Islamic Republic of Afghanislan WORLDBANKGROUP WOMEN AND THE ECONOMY: LESSONS LEARNED ON OPERATIONAL APPROACHES TO WOMENS ECONOMIC EMPOWERMENT IN AFGHANISTAN JUNE 2017 The findings, interpretations, and conclusions expressed in this report are entirely those of the authors and should not be attributed in any manner to the World Bank, or its affiliated organizations, or to members of its board of executive directors or the countries they represent. The World Bank does not guarantee the accuracy of the data included in this publication and accepts no responsibility whatsoever for any consequence of their use. The boundaries, colors, denomi- nations, and other information shown on any map in this volume do not imply on the part of the World Bank Group any judgement on the legal status of any territory or the endorsement or acceptance of such boundaries. 2 In Afghanistan, womens economic empowerment has be- average of 22.6 percent.3As of 2013-2014, only 20.3 per- come a national development priority, integral to the countrys cent of Afghan women above the age of 15 are literate4 growth and sustainability. On March 8, 2017, the Government (versus 50.2 percent for men) in a context where jobs avail- of Afghanistan (GoIRA) launched the Womens Economic Em- able to those without basic literacy and numeracy skills have powerment National Priority Program (WEE-NPP) to support sharply declined.' Therefore, a national platform for WEE is economic participation as a means to increase womens of paramount importance to preserve the progress attained agency in development. 1 Furthermore, the WEE-NPP is in the past decade and promote an inclusive approach to based on the understanding that, increasing womens own- improving womens access to economic opportunities. ership over economic assets and activities will help improve the overall well-being of families and the overall economy. 2 This brief presents lessons learned on operational ap- proaches to womens economic empowerment in Afghani- Efforts over the last ten years by the GoIRA, donors, and civil stan. It is based on a background study undertaken by the society organizations have supported progress for women World Bank to support the GoIRA in realizing the expansive and girls, including in education, political participation and vision laid out in the WEE-NPP. The study combined a syn- their increasing economic role. Yet Afghan women remain thesis of previously existing WEE literature in Afghanistan concentrated especially among the poor in informal, with findings from a large-scale mapping exercise of pro- precarious self-employment and micro-enterprise rather gram implementers across Afghanistan. than formal wage jobs. According to the most recent esti- mates, unemployment is particularly severe among women The mapping exercise, conducted from September through at 36.8 percent, versus 12.9 percent for men and a national November 2016, involved both qualitative and quantitative 1 Government of Afghanistan, Womens Economic Empowerment National Priority Programme (Government of Afghan stan, December 2016). 2 Ibid 3World Bank and Government of Afghanistan, Afghanistan Poverty Status Update: Progress at Risk, (Washington, DC: World Bank, http://documents.worldbank org/curated/en/667181493794491292/pdf/1 14741 -WP-vl -P1 59553-PUBLIC,pdf 4The literacy rate for the overall population aged 15+ is 35.4 percent, Ibid. Ibid 3 data collection with a sample of 64 in-depth interviews and portunities for women (e.g. a project that links women to 16 focus group discussions. Interviews were attempted in all market access), while others may understand it much more 34 provinces by the field team, however, due to non-contact, broadly as creating the enabling environment for women refusals by respondents, and security limitations, the final to participate in economic activities (e.g. providing literacy sample included 21 provinces. Respondents were 18 years programs so women can maintain trade relationships in the old or older, male and female, and represented a range of lev- market once they have access). The literature on WEE high- els across the professional organizations involved, from moni- lights that enabling initiatives are necessary for creating a toring and evaluation specialists to directors. The mapping path toward gender equality, inclusive growth, and poverty exercise focused predominantly on program implementers eradication. Furthermore, some argue that such enabling in order to impart their concrete understandings of the dos efforts must precede those initiatives intended to directly and donts for WEE programming in Afghanistan. The map- link women to economic opportunities. Yet in practice, given ping exercise strove to provide a comprehensive snapshot of budget constraints and concerns about a single project un- the geographical concentration and spread of womens eco- successfully taking on too many goals, WEE programs are nomic empowerment programs. However, given the range of often narrowly designed to tackle only employment status constraints that prevented the research from extending into and earnings. As a result, there is not consensus on the def- all regions of Afghanistan, it is not possible to definitively de- inition of programs to be included under the WEE umbrella. termine