Towards Gender Mainstreaming in Agriculture, Natural Resources Management, and Climate Change Programs in Zambia Cliff Dlamini and Paul C.

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1 Indaba Agricultural Policy Research Institute POLICY BRIEF Number 84 Lusaka, Zambia September 2016 (Downloadable at Towards Gender Mainstreaming in Agriculture, Natural Resources Management, and Climate Change Programs in Zambia Cliff Dlamini and Paul C. Samboko Key Points 1. In line with the international understanding that gender-responsive policies and actions are important for poverty reduction, economic growth, human well-being, and development effectiveness, The Constitution of Zambia, the Sixth National Development Plan, and the Poverty Reduction Strategy and associated sectoral policies fully embrace gender mainstreaming in national development. 2. The level of participation of women in agriculture, natural resources management, and climate change projects is considerably high. However, the percentage of women in senior positions in the agriculture and natural resources sector remains very low. 3. Access to land, agricultural extension services, credit, infrastructure, technology, and markets by women remains limited compared to their male counterparts; 4. Cultural norms continue to hinder women to effectively take part in land use and marketing decisions. There is a need for the Government of Zambia (GRZ) to engage with traditional leaders, community representatives, and other concerned citizens to help revise, update and further align customary laws with the Constitution and regional and international laws. 5. It is imperative for all institutions in Government ministries, private sector, civil society organizations, and local communities to develop and implement tailored gender policies and plans which are aligned to the Constitution and the National Gender Policy of The GRZ ought to strengthen the policies on integrating women into key leadership position in the public sector, especially the Ministry of Agriculture and Forestry Department. Resource mobilization and sustainable financing of gender mainstreaming programs in order to guarantee the effective and equitable implementation of the new National Gender Policy of Comprehensive and robust participatory monitoring and evaluation frameworks for policy implementation on gender mainstreaming in agriculture, natural resources management, and climate change need to be developed and implemented. This is key as it sets the scene for sustainable management of natural resources for growth, especially for the smallholder farmers, and rural communities dependent on natural resources for their livelihoods. INTRODUCTION: Agriculture and natural resources management are linked to many facets of the sustainable development goal including poverty eradication, sustainable production and consumption, energy, freshwater, health, education, trade and market access, as well as technology transfer and capacity building (African Development Bank 2006; Eckman 2007; Farnworth and Munachonga 2010; Munachonga and Akamandisa 2010; Mbewe 2012). Often times, many resources are invested in interventions that contribute towards this goal with varying degrees of success. Usually, the success of interventions partly depends on an understanding of the different roles of men and women in society, their access, and control over resources, and factors explaining the roles, and distribution of resources across men and women-otherwise known as gender mainstreaming (Opio 2003; UNDP 2001). The need for gender mainstreaming comes from the notion that development is everyone s concern, thus everyone in society has the right to equal opportunities to achieve a better life (NCRFW 2001). Zambia has national policies which advocate for gender equity, for example the National Gender Policy of 2007 and the revised National Gender Policy of 2014 advocate for a 50:50 representation of men and women in all national programs. However this call has not gathered pace in 1

2 climate change programs/projects. Particularly, there appears to be a lack of women participation in agriculture, natural resources and environment projects, programs, and plans in Zambia. This could be attributed to inadequate policy implementation framework, limited co-ordination between ministries, their statutory bodies, and other government agencies. Other possible reasons include inadequate Monitoring and Evaluation (M&E) frameworks, and the lack of resources (African Development Bank 2006; Eckman 2007; Mvula 2010; Nkandu 2012; Mukuka 2013; Banda 2015). Against this background, it was imperative to conduct a study on gender mainstreaming to determine the current status of gender mainstreaming in agriculture, natural resources management, and climate change. Findings from this study will inform the ongoing policy review processes for promoting fair and equitable distribution of economic and political resources, and the full participation of both men and women particularly in agriculture, environment, and natural resources management. This policy brief is based on a longer working paper by Dlamini and Samboko (2016). The study had several objectives including the following: To review the status of gender mainstreaming in key national policies, plans, strategies, programs, and projects; To assess the role and extent of participation of women or women groups in agriculture, natural resources management and climate