UNFPA-UNICEF JOINT PROGRAMME ON FEMALE GENITAL MUTILATION .
COUNTRY CASE STUDYJOINT EVALUATIONUNFPA-UNICEF JOINTPROGRAMME ON FEMALEGENITALMUTILATION/CUTTING:ACCELERATING CHANGE2008 – 2012SUDANEvaluation Office, UNFPAEvaluation Office, UNICEFNew YorkJuly, 2013
Country Case Study: SudanJoint Evaluation of the UNFPA-UNICEF Joint Programme on Female Genital Mutilation /Cutting (FGM/C): Accelerating Change (2008 - 2012)COUNTRY CASE STUDY: SUDANSudan Country Case Study Team:Ellen GruenbaumField Team Leader and FGM/C Expert, UniversaliaSamia ElnagarNational Consultant, UniversaliaAkram AbbasNational Research Assistant, UniversaliaAfaf YahiaNational Research Assistant, UniversaliaKrishna BelbaseJoint evaluation management group (EMG), UNICEF Evaluation OfficeCopyright UNFPA /UNICEF 2013, all rights reserved.The analysis and recommendations of this report do not necessarily reflect the views of the United Nations PopulationFund or the United Nations Children's Fund. This is an independent publication by the UNFPA Evaluation Office andUNICEF Evaluation Office. Any enquiries about this report should be addressed to: Evaluation Office, UNFPA, :evalhelp@unicef.orgJoint Evaluation of the UNFPA-UNICEF Joint Programme on Female Genital Mutilation / Cutting (FGM/C): Accelerating Changei(2008 - 2012)
Country Case Study: SudanSudan national evaluation reference group (NERG):Dr. Nafisa BedriAhfad University for Women (AUW)Dr. Sawsan El TahirFederal Ministry of Health (FMoH)Lena AlhindiMinistry of Welfare and Social Security (MoWSS)Stephen BlightUNICEFJumana Haj AhmedUNICEFHussein FarahNational Council for Child Welfare (NCCW)Batul ElSheikhNCCWJoint Evaluation of the UNFPA-UNICEF Joint Programme on Female Genital Mutilation / Cutting (FGM/C): Accelerating Changeii(2008 - 2012)
Country Case Study: SudanTable of ContentsExecutive 1222Purpose of the evaluationPurpose of the country case studyScope of the country case studyReasons for selecting Sudan as a country case studyPurpose and structure of the case study reportMethodology of the country case study32.12.22.32.43345Case study design and questionsCase study processMethods of data collection and data analysisLimitations and mitigation strategiesThe context of Female Genital Mutilation/Cutting in Sudan63.13.23.33.46799The practice of FGM/C in SudanLegal and policy framework for the abandonment of FGM/CKey actors involvedKey challenges and opportunities for the abandonment of FGM/CThe UNFPA-UNICEF Joint Programme in Sudan124.1 FGM/C programme interventions in Sudan4.2 Financial overview1213Main Findings and Analysis155.1 Relevance and responsiveness to national and community needs, priorities,commitments5.2 Contributions to results5.2.1 Overview5.2.2 Creation of a more conducive national enabling environment forabandonment of FGM/C5.2.3 Contributions to fostering local-level commitment to abandon FGM/C5.2.4 Contributions to strengthening regional dynamics to abandon FGM/C5.2.5 Factors affecting performance5.3 Availability and use of resources/ inputs5.4 Sustainability of effects5.5 Coordination between UNFPA and UNICEF5.6 Management of the joint programmeand152020the2024303134363942Joint Evaluation of the UNFPA-UNICEF Joint Programme on Female Genital Mutilation / Cutting (FGM/C): Accelerating Changeiii(2008 - 2012)
Country Case Study: SudanTable of Contents6.5.7 Integration of horizontal issues and principles45Conclusions and Recommendations476.1 Conclusions and Recommendations at the country level6.1.1 Conclusions6.1.2 Recommendations6.2 Implications for the overarching global programme47475055D i a g r a msDiagram 1 Geographic distribution of FGM/C in Sudan (2010)6TablesTable 1Table 2Table 3Table 4Limitations and mitigation strategies5Sudan joint programme budgets and expenditures in USD14Factors likely to support or hinder/limit the sustainability of benefits andachievements37Horizontal issues and principles45AnnexesAnnex 1.Annex 2.Annex 3.Annex 4.Annex 5.Annex 6.Annex 7.Evaluation MatrixList of documents reviewedList of consulted stakeholdersInterview and group discussion protocolsSudan Stakeholder MappingPortfolio of InterventionsFinancial Overview56575965818999Joint Evaluation of the UNFPA-UNICEF Joint Programme on Female Genital Mutilation / Cutting (FGM/C): Accelerating Changeiv(2008 - 2012)
