Coalitions to Achieve Gender Equality at Scale

Home , Lukulu District, Lusaka District, Mongu District, Senanga, Senanga District

Program Brief

Coalitions to Achieve Gender Equality at Scale: Gender Development and Coordinating Subcommittees and Networks as Drivers of Change in Zambia Coalitions to Achieve Gender Equality at Scale: Gender Development and Coordinating Subcommittees and Networks as Drivers of Change in Zambia

Program Brief

Jane Kato-Wallace1, Steven M Cole2, and Ranjitha Puskur2

Suggested Citation: Kato-Wallace, J., Cole, S.M., and Puskur, R. (2016). Coalitions to Achieve Gender Equality at Scale: Gender Development and Coordinating Subcommittees and Networks as Drivers of Change in Zambia. Washington, DC, USA: Promundo-US and Lusaka, Zambia: WorldFish.

1 Promundo-US 2 WorldFish Coalitions to achieve gender equality at scale 2

Luanginga River, Mapungu, Western Province, Zambia.

its global partner, Promundo-US, in February 2015. While the findings presented in this brief Summary are specific to western Zambia, the challenges identified are shared across most districts Gender inequality affects development out- and provinces in Zambia, as well as in many comes, and it results in sub-optimal returns to African countries such as Sierra Leone, where development investments. Formal structures there are gender ministries and similar network have been put in place to address these issues, structures, making the findings applicable to a but their effectiveness is hampered by a wider context. number of institutional constraints. This brief summarizes the findings of a scoping study conducted to understand the strengths and areas of growth of the gender development Background and coordinating subcommittees at the district and provincial levels in western Zambia, and of By partnering with local, national, and inter- the gender networks at the national level. The national organizations to achieve large-scale study was conducted by the CGIAR Research development impact, the CGIAR Research Program on Aquatic Agricultural Systems and Program (CRP) on Aquatic Agricultural Systems Coalitions to achieve gender equality at scale 3

(AAS) seeks to reduce poverty and improve levels, to help create gender-transformative food security for many small-scale fishers and change at scale. The support should be farmers who depend on aquatic agriculture accompanied by systematic monitoring and systems. The program focuses on Africa’s evaluation in order to understand the effec- inland waters, where the vast majority of tiveness and efficacy of such platforms. people dependent on these systems are poor. AAS is working in the Barotse Floodplain in Box 1. Why Coalitions? Western Province, Zambia. Over 80 percent of the population in Western Province lives in The CGIAR Research Program (CRP) on Aquatic poverty3 and livelihoods are governed by flood Agricultural Systems (AAS) recognizes that the pulses. In 2012, a Barotse Hub Development underlying causes of unequal access to and Challenge (HDC) was identified and agreed control over agricultural resources between upon by a wide range of stakeholders. It aims women and men must be transformed to achieve lasting and equitable development “to make more effective use of the seasonal impact. Neither individual nor structural flooding and natural resources in the Barotse transformation happens in isolation. Coalitions Floodplain System through more productive and networks are seen as an integral part and diversified aquatic agricultural manage- of promoting, supporting, and reinforcing ment practices and technologies that improve gender-equitable practices. They can serve lives and livelihoods of the poor.” The Barotse as platforms from which organizations and HDC forms the basis for developing stake- governments can exchange lessons learned holder commitment toward the tackling of around gender, share challenges in influencing development challenges through agricultural gender-inequitable practices and attitudes, research. AAS is currently operating in ten focal and seek guidance on what areas to strengthen. communities situated in or along the flood- Furthermore, they can serve as spaces where actors can share their experiences imple- plain in four districts (Mongu, Senanga, Kalabo, menting inclusive agricultural research in and Lukulu). development, as well as advocate for others to The successful implementation of agricultural carry out similar approaches. In short, coalitions and networks can be a means of creating an interventions that benefit women and men enabling and supportive environment for equally and improve gender relations in gender equality in agricultural research and Western Province depends on support from a development. collaborative coalition of government, development, and research organizations (see Box 1). Working together by sharing ideas, approaches, One platform that was identified is the existing technologies, and lessons learned, as well as gender development and coordinating sub- by developing capacities to deliver on shared committees that operate at the district and goals/objectives around gender, is important, provincial levels. It is believed that these and it is more effective than working separately government-supported committees might and in isolation. create an ideal space for a wide variety of R&D stakeholders to share knowledge, experiences, There is a need to support various platforms approaches, and technologies, in order to learn (e.g., networks, coalitions) that aim to build and act collectively to tackle the pervasive people’s capacities to innovate and to influence challenge of gender equality. To date, no sys- the policy and practice of research and tematic effort has been made to understand development (R&D) organizations, at multiple how these district- and provincial-level gender subcommittees (and the gender focal-point 3 Central Statistical Office (2012) people who lead their coordination) function Coalitions to achieve gender equality at scale 4 and provide opportunities for people to share Senanga Districts in Western Province, Zambia, knowledge and develop capacities. and with representatives of organizations that work on gender or that are part of gender AAS undertook a scoping study that aimed to networks at the national level in the capital, fill this knowledge gap. This brief presents the Lusaka. District Administrative Officers (DAOs) study’s key findings, as well as options for action – usually assigned as GFPs – were contacted to strengthen the gender subcommittees, first for an interview. After the completion of the making them more relevant, improving their interviews, the DAOs provided a list of potential function, and supporting them as knowledge- interviewees – subcommittee members and sharing and learning platforms that can other representatives from organizations catalyze collaborative action towards achieving working on gender at the district, provincial, gender equality at scale. or national level. Approximately 45 interviews were conducted over a two-week period.