change programs, plans and projects in selected communities; To identify and describe measures, approaches and incentives to increase the role of and benefit to women in agriculture, natural resources management and climate change programs, plans and projects; and To determine the potential of gender mainstreaming in improving agriculture, natural resources management and climate change and natural resources programs. DATA AND METHODS: This study uses a variety of data sources including: i) policy documents; ii) focus group discussions with representatives of local communities; iii) key informants employed in agriculture, natural resources, and climate change projects/ programs; and iv) Rural Agricultural Livelihoods Surveys (RALS) (CSO/MAL/IAPRI 2012 and 2015). Firstly, a review of government policy documents was conducted to understand the status of gender mainstreaming in Zambia. These are categorized into overarching, and sectoral policies. These policies, strategies, and action programs were screened for their coverage of gender mainstreaming and efficacy based on a set of criteria modified from Dlamini (2013). These included: (i) major goals and policy thrusts; (ii) relevance to gender mainstreaming/statements on gender; (iii) institutional frameworks for policy implementation; (iv) date when policy came into force/approved; and (v) policy efficacy or shortfalls. Secondly, focus group discussions with key informants and community members were conducted to assess the role and extent of participation of women or women groups in climate change programs and projects. These FDGs were carried out in Southern (dry region) and Northern (wet region) Provinces. In each of the provinces, two districts with active communitybased projects on agriculture, natural resources and climate change were identified with the assistance of the Ministry of Agriculture District Agricultural Coordinators (DACOs). Thirdly, the study used the 2012 and 2015 Rural Agricultural Livelihoods Surveys (RALS) to further understand gender equality and gender equity in decision making at the household level. KEY FINDINGS: Status of Gender Mainstreaming in Key National Policies, Plans, Strategies, Programs, And Projects: An assessment of policies and gender in Zambia shows the Constitution, the Poverty Reduction Strategy, the Draft Land Policy, the Revised Sixth National Development Plan (RSNDP), and the National Gender Policy advocate for gender mainstreaming in all sectoral policies and national programmes. At the top, the national Constitution conforms to international law and embraces gender equality and equity mainstreams gender issues throughout the document. The RSNDP is gender sensitive, while the draft Land Policy and National Gender Policy of 2014 are contemporary and seek to address the multi-dimensions of gender inequities. In addition, all sectoral policies and strategies have gender statements but to varying extents. However, in practical terms gender mainstreaming is still lacking (GRZ 2014). 2

3 On one hand, the National Agriculture Policy (which is a revision of the National Agricultural Policy of ) states that: Despite the fact that approximately 80% of the producers of food are women, they face genderbased constraints, such as inequalities in access to land, credit, services, training, extension services, and representation in policy-making and planning. As a result, women do not adequately respond to the opportunities being created by the liberalised environment (GRZ 2012). This policy further recommends strengthening integration of gender issues at all levels of agricultural development in line with national, regional, and international agreements. On the other hand, the 2014 National Gender Policy recognizes that even with meaningful progress achieved by the National Gender Policy of 2000 some challenges still prevail, such as the negative impact of climate change on women and children (GRZ 2014). Consequently, the new policy recommended a set of priority actions, of which several of the proposed actions are relevant to agriculture, natural resources, and climate change, especially those in training and capacity building of women, gender sensitization and influencing traditional customs and norms, and equality and equity on land allocation and control (GRZ 2014). The Role and Extent of Participation of Women or Women Groups in Agriculture, Natural Resources Management and Climate Change Programs, Plans and Projects in Selected Communities: Role: There is a tendency that more women involved in smallholder agriculture own very small livestock, while men concentrate on cattle. In addition, there are women targeted projects, which have yielded good results. These include savings schemes, which are predominantly for women. The integration of more men would mean an increase in the financial capital in rural households. Apparently, women have the ability to increase household livelihood assets better than their male compatriots. Therefore, gender mainstreaming is critical in livelihood capitals, especially finances. Extent: Results suggest that gender equity is considered in community-based programmes and projects. Hence, Table 1 indicates a 58% male and 42% female representation in agriculture, natural resources management, and climate change projects in the Southern Province. This is congruent with the aspirations of the National Gender Policy, which advocates for an equal representation. Similarly, in