Country Case Study: SudanTextboxesBox 1. Sudan country visit – Evaluation team members3Box 2. Stakeholders consulted during the Sudan country visit4Box 3: The word “Saleema”11Box 4: Social conventions and social norms12Box 5: Revitalizing the momentum for a law after the removal of Article 1321Box 6: Influence of the Saleema campaign on other organisations25Box 7: Declarations and signings facilitated by the joint programme25Box 8. The new midwives curriculum26Box 9: The Community Radio27Box 10. The support of a prominent religious leader31Box 11: Leveraging future funding for FGM/C work36Box 12. Challenges in reporting joint programme results40Box 13: Joint programme annual progress reports - Sudan43Joint Evaluation of the UNFPA-UNICEF Joint Programme on Female Genital Mutilation / Cutting (FGM/C): Accelerating Changev(2008 - 2012)
Country Case Study: SudanA c r o n ymsAUWAhfad University for WomenAWPAnnual work planBBSAWSBabiker Badri Scientific Association for Women's StudiesCAFACommunity Animation Friend AssociationCEDAWConvention for the Elimination of Discrimination against WomenCOCountry officeCOARCountry office annual reportCPNChild Protection NetworksCPWGThe Child Protection Working GroupCSOCivil society organisationCSWCommission on the Status of WomenCVAW‘Culturally-justified’ Violence Against WomenDFIDDepartment for International Development (United Kingdom)DOSDivision for Oversight Services (UNFPA)EMGEvaluation management groupEQAEvaluation quality assessmentERGEvaluation reference groupFCPUFamily and Child Protection UnitFGM/CFemale genital mutilation/cuttingFMoHFederal Ministry of HealthGEGender EqualityGoSGovernment of SudanGDWFAGeneral Directorate of Women and Family AffairsHQHeadquartersICSCRInternational Covenant on Economic, Social and Cultural RightsIDPInternally Displaced PersonINGOInternational non-governmental organisationJPJoint programmeM&EMonitoring and evaluationJoint Evaluation of the UNFPA-UNICEF Joint Programme on Female Genital Mutilation / Cutting (FGM/C): Accelerating Changevi(2008 - 2012)
Country Case Study: SudanA c r o n ymsMDGMillennium Development GoalsMoWSSMinistry of Welfare and Social SecurityNCCWNational Council for Child WelfareNGONon-governmental organisationNERGNational evaluation reference groupROCSSRapid Operational Care and Scientific ServicesRHReproductive HealthSCCWState Council of Child WelfareSIDASwedish International Development AgencySNCTPSudan National Committee on Traditional PracticesTORsTerms of referenceUNDAFUnited Nations Development Assistance FrameworkUNDGUnited Nations Development GroupUNEGUnited Nations Evaluation GroupUNFPAUnited Nations Population FundUNICEFUnited Nations Children’s FundWEWomen’s empowermentWHOWorld Health OrganisationJoint Evaluation of the UNFPA-UNICEF Joint Programme on Female Genital Mutilation / Cutting (FGM/C): Accelerating Changevii(2008 - 2012)
Country Case Study: SudanExecutive SummaryPurpose of the evaluationand the country case studyIn 2012/2013, in its fifth year ofimplementation, an evaluation of the UnitedNations Population Fund (UNFPA) andUnited Nations Children’s Fund (UNICEF)joint programme entitled “Female GenitalMutilation/Cutting (FGM/C): AcceleratingChange” is being undertaken. The purpose ofthe evaluation is to assess the extent to whichand under what circumstances (e.g. specificcountry contexts) the UNFPA-UNICEF jointprogramme has accelerated the abandonmentof FGM/C in programme countries duringthe period 2008-2012.The evaluation includes a total of fourcountry case studies conducted in Kenya,Burkina Faso, Senegal and Sudan. Thepurpose of the country case studies is toexplore and illustrate key issues, while takinginto account specific national and localcontexts in which the joint programme wasimplemented. Each country case study isintended both as a stand-alone document, andas a contribution to the final evaluationreport. Criteria for selecting Sudan as a casestudy country included: It is one of the eightinitial countries in which the jointprogramme was implemented in 2008; itprovides an example of a national contextinfluenced by Islamic and Arab cultures andAnglophone heritage; it is a representative ofthe Eastern African