The United Republic of Tanzania. A National Gender Diagnostic Study intanzania Final Report

Transcription

1 The United Republic of Tanzania A National Gender Diagnostic Study intanzania Final Report MINISTRY OF COMMUNITY DEVELOPMENT, GENDER AND CHILDREN, P. O. BOX 3448, DAR ES SALAAM, TANZANIA FEBRUARY, 2012

2 TABLE OF CONTENTS LIST OF ABBREVIATIONS AND ACRONYMS... III FOREWORD... V EXECUTIVE SUMMARY... VII 1.0 SECTION ONE: INTRODUCTION AND BACKGROUND OF THE STUDY INTRODUCTION BACKGROUND TO THE STUDY PURPOSE OF THE STUDY APPROACH TO THE STUDY EXPECTATIONS FROM THE STUDY REPORT OVERVIEW SECTION TWO: STUDY S METHODOLOGY... 5 CONSULTATIONS WITH KEY INFORMANTS IN SELECTED ZONES INCEPTION MEETING WITH THE CLIENT AND STUDY DESIGN LITERATURE REVIEW DATA COLLECTION PHASE VALIDATION WORKSHOPS DATA ANALYSIS AND REPORT WRITING SECTION THREE: LITERATURE REVIEW COMMITMENTS BY THE GOVERNMENT ON ADOPTION OF HUMAN RIGHTS INSTRUMENTS ON-GOING EFFORTS TOWARDS TRANSLATING NATIONAL COMMITMENTS ON GENDER EQUALITY LIMITATIONS IN IMPLEMENTATION OF THE LEGAL FRAMEWORKS ON-GOING GOVERNMENT S EFFORTS TOWARDS ENGENDERING NATIONAL POLICY MEASURES GENDER EQUALITY IN NATIONAL DEVELOPMENT VISION GENDER EQUALITY IN MKUKUTA SECTOR POLICY MEASURES ON GENDER EQUALITY THE CHALLENGING FINANCING CONTEXT AND POLICY IMPLEMENTATION OUTCOMES THE INSTITUTIONAL FRAMEWORK MECHANISM FOR GENDER EQUALITY CSOs and Women s NGOs Gender Mainstreaming Working Group Macro Policy (GMWG-MP) EXISTING GAPS IN POLICY IMPLEMENTATION OF GENDER EQUALITY SECTION FOUR: KEY FINDINGS KEY GAPS HINDERING POLICY IMPLEMENTATION FOR ENHANCED OUTCOMES GENDER POLICIES AND LEGISLATIVE REFORMS EXISTING INSTITUTIONAL FRAMEWORK FOR GENDER EQUALITY IMPLEMENTATION FURTHER IMPEDIMENTS CHALLENGING IMPLEMENTATION OF GENDER POLICY AND LEGISLATIVE REFORMS ROLE PLAYED BY DPS IN COORDINATING AND FINANCING FOR GENDER EQUALITY LIMITED FUNCTION MECHANISM FOR SMOOTH SHARING OF INFORMATION WEAK STRATEGIES IN ADDRESSING POLITICS AND CULTURE AN IMPEDING FACTOR SECTION FIVE: CONCLUSIONS AND RECOMMENDATIONS CONCLUSIONS POLICY RECOMMENDATIONS APPENDIX 1: TERMS OF REFERENCES APPENDIX 2: PEOPLE MET APPENDIX 3: PARTICIPANTS VALIDATION ZONAL WORKSHOPS APPENDIX 4: BIBLIOGRAPHY APPENDIX 5: PLAN OF ACTION ii

3 LIST OF ABBREVIATIONS AND ACRONYMS ACHPR AIDS ASDP AU CBOs CRC CDOs CEDAW CPRO CSOs DANIDA DCD DCDO(s) DCs DEDs DPP DPs FBOs FDC(s) FFSs FGM FMRP GBS GBV GE GFPs GMWG-MP GoT GTI HIV ICCPR ICESCR Rights IGAs ILO LGAs LSRP MCDGC MDG(s) MDAs MKUKUTA African Charter on Human and Peoples Rights Acquired Immuno Deficiency Syndrome Agricultural Sector Development Programme African Union Community-Based Organisations Convention on the Rights of Children Community Development Officers Convention on Elimination all Forms of Discrimination Against Women Census and Surveys Programme Civil Society Organisations Danish International Development Agency Department of Community Development District Community Development Officer(s) District Commissioners District Executive Directors Department of Policy and Planning Development Partners Faith-Based Organisations Folk Development College(s) Farmers Field Schools Female Genital Mutilation Financial Management Reform Programme General Budget Support Gender-Based Violence Gender Equality Gender Focal Points/ Gender Focal Persons Gender Mainstreaming Working Group- Macro policy Government of Tanzania Gender Training Institute Human Immuno-deficiency Virus International Convention on Civil and Political Rights International Convention on Economic, Social and Cultural Income Generation Activities International Labour Organisation Local Government Authorities Legal Sector Reform Programme Ministry of Community Development, Gender and Children Millennium Development Goal(s) Ministries, Departments and Agencies Mkakati wa Kukuza Uchumi na Kupunguza Umasikini Tanzania (the Kiswahili acronym for National Strategy for Growth and Reduction of Poverty) iii

