Gender Analysis of CBT in Tete

December 2018

WFP will start cash based distributions1 (cash and commodity vouchers) in Tete; Cahora Basa, Marara,
Doa, Chiuta and Magoe in November. The programme will prioritize vulnerable populations within the
selected communities most affected by the drought. This list of vulnerability categories is in accordance
with the target universe that includes those eligible to receive INAS assistance under the PSSB
programme, an unconditional cash transfer targeting chronic poor households with no labour capacity.
To facilitate and expedite the targeting process, priority will be given to families already identified as
vulnerable before the drought and are enlisted in INAS information systems.
Without analysing the cultural context, understanding power relations, gender roles and
responsibilities and security threats and situation, implementing CBT can add to women’s already
overburdened workload, can increase intra-household conflicts and violence and put beneficiaries at
risk. Others suggest that cash distributions can have positive gender transformational effects in areas
where men normally hold the decision making and control households’ income but not much analysis
has been done on the impact of CBT on gender relations or women’s empowerment. This analysis
should serve as a baseline for CBT in Tete to monitored closely for gender transformation using
qualitative and quantitative methods.
The backbone of this analysis are five field visits to Tete from June 2017 to October 2018; observing
registrations and retailer distribution processes, consulting with key leaders in targeted communities,
conducting gender segregated and mixed focus group discussions with community members (both
beneficiaries and non-beneficiaries), talks with community leaders, consultation with WFP staff and
district authorities. Two gender and protection trainings were held for WFP staff in Tete and one full
day gender and protection training with our co-operating partner, numerator and WFP field monitors.
Valuable insight and inputs were received during 4 day interagency CBT training in Maputo, organized
by FAO, July 2017. A quick desk study informs the analysis and valuable data was retrieved from an
extensive gender survey by the Ministry of Gender2.
During the preparation of this activity, gender, protection and accountability measures have been
integrated in the project. This paper highlights topics that required special attention/actions and have
been addressed or are currently being addressed. As CBT is a new modality in Mozambique, WFP has

1 This initiative is in line with WFP’s last decade trend. In 2017, WFP provided 1.3 billion USD in cash transfers, up from 880 million USD in the
previous year and being 30 percent of the total food assistance provided. 19.2 million people (51% females / 49% males), across 61 countries with
98 operations, were assisted through cash transfers in 2017.
2
Ministerio de Gendero, Criance e Accao Social. 2017. Colectanea Nacional de Estatisticas de Genero 2016.

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 Gender Analysis of CBT in Tete
December 2018

prepared for anticipated challenges or responded to encountered challenges. WFP has identified these
high risks: increased intra-household tension or violence, assaults or attacks on the way from the
MPESA agents or market, hostility from neighbors or family members who do not receive assistance,
theft of phone or cash from the household, risk of sexual exploitation and abuse and fraud. To mitigate
these risks, WFP highlights the importance of following:

Summary
Socio- and Cultural Context and Economic Opportunity
Gender Roles
 WFP should seize the opportunity of social change and changing gender roles by targeting
women as main beneficiaries to encourage women’s economic empowerment and economic
decision making. Marked changes in gender roles provide an interesting opportunity for gender
transformation through cash based transfers.
 WFP has to be aware of unequal distribution of work burden between women and men and
make sure women do not have to spend hours accessing assistance
Gender Based Violence
 WFP must develop culturally sensitive information material to influence positive social and
behavioural change. The messaging must discourage abusive behaviour (target men in a
culturally sensitive way), targeting the community to intervene in cases of violence and at
people with influence to intervene in violent situations (see more below in SBCC chapter)
 WFP needs to include GBV questions in the regular monitoring sessions
 WFP gender advisor should conduct regular in depth discussions with key leaders and beneficiaries to
monitor the programme and make sure WFP is not in any way contributing to the prevalence of gender
based violence
Cooperating Partners
 WFP to formulate key messaging and train CP (not to rely on CP’s messaging capacity)
 WFP needs to support CP in building communication capacity from the onset of the programme
 WFP and CP need to have clear division of information responsibility channels from the onset
 WFP and CP must ensure gender parity of their staff
 WFP needs to send clear information to both women and men
Selection of transfer of modality
 WFP/CP should verify suitability of all communities before initiating cash distribution. CBT
should only be used in communities that are within 5 km from a market
 WFP/CP should verify the security situation in the targeted communities and to and from
community to market
Community Committees
 WFP must share the ToR for community committees with CP in timely manner
 CP must form committees with clear role and responsibility before beneficiary registration
commences. WFP should assist with this exercise if CP has limited capacity.
 CP encouraged to make t-shirts for community committee members to empower the
committees and for community members recognize the committee’s members
Beneficiary Targeting
 CP is responsible for beneficiary selection; but WFP monitors must follow the beneficiary
selection process closely and report to SO in timely manner if complications arise
 CP must ensure that beneficiary selection criteria is clearly communicated via various channels
to all community members. Community Committees should verify the beneficiary list,
preferable in an open community meeting
 CP must ensure gender parity among the beneficiaries and that women in polygamous
marriages are registered as main beneficiaries
 WFP field monitors must monitor the beneficiary verification process closely