the full extent of WEE coverage in the country. The complete results from this study are available in the April The GoIRAs six-pillar WEE-NPP incorporates the broader def- 2017 report, Mapping and Lessons Learned fromWomens inition of womens economic empowerment for Afghanistan. Economic Empowerment Programs in Afghanistan. This means that it encompasses actions that botnable and boost womens opportunities for income-generation. To this end, the first two WEE-NPP pillars focus %nabling actions to facilitate WEE, including overcoming legal and regulatory barriers and strengthening the production of gen- der statistics. The remaining four pillars address productive activities that more directly lead to WEE in the areas of: financial inclusion; training and capacity building; and the de- WEE is not a straightforward concept to define. Some peo- velopment of better access to inputs, extension, and markets ple will understand it as specifically providing economic op- in agriculture and the creative industries (see Table below). WEE-NPP STRATEGIC COMPONENTS ENABLING ACTIONS PRODUCTIVE ACTIVITIES (reforms that improve the regulatory and (programs that provide resources directly to women) normative environment) 1. Increasing the accessibility and analysis 3. Training in Literacy, Business management and Labor skills; of gender statistics; 4. Ensuring inclusive access to finance; 2. Removing legal barriers to womens 5. Improving access to agricultural inputs, extension services, participation in the economy; and markets; 6. Promoting access to creative economy markets. 4 The WEE-NPP draws upon earlier government-led initiatives to increase womens economic empowerment, including: the gender components in the Afghanistan Compact; the WOMENS ECONOMIC EMPOWERMENT 2008-18 National Action Plan for the Women of Afghanistan MUST BE CLEARLY DEFINED (NAPWA); and the 2008 Afghanistan National Development Straegy AN D).6The lack of a clear, consistent definition for Womens Economic Empowerment significantly limits how projects can monitor and measure the effectiveness of WEE activities Furthermore, the research shows that many WEE -pro grams structure goals around short-term outputs (such as the number of women trained, number of women re ceiving agricultural inputs, etc.) rather than longer-term The following lessons learned on operational approaches to outcomes that can demonstrate economic empowerment. WEE in Afghanistan relate to both the enabling factors that Longer-term outcomes are always challenging to mea foster WEE and the productive investments that lead to WEE. sure. Nonetheless, when programs do not monitor results These lessons are intended to support program funders, de - beyond immediate outputs, nothing can be learned about signers, and implementers in their quest to develop more the ways an intervention has or has not effectively promot - effective initiatives that have sustainable economic empow- ed WEE. Furthermore, the research shows that when pro- erment results for women. grams lack a clearly defined understanding of WEE goals, 6 Ministry of Women Affairs (MoWA), The Nationa Action Plan for the Women of Afghanistan (NAPWA) 2008-2017 (Ministry of Women Affairs (MoWA), 2008). 5 it is far less likely that there will be meaningful, achievable This knowledge gap poses a fundamental challenge to pro- WEE-related outcomes. grams intended to assist women. This is not to say that all programs should or could aim to work Moreover, such insufficient and unstandardized data does all at once on the range of enabling actions and productive not only interfere with program relevance and quality; it also activities that WEE encompasses. However, the lack of rec- disrupts stakeholder collaboration. Programs implemented ognition that different categories of activities come together by different actors can unintentionally clash if developed to foster WEE creates difficulty for monitoring and measuring based on data that is not consistent across the initiatives. WEE and improving WEE indicators. This then limits both the While having centralized and standardized gender statistics evidence for and scalability of effective WEE programs. would not be a panacea for all collaboration issues, working from consistent and trusted data would contribute to greater alignment among initiatives. Furthermore, it is essential that gender statistics be made publicly available so that prog- ress on key outcomes related to womens economic em- WEE EFFECTIVENESS DEPENDS ON powerment can be tracked transparently. ACCURATE GENDER STATISTICS Gender statistics must be improved in Afghanistan to meet goals relatedto addressing gaps in WEE knowl- LITERACY AND NUMERACY DEFICITS edge, developing cohesive WEE programming, and accurately tracking WEE impacts over time. HINDER WEE For the majority of Afghan women to benefit from Data collection for gender statistics in Afghanistan is cur- WEE initiatives, literacy and numeracy education rently a largely fragmented process. Officially, the Afghan must be integrated into WEE skills-training programs Central Statistics Organization (CSO) manages national data collection and dissemination. Given limited government re- It is widely recognized that Afghan womens limited literacy sources and capacity however, data used to inform