Overview of the Scoping Study Key Findings The scoping study aimed to better understand Different perspectives among GSC members the functioning of the subcommittees, the and non-members about the purpose of the challenges that prevent them from carrying out GSCs their roles and responsibilities and achieving their objectives, and possible actions to In general, study participants fell into one of address these challenges. In February 2015, in- two categories: depth interviews were conducted with gender 1. Those who viewed and thus treated the focal points (GFPs) and gender subcommittee GSCs as an organization that provides services. (GSC) members in Kalabo, Lukulu, Mongu, and For example, some members reported that the

Woman weeding in her garden in Senanga District, Western Province, Zambia. Photo credit: Nixon Chisonga, WorldFish Coalitions to achieve gender equality at scale 5

GSCs’ main purpose was to carry out activities districts and at the national level than there on International Women’s Day and provide was within these locations, suggesting that services like violence counseling, while others senior leadership influenced these perceptions. reported that GSCs were created to sensitize For this reason, it may be critical for the MGCD people in communities on various issues such to develop GFP capacities to coordinate and as gender-based violence. Study participants lead the GSCs in their districts and integrate within the Ministry of Gender and Child Devel- gender approaches, including those that are opment (MGCD) voiced this view when they transformative.4 highlighted their need for more training on how to deliver better violence counseling services Proper functioning of the GSCs limited by lack to people in communities. of funding Almost all study participants in Western “GSC mostly tries to engage women in Province cited the lack of funding support – development programs. For example, [during] for fuel and transport, for communications, the 16 Days of Activism we had victims of and for participation in meetings (e.g., lunch, violence who came and spoke out. To get more travel reimbursements to members) – as a women involved and speaking out when their major hindrance to the proper functioning rights have been violated.” of the GSCs. This was mentioned less by – GSC Member, stakeholders in Lusaka, which may suggest Senanga District that funding support is not reaching outlying provinces/districts. 2. Those who viewed the GSCs’ role as providing leadership and supplying resources to “Financial resources are sorely lacking – members, as well as to non-member entities, resources to pay for printing the letters, who are implementing gender activities within sending them, paying a driver to distribute the the districts. These views were most common letters. You end up using your personal money among study participants in Mongu and with because the committee is not funded.” civil society groups such as the Non-Govern- – GSC Member, mental Organisations Coordinating Council Mongu District (NGOCC), a network of women’s rights groups in Lusaka. Limited gender mainstreaming capacity and “[The purpose of the GSC is] to coordinate expertise efforts of various stakeholders and do information exchange. This allows us to know what Few, if any, study participants reported receiv- is happening on the ground – different activities ing any kind of gender capacity-development addressing gender inequalities. We are all aware training in the past one to two years. When of the GSC and instead of individually doing asked what the term “gender” means, many things as organizations, we work together.” study participants understood it to mean “equal numbers of men and women participate in – GSC Member, programs.” Many expressed frustration at being Mongu District given little technical support and training to carry out the directives handed down to them from the national level. Notably, there was more variation in perceptions of the purpose of the GSCs between 4 Cole et al. (2014) Coalitions to achieve gender equality at scale 6