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 Gender Analysis of CBT in Tete
December 2018

Feedback and Complaint Mechanisms

 WFP should run all aspects of the FCM or have a dedicated third party to run the mechanisms
 WFP should invest in internal CRM system to monitor and follow up on complaints received
 WFP should train all staff and CP to be adequate “first responders” in case they are confided
with claims of SEA
 WFP should earmark a minimum amount of FCM budget to support survivors to access basic
and life necessary services if violence has been inflicted on them due to WFP activities
 CP should oversee beneficiary targeting and WFP oversee the FCM
Sexual Exploitation and Abuse
 WFP to make sure the CP has sufficient capacity regarding protection, gender and
accountability to affected populations.
 WFP to provide regular capacity building for WFP staff and CP. Training needs to allow for
questions, interaction and debates
 WFP to have all new staff read, understand and sign 1 page Code of Conduct
 WFP to training all staff and partner to be adequate “first responders”. For all staff to know
who to respond if survivors seeks advise, help or assistance
 WFP to establish “survivor funding” to have funding readily in case emergency cases for people
who have suffered harm because of WFP programmes
Monitoring and Evaluation
 Proposed additions have been added to the prepared questionnaire
 WFP field monitors should conduct regular Focus Group Discussions (see annex ii) to deepen
their understanding of the impact of assistance on intra-community dynamics and beneficiary
satisfaction
 WFP Gender Advisor to analyse FGD results and follow up with key informant interviews (local
authorities, CP, community leaders and community members) at least once during the project
implementation

Summary
Focus group discussions in Marara and Cahora Bassa, indicate that screening of communities is
necessary before determining if cash is safe and appropriate modality of assistance. Long distances and
difficult access to and from communities to the next market, lack of availability of food in the markets,
security concerns traveling to and from MPESA vendor (beneficiaries have to take out the amount and
travel with cash) and beneficiaries’ preference for in-kind food assistance instead of cash, indicate that
cash is not suitable modality for communities further than 5 km away from next market. Increased risk
of domestic violence and tension in the household regarding decision making on how to spend the
money was consistently brought up in all FGDs as well and has been brought up as concern by the
government and local authorities as well. Level of domestic violence needs to be carefully monitored
during the activity. It is very important to have robust feedback and complaint mechanism in the first
stages of the programme to respond and adjust programming according to gender and protection
concerns that are raised. Drought and food insecurity affects all members of the community and
tension between community members who do not receive assistance and those who are beneficiaries
is likely to increase if beneficiary criteria is not clearly communicated or if the selection process is not
transparent or verified openly by community committee. To make sure the activity is carried out in a
safe manner and serves the needs of all, a good collaboration between the cooperating partner
(HelpAge and APITE in this case), WFP field monitors and other WFP staff is critical.

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 Gender Analysis of CBT in Tete
December 2018

Socio and Cultural Context

Mozambique is positioned at the bottom of the UNDP gender in-equality list 2017 (180/189) 20173.
Tete is a patrilineal society and women are the major work force on land and agriculture and
traditionally there has been a clear gender division of task. Besides agricultural work, women are
responsible for household chores, fetching water and firewood and post harvesting and drying food.
Men and boys work in the fields but most men also seek temporary work in proximity of their
community in one of the commercial farms, factories, mines, looking for gold or in construction work
but these opportunities are scarce. Poverty is widespread in Tete and only 0.2% have access to running
water and despite Cahora Bassa being one of Africa’s the largest electricity damn, only 11% of people
in Tete have access to electricity. Illiteracy is high (64% of women and 34.5% of men in Mozambique
are illiterate), 40% of girls under 18 years old have had their first child and the medium age in Tete is
20 years old.