4 MMM Maternal Mortality and Morbidity MMR Maternal Mortality Rate MMS MKUKUTA Monitoring System MoFEA Ministry of Finance and Economic Affairs MPs Members of Parliament MTEF Medium-Team Expenditure Framework NAMs New Aid Modalities NBS National Bureau of Statistics NGO(s)/NGOs Non-Governmental Organisation(s) NGP National Gender Policy NSGD National Strategy for Gender Development ODA Overseas Development Aid OPRAS Open Performance Review and Appraisal System OS Organisational Strengthening PAF Performance Assessment Framework PEM People Environment Management PER Public Expenditure Review PFMRP Public Financial Management Reform Programme PMO-RALG Prime Minister s Office Regional Administration and Local Government PMTCT Prevention of Mother-to-Child Transmission PSRP Public Services Reforms Programme PS Permanent Secretaries REPOA Research on Poverty Alleviation SACCOS Savings and Credit Cooperative Societies SADC Southern Africa Development Community SMEs Small and Medium Enterprises SOSPA Sexual Offences Special Provision Act SPSS Statistical Package for Social Sciences TACAIDS Tanzania Commission for AIDS TAWLA Tanzania Women Lawyers Association TAYOA Tanzania Youth Alliance TDHS Tanzania Demographic and Health Survey TFP-Net Tanzania Female Police Network TGNP Tanzania Gender Networking Programme TNA Training Needs Assessment ToR Terms of Reference ToT Training of Trainers UN United Nations UNFPA United Nations Population Fund UNIFEM United Nations Development Fund for Women UNCITRAL United Nations Convention on Recognition and Enforcement of Foreign Arbitral Awards URT United Republic Tanzania VAW Violence Against Women WHO World Health Organisation iv

5 FOREWORD In recognising gender inequality as an obstacle to socio-economic and political development, Tanzania has taken a number of measures to address the gender inequality in the country. Some of the undertaken measures include formulation of different policies and enactment of legislations and laws as well as introduction of administrative and affirmative actions, which have altogether, enabled Tanzania to record remarkable achievements in sectors such as education where equal access and equity between men and women and among different social groups, have been recorded. Despite the noted achievements, still, Tanzania like many other countries in Africa is still faced by the fundamental challenge, of ineffective implementation of the formulated national progressive policies and legislative reforms into concrete outcomes. These constraints are, singularly and collectively, a serious impediment to the promotion of gender equality and the advancement of women in the country. The Ministry of Community Development, Gender and Children (MCDGC) commissioned PEMconsult East Africa to undertake a National Gender Diagnostic Study as a collaborative work between the Government of Tanzania (GoT) and its development partners in the country, with involvement of CSOs, private sector and other stakeholders. The initiative to undertake the gender diagnostic study was in compliance to the Paris Declaration on Aid Effectiveness 1 and the Accra Agenda for Action which commits donor and partner countries to undertake joint analysis and reviews of implementation gaps at national and sector levels in order to improve dialogue, decision making, implementation and monitoring of gender equality commitments. The study was aimed at developing an understanding on why, since the promotion of gender equality was started in the country and accelerated after the Beijing Conference in 1995, the country is still today discussing the gender issues that are evaporating between policy level and practical level (i.e. implementation). The National Gender Diagnostic Study was carried out from July 2010 to January 2011, covering seven zones and nine regions of Tanzania Mainland, focusing on a case study district from each zone. A multi-method approach comprising of quantitative and qualitative techniques of data collection was adopted, with a bias in in-depth analyses of selected factors or underlying hindrances to address the issue of why the existence of impediments to policy implementation on promotion of gender equality and what contributes to perpetuating them at different levels. The study of National Gender Diagnostic Study provides a comprehensive analysis on why policy implementation in the above mentioned areas and beyond have yet to achieve an accelerated pace in achieving equality between men and women as well as between women of different classes and ages in the country. The Study notes significant progress Tanzania has made towards achieving gender equality through policy implementation since the last ten years, i.e , under Study s review, with noted major gaps in planning and budgeting for gender equality interventions. 1 Paragraph 42 of Paris Declaration and Aid Effectiveness v

6 The Ministry of Community Development, Gender and Children appreciates the support extended to it by the Royal Danish International Development Agency, for funding the study and is also thankful to all other Development Partners, particularly, UNFAO, Canadian Cooperation Development Agency, the Irish Embassy Tanzania, the Swedish International development Agency, World Health Organisation, the World Bank, United Nations Population Fund and the Gender Macro Working Group, for allocating their valuable time to support the designing of the study and giving constructive comments to the draft study report. The MCDGC acknowledges all those from sector ministries and institutions, to mention a few, the Ministry of Education, Ministry of Industries, Trade and marketing, Ministry of Land, Ministry of Health and Social welfare, Ministry of Finance, Ministry of Information, Culture and Sports, Ministry of Justice and Constitutional Affairs, the Prime Ministers Office, Regional Administration and Local Government, who, in their various positions and locations, actively shared their candid views and thoughts regarding the underlying factors hindering policy implementation on gender equality, particularly on why there are gaps between policy and implementation in this area. Last but not least, the MCDGC also appreciates the good cooperation of NGO networks at national and local levels. We also thank PEMconsult for working tiredlessly, to undertake the study and to complete the study report. Kijakazi R. Mtengwa Permanent Secretary vi

