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Governance, Social Development, Conflict and Humanitarian PEAKS Consortium led by Coffey International Development Final Report © Identifying Entry Points For Accountability Interventions In Somalia - Demand Side June 2013 CONTENTS / FINAL REPORT Contents Acronyms C1:1 Section 1: 1. Summary Report C2:1 1.1 The Strategic Need for an Accountability Programme for Somalia C2:1 1.2 Appraisal of Evidence and Feasibility for Strengthening Accountability in C2:7 Somalia 1.3 Recommendations and Options for Programming and VFM C2:9 Section 2: 2. Introduction C3:1 Section 3: 3. Methodology C4:1 3.1 Phase 1 – Inception Planning and Desk Based Document Review C4:1 3.2 Phase 2 – Fieldwork, Research, Analysis and Presentation of Findings C4:1 3.3 Phase 3 – Preparation and submission of draft and final reports. C4:2 Section 4: 4. The Policy Context for Accountability Programming C5:1 4.1 Definitions of Accountability and Demand Side Accountability C5:1 4.2 Problems with Traditional Principal-Agent Focussed Models C5:1 4.3 Necessity of Contextual Understanding and Robust Country Analysis C5:1 Section 5: 5. Contextual and Stakeholder Analysis Across the Three Zones of Somalia C6:1 5.1 Context C6:1 5.2 Institutional Mapping and Stakeholder Analysis C6:6 Section 6: 6. The Social Costs of Corruption C7:1 6.1 Introduction C7:1 6.2 Forms of Corruption C7:2 6.3 Causes of Corruption C7:4 6.4 Social Costs of Corruption C7:4 6.5 Key Anti-Corruption Actors C7:5 6.6 The Assumptions Behind Combating Corruption C7:6 6.7 Risk C7:7 6.8 Measurement and Modelling C7:9 Section 7: 7. Exclusion and Accountability C8:1 7.1 Introduction C8:1 7.2 Disempowered Groups C8:2 Section 8: 8. Past and Current Interventions C9: 1 Section 9: 9. Lessons From Intervention C10:1 IDENTIFYING ENTRY POINTS FOR ACCOUNTABILITY INTERVENTIONS IN SOMALIA – DEMAND SIDE, JUNE 2013 i CONTENTS / FINAL REPORT 9.1 Supporting DSA in FCAS: Review of Evidence C10:1 9.2 Case Studies and Lessons Learnt C10:2 9.3 Recommendations C10:5 Section 10: 10. Conclusions and Recommendations C11:1 10.1 Overview C11:1 10.2 Recommendations C11:3 10.3 Programme Modalities C11:4 Section 11: 11: Annex A: Zonal Report – Somaliland C12:1 11:1 Overview C12:1 11:2 Context C12:1 11.3 Stakeholders and Their Relevance to Accountability C12:7 11.4 Current and Past Initiatives C12:13 11.5 General Comments C12:18 11.6 Recommendations C12:19 Section 12: 12. Annex B: Zonal Report – Puntland (to be inserted) C13:1 Section 13: 13. Annex C: Zonal Report – South Central C14:1 13.1 Overview C14:1 13.2 Context Analysis C14:1 13.3 Mogadishu C14:4 13.4 Kismayo C14:12 13.5 Baidoa C14:16 13.6 Past and Current Initiatives C14:20 13.7 Recommendations C14:22 Section 14: 14. Annex D: Gender and Accountability C15:1 14.1 Aims and Definitions C15:2 14.2 Gender Relations in Somalia: An Overview C15:2 14.3 Disempowered Groups C15:5 14.4 Institutional Framework For Empowerment and Accountability C15:10 14.5 Conclusions and Recommendations C15:10 Section 15: 15. Annex E- Past Interventions Matrix C16:1 Section 16: 16. Annex F – Stakeholder Tables C17:1 Section 17: 17. Annex G – Methodology C18:1 17.1 Phase 1 – Inception Planning and Document Review C18:1 17.2 Phase 2 – Fieldwork, Other Research, Analysis and Presentation of Initial C18:1 Findings 17.3 Phase 3- Preparation and submission of draft and final reports C18:2 C18:4 IDENTIFYING ENTRY POINTS FOR ACCOUNTABILITY INTERVENTIONS IN SOMALIA – DEMAND SIDE, JUNE 2013 ii CONTENTS / FINAL REPORT 17.4 Questionnaire Templates Section 18: 18. Annex H – Survey Results C19:1 18.1 Trust C19:1 18:2 Corruption C19:4 Section 19: 19. Annex I List of Interviewees C20:1 19.1 List of persons interviewed C20:1 Section 20: 20. Annex J Bibliography C21:1 IDENTIFYING ENTRY POINTS FOR ACCOUNTABILITY INTERVENTIONS IN SOMALIA – DEMAND SIDE, JUNE 2013 iii ABBREVIATIONS AND ACRONYMS / FINAL REPORT Abbreviations and Acronyms AIFR Audit Investigative Financial Report AMISON African Union Mission in Somalia ASWJ Ahlu Sunna Wal-Jama CBO Community-Based Organization CEDAW Convention on the Elimination of all Forms of Discrimination against Women CS Civil Society CSO Civil Society Organization DAI Development Alternatives Incorporated DANIDA Ministry of Foreign Affairs of Denmark DC District Commissioner DDG Danish Demining Group DFID Department for International Development (DFID) DRC Danish Refugee Council EC European Commission EDC Education Development Centre EDF European Development Fund FAO Food and Agriculture Organization FDA Financial Diagnostic Assessment FGDs Focus Group Discussions FGM Female genital mutilation GGACC Good Governance and Anti-Corruption Commission HMG Her Majesty’s Government ICU Islamic Courts Union IDP Internally Displaced Persons IED Improvised Explosive Device IGAD