Economic Opportunities
Eighty two percent of Tete population works on agriculture and 12.6% work in services and business
and 1.7% in administrative positions4. Access to agricultural land is almost universal and those who live
in communities that are in walking distance of market, sell agricultural products if they have surplus,
charcoal, firewood or grass for thatching or brooms or wild fruits like baobab fruit to earn some income.
These activities provide limited cash opportunities, but a big bucket of baobab fruits is sold for 100 MT
and one weeks’ work of collecting grass for of brooms is 30-60 MT. In October 2018, the cost of one
month’s portion of just maize meal for an average family was 1.100 MT. It becomes evident that it is
difficult to provide nutritious food for the household if monthly income is under 1.000 MT. Cash
distribution of 2.500 MT will valuable difference during the lean season.

Gender Roles
There are signs that both women and men are crossing traditional gender work divisions although it
seems to be more common for women than for men. In recent years, it has become more acceptable
for women to engage in small businesses, selling food items or other natural products at the market,
brewing traditional beer or selling small items in their community. Men say that they are helping their
wives collecting baobab fruits or with traditional women’s work in the garden. By targeting women as
main beneficiaries, women will receive 2.500 MT (or equal worth in commodities), which is higher
amount than women normally have opportunity to earn. As patriarchal and patrilineal culture, both
women and men commonly recognize men as the head of the household and those who have a final
say of financial decisions of the family. Gender transformational effects are likely to occur when
women will travel to receive cash assistance and have autonomy to make decision on what to
purchase at the market. Oxfam/Concern5 study showed that in some cases women gained increased
self-esteem and men became more acceptable to women making financial decision and their capacity
to handling money.
 WFP should seize the opportunity of social change and changing gender roles by targeting
women as main beneficiaries to encourage women’s economic empowerment and economic
decision making. Marked changes in gender roles provide an interesting opportunity for gender
transformation through cash based transfers.
 WFP has to be aware of unequal distribution of work burden between women and men and
make sure women do not have to spend hours accessing assistance

3
UNDP Gender Inequality Index (GII) 2017
4
Coletanea nacional de estastica de generos 2016 (p. 45)
5
Concern Worldwide and Oxfam GB. XXXX. Walking the Talk: Cash Transfers and Gender Dynamics.

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 Gender Analysis of CBT in Tete
December 2018

Gender Based Violence

Gender based violence is epidemic in Tete with 26% of women reporting they have suffered physical
and/or sexual violence and 25.8% of the same group reporting they suffer violence frequently6. Gender
based violence was brought up in in all FGDs and discussed openly. All groups recognized increased risk
of intra-household tension and violence with increased cash inflow. As families in the targeted
communities have very limited access to income it is to be expected there will be other pressing matter
to use the cash for like school fees, medication and clothes. Great concern from both women and men
interviewed in the communities is for men will spend money on beer and other leisure activities which
will cause conflicts and possible violence in the household. WFP Malawi has noted increase of
complaints about conflicts regarding who controls the use of entitlement in areas with CBT and
indications of increased intra-household conflicts when using CBT in emergency settings.
 WFP must develop culturally sensitive information material to influence positive social and
behavioural change. The messaging must discourage abusive behaviour (target men in a
culturally sensitive way), targeting the community to intervene in cases of violence and at
people with influence to intervene in violent situations (see more below in SBCC chapter)
 WFP needs to include GBV questions in the regular monitoring sessions
 WFP gender advisor should conduct regular in depth discussions with key leaders and
beneficiaries to monitor the programme and make sure WFP is not causing harm

Accountability towards Affected Population

Cash based transfer is relatively new transfer modality in Mozambique and it’s important to provide
comprehensive information to all stakeholders. Multiples channels need to be used to reach different
stakeholders throughout programme cycle but WFP carries the ultimate responsibility towards the
people it serves the communication strategy. Given the socio-cultural landscape of Tete where illiteracy
is as high as 70% of women, few people have more than few years of schooling and only those who are
better off financially own radios, messaging has to be delivered via cooperating partner, WFP field
monitors, targeting community leaders, community committees with clear roles and responsibility,
posters, radio messaging, local theatre groups and art work.