policy and numeracy skills continue to create formidable barriers and programming comes from a range of uncoordinated to their economic empowerment. Although younger Afghan stakeholders including donors, program implementers, and women have achieved higher levels of education compared civil society organizations, among others. The inconsisten- to their historical counterparts, female illiteracy in Afghani- cies in overall data collection and analysis processes com- stan is still the norm. Only 20.3 percent of Afghan women plicate the interpretation of gender-specific results. A 2013 above the age of 15 are literate. Yet many capacity-building World Bank report, Womens Role in Afghanistans Futur interventions take basic literacy skills for granted when aim- acknowledged that the limited access to quality statistical ing to transmit skill-specific training. This is also the case data has meant that, some issues women face in Afghani- for soft-skills to which women, particularly those from poor, stan are still poorly understood and difficult to analyze. ' remote areas, have limited or no exposure. For program funders, designers, and implementers to de- The study shows that again and again, capacity building termine the best approaches to WEE for a given context and efforts do not achieve their intended skill-specific goals, community, it is crucial to grasp the local conditions and because participants lack appropriate foundational dynamics. The absence of such data has direct implication s knowledge. Therefore, even when women have unprec- for the quality of resulting WEE policy and programming. edented access to skill-building opportunities, if they 'World Bank, Opening Doors: Gender Equality and Development in the Middle East and North Africa (Washington, DC: World Bank Group, 2013). 6 participate without the requisite skills they are unlikely to and numeracy education can provide an entry point to en attain the full benefits from these opportunities. gage women with limited income generation experience. However, it is important to define and measure this clearly As a result, training needs to encompass a broader set of so that it goes beyond enrollment. Once women are-en skills that will enable womens social and economic em gaged, the fundamental literacy skills they develop provide powerment. This guidance is not to insist that all training a foundation from which they can expand their capabilities, covers all issue areas. The study captured examples of inte - engage in entrepreneurial activities, and develop individual grated programs that account for gaps in womens educa empowerment. Furthermore, linking literacy and numeracy tion and soft-skills capacity building, while also transmitting skills with vocational training provides women with choices tangible, market or sector-oriented skills. First, basic literacy that then include pursuing their education and/or more eas - ily engaging independently in economic activities. Second, general vocational training can be compatible with Agha Khan Foundation (AKF) on building soft-skills. For example, incorporating leadership, WEE programming decision-making, and confidence building into sector-spe cific training exposes women to complementary soft-skills The non-profit Agha Khan Foundation (AKF) offers a range that can better equip them to independently put their hard- of integrated strategies for WEE programming. The founda - thtcnbteeqitemoidpnetlputerha- of itegate stateges or EE rogammig. he ouna - skills into practice. Third, multifaceted programs that- in tion utilizes group-based organizational structures for their Savings and Credit Groups. Working with women in groups corporate complementary services (e.g. public awareness- allows the foundation to go beyond providing basic savings raising, facilitated access to finance and/or markets), either and credit services, because the group structure provides directly or through collaboration with related programs, will a vehicle to offer literacy and life skills training, and dis better equip women to manage the range of constraints in seminate market information and other resources, which the economic sphere. Such integrated approaches can po- has enabled women access to information and resources, tentially achieve longer lasting impacts and lead to positive as well as savings and credit opportunities. attitudinal changes in local communities As a result of having opened offices at the local level, the AKF has developed strong links with communities. This has allowed staff to become familiar with the local economic and social contexts and the kinds of problems women en WEE STARTS IN THE SOCIAL SPHERE counter in their businesses and when seeking market ac cess. The foundation designs programs so that they tackle Interventions should develop and strengthen social both social and economic empowerment, because they bonds among women; enabling and sustaining WEE believe this to be mutually reinforcing and provides oppor- in the long-term. tunities to develop womens leadership capacities and their decision-making skills. Womens economic empowerment starts in the social sphere. Economic empowerment does not develop at the individual As learned in an in-depth interview conducted for the map level, for either men or women. Fundamentally