the Northern Province, the representation of men and women sits at 45.6% and 53.4%, respectively. Although in the Youth in Agribusiness project in Kasama there were no females represented. Generally, men and women participate in local community projects. This is in line with the NGP of 2008 and the new NGP of See Table 2 for a breakdown of gender segregation in various projects across the districts. Table 1. Projects and Communities in Southern Province Project/ Programme District Community Respondents Male Female Conservation farming Choma Siakacheka. A Conservation farming Choma Siakacheka. B 6 6 Woodlot and Beekeeping Choma Sibanyati Land management Monze Hufwa Beekeeping and woodlot Monze Chiyumu Milk and G/nuts production, Cotton grower scheme, scaling-up conservation agriculture, water and sanitation Monze Nteme.A Monze Nteme. B Total Source: Authors. 3

4 Table 2. Projects and Communities Studied in Northern Province Project/Programme Project/Programme District Respondents Male Female (Youth in Agribusiness) Soya crop protection Natural resource management/ Conservation Agriculture Natural resource management/ Conservation Agriculture Secure Africa s future, Natural resource management, Farmer managed Natural regeneration Chisokolo Kasama Chiombo A Kasama Chiombo B Kasama Misambo Kasama Fish Farming, Soya crop protection Chitanshika Kasama Food security (Rice farming), saving and credit corporative. Conservation farming, water management and fish farming Chambeshi Mungwi Mungwi East/West Mungwi Total Source: Authors However, the status quo is that women have limited access and control of resources in all the provinces. For example, land belongs to the man s family and the woman has no or less control because she just joins the man s family when married. This limits women s control and access to resources, thus women have limited control on land. This is despite the National Gender Policy of 2000 and two subsequent draft land policies (2002 and 2006) stipulating that 30% land should be allocated to women (Spichiger and Kabala 2014). Furthermore, The RALS findings gave a completely different picture about gender equality and gender equity at the household level in Zambia. The head of the household is the custodian of all key decision making. On one hand in RALS 2012, the results show that 75.9% households were headed by males and 24.1% by females. While in RALS 2015, the findings were that 74.4% households were headed by males and 25.6% by females. In terms of sex of primary decision maker RALS 2012 shows 75.7% males and 24.3% females, while RALS 2015 indicates 73.4% males and 26.6% females. Consequently, in most cases the males decides how fields should be used, whether crops and/or livestock should be bartered or sold as well as how the revenue has to be used. Gender mainstreaming is not fully captured at household level in Zambia. These findings are in line with those of Sida (2008) and Banda (2015) on social systems (traditional stereotypes) and attitudes that hinder progress towards gender mainstreaming in Zambia. Figure 1 shows 4 considerable differences between males and females in primary decision making at household level in the country. Figure 1. Primary Decision-making and Gender of Household Head Source: CSO/MAL/IAPRI 2012/15 Rural Agricultural Livelihoods Surveys. Measures, Approaches and Incentives to Increase the Role of and Benefit to Women in Agriculture, Natural Resources Management and Climate Change Programs, Plans and Projects: The focus group discussions highlighted meaningful and deliberate efforts by government and development partners, including NFOs to foster gender mainstreaming through various strategies. In all the provinces, women groups are formed in smallholder agriculture initiatives, especially conservation agriculture/faming. In Monze District, there is women empowerment through accumulated savings and credit schemes.

5 Table 3. Strategies to Increase Participation of Women in Agriculture, NRM, and Climate Change, Responses from the Key Informants NORTHERN PROVINCE SOUTHERN PROVINCE Kasama District Mungwi District Choma District Monze District -Through sensitization. -Women groups formed to champion the cause for women development in savings, water points, market gardens, field crops, and small livestock production. -Women empowerment fund through community development/women empowerment schemes. -Field officers are encouraged to include at least 30% to 50% of women in all farmer groups. -Established gender desk -Have interventions that are specifically for women, like groundnuts growing groups. Source: Authors -Conducting trainings in leadership and income generation activities where women are encouraged to take an active role. -Formation of women s club. -Provision of farming inputs to vulnerable but viable farmers. -The department of community development empowers women with grants. -The district agriculture office holds food fairs to showcase different types of recipes and cooking methods; women s clubs are involved. -Women are encouraged to take active part in field day programs; private entities are encouraged to ensure that 50% of their participants are women. In Choma District, women are trained in tree planting and management. Further details on the strategies underway for women empowerment in climate projects is given in Table 3. Recent studies on the country s gender profile including the SIDA Country Gender Profile of 2008 (Sida 2008) and the SNDP ( ) (GRZ 2011) and Farnworth and Munachonga (2010) have highlighted strategic actions that could enhance the mainstreaming of gender in development. For example, facilitating capacity building in entrepreneurship, survival, and life skills among women and enhancing women and girls training in leadership skills. The Potential of Gender Mainstreaming in Improving Agriculture, Natural Resources Management and Climate Change and Natural Resources Programs: The National Agriculture -Through deliberate approaches aimed at women participation. -Train women in conservation farming. -Women trained and participate in tree planting and management -Women involvement in orange maize promotion. 