Intergovernmental Authority on Development ILO International Labour Organization IDENTIFYING ENTRY POINTS FOR ACCOUNTABILITY INTERVENTIONS IN SOMALIA – DEMAND SIDE – JUNE 2013 C1:1 ABBREVIATIONS AND ACRONYMS / FINAL REPORT INGO International Non-Governmental Organization JJU Jubba Journalists Union JPLG Joint UN Programme on Local Governance KDF Kenya Defence Forces KIIs Key Informant Interviews MDG Millennium Development Goal Mof Ministry of Finance MoH Ministry of Health MoI Ministry of Interior NCA National Constituency Assembly NGO Non-Governmental Organization NSA Non-State Actor NSIA National Somali Intelligence Agency OCHA Office for the Coordination of Humanitarian Affairs OECD Organisation for Economic Co-Operation and Development PAC Police Advisory Committee PACT Human Rights, Capacity Building and Research Action PFM Public Financial Management PFM Public Financial Management PLWA People Living with HIV and AIDS PMFU Public Finance Management Unit PPP Public Private Partnerships RDP Reconstruction and Development Plan RRA Rahanweyn Resistance Army SBF Somaliland Business Fund SEMG Somalia-Eritrea Monitoring Group SFF Somali Football Federation SFG Somali Federal Government SGBV Sexual and other forms of Gender-Based Violence SNA Somali National Alliance IDENTIFYING ENTRY POINTS FOR ACCOUNTABILITY INTERVENTIONS IN SOMALIA – DEMAND SIDE – JUNE 2013 C1:2 ABBREVIATIONS AND ACRONYMS / FINAL REPORT SNAF Somali National Armed Forces SNP Somali National Police SONSAF Somaliland Non State Actors Forum SORADI Social Research and Development Institute TFG Transitional Federal Government TIS Transition Initiatives for Stabilisation TNG Transitional National Government TOR Terms Of Reference UNDP United Nations Development Programme UNESCO United Nations Educational, Scientific and Cultural Organization UNHABITAT United Nations Human Settlement Programme UNHCR United Nations High Commissioner for Refugees UNICEF United Nations Children's Fund UNIFEM United Nations Development Fund for Women UNMAS United Nations Mine Action Service UNOSOM United Nations Operation in Somalia UNPOS United Nations Political Office for Somalia UNSC United Nations Security Council USAID United States Agency for International Development USIP U.S. Institute of Peace VFM Value for Money VOA Voice of America WFP World Food Programme WHO World Health Organization WWW Waamo Women’s Way IDENTIFYING ENTRY POINTS FOR ACCOUNTABILITY INTERVENTIONS IN SOMALIA – DEMAND SIDE – JUNE 2013 C1:3 SUMMARY REPORT / FINAL REPORT 1 Summary Report This background paper serves to identify entry points for accountability interventions in Somalia that will inform the design of a DFID Accountability Programme. 1.1 The Strategic Need for an Accountability Programme for Somalia Somalia presents a complex landscape with varied political and security arrangements, social and economic conditions in different regions, and an array of actors exhibiting different interests and influences across the country 1.1.1 The Need for Culturally Sensitive and Tailored Accountability Interventions in Somalia Factor Considerations for the Somali Accountability context Political Context The centralised state structures (the SFG) and the processes that led to their formation have been (and continue to be) characterised by low levels of accountability. Political accountability remains considerably influenced by the dynamics of resource extraction and clan domination. Different clan groupings align behind different state formation projects with centrism and federalism finding favour with clans depending on their spatial concentration. Although the ‘hybrid political orders’ of Somaliland and Puntland face clear challenges, they are perceived as more responsive and accountable than state structures in south central (including the SFG) that have been established with a high degree of external influence. Somaliland and Puntland contain clear opportunities for political empowerment and mobilisation efforts. The new constitution, although flawed and ambiguous, provides a useful springboard for debate and dialogue on governance and accountability. Security and Past and current episodes of violence, the perception of the state formation as a zero-sum Conflict Context game and subsequent low level of trust between groups limits the prospects for an inclusive, sustainable political settlement. Insecurity and fear raises the risk of demanding accountability, leads to lack of trust and diminishes the potential for collective action beyond one’s immediate social group The Executive, Somalia is characterised by an environment of impunity exacerbated by a weak and Legislature and confused justice system. Judiciary Traditional clan based and Islamic justice systems overlap with the formal justice systems
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