7 EXECUTIVE SUMMARY The National Gender Diagnostic Study was carried out from July 2010 to January 2011, covering seven zones and nine regions of Tanzania Mainland, focusing on a case study district from each zone. This study was commissioned by the Ministry of Community Development, Gender and Children (MCDGC)2 with the overall aim of generating adequate and applicable data and information regarding the underlying factors that impede the acceleration of policy implementation on gender equality. It was envisaged that the data and information generated during the study would enhance the understanding of policy makers and various stakeholders on why there are impeding factors beyond the well-known causes - i.e. cultural factors and economic poverty - and what perpetuates them. Within this context, the following were the specific objectives of the study: To conduct a comprehensive analysis of the gap between policy and implementation of national policies, legislative reforms and global commitments to promote gender equality, and women empowerment To make an analysis of the underlying impediments to gender equality in Tanzania beyond the accepted traditional constraints of socio-cultural and economic poverty To develop sound recommendations and a Plan of Action for enhanced capacity of the national gender machinery, especially MCDGC, at national and local levels. A multi-method approach comprising of quantitative and qualitative techniques of data collection was adopted, with a bias in in-depth analyses of selected factors or underlying hindrances to address the issue of why the existence of impediments to policy implementation on promotion of gender equality and what contributes to perpetuating them at different levels. Triangulation of data was done through application of a mix of data collection techniques. These included key informant interviews, focus group discussions, testimonies and observation, preceded by literature review. The study area was selected to cater for most rural, urban based, best practices and gender-based violence cultures, and regions which were under researched. Access to required informants, especially, government officials and other development partners including NGOs also guided selection of study areas. Seven zones (Eastern, Southern, Central, Southern Highland, Nothern, North Western and Lake), were covered by the study. At the national level, the sampling of key respondents was biased towards policy makers and technical staff including permanent secretaries, directors of policy and planning, planners, budget officers and statisticians, gender focal persons, Tanzania Police Force Network (TFP-NeT), persons from key ministries and institutions. At the local government level, both purposive and random samplings were used to select respondents from the nine selected districts and eight villages. No village was sampled from Ilala Municipality. Data analysis was logically and statistically, done. Limitation of the study included difficlulties in identifying indicators that would capture genderrelated complexities in a simple and yet precise representation of the multi-faceted phenomena of gender equality and busy schedules of many of the officials listed for interviews in Dar es Salaam, as well as frequent interruptions of field schedules due to the fact that the study was done during the national election campaigns, in which most of government officials were 2 The mandate of the Ministry of Community Development, Gender and Children (MCDGC) is to facilitate the development of communities, women and children in Tanzania, and to serve as the national machinery for leading gender mainstreaming and development in Tanzania and for NGO coordination vii

8 involved. To offset the faced challenges a number of mitigating mechanisms had to be employed, which included application of a qualitative participatory approach to unearth underlying dynamics related to policy implementation on gender equality at different levels, prior negotiations with various public and private actors for their participation to avoid unnecessary delays and flexibilities in timetables for consultations. Key Issues from Literature Review Reviewed literature indicate the Government s commitment in realising gender equality through ratifying key international and regional policy instruments on gender equality. For example, in 2009, the government ratified the Protocol to the African Charter on Human Rights on the Rights of Women in Africa, the Protocol to the African Charter on Human and Peoples' Rights on the Establishment of an African Court on Human and Peoples' Rights 3, etc. Alongside the highlighted government s efforts in this area, efforts of other stakeholders working on gender equality issues in the country, including NGOs, especially women rights organizations, researchers and Development Partners are also articulated. From the reviewed literature it is also noted that due to the efforts made by the Government in ratifying different conventions and treaties, Tanzania is mentioned as having good labour laws that comply with international standards, although often its enforcement and low levels of awareness on rights amongst citizens hinders effective gender equality outcomes at different levels. It this Study Report it is noted that due to the identified setbacks in realising gender equality, the transformative potential of the international and regional policy and legal frameworks ratified by the government need to be further analysed for effective application by the different stakeholders working on enhancing implementation of gender responsive policy context with more significant outcomes at different levels. In brief, issues emerging from reviewed literature include the following: Increased commitments by the government on adoption of international and regional human rights instruments offers strategic opportunities for more effective policy implementation outcomes on women s rights and gender equality agenda in the country The on-going efforts towards translating the national level commitments on gender equality for achievement of transformative policy outcomes are weak and call for further improvements, especially at implementation level The need for further improvements in efforts towards engendering National Policy Measure for achievement of effective implementation outcomes on gender equality, despite the current government ongoing efforts Demonstrated emphasis placed on consideration of gender equality in sector policies such as Education and Training Policy, Health Policy, Energy Policy, Water Sector Development Strategy, National Trade Policy, Agriculdure Sector Development Strategy etc. The changing financing context has potentials for both enhancing and impeding policy implementation outcomes on gender equality at different levels Noted MCDGC s weak institutional capacity including inadequate human, financial and technical resources The notablesignificant role played by CSOs, particularly those working on women s rights or gender equality issues 3 Also known as African Women s Rights Protocol) viii

