 2- I understand the terms, ‘gender equality’, ‘gender analysis’ and ‘gender mainstreaming’. 3- I have been oriented on the UNICEF Gender Policy 2010, Gender Guidance Notes, the guidance note on the Gender Equality Marker 2010 and the Gender Action Plans 2014 - 2017. 4- I have read the UNICEF Gender Policy 2010, Gender Guidance Notes, the Guidance Notes on the Gender Equality Marker 2010 and the Gender Ac- tion Plans 2014 - 2017. 5- I am familiar with the Convention on the Elimination of All forms of Discrimi- nation against Women (CEDAW) 6- I have been trained in gender awareness and gender equality. 7- I am able to identify gender equality gaps and challenges related to my programme. 8- I know how to integrate gender equality in my section programme design. 9- I am able to formulate gender sensitive outcomes, outputs and indicators. 10- I understand how to apply Gender Equality Marker to outcomes/outputs B – Programming 11- Gender equality is discussed or raised during programmes’ staff meetings 12- A Gender analysis is carried out to inspire programme’s designs 13- Gender equality objectives are included in programme activity designs 14- The implementation plan of my programme include activities that strength skills and provide women/girls and men/boys equal access to services 15- Gender equality figures among the office priorities. 16- There has been a gradual increase of gender expertise in staff members. 17- UNICEF partners in Govn’t share same understanding of gender equality. 18- Gender mainstreaming activities are coordinated with partners in Govn’t 19- Gender mainstreaming activities are coordinated with UN 20- What might be the obstacles to integrate gender in project planning, im- staff capacity plementation and evaluation in your office? Please check all that apply. national culture lack of financial resources lack of staff training on gender lack of gender tools lack of support from senior management low organisational priority for gender issues other (please specify) C- Gender-sensitivity in working environment 21- There is a gap between how men and women in my office view gender issues. 22- Gender awareness is included in job performance criteria. 23- The project office is women friendly. 24- Meetings in office tend to be dominated by male staff. 25- The working environment in the project office has improved for women over the past two years.

76 GENDER PROGRAMMATIC REVIEW ANNEX 5: List of Participants from Workshops and Interviews Partners’ Workshop in Khartoum Yassir Ali CVAW Unit Salma Ahmed DWSU Asma Nour Eldin Ministry of Education Namarig Salih Ministry of Interior Eshraga Saad FCPU Manahil Bashir Hamza Ministry of Education Mazahir AbassM. Federal Minister of Health Khalid Abdin National Council for Child Welfare Hassan Ismail National Council for Child Welfare Hussein M. Farah National Council for Child Welfare

Partners’ Workshop in Kassala Al Bagi Draj Civil Register Elaagib Mohamed Family and Child Mohend Atta Mohamed Civil Register Khloud Khalil TOD Ebtissam Ali Ahmed HP Khadija Musa Suliman Ministry of Health Magda Abdel Ati Mohamed V.A.W Buthina Okasha Mohammed C.C.W Nimat Adam Edress G.E Jamal Mohamed SMOF – Planning Department

UN Partners Astrid Marschatz Head, UN Resident Coordinator's Office – (UNRCO) Hassan Youssef Programme Associate - World Food Programme Ahmed Solom Monitoring Assistant - World Food Programme Halima Omar Monitoring Assistant - World Food Programme Mona Hassan Saad UNFPA Mohanad Ossman UNFPA - Kassala UNICEF Robert Ndamobissi Chief, Planning, Monitoring and Evaluation Souad AL-Hebshi Chief, Child Protection Specialist Mueni Mutunga Chief, Nutrition Suha Rantisi Human Resources Officer Panji Chamdimba Education Specialist Dina Ali Knowledge Management Specialist Aala Rahamtalla, Monitoring and Evaluation Specialist Tamador Ahmed Khalid Child Protection Specialist/Gender Focal Point Cody Donahue Partnership Manager – SFFGC/Child Protection Specialist Fouad Yassa WASH Specialist Nahla Khiery CP - Adolescent Development Specialist Ismail Mohamed Project Officer Health Abu Obeida El Siddig Mohamed Chief Field Office, Kassala, Red Sea & Gedarif States Wisal Abdalla UNICEF, Monitoring and Evaluation Officer - Kassala Jemila Abdorahman UNICEF - Kassala AbdelRaouf Elsiddig Child Protection Officer - Kassala Imad Suliman WASH Officer - Kassala Ahmed Hassan Education Officer - Kassala Eljaili Eltahir Resilience Officer - Kassala Medoune Diop Resilience Coordinator – Kassala Ehab Alshikh C4D Officer UNICEF – Kassala Hammad Elzain Programme Assistant – Kassala Jemila Imam Programme Assistant – Kassala

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