it is a-col ping exercise, the AKF views these savings and credit groups leve phemeno T ore, while E in in as amecanim inwhih w canengge omenbecuse lective phenomenon. Therefore, while WEE programming in as a mechanism in which we can engage women because. it is a place they can come together comfortably and dis Afghanistan must account for restrictions on womens pub creetly. With the trust that they have built with communities, lic gathering and general mobility, it should also incorporate these organizations often have more and better avenues with alternative vehicles through which women can develop the which to reach out to women than representatives of other social networks required for WEE. The research shows that kinds of organizations and even government institutions. womens cooperatives and associations have the potential to offer this. 7 Recognized good practices by cooperatives and as- tive, and often first-time, channel for pooling capital and sociations are those that specifically offer platforms savings that they can be extended as loans. The produc- for women to access social spaces to meet, exchange tion side allows for streamlined connections to the market ideas, interact, and mutually support each other. The and builds economies of scale by collectively: purchasing study shows that direct investment in womens groups inputs such as machinery; marketing goods produced; that promote social empowerment and self-efficacy to gathering much needed market and business information; improve womens economic outcomes contributes to and developing marketing strategies, market linkages, and increasing womens voice and autonomy in economic problem-solving. An important challenge to the success decision-making. However, the study also showed that of this approach is that the capital available to savings/ without systematic support and recognition of the social credit groups can be too minimal to allow women the op- empowerment component, such groups remain relatively portunity to invest in other ventures. Therefore, programs informal and the economic outcomes are thus stunted intending to build such multi-purpose organizations must or diminish over time. The study provided insight into be prepared to manage this constraint. several tangible ways that programs can improve their support in this area. These include: Going beyond start-up support: Projects often focus sup- port on group formation. However, womens cooperatives Investing in multi-purpose womens groups: Evi- and associations require more than start-up support. With- dence shows that basing groups on a dual-pronged say- out ongoing follow-up, including soft-skills support, economic ings/credit and production approach is a mutually rein- cooperatives and associations are unlikely to be sustainable. forcing strategy. From the savings/credit side, groups Even when organized, women continue to face daunting ac- build and maintain social capital while creating an effec- cess and operational challenges related to credit, markets, 8 information and technology, among others. This means that projects need to explicitly incorporate plans for how these groups can continue independently, for example by providing WEE CAN BE BOTH PROFITABLE AND institutional strengthening and other related skills training. CULTURALLY COMPATIBLE z tResistance to WEE can be overcome with initiatives Recognizing the value of womens group investment beyond the immediate economic function: Once es that support women in productive activities that are tablished, women-centric spaces developed to meet say both profitable and consistent with cultural norms ings/credit and productive needs can become communal mechanisms available to meet additional needs. For-ex In areas of Afghanistan where there is resistance to wom ample, for women who have not had access to literacy and ens economic participation, WEE initiatives confront a fun- numeracy training opportunities, membership in a savings/ damental dilemma. On the one hand, support for women in credit group can provide them access to these kinds of op- sectors where they have not traditionally been involved can portunities or to other services that would support their eco - provoke community backlash. On the other hand, support nomic integration and sustainability. for women within their traditional spheres (in areas like sub - sistence agriculture and handicrafts) can mean investment Utilizing technology to develop communal spaces in products or services that have limited market demand for women facing mobility constraintsThe study and therefore limited possibility for income generation. For captured that mobile technology and the internet are pro- example, the study showed that donors and the Afghan gov - viding complementary and alternative ways for women ernment continue to pursue WEE by investing in the ore to expand their social sphere, which then increases their ative industries, a sector that traditionally involves women. connections to one another, and to customers and mar- However, because the markets for many creative industry kets. This is particularly important for women that rely on goods are restricted, these investments have only minimally home-based economic activities or whose mobility is re increased womens contribution to