9 The notable significant role played by Development Partners working on gender equality issues. Significant progress in increasing the number of women in politics and decision making positions. Continued progressive policy implementation by the government towards promoting gender parity and women empowerment in the public sector. Many communities in Tanzania face a variety of socio-cultural and customs, which continue to marginalise women s roles, needs and their contributions in communities. Key Findings The Study notes significant progress Tanzania has made towards achieving gender equality through policy implementation since the last ten years, i.e , under Study s review. Among the noted achievements include creation of enabling policy and legal environment for promotion of gender equality in the country, which led to ratification of key international and regional policy instruments such as CEDAW and the SADC Protocol on Gender Equality, incorporation of progressive clauses for women s rights in the country s Constitution that has facilitated the improved representation of women s voices in Parliament and local government councils, enhancement of progressive laws such as the Sexual Offences Special Provision Act (SOSPA) of 1998, and the development of National Women and Gender Policy (2000) and National Strategy for Gender Equality (2005). Noted policy implementation of gender equality and women empowerment, include the development of MKUKUTA 1, a national strategy that provided openings for poverty-reduction measures with gender equality objectives, and the development of various sector policies and adoption of gender mainstreaming approaches in development planning and budgeting processes (gender budgeting) at macro and micro levels, notwithstanding the noted major gaps in increasing planning and budgeting attention to gender equality interventions.. However, while the Study affirms that the country s sound gender policies, legislative reforms and poverty reduction strategies with strong gender sensitive indicators are yet to result in meaningful and sustainable gains in gender equality and in the lives of most women and girls. Weak implementation strategies adopted at different levels, limited political will and leadership on gender equality at some levels, non functional accountability and coordination systems for promoting gender equality, prevailing misconception on gender equality as a concept and a strategy, limited financial commitments, and accrued inefficiencies in application of gender mainstreaming, and other inherent impediments which have not been addressed, are equated to the widening gaps between policy implementation on gender equality and realisation of more substantive implementation outcomes and transformation at local levels. Noted in this Study report is also the challenges of strategies continued to be played by different stakeholders including DPs, NGOs, and actors in the private sector, in influencing for implementation and monitoring gender equality outcomes at different levels. In this Report, the Study underscores the need for adoption of effective and innovative financing strategies for policy implementation on gender equality impacts. Recommendations ix

10 In order to more effectively address the identified hindrances or factors for the existing wide gaps between policy implementation and outcomes on gender equality, especially at local levels, this Study makes a number recommendations to Government, individual line ministries, LGAs, CSO and DPs: These recommendations are broadly stated as their implementation shall be supplemented by an Action Plan which will concretely name a set of actions for immediate and long term implementation frameworks. The recommendations centre around strengthening the capacity of MCDGC for it to be able to play function actively (including the capacity to implement recommendations of Forward Looking Strategies study), enhancing senior politicians political will and Government officials leadership and commitments, strengthening the manadate of MCDGC and clarification of the Governmnet s position in promotion of gender equality policy outcomes and transformative social changes. Other recommendations aim at seeing the newly introduced Gender Budgeting Unit within MoFEA play more pro-active role in coordinating gender budget work in sectors and in linking up with NGOs working in this area, MCDGC in collaboration with MoFEA conduct a national PER on gender equality implementation for identifying the financing gaps to be addressed, MCDGC with support of DP-G and other stakeholders develop a comprehensive Strategy for capacity enhancement on gender issues, and seeing MCDGC in collaboration with CSOs develop a functional framework for sustainable and supportive working partnerships. The Study also recommends continued implementation of Measures for Affirmative action to fill in the historical gaps of gender equality at various levels. Finally, the Study recommends development of the Plan of Action as part of this Study should be mainstreamed in the ongoing processes within MCDGC, Sectors and others for implementation and resourcing. x