5 -Women Land Rights. -Training in conservation farming. -Distribution of agricultural inputs to women and vulnerable groups. -Women empowerment (Capacity building providing of loans to women and grants to women clubs). -Women involvement in decision-making. -Women are deliberately targeted in nutrition education and 40% of the farmers participating in conservation agriculture interventions should be women (Ministry of Agric. Monze). Policy ( ) stated that Despite the fact that approximately 80% of the producers of food are women, they face gender-based constraints, such as inequalities in access to land, credit, services, training, extension services, and representation in policy-making and planning (GRZ 2012). According to the World Bank (2004), these gender-based disparities have important economic costs to both households and the nation. Thus, there is a strong need for appropriate structural, functional, and institutional measures to empower women, build their capabilities, and improve their access to inputs, technologies and other farming resources (African Development Bank 2006; Eckman 2007; Mvula 2010; Nkandu 2012; Mukuka 2013; Banda 2015). Further, Gender concerns in agriculture development need to be mainstreamed in order to achieve equal access to land, agricultural extension services, credit,

6 infrastructure, technology and markets between men and women (African Development Bank 2006; Eckman 2007; Farnworth and Munachonga 2010; Mvula 2010; Nkandu 2012; Mukuka 2013; Banda 2015). The contemporary practices such as conservation farming, agroforestry, fish farming, bee-keeping, a shift to the use of organic fertilizers, and energy efficient technologies and others have support sustainable ecosystem management. The reality that women are at the forefront in all these practices, and have been given the due recognition by government and development partners, means that sound environmental decision-making will prevail. This is a vital ingredient for sustainable development. CONCLUSIONS/RECOMMENDATIONS: The study indicates that overarching policies set out clear provisions for gender mainstreaming. However, there is lack of continuous monitoring and evaluation of policy implementation. Further, sectoral policies and action programmes and national plans in agriculture, forestry, the environment, climate change adaptation, drought and desertification, and biodiversity embrace the concept of gender equity to varying degrees. Local community programmes and projects have a good representation of males and females members across all the provinces and districts studied (i.e., in the Southern Province and Northern Province). There is equal participation of men and women. However, at household level, RALS 2012 and RALS 2015 show that most households are headed by males, and the principal decision makers regarding land use and crops and livestock sales are males. Further, there is a skewed distribution of males and females in key leadership positions in the agriculture and natural resources sector. This is depicted by the higher proportion of males than females in senior positions in government and NGOs (as. Women have limited access and control of land and other resources and benefits. Although local communities acknowledge the potential of the National Gender Policy in its quest to promote gender mainstreaming, they are demanding a shift from policy to practice. Considering that smallholder agriculture plays a crucial role in local economic development in Zambia, robust and comprehensive participatory monitoring and evaluation frameworks for policy implementation, on gender mainstreaming in climate change should be developed and implemented. The M&E frameworks should be 6 divided into three: (i) one overarching national framework, (ii) sectoral M&E framework, and (ii) location-specific M&E frameworks at the local level, which should be owned by the local communities. It is crucial to start a process to synchronize and harmonize all national policies to the Constitution. In addition, there is a strong need for political will to support gender-mainstreaming initiatives. The GRZ should lead the mainstreaming of gender concerns in agriculture development in order to achieve equal access to land, agricultural extension services, credit, infrastructure, technology, and markets between men and women. For example, the GRZ needs to uphold the provisions of the National Gender Policy and Land Policy for the allocation of 30% land to women. There is a need for the GRZ to engage with the Traditional Authorities/Institutions in an effort to revise, update, and further harmonize customary laws with the Constitution, and regional and international laws. It is essential to change sociocultural attitudes in order to