household earnings and stricted. Furthermore, technology-enabled social network therefore do not necessarily lead to WEE. expansion, through accelerated financial transactions and increased access to information, has improved business Addressing this dilemma, the study suggested a strategy viability. Program implementers are enthusiastic about whereby donors identify and invest in activities that have engaging with technology to support women, with particu - both demonstrated market demand, and are within cultural - lar interest from within the private sector. However, there ly-accepted sectors. For example, several agricultural sub- remain significant gaps between such services and the sectors that are traditionally socio-culturally appropriate women who would benefit from them. for women, including those for subsistence production like small livestock/poultry, horticulture, and animal bi-products, In addition to emphasizing the critical nature of support for offer yet untapped income generating opportunities. Worn WEE in the social sphere, the research is also cautionary. en currently play a central role in preparing and process Given the extent of structural inequality in Afghanistan such ing animal bi-products (food products like eggs and milk; support needs parallel investment to create an enabling non-food products like wool and dung cakes for household environment conducive to the emergence of a level playing fuel). Womens traditional responsibilities have been geared field for all actors in the value chains, regardless of gen toward domestic purposes, but given the demand for these der. 8 How to effectively support this social empowerment products, they provide an entry point to expand into sales alongside WEE is an area that requires further research. and direct income generation. In horticulture, womens in 'Saeed Parto et al., Gender and the Agricultural nnovation System in Rural Afghanistan: Barriers and Bridges (Kabu, Afghanistan: Afghanistan Public Policy Research Organization., 2011). 9 volvement is typically at the lower rungs of the value chain. opportunities that will expand the possibilities to achieve However, womens ongoing participation in this sub-sector WEE. means that targeted value chain interventions can support women moving into higher-value products. Similar to the message conveyed in other lessons -dis cussed above, investing in these opportunities, whatever TRADITIONAL CREDIT IS NOT ENOUGH TO the sector, is only the first step. Complementary measures ACHIEVE WEE related to issues such as finance and property owner- shpeuslaeated to issuessuastine advanpesy oer- For financial inclusion to be effective, it must incor- ship must be enacted to sustain these advances over the prt oeta rdtoa rdt tms etr long-term. Finally, this suggested focus on profitable ac poaenmored than ta re; it ue uea . . . .women-centered design that addresses the unique tivities within traditional womens sectors is an intermedi- ate strategy to overcome community resistance. Over the long-term, perspectives will change and opportunities will arise to expand the scope of womens activities into The research shows that offering financial products that productive areas currently dominated by men. 9Therefore, women can and are willing to access is essential. Adjust it is important to continue to investigate and cultivate such ments to loan products that have demonstrated some suc- IUSAID Afghanistan, The Roe of Women in Afghan Agriculture: A Literature Review (United States Agency for International Development Afghanistan, June 8,2016). 10 ited to): the legal constraints that minimize womens access; USAID PROMOTE Women in the Economy (WIE) minimal financial knowledge; lack of resources that would provide women support to manage financial challenges that USAIDs four-year initiative, PROMOTE Women in the arise or spaces where they can connect to one another to Economy (WIE), focuses on developing the Afghan private provide such support. sector and workforce by building womens skills, voice, The research shows that women using loans for the first and resources. Specifically, WIE provides support to wom - time require capacity/confidence building interventions to en-owned businesses and businesses that hire women use credit effectively and to address social empowerment with the goal of helping them perform better, increas issues in their communities. Facilitating poor womens ac- ing profit-making and business sustainability. The target cess to loans and savings for effective credit utilization community for this project is educated women between the ages of 18 and 30 in urban areas across five regional tr need te su in parall l itcp economic zones that include Kabul, Herat, Mazar-i-Sharif, mentary non-credit interventions such as:financial literacy, Jalalabad, and Kandahar. training in basic business skills, and accessing markets. Furthermore, soft-skills training that has proven beneficial WIE offers a combination of technical assistance, indus includes confidence building for the women participating try-specific business skills training, facilitated access to and awareness-raising for their family members, particu markets, career counseling, and internship placement. larly spouses. Developing and sustaining women-centered This is