11 1.0 SECTION ONE: INTRODUCTION AND BACKGROUND OF THE STUDY 1.1 Introduction The National Gender Diagnostic Study was conducted by PEM-Consult East Africa on behalf of Ministry of Community Development, Gender and Children (MCDGC) as a collaborative work between the Government of Tanzania (GoT) and its development partners in the country, with involvement of CSOs, private sector and other stakeholders. The Paris Declaration on Aid Effectiveness 4 and the Accra Agenda for Action commits donor and partner countries to undertake joint analysis and reviews of implementation gaps at national and sector levels in order to improve dialogue, decision making, implementation and monitoring of gender equality commitments. Building on these global and regional commitments was the Government s intent to develop an understanding on why, since the promotion of gender equality was started in the country and accelerated after the Beijing Conference in 1995, the country is still today discussing the gender issues that are evaporating between policy level and practical level (i.e. implementation). Similarly, findings of several evaluations and studies 5 conducted in the country have all been pointing in the same direction. Yet the Government, for several years now, has been working towards achieving the empowerment of women and gender equality objectives in its key national policies and strategies at various levels. Through the National Strategy on Gender and Development, (NSGD, 2005) the government has also laid down gender mainstream approaches toward building the foundation in promoting gender equality and equity in the country. Within this context, MCDGC is the mandated institution for coordinating the implementation of national policy on gender equality and the custodian of NSGD. This calls for the strengthening of the position for gender mainstreaming in policies and strategies, thereby making gender mainstreaming the main strategy for achieving gender equality outcomes from policy implementation. 1.2 Background to the Study Like many other countries in Africa, the fundamental challenge in Tanzania has been ineffective implementation of the national progressive policies and legislative reforms into concrete outcomes. There are many documented challenges and hindrances for the continued prevention of translations of policies and legislative reforms into concrete outcomes. These constraints are, singularly and collectively, a serious impediment to the promotion of gender equality and the advancement of women in the country. As the Section on literature review will emphasise, substantive outcomes of gender equality implementation means achievement of equal visibility, empowerment and participation of women and men in all spheres of public, political and private life. It means accepting and valuing equally the complementarities of women and men and the diverse roles they play in society. The government and many of its key stakeholders, including NGOs and development partners, recognise that the country is yet to 4 Paragraph 42 of Paris Declaration and Aid Effectiveness 5 Reports on Government and NGOs implementation of Beijing Plus 15 years, 2010 and Gender Review of MKUKUTA, 2010.

12 reach this stage. The majority of Tanzanian women, girls and other marginalised groups in the country, especially at local levels, are yet to enjoy their basic human rights and fundamental gender equality principles, and are often denied their rights to effectively participate and benefit from national policies implementation. For example, though there has been significant progress in the implementation of education and health policies to meet national and Millennium Development Goals (MDGs), prevailing obstacles especially in accessing quality services and opportunities continues to prevent women from exercising their human rights including their participation in political processes due to illiteracy or accessing information on their health care and employment opportunities. Similarly, the government has undertaken significant economic policy reforms, including poverty reduction strategies; women constitute the majority of the poor in the country. Furthermore, despite the important role that women play in agriculture and in achieving food security and despite government s efforts in enacting progressive land Acts in 1999, the majority of women in the country have still limited access to, and control over, productive resources such as land, livestock, modern technological innovations and often lack credit for expanding their farming activities. The study of National Gender Diagnostic Study provides a comprehensive analysis on why policy implementation in the above mentioned areas and beyond have yet to achieve an accelerated pace in achieving equality between men and women as well as between women of different classes and ages in the country. This analysis is located within the implemented framework of National Strategy for Growth and Poverty Reduction, commonly known as MKUKUTA 1 which had been taking place over the last five years, i.e to This period of five years, which is compared to the last Poverty Reduction Strategy (PRS) implementation period, i.e to 2005, provides suitable framework for a gender situational analysis that highlights how the national policies have been performing, and what the opportunities and impediments in relation to the implemented outcomes within the social, economic, political and cultural spheres. 1.3 Purpose of the Study The overall purpose of the National Gender Diagnostic Study was to conduct a comprehensive analysis of the gaps between policy and implementation of national policies, legislative reforms and global commitments to promote gender equality as well as to analyse the underlying impediments to gender equality in the country for further understanding on why they exist and how to address them. Specifically the Study sought: To conduct a comprehensive analysis of the gap between policy and implementation of national policies, legislative reforms and global commitments to promote gender equality and women s empowerment by the government To make an analysis of the underlying impediments to gender equality in Tanzania beyond the accepted traditional socio-cultural constrains and economical poverty To develop sound recommendations and plan of action for enhanced implementation of national policies for greater gender-sensitive impact at various levels, especially at the local level. 2

13 The implementation of the Study s objectives was guided by several key questions which are shown in Box 1 below: Box 1: Key Guiding Questions For the Study 1. Why have Tanzania s sound gender policies, legislative reforms and poverty reduction strategies with strong gender sensitive indicators not resulted in meaningful and sustainable gains in gender equality and in the lives of most women and girls? 2. Are gender policies and legislative reforms sufficient? If not what are the missing links? Is it political will? At what level? Institutional framework? Genderdisaggregated data? Financial resources and human capacity? 3. Why is the implementation of gender policies and legislative reforms a challenge? What are the impeding and facilitation factors, and why? 4. What is the existing institutional framework for implementing gender policies and strategies at national, central and local levels? 5. Are the government institutions (at both national and local levels), mandated with the promotion of gender equality? Is this the problem or the solution? 6. What role does politics and culture play in impeding or facilitating the implementation of policies and commitments to gender equality in Tanzania? 1.4 Approach to the Study The study adopted a multi-method approach which comprised applying quantitative and qualitative techniques with a bias in in-depth analyses of selected factors or underlying hindrances to address the issue of why the existence of impediments to policy implementation on promotion of gender equality and what contributes to perpetuating them at different levels. The selection of the factors or hindrances for the study focus was based on the preliminary findings from the literature review and from a discussion held with MCDGC staff and other stakeholders, during the inception meeting. The selected factors for deeper analysis included: policy and legal context constraints, limited political will and leadership, institutional framework for gender equality, implementation strategies adopted for gender equality, gender accountability issues, adopted financing strategies for gender equality, adopted gender capacity development strategies, monitoring and impact tracking on gender equality, issues on the role of researches and statistics in promoting gender equality, and the roles of NGOs and the private sector and the development partners (DPs) in promoting gender equality and equity. Results of the assessment for each of these components were then synthesized into field findings and are presented and discussed in the section under Key Study Findings and Analysis. 3