Women and men normally don’t share public space and tend to sit in separate groups. It was observed
on numerous occasions that WFP and CP staff (all men) only provided information to the male group.
During one registration in Marara, not one woman in the women’s groups knew what they were doing
at the registration site. WFP and CP need to strive for gender parity among their field staff and provide
continues gender training for all staff.

Depending on the activity, WFP and the CP(s) might divide the information responsibility differently but
it is important that it the division and responsibility of each actor is clear from the beginning. In the
upcoming activity, WFP is responsible for informing the CP – who in turn is responsible for informing
both beneficiaries and non-beneficiaries of the projects’ objective, timeline, technical aspect of it,
beneficiary criteria and rights, role of the community committee, transfer value, how to redeem the
assistance, how to use the feedback and complaint mechanism. WFP is responsible for social behaviour
messaging (using different methods) and to develop a social behavioural change communication plan
to roll out in the future.

6
Ministry of Gender. 2016. Colectana Nacional de Estaticas de Genero 2016.

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 Gender Analysis of CBT in Tete
December 2018

WFP must develop culturally sensitive information material to influence positive social and behavioural
change and encourage transforming discriminatory gender roles, relations and responsibilities by using
Social Behaviour Change Communication. The development of SBCC material is time consuming so it is
important to start developing SCBB material for CBT activities in timely manner. A SBCC specialist should
work with gender advisor on developing SBCC objectives, conduct formative work in the targeting
communities, explore most suitable ways for messaging (posters, radio, theatre, sms text messages,
pamphlets, community influencers, merchandise) and develop the material. WFP and CP should start
the implementation of the same time as the activity after the material has been tested.
 WFP to formulate key messaging and train CP (not to rely on CP’s messaging capacity)
 WFP needs to support CP in building communication capacity from the onset of the programme
 WFP and CP need to have clear division of information responsibility channels from the onset
 WFP and CP must ensure gender parity of their staff
 WFP needs to send clear information to both women and men

Selection of transfer of modality

Many of the targeted communities are situated 5-30 km from the next market with unreliable and
expensive transport options and sometimes the roads are inaccessible during rainy season. These
communities are better suitable to in-kind assistance. It was observed in some instances that old people
walked up to 10 km to the market to get their assistance and bought food for their double worth of
assistance or about 100 kg of maize. Beneficiaries in these communities would prefer to receive in-kind
assistance delivered as close to their communities as possible. Poor security situation to and from
market was also mentioned as a reason for why some said they would chose in-kind assistance over
cash or vouchers. Theft, attacks and even rape and murder was reported as risk of traveling from some
communities to market.
 WFP/CP should verify suitability of all communities before initiating cash distribution. CBT
should only be used in communities that are within 5 km from a market
 WFP/CP should strive to verify the security situation in the targeted communities and to and
from community to market

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 Gender Analysis of CBT in Tete
December 2018

Community Committees
The community committees play an important role in acting between the implementers and the
community and in ensuring accountability to the affected community. Members of the committee must
have diverse background, have gender parity and act independently. The chief of the community can
select the members of the committee but can’t be a member of the committee. It is strongly
encouraged to appoint women as head of the committees. The community must confirm the
appointment of the members during community meeting. The committee verifies the beneficiary list,
informs the community of the programme and facilitates the Feedback and Complaints (see annex i for
detailed tasks). The CP has to make sure all communities have a functional committee (by using an
existing committee or establishing a new one) and understands it’s roles and responsibilities: during
beneficiary selection process, during registration and throughout the project cycle.

Although WFP requires community committees to verify all beneficiary lists, it is quite uncommon in
Tete. The community leaders are influential figures in the communities and normally they choose
beneficiaries after receiving suggestions from the “chiefs of ten houses”.

