Evaluation Of The Project "Strengthening The Role Of Women In .

1.Introduction1.This is the final evaluation of the project ‘Strengthening the Role Of Women InPeacebuilding Through Natural Resources Management at the Community Level in theRural Areas of the Governorates of Sana’a and Lahaj in Yemen’ (UNJP/YEM/038/PBF). Theproject was funded by the United Nations Peacebuilding Fund (PBF) with a total budget ofUSD 2 000 000; it started in January 2018 and ended on 31 June 2019. It was implementedjointly by the Food and Agriculture Organization of the United Nations (FAO) and theInternational Organization for Migration (IOM), and aimed at supporting women andyouth’s participation at the communal level using land and water conflict resolution asvehicle for improving the prospects of local peace. The project focused on creatingdiscussion platforms, and providing training and support to women and youth groups inthe rural areas.1.1Purpose of the evaluation2.This final evaluation serves a dual purpose of accountability and learning. The terms ofreference (TOR) required this evaluation to document lessons, identify good practices andchallenges that can inform the design and implementation of follow-up projects in thecontext of improving the prospects for local peace, conflict resolution and contribute tothe longer term goal of enhanced social cohesion.1.2Intended users3.The evaluation targets the following users: FAO, IOM, PBF, project implementing partnersand international partners. This is the first time FAO acts as the lead agency in a PBF projectto be evaluated by the FAO Office of Evaluation (OED). Therefore findings and lessonslearned may inform future PBF proposals as well as other projects in Yemen and relevantcontexts, particularly focusing on the links between natural resource management andconflict resolution, gender equality and peacebuilding.1.3Scope and objective of the evaluation4.The evaluation focuses on women’s role in improving the prospects for local peace andconflict resolution. The main objective is to assess the extent to which the project helpedrural communities to better manage the natural resources (land and water), strengthen theparticipation of women in conflict resolution mechanisms at the local communities level,with a longer term goal of enhanced social cohesion.1

Evaluation of UNJP/YEM/038/PBF5.The evaluation is confined to the medium-term objective of strengthening the participationof women in conflict resolution mechanisms at the local communities level. The evaluationcovered the key activities undertaken by both FAO and IOM from January 2018 to June2019 (18 months). It also assesses the project coordination mechanisms, monitoring andcommunication, as well as the linkages with the broader response operations of FAO andIOM in Yemen, within the UN Strategic Framework for Yemen 2017-2019.6.The evaluation is guided by the PBF Global Results Framework, particularly the area ofConflict Prevention/Management and to a certain degree the Employment for the cashfor–work component (CFW), under Priority Area II (Promote coexistence and peacefulresolution of conflict).7.The evaluation takes into account FAO’s corporate policy priorities as stated in theCorporate Framework to support sustainable peace in the context of the 2030 Agenda,which aims to transform FAO’s engagements in conflict-affected situations into deliberatelyfocused, strategic and evidence-based approaches that support sustainable peace.8.The evaluation questions are presented in Box 1.Box 1: Evaluation questionsEvaluation questions (EQ)Design and approachEQ1. To what extent are conflict resolution pathways and underlying assumptions integrated in the design andimplementation of the project?EQ2. Did the project foster collaboration among key stakeholders and implementing partners? Including thelinkages with the broader response operations of FAO and IOM in Yemen?Peacebuilding and conflict resolutionEQ3. To what extent did the project reduce conflict over water resources in the targeted areas?EQ4. To what extent did the project change the role and position of women to reduce conflict over waterresources in the targeted areas?EQ5. To what extent did the project leverage youth participation in community-led agriculture activities?Water governanceEQ6. What effect did the restoration of critical infrastructure have on improving water accessibility and use?1.4Methodology9.The evaluation was conducted between June and September 2019. The evaluation processadhered to the principles outlined in the United Nations Evaluation Group (UNEG) Normsand Standards for Evaluations in the UN System, and aligned with the OED’s Manual onevaluation guidelines and practices.10.The evaluation team was composed of a Principal Consultant and a National Consultant,with the support of a Research Assistant. The team worked in close collaboration with theEvaluation Manager at OED and was also supported by the FAO and IOM offices in Yemen.Field facilitation was provided by the Project Management Unit (PMU).2