14 1.5 Expectations from the Study It was expected that the report on National Gender Diagnostic Study would serve as a useful tool for the government, non-state actors and development partners to understand major constraints, drivers of change and power relations, and offer possible entry points for enabling these actors to take the necessary steps in addressing the issues of evaporation in gender equality objectives within the policy implementation. It was also expected that the developed action plans, based on broader recommendations of the study, would assist all players working in the sector, including national and local government authorities, NGOs, the private sector and development partners to work further in adopting more sustainable policies and legal approaches, accompanied by institutional and social attitudinal change for enhanced policy impact from a gender perspective. These would in turn transform situations of women by enabling them to use their full potential and act as agents of change in their respective communities. Finally, it was envisaged that some of the major findings and data on the underlying factors for policy gaps at the implementation levels would contribute to the implementation of MKUKUTA II strategies with more effective gender interpretations at different levels. Therefore, if well utilised, the study findings and conclusions would become an important addition for guiding national and local-level action in this area. Similarly, the study s recommendations emphasize the ways to prevent and/or address the policy implementation gaps on gender equality and equity. This will certainly be useful to policy makers, practitioners, NGOs and all other actors within the country Report Overview This report consists of five sections: it starts with an executive summary, followed by an introduction in section one, and then a section on the Study methodology and analytical framework. The third section in on Literature review which provides an overview of the policy and institutional environment where gender equality policies and strategies are implemented., while section four provides key findings of the study. Section five provides key conclusions and policy recommendations that emerged from analysis of issues raised in the study. 4

15 2.0 SECTION TWO: STUDY S METHODOLOGY The National Gender Diagnostic Study was a country-wide study, covering seven zones and nine regions of Tanzania Mainland, with a district case study from each zone. The study attempted to explore the state of policy implementation on gender equality at national and local levels in order to determine factors that impede or accelerate the implementation of gender equality policies, including global commitments and legal reforms in Tanzania. Since gender issues are linked to cultural values (including institutional cultures, social attitudes and perceptions), it was imperative to adopt a methodology that would capture both quantitative and qualitative aspects of gender equality while allowing for a comprehensive process oriented analysis of the actual situation on the ground and the expected outcomes related to the implementation of gender equality policy strategies. Hence, the study tended to have a bias on the use of qualitative process-oriented approach for in-depth analysis of the underlying gender dynamics that impede or accelerate the overall process of gender equality policy implementation in the country. The use of qualitative and participatory methodologies in this study was considered relevant in achieving the overall goal of identifying gaps between policy at the national level and the practice at lower levels. Under this context, qualitative and participative methodologies allowed the researchers to capture experiences from key respondents that led to understanding why impediments to gender equality still persist. This understanding is meant to enable the government and other stakeholders to take necessary steps to transform the status of gender equality in Tanzania. The information obtained from all key informants was used to update the information obtained from reviewed documentation, thus providing current data on the understanding of the underlying impediments to implementing gender equality policies in Tanzania. Multiple data collection methods, including quantitative and qualitative research tools in the form of semi-structure questionnaires and key informant interviews, were deployed to gather information related to policy implementation from senior government officials and heads of private and civil organisations. The focus of the discussions, led by guiding questions, was also on what deserves to be implemented or implemented differently to make gender equality yield more effective results, especially at local levels. Focus group discussions were conducted with groups of women and men from communities, NGOs actors, and representatives of groups of actors such as gender desk officers from different MDAs and development partners through their DP-Gender Group. Below each of the data collection techniques are explained in summary: Semi-structured Questionnaire It consisted of a mixture of closed and open-ended questions. The tool was structured in a way that allowed for responses through pre-formulated questions mainly for eliciting data and facts, as well as through open-ended questions that gave the respondent the opportunity to express himself/herself on the issues raised in his or her own way. Semi-structured questions were used to conduct interviews with village governments and community members. This was done to solicit people s views along the study s logical framework, at the same time allowing them to elaborate on their chosen answers. 5