“Critical gender analysis skills are missing. More specifically, GSC members are unable to make the linkage between knowledge of gender roles and how to apply such knowledge and understanding to the practical work on the ground. For example, resources for implementation of construction projects or water projects/borehole drilling don’t consider loca- tion of boreholes, traditional roles, and myths that are prevalent in society. Will it increase or decrease women’s workload?” A woman in a rice field in Senanga, Western – GSC Member, Lukulu District Province, Zambia. strategic leadership and facilitate coordinated efforts to address gender inequalities. Addi- Lack of strategic direction from the top tionally, it was almost universally reported that GSC members in many districts seldom The majority of study participants reported that stay at their posts for longer than one to two they received little to no strategic direction or years, further exacerbating the challenges coordination from the MGCD, at the provincial that inhibit the proper functioning of gender or national levels, in terms of goals, objectives, subcommittees. or information on their roles or responsibilities. Additionally, study participants reported that they would appreciate the opportunity to meet “Usually these [gender] issues are taken care of [by the] resources or planning department, other gender subcommittee members from but we get so involved in our things you find other districts at least once a year to exchange that they have scattered. Sometimes we are experiences and lessons learned on promoting over-burdened by other activities. We need gender equality. to have some gender officer of some kind – not someone assigned an additional duty, “Leadership is needed to ensure there are but [rather someone] designed to spearhead regular meetings and reporting from the GSC, this issue.” with a vision for the district. Additionally, organ- – GSC Member, ize workshops with district administration and Kalabo District planners to strengthen the existing structures.” “People move on, especially from government, – GSC Member, where there are changes here and there and Lukulu District you lose key resources from the committee. Even NGOs if you have certain people moving or changing roles. This affects the composition. Because people have their core mandates in Understaffing and high turnover terms of what they are doing, and sometimes you don’t get all members actively participating The Provincial Planning Unit (whose members or available when they are required, because serve as GFPs for Western Province) is severely they have key roles that they have to undertake.” understaffed, with three out of 11 positions currently filled. From the point of view of the – GSC Member, PPU, this limits their capacities to provide Mongu District Coalitions to achieve gender equality at scale 7

Capacity development Options for Action at 2. At the provincial level, the MGCD and its District, Provincial, and partners should take a multi-sector approach National Levels to capacity development on gender and invite different organizations to share examples Strategic direction and leadership of their work in agriculture, fisheries, early childhood development, education, and health. 1. The MGCD should share or facilitate the In each district, opportunities to engage gov- development of documents that outline ernment departments in training, mentorship, clearly the roles and responsibilities of gender and coaching, beyond those members in subcommittees and GFPs, with all relevant the MGCD’s Gender Focal Point Terms of stakeholders. Most subcommittee members Reference, should be identified. Concrete and GFPs did not know or had varying ideas examples of what it looks like to “mainstream” of the purpose, roles, and responsibilities of or “integrate” gender, and challenge harmful their positions, along with not knowing where gender norms that impede development to find this information. In Western Province, across various sectors, should be collated. in particular, this information should be easily accessible. The hard and soft copies could be 3. The MGCD should, with GSC members, disseminated in meetings, via email, and on provide provincial and district support on the MGCD website. strategic planning, monitoring, and evaluation.

Three girls posing for a photo from Lukulu District, Western Province, Zambia. Photo credit: Steven Cole, WorldFish Coalitions to achieve gender equality at scale 8

The MGCD drives the gender and development to implement gender-transformative research agenda, and it sets targets and goals. These and development activities or programs. should then be contextualized at the provincial and district levels. The MGCD should partner with organizations to guide and facilitate this strategic planning process at the district level. Conclusion and Next Steps The Ministry should encourage district- and The creation of gender subcommittees high- provincial-level members to engage with lights a commitment from national leadership one another and to share experiences and to tackle gender inequality on a large scale. lessons outside of the Provincial Development However, lack of leadership, coordination, Coordinating Committee (PDCC). and financial commitment (among other Financial and human resources support issues) has weakened the effectiveness of these structures. The information gathered 4. The MGCD should provide a gender-only from the scoping study highlighted several focal person at the district level, link their options, utilizing a variety of approaches, to performance to job reviews, and refrain from strengthen the gender subcommittees in making the GFP an “add on” to a person’s job Western Province and at the national level. description. The results also informed the development of 5. The MGCD and its partners should provide a high-level theory of change for the gender financial support to GSCs so they can conduct subcommittees (see Figure 1), which describes (A) routine gender-subcommittee meetings, how GSCs can be strengthened to achieve and (B) field visits to better understand how greater development impact (including gender equality) over the longer term.