Introduction11.The evaluation took place in three phases: i) an inception phase between June and July;ii) a data collection and analysis phase in July and August; and iii) a reporting and validationphase in October.12.13.The evaluation used a set of qualifiers/filters to assess the performance of activities and thecontribution of results:i.catalysing programming opportunities for further peacebuilding work;ii.adapting or mainstreaming peacebuilding actions and approaches in other projects;iii.creating community-based networks that serve as platforms for facilitating otherpeacebuilding work;iv.promoting innovative forms of peacebuilding action;v.promoting increased inclusiveness of stakeholders (youth and women), increasedcommitment of stakeholders and an increasingly shared unified framework amongstakeholders for peacebuilding;vi.assessing stakeholder’s capacity to respond in a timely manner to politicalopportunities.The primary data collection phase included individual semi-structured interviews with FAOand IOM staff. For the field level, the evaluation team visited eight villages in the North ofYemen and seven villages in the South of Yemen. The evaluation team did a stakeholdermapping and identified three groups of key informants. Interview protocols for thedifferent groups were developed accordingly:i.Group 1: Water user associations (WUAs) members of the Board, Women’s groupsand Conflict Resolution Committees or local non-governmental organizations(NGOs) if no WUA present.ii.Group 2: Youth beneficiaries of the cash for work (CFW) component.iii.Group 3: Outer communities (not direct beneficiaries: older people, youth, localauthorities, extension workers, sheiks etc.).14.Appendix 1 lists all 88 people interviewed (35 women, 53 men).1.5Limitations15.The evaluation was limited by a lack of project monitoring data collected regularly duringthe project, and evidence to support many of the project results. This was particularlynoticeable as for data to report on key impacts expected from the project on the following:an increase in water for irrigation; improvement in livelihoods/income; perceptions onacceptance of the role of women in leading conflict resolution activities; perceptions of anincrease in social cohesions; and reduction in number of young men joining themilitia/armed groups. Statements made in the progress reports did not necessarily provideclarity on the links between activities and outcomes.16.Security in Yemen remains a serious challenge. The Principal Consultant was unable to visitYemen and therefore was dependent on the fieldwork conducted by the NationalConsultant. Thorough reports by the National Consultant and regular communication with3

Evaluation of UNJP/YEM/038/PBFthe Principal Consultant served to partly compensate. Also, smooth field coordination byboth FAO and IOM ensured that there were no security incidents during the field visits,despite the fact that the visits in the South coincided with violent attacks and airstrikes inAden. There were two sites the National Consultant could not visit: i) Bait Hather, due topayment delays that caused a dispute between the implementing partner, SAM NGO, andthe community, so the interviews took place in Sana’a; and ii) Sa’wan Village, where twomembers of the WUA Board where in jail for accusing the Houthi authorities of stealing theproject water pipes. After FAO intervened through WUA and the tribal leaders, the twomembers were released.1.6Structure of the report17.Following this introduction, Chapter 2 presents the background and context of the project.Findings are found in Chapter 3, based on evaluation questions. Chapter 4 presents lessonslearned, followed by Conclusions and recommendations in Chapter 5.4