16 Key Informants Interviews This tool was used to allow an in-depth participatory process for spontaneous interaction between the team and the respondents. Basically, this was unstructured interview conducted with administrative officials, heads of departments and representatives from civil society, ministries and LGAs covered by the study. This was done in a form of conversations using a guide that consisted of a list of open ended questions. The questions were designed to probe into the nature (forms, experiences, practices, attitudes and enhancing circumstances) of the factors hindering the implementation of national policies with gender sensitive impacts. The purpose was to find out what are the impeding factors with regard to implementation of gender equality policies. Focus Group Discussions (FGDs) This was a qualitative research method involving that was applied at the local level by two facilitators, one moderating the discussion and the other recording the proceedings. A total of 39 FGDs were conducted, 17 female groups, seven male groups and 15 groups comprising of both women and men. In all these areas, the groups were engaged in a discussion about the study s issues. In this case they were discussing what the key hindering factors for policy implementation with gender responsive impacts were, especially at the local levels. They also discussed why these were hindering factors and what should be done to address the situation. Observations The team members of the study were also equipped with a guide on selected issues to observe from the interviews at different levels with regards to the way respondents reacted on particular questions or raised discussions, how they related to each other, practices and attitudes that could not be trapped during individual interviews and group discussions. Testimonies This was another technique designed to collect specific information on personal experiences and case studies or voices of various individuals in public and private institutions and communities to demonstrate the root causes of the situation under study. Unfortunately, this method was used with only a few people (one man and two women). The rest did not volunteer to share their personal experiences despite being informed on what it meant for the study. Data collection instruments were checked for comprehensiveness on a daily basis. The responses were coded and entered into the computer, cleaned and subjected to analysis through SPSS and CSPro data analysis tools. FGD information was recorded by interviewees and analysed based on a logical framework. Sampling and Study Areas The study involved several stages of sampling. In the first stage, study areas were sampled through a purposeful approach, where seven zones and nine regions were selected based on set 6

17 criteria such as zones with regions which hosted key government ministries and institutions so as to be able to capture the views of policy makers and practitioners on issues under study. The study area was selected to cater for most rural, urban based, best practices and gender-based violence cultures, and regions which were under researched. For example: Dar es Salaam, representing the Coastal Zone, was selected as one of the study areas because it is the location of many government ministries and agencies while Dodoma, which is representing the Central Zone, hosts the Ministry of PMO-RALG to which all the LGAs in the country are reporting to. Manyara Region, within the Northern Zone, was selected to represent regions that would be able to highlight issues of land rights for women as well as the impact of policy implementation on retrogressive traditional practices such as female genital mutilation (FGM). The Coast Region, being a semi-urban area was selected to represent the urban /rural setting divide; while Mtwara Region within the Southern Zone was selected to represent areas with issues such as early marriage and the preference of boys in education; and Ruvuma Region, also within the Southern Zone, was selected to represent areas with intensive agriculture activities, in which women play a central role. Iringa Region within the Southern Central Zone was selected to represent areas with lack of ownership by women of basic resources like land and animals and denial of women s rights to inheritance; and Tabora was selected to represent the Northern Western Zone. Finally, Shinyanga Region within the Lake Zone was selected to represent areas with gender dimensions, especially, frequent reported cases of gender-based-violence such as wife bartering and killing of elderly women and albinos. In this way, the study areas were focused in order to include areas and sectors/issues where research had yet to be exhausted, but still critical in determining the direction of policy on gender equality and women empowerment in the country. The second stage of sampling was to select one municipality or district council in each of the selected Zones/Regions as study areas for in-depth field work. These district councils/municipalities were purposefully selected based on attributes which would best reflect the criteria for which their regions were selected, urban/rural division, and distance of the district council/municipality from their headquarters. For example, Ilala and Dodoma Municipalities were selected based on their proximity to region headquarters, while Mbinga and Bariadi Districts were sampled to highlight the implementation of policy efforts on gender equality in interior rural settings. Subsequently, one village in each sampled municipality and district council was purposefully selected in collaboration with the local authorities. The main criterion for selecting the villages was based on the capacity of the village to reflect the qualities for which its municipality or council had been selected. For example: in Mkuranga District which was selected to represent semi-urban areas, Mkuranga Village which was close to Mkuranga District was selected as a study village, while in Kilwa District, which was selected to represent interior rural settings, Njinjo Village was selected. Likewise, Mitawa Village, in Mbinga District, was selected to represent villages with intensive agriculture and Mpanga Village, located in Mufindi and one of the furthest villages in Mtwango Ward, was selected because it was close to a primary court, which was going to be visited by the study team. Table 1 below shows details of visited districts, wards and villages from each of the selected regions and zones. 7

18 Table 1: Zones, regions, districts, wards and villages sampled Zone Region District Ward Village Selection Criteria Naberera Orkesumet Traditional Practices- FGM, early Northern Manyara Simanjiro marriage etc. Central Dodoma Dodoma Urban Veyula Makutupola Urban setting Coastal Dar es Salaam Ilala Mchikichini N/A Urban setting- Admin & commercial centre Coast Mkuranga Mkuranga Mkuranga Peri- Urban setting Southern Lindi Kilwa Masoko Njinjo Njinjo Tradition practices girls education, stereotypes Ruvuma Mbinga Mpapa Mitawa Intensive agricultural production Southern Iringa Mufindi Mtwango Mpanga Inheritance; property ownership Central North Western Tabora Nzega Lusu Mwaluzwilo Interior setting Lake Zone Shinyanga Bariadi Sakhwe Ttubukilo Gender based violence/vulnerable groups Sample population The estimated sample size of 1500 people was achieved by 83.7 percent, i.e. a total of 1256 people were part of the study process. Table 2 below shows the planned target population and the actual number of those reached by category. Table 2: No. of Interviewed People per Category People interviewed National level government representatives (Directors of Policy and Planning/Planners, Gender Focal Points, poverty alleviation, public health, personnel management, marketing, etc) within their ministries (MCDGC, MITM, MoFEA, PMO- RALG, PO-PSM, MoH, Justice and Constitutional Affairs, Vice-President s Office-MKUKUTA, Ministry of Home Affairs, Agriculture, Ministry dealing with Culture) Agencies National Bureau of Statistics Private Sector TNBC, TPSF, Tanzania Chambers of Commerce Industry and Trade, Women Development Bank Approximated. Actual No. number