Current status Options for strengthening the GSCs GSC outcomes Development impact (2015) (2015/16) (2017/18) (2019/20) To improve on the ...by strengthening the GSCs by ...that results in more effective, ...that can help address the current situation... creating opportunities to share, learn, better functioning GSCs... persistent challenge of gender & develop capacities... inequality at a wider scale.

Lack of consistent Develop/share roles & tasks of GSC members & other stake- Women & men, girls & boys in understanding of GSCs & GFPs with all relevant holders understand the urban & rural communities the purpose of stakeholders. purpose of GSCs. are seeking out GSCs as an GSCs. important platform for change.

Lack of resources Allocate funding for district/ GSCs are well funded & self- Signs of gender attitudes & (including human) provincial-level GSC members mobilizing resources. They are some behaviors beginning to to function. High to meet, share info, & build local better connected & informed. change & gender champions staff turnover. Lack gender capacities. Incentivize Gender capacities developed emerging. of gender expertise. GSC members. within & outside the GSCs.

Lack of strategic Provide provincial/district support Clear direction & coordi- Underlying cause of gender direction & coordi- on strategic planning, monitoring & nation at all levels. Staff inequalities are being nation at provincial evaluation. enjoying their work & addressed at multiple levels, & national levels. achieving their development leading to improved lives & objectives/goals at all levels. livelihoods for all.

Figure 1. Gender sub-committees as key instruments for achieving gender equality at scale: A theory of change Coalitions to achieve gender equality at scale 9

Moving forward, the MGCD and its counterparts stakeholders at multiple levels, could be dev- could use this brief for further engagement eloped to map a way forward and link it to with GSCs and GFPs at the district, provincial, current efforts by other stakeholders to develop and national levels. A forum, made up of capacities of GSCs, and in particular, GFPs.

Woman cutting sugarcane in Senanga District, Western Province, Zambia. Photo credit: Nixon Chisonga, WorldFish

References

Central Statistical Office. (2012). 2010 census of population and housing: National analytical report. Lusaka: CSO of Zambia.

Cole, SM, Kantor, P, Sarapura, S and Rajaratnam, S. (2014). Gender-transformative approaches to address inequalities in food, nutrition and economic outcomes in aquatic agricultural systems. Penang, Malaysia: CGIAR Research Program on Aquatic Agricultural Systems. Working Paper: AAS-2014-42. Coalitions to achieve gender equality at scale 10

Promundo WorldFish

Promundo, for nearly two decades, has WorldFish is an international research org- taken a global leadership role in driving the anization that harnesses the potential of field of evidence-based advocacy, program fisheries and aquaculture to reduce hunger and development, and applied research on poverty. WorldFish is a member of the CGIAR, engaging men and boys to promote gender a global agriculture research partnership for a equality, improve health, and end violence food-secure future. WorldFish is leading the against women and children. It is an applied implementation of a research-in-development research institute with nearly 50 staff program, in the Barotse Floodplain in western members, across offices in Brazil, the United Zambia, called the Aquatic Agricultural Systems States, Rwanda, Democratic Republic of the (AAS). The program recognizes that there are Congo, and Portugal, who work to test, evaluate, significant gender disparities in access to and and advocate for programs and policies that control of assets and decision-making within promote gender justice and prevent violence. aquatic agricultural systems, and that they Promundo works with partners in more than greatly reduce people’s abilities to harness the 35 countries to improve the health, well-being, benefits of these systems for human well- and rights of individuals and communities being. Accordingly, the program seeks not by focusing on engaging men and boys in only to integrate gender into other research, gender-transformative approaches. Through but also to pursue research that will help to structured group education, campaigns, and fundamentally transform underlying gender community action, men and women challenge norms and power relations. To this end, the and question violence, workplace and income program adopts an evidence-based, gender- inequality, and harmful stereotypes. Policy transformative approach that challenges exist- advocacy ensures that these individual and ing unequal gender norms and power relations; community changes have national and global promotes power sharing, equal control of impact. Promundo also carries out inter- resources, equal decision-making, and support nationally recognized research, including for women’s empowerment; and creates lasting rigorous evaluation, to measure the impact of change at multiple levels. this work. For more information, visit For more information, visit www.worldfishcenter.org. www.promundoglobal.org.