sub-region; and severalgeographic areas in which the jointprogramme had worked in were accessible atthe time of the evaluation.MethodologyThe case study employs mixed methods ofdata collection, emphasizing participatoryapproaches. Key sources of data and methodsof data collection used for the case studywere: review of programme and relateddocuments including global and countryannual and mid-term reports, global andcountry annual work plans, communicationmaterials, monitoring and evaluation (M&E)documents and tools; consultations withstakeholders at national and communitylevels (key informant interviews andcommunity-level group discussions); andobservations at the community level.In total, 391 individuals were consulted forthe country case tral government26District56Civil society organizations25Faith- based organizations14Final beneficiaries252Total391Key methods of data analysis weredescriptive, content and contributionanalysis.The case study involved three stages:i) preparation and planning, includingdocument review; ii) data collection in Sudanfrom January 20-31, 2013, as well as aseparate data collection visit to the Blue NileState from February 15-17, 2013, and iii)data analysis and writing of the country casestudy report.Joint Evaluation of the UNFPA-UNICEF Joint Programme on Female Genital Mutilation / Cutting (FGM/C): Accelerating Changeviii(2008 - 2012)
Country Case Study: SudanFindingsThe joint programme has been relevant inview of national commitments andpriorities, as well as in relation to variousinternationalcommitmentsofthegovernment of Sudan. Its objectives andactivities have been aligned with therespective country programmes of bothUNICEF and UNFPA, as well as with the2009-2012 United Nations DevelopmentAssistance Framework (UNDAF).The design of the joint programme inSudan has been appropriate in view of thespecific needs and characteristics of theparticular context(s) that it has beenlocated in. The only design weakness relatesto the extent to which the joint programmemade provisions for the systematicmonitoring and analysis of progress andinfluencing factors over time.The joint programme has made significantcontributions to strengthening the nationalenvironment for the abandonment ofFGM/C in Sudan. In particular, it hascontributed to strengthening coordinationamong national and international actorsworking towards the abandonment of FGM/Cin Sudan; to strengthening the legal andpolicy framework; and to enhancingawareness, commitment and ownership bykey national actors in efforts to abandon allforms of FGM/C.The joint programme has been successfulin fostering and strengthening local-levelcommitment to FGM/C abandonment.While many community-level achievementsrecorded in joint programme reports forSudan focus on completed activities,evidence suggests that the joint programmehas contributed to progress towards results.Consulted stakeholders widely agreed thatthe additional resources and enhancedcoordination of actors brought in by the jointprogramme helped to accelerate changes inFGM/C related attitudes and an increase inadvocacy efforts by community members.Also, initiatives supported by the jointprogramme were seen to have contributed tobreaking the silence surrounding the issue – akey condition for sustainably influencing thesocial norms underlying the practice.The coordination between UNFPA andUNICEF and the chosen approaches tomanaging the joint programme havecontributed to the adequate use ofavailable resources. Other factors thatsupported the implementation of the jointprogramme in Sudan include partnershipswith religious leaders, commitment from thegovernment of Sudan to ending FGM/C, andeffective use of media. A challenge thatUNICEF and UNFPA faced in view ofensuring the effective and efficient use ofresources derived from its annual fundingand reporting cycle. Challenges were alsoposed by persistent reluctance to change insome communities, and by poverty and socialdisplacement due to conflict.The joint programme helped create anumber of favourable conditions likely tosupport the sustainability of both nationaland local level achievements made to date.It did this by helping to strengthen nationalownership of efforts to abandon FGM/C; aswell as by enhancing