done by partnering with local educational, voc-a credit provision will require targeted identification of the tional, and technical training providers to deliver services, constraints facing each female borrower, and should 4n and by funding scholarships for training, internship place - dude the necessary mitigation measures as part of the ments, and certification programs. For capacity building and technical assistance provision, WIE utilizes a women- credit provision. only training model. This increases accessibility for wom- en who would not be able to participate in mixed settings. Moreover, WIE goes beyond direct service provision to women by incentivizing companies to improve workplace environments for women and supporting the development u un S muVELOu A I of gender-sensitive policies and regulations. Focus group STRATEGY FROM WEE PROGRAMS participants claimed, as of late 2016, that WIE had placed 1,000 interns in the private sector and several had been In a context such as Afghanistan, with heavy reliance hired by the companies for which they interned. on donor funding, it is integral for donors to build an exit strategy into their programs for WEE gains to be sustainable cess meeting womens financial needs include those that It is widely acknowledged that effective cooperation among provide flexible repayment plans, accept alternative forms donors, and between donors and communities, is particu- of collateral, and offer Sharia compliant loans that are com- larly important for WEE initiatives. This is especially the patible with cultural and religious norms. However, although case in Afghanistan, where behavior and cultural norms financial inclusion is a necessary component of WEE, the must be considered when crafting effective policies and evidence shows it has limited impact when provided as programs to promote womens empowerment and gender a stand-alone solution. The financial service industry in equality. However, there is little attention paid to what could Afghanistan has long been male-dominated and the con happen once donor funding ends. The research shows that straints women face go beyond their direct access to finan- WEE programs often follow the lifecycle of donor funding. cial products and services. Related issues that will arise for This means that when the donor support stops, so do the women accessing financial services include (but are not lim - gains related to womens economic access and associated 11 . .. . .. :. :•� J,� � � �� �� �' _ � _ _.. � ,... .. �r,� � . . � � •) �� � т.. � �®/��у��т4 �и ,Г,,� ` ��. ,1 � � _•� _� .. ... __ . .__ . � . . .. 1 •. _ . _ .�_ . ,._ ` . � � � _ . : , � �л Г� „ г ,- 4 ^ а д . - г " - ... . . . ..� . _ . . �. . , 1= .. . д �V t� � ,�+.,. , • ?�'!'1'л�, Г�7,�.,..сгk,• .�. � � ��� ` .� - �-- �_ ��• � " �� » . ar � � Р ' i"J ��Л hl.f �` . • , .'� � �� : _ l L : ' � ",. � : � f L „, � � г � � х �,, � �, �,._ �д Г , - � ; � �= С s ®` � � , . ,. � �: F , - р , � � .. ' . 1 '� s . ♦ К .. i , ; ..з - .. . и �"�.,. � . з .i . .. _ . sд л .., �. . . . - - � .. �� £ 'S,S ., �.� -_ 4s г . � � � � .. . �.. _- , _. .. . . . .. .. . . .. ч• ,5 �.. . ,... ��� ' �' У.: �, ввч �. Зч'_. -- � � .. ь ._ � .. .... � .... � �,;; у* ._...� ,,i1.н,У r ,� q . . . • ., М �r �.... г у, � �. . . . .. . .�:, . �'i ь, � � .т..,.. � l3$° �"...Nч.��,.�pJJ•.tca....lвd�в4! . ' . � � � { . �t�....w'.: уΡ ч � .. д' � � '; t я' -�•---�-?,- V ' .. }. +_ .. _..� - � �.. . ' ... r ....._. ....� . . . �вв�,.м... ...Г ._«�.-... -- '_"� . .. � . ..� ._5 � ... •� � (j , ,. . 1 .. .. _ . . � � I �. . , . J ,... . . . <. . . - . ' _ . . . .. � . н. ,. ` .. , � , ` �С � � � ,. . " .. � .._. . .» у� _.- • _.,,.,. : .... � - �. � . � . . . Ч . .. !'•�� �в �,., .: � �i , ` ... . . . . �Г � J . . . . ..Г.... . , . .. ^ � .. .. � л � _ � _�... � � � 1 .. . ' � ... . , .. т: , - . �. � ::� - . .. � � . `. F .. .. � � .. � � . . . . . .. . {�J4'!.`J ..у..�.. � � � � , � . . г. ..к у ° �;►���Я�� - . . . .. .. �. j . .. _ . <.. �. � � . � . rr �.,, � , . . . . . . 1� - � �� .- r.. я � . .� - - -; � - . ® . � � , � � .. . . � � А �� � . . . , , _ „ С..п , . �•� _ .� . . . ., i _ � � , . �;re �. �...... .$'"� ... ` 'а4. - 1 � У � ! � � b � :...:'. :. ,. . .пк �� � � � ` � � 1 � / � ...- .дв/ ... � .. . ' .� . � �. � ...� _ ... � ' ,� ' . � L �� � `:4 . 5 � 1 ' 1 i .. � т х behavioral and social changes. Furthermore, when the do - isolated pillar within the WEE-NPR Instead, illiteracy/inrtu nors are no longer involved, the gains achieved are often meracy must be understood as a factor to be consistently reversed. Therefore, programs need to have a built-in exit addressed across interventions and sectors. strategy for the donor. While a single exit strategy will not solve post-project difficulties, like a lack of strong local Second, womens successful participation in economic ac - institutions, having such a plan in place and shared with tivities is inextricably linked to the social sphere. Program partners will improve the likelihood that benefits continue design across all sectors needs to consider both the coR beyond the project period. straints and opportunities that exist for women in social spaces. Barriers in the social sphere will translate into bar- The development of an effective exit strategy cannot hap- riers