2.Background and context of the project2.1Description of the context18.Yemen has witnessed a decline in the humanitarian and livelihood conditions following thesocio-political unrest and armed conflict that erupted in 2015. The current civil war inYemen is waged between multiple actors, including the Government of Yemen, the Houthirebels (Ansar Allah) and various armed groups. According to the Displacement TrackingMatrix of the International Organization for Migration, 80 percent of the population is inneed of protection or assistance and 3.6 million people are internally displaced. The conflictamplified the already existing and protracted humanitarian crisis characterized by years ofwidespread poverty, economic stagnation, poor governance, weak rule of law, femaleilliteracy, and ongoing instability. The Integrated Food Security Phase Classification (IPC)report (December 2018) noted that over 20 million Yemenis (67 percent of the population)would be facing severe food insecurity in the absence of humanitarian aid, with more than238 000 people in 45 districts at risk of famine.19.Apart from increasing widespread food insecurity, armed conflict has also damaged muchof the country’s critical water, sanitation and hygiene infrastructure, exacerbating theunderlying water scarcity dilemma Yemen has long faced. Water scarcity is both aconsequence and a cause of conflict. As stated in the Context Analysis in support of thePBF project, the conflict is a driver of disputes and conflicts. Sana’a University found thatbetween 70 and 80 percent of all rural conflicts in Yemen are associated with water. Arecent internal Interior Ministry report estimated some 4 000 violent deaths annually dueto water and land related disputes. Conflict reduction specialists working for the Yemeniquasi-governmental Social Fund for Development (SFD) described an area in Sana’agovernorate where land and water conflicts were resulting in around two armed violencedeaths per week, including while conflict reduction training was being carried out. Inaddition to mortality and morbidity, violent land disputes - and associated revenge norms- result in potentially productive land remaining unused, the destruction of valuable crops,and the delay or cancellation of new investments. Water disputes can lead to water suppliesbeing impeded or even cut.20.Social conflict dynamics, together with land and water conflicts, are complex phenomenainvolving long-standing customs and impacted by wide-ranging socioeconomic andpolitical changes. Some of the key dynamics affecting the likelihood and escalation of landand water conflicts include a widening ‘governance gap’ between the state and customaryregulation, collective responsibility and revenge norms, small arms proliferation, and theexistence of powerful vested interests.21.Conflict resolution in Yemen is carried out in multiple forms, i.e. by formal state institutionsand tribal customary law. Conflict resolution processes are taking place in at least twodifferent channels: the formal legal system (although we cannot talk about such a structuresince 2015) and tribal customary law (urf). In the latter, the most important building blocks5

Evaluation of UNJP/YEM/038/PBFare: consensus building, shared perceptions of honour and collective responsibility. Tribalconflicts have historically been resolved through a multistage process of mediation andappeals led by tribal sheiks and tribal elders. Mediation usually takes place in a large guestroom (majlis) where only men are present, but Adra (2011) notes that following the firstround of mediation, men started sharing the opinions of their wives, mothers and sisters.Women have traditionally played an important yet more indirect and less visible role inconflict resolution processes.22.Gender relations in Yemen are shaped by diverse religious, cultural, social and politicaltraditions across the regions, between rural and urban areas, and between different tribesand generations (CARE, 2015; Gressmann, 2016). The North has been traditionally moreconservative than the South (CARE, 2015: 1). Historically women have generally had lesspower in society than men and have been the primary caregivers at the household level(CARE, 2015; Gressmann, 2016; Heinze, 2016). Yemen ranks last out of the 144 countriesincluded in the 2016 World Economic Forum’s Global Gender Gap Index, a position it hasheld for the last ten years. Similarly, in the 2019 Equal Measures 2030 Gender Index Yemenranks 126th out of 129 countries. The current conflict has at least two importantconsequences on gender issues: first, women and girls have been disproportionallyaffected by the conflict in terms of displacement, gender-based violence, early marriage,and lack of access to education and healthcare as well as humanitarian assistance due tohigh levels of illiteracy, among others; second, women gained an unprecedentedmomentum to be included in political processes during and after the 2011 protests, withthe National Dialogue Conference (NDC) and the constitution drafting process: womenwere included in the Technical Preparatory Committee for the NDC. The NDC consisted of565 members, amongst whom 164 (29 percent) were women. Women had theirindependent delegation (along with youth and civil society). The political delegations tothe NDC were mandated to include a 30 percent quota of women. The most importantoutcomes were: 30 percent quota for women in all state authorities; raising the legal ageof marriage to 18; guaranteeing full and equal legal status for women; and provisionsforbidding discrimination against women in public service employment. Yet, NDC resultshave not been implemented due to conflict renewal and escalation. The 2018 peace talksin Sweden included only one woman representative, Rana Ghanem (Assistant Secretary ofYemen's Nasser Organization and member of the delegation o

1. This is the final evaluation of the project 'Strengthening the Role Of Women In Peacebuilding Through Natural Resources Management at the Community Level in the Rural Areas of the Governorates of Sana'a and Lahaj in Yemen' (UNJP/YEM/038/PBF). The project was funded by the United Nations Peacebuilding Fund (PBF) with a total budget of