19 Coalitions FemAct (TGNP), Tanzania Female Police Network, TAWLA, Women in Business, Youth Organisations (including TAYOWA, Dogodogo Centre), women with disabilities, HIV infected groups, Women Parliamentarians coalition Faith Based Organisations/Interfaith Network Gender Development Partners representatives/bilateral & multilateral (Irish-Lead Gender DP, WB, UN Gender Group Chairperson) FDCs & CDTIs (Principles, Representatives) District level government, inc. District Executive Officers, DASs, DCs, District Agriculture and Livestock Officers, District Planning Officers, District Community Development Officers, District Trade Officer, District Human Resource Officers, District Legal Officers, District Health Officers, District Gender Focal Points, Councillors, District Business Council, District Magistrates, OCDs, Primary Courts District level coalitions and NGOs Gender/NGO groups, Faith Based Organisations, youth groups, CBOs Village level: village leaders (Village Executive Officers), traditional leaders, women groups, community members TOTAL Approx ,256 At the national level, the sampling of key respondents was biased towards policy makers and technical staff including permanent secretaries, directors of policy and planning, planners, budget officers and statisticians, gender focal persons, Tanzania Police Force Network (TFP- NeT), persons from key ministries and institutions including the Ministry of Education and Training, Ministry of Industry, Trade and Marketing, Ministry of Community Development Gender and Children, PMO-RALG, Ministry of Health and Social Welfare, Ministry of Land, Ministry of Finance, Ministry of Justice and Constitutional Affairs, Ministry of Information, Culture and Sports, Ministry of Water, REPOA, Bureau of Statistics etc. Officials and the selected sectors were categorised as instrumental for the Study processes. Many of the respondents were in senior positions and have been with the government for over the last five years. Furthermore, the selected ministries were playing strategic roles in the implementation of the National Strategy for Growth and Poverty Reduction I (MKUKUTA I) Framework, and other national policies and strategies, such as the National Gender and Women Policy and National Gender Strategy., Other actors and institutions targeted at the national level were from women s rights organisations, CSOs networks and coalitions, the private sector and the DPs so as to gather information and data based on different views and perspectives from those from the government ministries and institutions. Those under this category were among others, ex-members of Macro- 9

20 Policy Gender Working Group, Development Partners-Gender Group (DP-Gender), REPOA, Tanzania Women s Bank, Private Sector organisations, women s rights organisations and networks including; TGNP, TAWLA, WILAC and CSOs. Table 3 below shows the purposive sampling of some of key respondents from selected ministries, institutions and networks with an explanation on why they were chosen. Table 3: Target Respondents and Intended Information Gathered Respondents Senior MCDGC officials Director of Gender Department and Deputy Director Gender Directors of Policy and Planning in Government ministries Development Partners-/Gender Working Group Gender Focal Persons in MDAs Mid-level civil societies in Dar es Salaam working on promoting women s rights Selected district authorities (and Dodoma Municipality) Ministry with mandate for Local Government Authorities (PMO-RALG) Selected Government implementing agencies e.g. National Bureau of Statistics NGOs, women s groups within Local Government Authorities (district councils) Other institutions (Tanzania Women s Bank), research institutions Objective To elicit their concerns and explore the challenges faced at this level to effectively implement policy To explore the importance of locating GFPs in DPP office and the effectiveness of the GFP model To establish the extent to which gender budgeting is incorporated into planning and implementation processes To explore how GE is reflected in various country plans and how this affects donors priorities for supporting gender mainstreaming To identify examples of successful gender equality initiatives at ministerial and local levels To discuss opportunities and challenges that influence the effectiveness of the role of GFPs To make visible the way civil society organisations are addressing GE, and what they believe is required to empower poor women and men To understand how mandates related to genderresponsive policy implementation are dealt with at the district level and what is required to facilitate effective change To determine the role of the ministry in facilitating LGAs in ensuring that equity is a basic principle in decision making and what resources are allocated for basic services To understand the extent to which equity influences the work performed by these agencies To explore how local conditions influence implementation of policies aimed at improving the lives of citizens, as well as to listen to what women and vulnerable men see as factors that marginalise them and what they see as potential solutions To determine how strategies deployed add value to the promotion of gender equality objectives in the country Consultations with Key Informants in Selected Zones At the local government level, both purposive and random samplings were used to select respondents from the nine selected districts. In turn, each district selected the following respondents: heads of departments including those playing active roles in earmarked MKUKUTA I sector clusters, representatives from civil society, village leaders, and community members, both men and women, as well as youths and children. 10