partnerships andcollaboration among key actors at national,state and community levels. The jointprogramme also contributed to leveragingadditional donor funds for FGM/C work inSudan. Continued efforts by national andinternational actors are, however, required tocontinue and expand achievements made todate and keep up the momentum for change.The cross-cutting issues of genderequality,humanrights,culturalsensitivity, and equity focus were stronglyreflected in the design and implementationof the joint programme. At the same time,Joint Evaluation of the UNFPA-UNICEF Joint Programme on Female Genital Mutilation / Cutting (FGM/C): Accelerating Changeix(2008 - 2012)
Country Case Study: Sudanexisting progress reports provide onlylimited, if any, explicit reflection on theseissues.ConclusionsConclusion 1: The joint programme hasbeen highly relevant given the existingcommitments and priorities of theGovernment of Sudan, and consideringprevious gaps in efforts to abandonFGM/C. The joint programme has helpedaccelerate existing change processes insocial norms relating to FGM/C atnational, state and community levels.The joint programme has made importantcontributions to strengthening legal andpolicy commitments to ending FGM/C, e.g.in supporting the Federal Ministry of Health(FMoH) in intensifying its efforts on thetraining of midwives. The joint programmeplayed a pivotal role in helping national andstate-level actors maintain momentum forlegal reforms after the removal of Article 13of the Child Act, and channel energies intoconstructive alternatives leading to theenactment of five state-level laws on FGM/Cabandonment.Conclusion 2: The sustainability andlonger-term impact of achievements towhich the joint programme hascontributed depend on the extent to whichnational and international actors in Sudancan maintain and expand the momentumfor change created at national, state andlocal levels.The joint programme has helped createseveral favourable conditions likely tosupport the sustainability of achievements.Nevertheless, continued efforts are requiredinrelationtoformulatingand/orimplementing FGM/C legislation at nationaland state levels, and in view of solidifyingthe position of the Task Force on FGM/C toensure continued, effective coordination ofactors. At the local level, opportunitiesarising from community dialogue or publicpledges need to be followed up in order totranslategeneralcommitmentsandwillingness of actors into action and maintainthe momentum for change.Conclusion 3: The joint programme hassupported the implementation andexpansion of promising approaches toaddressing FGM/C. More systematic andlonger-termmonitoring,in-depthevaluation and research are required,however, to produce evidence-basedinformation on what factors foster orhinder success in different contexts.The Saleema initiative is the most distinctapproach to addressing FGM/C that has beensupported by the joint programme in Sudan.Its approach of reframing the publicdiscourse around uncut girls has the potentialto address and influence the social normsunderlying FGM/C. Other promisingapproaches are the integration of FGM/Ceducation in maternal mortality reductionprograms, as well as engagement withreligious leaders and the Ministry ofGuidance and Endowments.Currently available data do not permitmaking an informed assessment of longerterm results deriving from these approaches,and on the specific factors influencingsuccess. This is partly due to the fact that themechanisms and approaches for datacollection, analysis and reporting used byjoint programme implementing partners werenot always systematic or coordinated.Conclusion 4: Coordination efforts byUNICEFandUNFPA,andthemanagement of the joint programme havebeen largely appropriate and n of the programme inSudan. The annual planning andJoint Evaluation of the UNFPA-UNICEF Joint Programme on Female Genital Mutilation / Cutting (FGM/C): Accelerating Changex(2008 - 2012)