1. WFP must share the ToR for community committees with CP in timely manner
2. CP must prepare the CLGRC committees or form a new committee if not existing with clear role
and responsibility before beneficiary registration commences. WFP should assist with this
exercise if CP has limited capacity.
3. CP encouraged to make t-shirts for community committee members to empower the committees
and for community members recognize the committee’s members

Beneficiary Targeting
Targeting the most vulnerable people is critical for successful programming. This programme aims to
support national social protection system by assisting people who are already receiving assistance
from the National Institute for Social Assistance, INAS, and those who have been identified in need by
the government but have not been receiving assistance as INAS can only support limited number of
people. Due to various challenged faced with cooperating partners and government during the
targeting selection it has become more clear how important it is to have strong field monitors, to
have active community committees with clear role and responsibilities and have ways to
communicate the beneficiary selection criteria to the community members. Illiteracy rate is high and
few people have access to radio and tv so CP must ensure the communication is broadcasted via
various channels and must rely on person to person communication. CP must verify that men are not
automatically be registered as main beneficiaries as “chefe de familia” but the list should be balanced
between men and women beneficiaries and that Polygamous households that “eat from different
pots” are different entities and wives from polygamous marriages should be listed as main
beneficiaries

 CP is responsible for beneficiary selection; but WFP monitors must follow the beneficiary
selection process closely and report to SO in timely manner if complications arise
 CP must ensure that beneficiary selection criteria is clearly communicated via various channels
to all community members. Community Committees should verify the beneficiary list,
preferable in an open community meeting
 CP must ensure gender parity among the beneficiaries and that women in polygamous
marriages are registered as main beneficiaries
 WFP field monitors must monitor the beneficiary verification process closely

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 Gender Analysis of CBT in Tete
December 2018

Feedback and Complaint Mechanisms

WFP has been running Feedback and Complaint Mechanisms in Tete and Gaza since April 2018, with
suggestion boxes, hotline and focus group discussions. There are dedicated FCM operators in both Gaza
and Tete. WFP Mozambique has categorized complaints to different categories with relevant referral
system, standardized responses and timeframe. The system should be improved with internal Customer
Relations Management system (CRM) as WFP is using in Kenya, Pakistan and Afghanistan.

In six months, WFP has received over 1.300 complaints/feedback and 98% of the complaints have been
submitted through suggestion boxes. FCM is an important aspect of WFP’s accountability to affected
population and a robust FCM serves as an important tool for alerting for protection issues, SEA and
fraud cases. WFP Mozambique has not received reports of sexual exploitation or abuse through the
FCM but that does not mean that SEA is not taking place but more likely that the mechanisms are not
capturing these types of defences. WFP staff and partners have received training on how gender and
protection and how to respond should the be confided with claims of SEA but this training has to be
held on regular basis.

Community consultations and local authorities have repeatedly expressed concerns that domestic
violence will increase with CBT. FCM is an important tool to monitor if domestic violence increases
(same results from FCM in Malawi, reports of intra-household violence is higher in areas where WFP
uses CBT as transfer modality)

For the current project, it remains unclear how the FCM will be implemented. The donor requests CP
to run the FCM for accountability measures7 while the government wants to run their own FCM in the
activity. The CP has little field presence and limited capacity to distribute suggestion boxes to the
communities, inform the communities about the FCM, to collect the boxes again and to send the
complaints to Tete. In Tete, complaints need to be registered, channelled to relevant people for
solutions and lastly inform beneficiaries of the solution and make relevant programme adjustments if
needed.

 WFP should run all aspects of the FCM or have a dedicated third party to run the mechanisms
 WFP should invest in internal CRM system to monitor and follow up on complaints received
 WFP should train all staff and CP to be adequate “first responders” in case they are confided
with claims of SEA
 WFP should earmark a minimum amount of FCM budget to support survivors to access basic
and life necessary services if violence has been inflicted on them due to WFP activities
 CP should oversee beneficiary targeting and WFP oversee the FCM

Sexual Exploitation and Abuse

WFP needs to take measures to prevent sexual exploitation or abuse (SEA). Prevention measures should
include trainings of all WFP staff and CPs to ensure that they understand WFP code of conduct and
regulations. Trainings need to be held regularly and it need to allow for discussions and questions for
staff to internalize the learning. CP needs to have gender policy, protection policy and code of conduct
to pass the partner selection process8 and needs to signs annex 6 to the FLA regarding gender equality,
protection and accountability to affected populations. Recently, WFP translated the 1 page of code of
conduct to Portuguese and all new staff will have to sign to have read and understood.