in the economic sphere if not adequately addressed. pen without improved cooperation and coordination among multilateral and bilateral donors, especially in geographical Third, a number of the lessons learned identify problems areas that are more resistant to WEE programs. Effective that result from donors and the government relying on long- donor coordination will also help collaboration with p ro standing strategies despite evidence that these do not reach gram implementers in terms of identifying the necessary the intended goals. Key cases of this discussed above in institutional and procedural structures to implement the clude 1) relying only on traditional credit options for women, exit strategy. and 2) continued intensive investment in creative industries which have shown to only minimally increase womens con - Finally, building trust and local ownership is important for tribution to household earnings. Given that these lessons a donors eventual successful exit. This can happen by question the effectiveness of commonly selected strate prioritizing and facilitating greater local ownership in the gies, any divergence from them will likely face challenges. design of WEE programs through consultation and part However, to achieve the anticipated results for women in nership with provincial authorities and local actors. Pro Afghanistan, donors, the government, and program imple gram sustainability after donor departure will increase menters must be willing to disrupt and replace longstanding with a long-term commitment to WEE, adequate tech practices that the evidence shows do not work. nical and financial support to strengthen the economic infrastructure, and strong and regular monitoring of pro- When considered alongside evidence from internation gram outcomes. al experience, these lessons learned, and the dominant themes that emerge from them, demonstrate how provid- ing women with combined economic and social support can reduce barriers to productive opportunities. Moreover, the research shows that to be effective, this complemen tary social support needs to include: (i) greater womens engagement in the social sphere for networking and c-o operation, and (ii) engaging with womens role models. Specifically, it shows that program design that takes these factors into consideration and fosters woman-to-woman Several key recurring themes emerge when these seven peer support and mentoring greatly reduces many of the lessons are considered together: cultural and attitudinal issues known to hinder or prevent womens economic participation. First, illiteracy and innumeracy appear to be the binding These lessons learned capture what works to empower constraint across WEE programs. Therefore, this educational women economically and start closing the knowledge deficit cannot be considered as a stand-alone lesson or an gap. At the same time, there needs to be further-re 13 search on unaddressed issues such as the costs of come WEE challenges and constraints. Such a roadmap short-, medium-, and long-term interventions, and will support multi-sectoral interventions for greater womens preferences for and receptiveness to WEE impacts of WEE activities and when necessary provide programming. These additional findings will help do- room for innovation. The roadmap will further address nors and policymakers strengthen implementation of remaining questions and knowledge gaps in the Afghan the WEE-NPP. However, this research should not be ad- context and will provide donors and policymakers timely hoc. Instead, it should be included within a Roadmap insights to re-align funding and priorities based on the for Action that incorporates evidence-based activities effectiveness of interventions (The Table below provides targeted to specific groups of women so they can over- an exemplar roadmap). Poor Nnpo Poor farmers Non-poor Poor urban Young entrepreneurs urban Evidence Self-help Extension services, Non-traditional Conditional Demand- based inter- groups and Self-help groups female training cash transfers driven training and ventions micro-savings and micro-savings job placement Innovative Seed funding Farmer schools for Provision of Provision of Digital literacy interventions and mentorship literacy/numeracy childcare childcare training and and farming centers centers placement in the digital economy Donors and policymakers often revert to results-based ap- plexities such as illiteracy, conservative norms, and the ab- proaches to tackle complex thematic issues such as WEE, sence of effective institutions. In such a context, improving which leads to considering each result the isolated respon- processes, strengthening womens agency, and increasing sibility of a specific sector. This is understandable, especially literacy become as important to WEE as increasing income in contexts of extreme poverty where the main priority is and earnings. Therefore, a multi-sectoral approach laid out to increase the earnings of the extreme poor. However, the within a Roadmap for Action would provide a mechanism to economic empowerment of women in Afghanistan, espe- achieve long-lasting results for womens economic empow- cially those who are very poor, encompasses greater com- erment in Afghanistan. 14 15 WORLD BANKGROUP Islamic Republic of Afghanistan JUNE 2017