Country Case Study: Sudanbudgeting cycle was, however, a limitationto effective management.The joint programme benefited from thecomplementary strengths of UNFPA andUNICEF, as well as from their on of the two partners createdsynergies that enhanced the visibility andperceived relevance of the joint programme.At the same time, the work of someimplementing partners (e.g. their ability toengage in consistent and longer-termmonitoring of their initiatives) was limited oreven hindered by the annual planning andbudgeting cycle of the joint programme.Conclusion 5: In Sudan, the design andimplementation of the joint programmereflected the key theoretical foundationsunderlying the overall joint programmeand contributed to validating some ofthem.Based on the conceptualization of FGM/C asa social norm, the joint programme reflectedand validated the assumption that efforts forending FGM/C need to focus on influencingcollective rather than individual change. Itdemonstrated the benefits of working atnational, state and community levelssimultaneously, and of linking these levels,for example, in its work with religiousleaders and their organisations and networks.UNFPA, UNICEF and their implementingpartners conceptualized FGM/C as aviolation of human rights, but used thisunderstanding in culturally appropriate ways.While the main theory of changeassumptions underlying the joint programmeare convincing, available date do not yetpermit validation of all steps in the assumedchange process. In particular there is a gap asregards evidence on the link between shortterm programming successes and longer termchanges in behaviours and, ultimately, inFGM/C prevalence.RecommendationsRecommendation 1: UNFPA and UNICEFshould explore how to support the nationalTask Force on FGM/C in fulfilling itsmandate of coordinating national andstate level efforts effectively and in asustainable way.The creation of the Task Force on FGM/Cand the fact that the body is headed by asenior FMoH officer are widely considered amajor achievement in strengthening theinstitutional framework for working towardsthe abandonment of the practice in Sudan. Atthe same time, the effectiveness of therelatively new body is still unproven.Continued technical and financial supportfrom actors such as UNFPA and UNICEFcan contribute to continuing the momentumcreated by the establishment of the TaskForce.Recommendation 2: UNFPA and UNICEFshould continue to support national actorsin efforts to strengthen the national legalframeworks to prohibit all forms ofFGM/C. Also, both agencies should shapeFGM/C programming to support theoperationalization and implementation ofexisting FGM/C legislation at the statelevel.The evaluation highlighted the important roleof the joint programme in view of developingthe proposed Article 13 of the Child Act, andin view of “rekindling” the momentumamong national actors after the removal ofthis Article. In their future work, UNFPA andUNICEF should continue their efforts tosupport the pursuit of strengthening thenational legal
C o u n t r y C a s e S t u d y: S u d a n Joint Evaluation of the UNFPA-UNICEF Joint Programme on Female Genital Mutilation / Cutting (FGM/C): Accelerating Change (2008 - 2012) iv Table of Contents 5.7 Integration of horizontal issues and principles 45 6. Conclusions and Recommendations 47
United Nations Children’s Fund Three United Nations Plaza New York, NY 10017 www.unicef.org UNFPA-UNICEF Joint Programme on Female Genital Mutilation: Accelerating Change PERFORMANCE ANALYSIS FOR PHASE II ACCELERATE CHANGE UNFPA-UNICEF JOINT PROGRAMME ON FGM PHASE II PERFORMANCE ANALYSIS
Kidane (UNICEF Regional Office for Eastern and Southern Africa), Rinko Kinoshita (UNICEF Nicaragua), Guillaume Kobehi-Toutou (UNICEF Côte d’Ivoire), George Laryea-Adjei (UNICEF South Africa), Jean Lieby (UNICEF Senegal), Daniela Luciani (UNICEF Senegal), Birgithe Lund-Henriksen (UNICEF Tanzania),
UNFPA-UNICEF JOINT PROGRAMME ON FEMALE GENITAL MUTILATION/CUTTING: ACCELLERATING CHANGE 2008 – 2012 COUNTRY CASE STUDY: BURKINA FASO E x e c u t i v e S u m m a r y P u r p o s e o f t h e e v a l u a t i o n a n d t h e c o u n t r y c a s e s t u d y The purpose of the evaluation is to assess the extent
Funding Proposal for a Phase II January 2014 – December 2017 1. Title UNFPA-UNICEF Joint Programme on the Abandonment of Female Genital Mutilation/Cutting: Accelerating Change. 2. Duration January 2014 - December 2017 (representing Phase II of programme that began in 2008). 3. Fund Manageme
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