7
Arguable not enhancing accountability as the CP is overseeing beneficiary selection and in close contact with beneficiaries
8
Cooperating Partner Selection Process that is starting in November 2018

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 Gender Analysis of CBT in Tete
December 2018

WFP is preparing a survivor centred response process. WFP is currently mapping available services in
Tete to victims of sexual exploitation, abuse and of domestic violence in collaboration with UNFPA. All
staff should be trained to be able to respond adequately in case a survivor of violence or abuse seeks
their assistance. For survivors of sexual exploitation, violence or abuse to approach WFP staff or CP is a
critical and sensitive moment and WFP needs to guarantee that the survivor meets supportive and
helpful attitude and that the survivor’s claim is taking to the right pathway and the person is guided to
right services. In grave cases, the WFP staff should access emergency funding for critical services or
transport cost.

 WFP to make sure the CP has sufficient capacity regarding protection, gender and
accountability to affected populations.
 WFP to provide regular capacity building for WFP staff and CP. Training needs to allow for
questions, interaction and debates
 WFP to have all new staff read, understand and sign 1 page Code of Conduct
 WFP to training all staff and partner to be adequate “first responders”. For all staff to know
who to respond if survivors seeks advise, help or assistance
 WFP to establish “survivor funding” to have funding readily in case emergency cases for people
who have suffered harm because of WFP programmes

Monitor and Evaluation

Standard monitoring tools need to be adapted or complemented to examine programme impacts for
women and men. Questionnaires have already been prepared in the ME toolbox for this project, with
few suggested amendments waiting to finalize the questions. Existing monitoring tends to capture data
at the household (or ‘case’) level. Qualitative methods, such as focus group discussions (women-only,
men-only, women and men and interviews with key stakeholders), can potentially provide explanations
regarding intra-household gender dynamics over control and use of transfers.

Cash transfers are new modality and need to be carefully monitored and the monitoring include direct
communication with women beneficiaries (in single headed households, multi-adult households and in
polygamous households) to measure the project’s impact on household’s decision making and power
and other impact on beneficiaries in terms of gender equality. Monitoring’s results need to be
evaluated on regular basis so that learning can be applied and respond identified issues in timely
manner.

 Proposed editions are added to the already prepared questionnaire

 WFP field monitors should conduct regular FGD (see annex ii) to have deeper understanding of
the impact of assistance on intra-community dynamics and beneficiary satisfaction
 WFP Gender Advisor analysis FGDs results and follow up with key informant interviews (local
authorities, CP, community leaders and community members) at least once during the project
implementation

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 Gender Analysis of CBT in Tete
December 2018

Annex 1: Role of Community Committee

 Help communicate any need for revision of vulnerability criteria when necessary;
 The committee must inform the beneficiaries when the supplier is arriving in the community in
a timely manner.
 Inform beneficiaries that they do not need to give anyone anything to receive assistance. You
must not give sex or anything to any PMA leader, partner, supplier or worker for assistance. If
someone asked for something in return so that it is on the list you must call the assistance
number (1454), it is confidential and nobody will know.
 Explain that the right is designed to increase food security and the well-being of family
consumption.
 Explain the importance of husband and wife making mutual decisions that will benefit the well-
being of the family.
 Help and ensure that the elderly, sick and pregnant women are ranked first.
 If you are at a distribution point where you are more than a community, you should start with
the community to come.
 After claiming your right, people traveling to other communities should walk in groups of 4 or
more. You can not go back alone.

Annex 2: List of proposed themes for focus group discussions and key informant interviews9
 Impact of assistance on intra-community dynamics;
 Beneficiary satisfaction;
 Exclusion of community members from the assistance and reason why (e.g. flawed targeting,
inability of utilizing the transfer mechanism; difficulties in opening a bank account).
 Utilization of transfer.
 Perception of organization and information-sharing around the project.
 Perception of food availability, choice, pricing and quality.
 Perception of safety and security of beneficiaries at and around distribution points, at and
around redemption points, and within the household.
 Perception and user satisfaction of the Feedback and Complaint Mechanism

9
Based on: https://docustore.wfp.org/stellent/groups/public/documents/staffdev/wfp271375.pdf

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