promote gender mainstreaming in agriculture and natural resource management. It is crucial that all institutions including line ministries in government, the private sector, civil society organizations, and local communities develop and implement tailored gender policies. This will enhance the implementation, effectiveness, and efficiency of the new Gender Policy in the country. Government ought to lead the process of gender sensitization and building the capacity of all implementing institutions on the understanding of the fundamental principles underpinning gender mainstreaming in the agriculture sector. For example, the GRZ should strengthen the policies on integrating women into key leadership position in the Public sector. Mechanisms for resource mobilization and sustainable financing of gender mainstreaming programmes should be at centre stage in order to guarantee the effective and equitable implementation of the new National Gender Policy of For success, a comprehensive national framework for collaboration on gender mainstreaming in agriculture, natural resources, and climate change should be developed and implemented. REFERENCES: African Development Bank Multi-Sector Country Gender Profile: Agriculture and Rural Development in the North East and South Region. Lusaka, Zambia: ADB. Banda, M Assessment of Gender Mainstreaming in Water and Sanitation: A Case of the Ministry of Local Government and

7 Housing. Masters in Gender Studies dissertation, University of Zambia. CSO/MAL/IAPRI (Central Statistical Office, Ministry of Agriculture and Livestock, and Indaba Agricultural Policy Research Institute) Rural Agricultural Livelihoods (RALS) Survey Data. Lusaka, Zambia: CSO/MAL/IAPRI. Dlamini, C Review, Amendment and Enactment of Relevant Land Related Policies and Legislation in Swaziland. Stocktaking Report. Mbabane, Swaziland: Ministry of Agriculture. Dlamini, Cliff and Paul Samboko Towards Gender Mainstreaming in Agriculture, Natural Resources Management and Climate Change Programs in Zambia. IAPRI Working Paper No Lusaka: IAPRI. Eckman, Karlyn Gender Mainstreaming in Forestry in Africa. Zambia. Rome: FAO. Farnworth, C.R. and M. Munachonga Zambia Country Report: Gender and Agriculture. Sida UTV Working Paper No. 2010:8. Stockholm, Sweden: Sida. GRZ Sixth National Development Plan (SNDP) ( ). Lusaka, Zambia: GRZ. GRZ National Agriculture Policy ( ). Lusaka, Zambia: GRZ. GRZ National Gender Policy, a Revised Version of the National Gender Policy of Lusaka, Zambia: GRZ. GRZ Sustainable Development Goals (SDGs). Lusaka, Zambia: GRZ. Mbewe, R Gender Structures in Zambian Cooperatives: Fisenge, Chinchi Wababili, Magoye, and Monze Dairy Cooperatives. Conference on Perspectives for Cooperatives in Southern Africa, 20/21 August. Lusaka. Mukuka, R Factors that Promote Gender Inequalities in Kapululwe Conservation Farming Project in Chongwe District. Master of Arts in Gender Studies dissertation, University of Zambia. Munachonga, M. and V.M. Akamandisa Zambia Country Report. Status of Gender Inequality in the Social, Economic, and Political Sectors in Zambia: Implications for the Implementation and Monitoring of Relevant International and Regional Commitments and Social Protection. Submitted to United Nations Economic Commission for Africa (UNECA). JUDAI Associate Technical Support. Addis Ababa, Ethiopia. Mvula, C Prospects and Challenges of Gender Mainstreaming in Water Sector Policies and Institutions: A Case Study of the Department of 7 Water Affairs. Post-graduate Diploma in Integrated Water Resource Management dissertation, University of Zambia. NCRFW The Rationale Behind Gender Mainstreaming, Book 1, ed. Elena Masilungan. Retrieved February 2016, from Nkandu, N Gender Mainstreaming in Selected Non-Governmental Organizations (NGOs) in Lusaka. Master of Arts in Gender Studies dissertation, University of Zambia Opio, F Gender Mainstreaming in Agriculture with Special Reference to Uganda: Challenges and Prospects. In African Crop Science Conference Proceedings 6, ed. M.P. Nampala, et al. Kampala, Uganda. Sida Sida Gender Country Profile-Zambia. Lusaka, Zambia: Embassy of Sweden. Spichiger, R. and E. Kabala Gender Equality and Land Administration: The Case of Zambia. DIIS Working Paper 2014:4. Copenhagen, Denmark: Danish Institute for International Studies. UNDP UNDP Learning and Information Pack- Gender Mainstreaming. Gender and Development Programme, United Nations Development Programme (GIDP/UNDP): New York: UNDP. Retrieved February 2016, from nder/institutional%20development/tlgen1.6% 20UNDP%20GenderAnalysis%20toolkit.pdf ABOUT AUTHORS Cliff Dlamini is Research Fellow and Paul Samboko is a Research Associate with the Indaba Agricultural Policy Research Institute (IAPRI). ACKNOWLEDGMENTS The Indaba Agricultural Policy Research Institute (IAPRI) is a non-profit company limited by guarantee and collaboratively works with public and private stakeholders. IAPRI exists to carry out agricultural policy research and outreach, serving the agricultural sector in Zambia so as to contribute to sustainable pro-poor agricultural development. Financial and substantive support of the Swedish International Development Agency (Sida) and the United States Agency for International Development (USAID) in Lusaka are greatly appreciated. Technical and capacity building support from Michigan State University and its researchers is also acknowledged, as is the formatting and editing assistance of Patricia Johannes.