RESEARCH STUDY ON FEMALE GENITAL MUTILATION IN SOUTHERN AFRICA

TERMS OF REFERENCE FOR RESEARCH STUDY ON FEMALE GENITAL MUTILATION IN  SOUTHERN AFRICA.

1. BACKGROUND

Female Genital Mutilation (FGM) is a human rights violation and has been prohibited under several international human rights conventions including the Convention on the Elimination of all forms of Discrimination against Women, the Convention on the Rights of the Child, the AU Convention on Ending Violence Against Women and Girls, the Convention against Torture and Other Cruel, Inhuman or Degrading Treatment or Punishment, the  African Charter on Human and Peoples’ Rights, Protocol to the African Charter on Human and Peoples’ Rights on the Rights of Women in Africa (Maputo Protocol) and African Charter on the Rights and Welfare of the Child (ACRWC). The SADC Model Law on Gender-Based Violence defines harmful practices, including FGM, as a form of gender-based violence.  Article 17 requires States to (i) put in place policies and special measures to ensure that women and children are not subjected to harmful practices; (ii) ensure that the community, especially families, are educated on the effects and consequences of the use of harmful practices; and (iii) declare the performance of harmful practices as a criminal offence.

The Southern African Development Community Parliamentary Forum (SADC PF) a regional inter-parliamentary body being an institution of the Southern African Development Community (SADC), in partnership with Equality Now, a legal advocacy human rights organisation
working to protect and promote the rights of women and girls, are working together to promote the domestication, implementation, and monitoring of the SADC Model Law on Ending GBV  (SADC Model Law on GBV).  During the SADC PF 55th Plenary Assembly Session, the Human and Social Development and Special Programmes (HSDSP) Committee presented a comprehensive report highlighting the persistent, though often underreported, prevalence of FGM within specific communities and cross-border corridors in the SADC region. The Assembly adopted the committee's recommendations, emphasizing an urgent need for empirical, regional research to map the current landscape of FGM, evaluate legislative gaps, and devise enforceable, localized strategies to eliminate the practice. To operationalize these recommendations, SADC PF,  Equality Now, and UNFPA are recruiting a consultant to conduct the research.  The research report will be used as the basis for advocacy work at the regional and national levels.

2. OBJECTIVES OF THE ASSIGNMENT

The primary objective of this joint research is to assess the scope, underlying drivers, and legal frameworks surrounding FGM within the SADC region. By providing comprehensive, representative, and evidence-based data on the current status of FGM in Southern Africa, this study aims to formulate definitive, context-specific policy and strategic recommendations to strengthen SADC initiatives and align with the Human and Social Development and Special Programmes (HSDSP) Committee’s directives toward eliminating FGM.

SPECIFIC OBJECTIVES: 

To achieve the primary objective, the research will focus on the following specific objectives:

• Map
  the current status of FGM in Southern Africa by identifying geographic hotspots, cross-border trends and practices, and specific affected communities within the SADC region. The focus countries will be Tanzania, DRC, Zambia, Zimbabwe, Malawi and South Africa, though additional countries may be included if required after initial desk research.
• To identify and analyze emerging and prevailing trends of FGM in Southern Africa, with particular focus on medicalization, FGM among migrant and cross-border communities, initiation ceremonies, and other evolving practices.
• Identify and analyze existing national laws, regional instruments, and international commitments against FGM across SADC member states to highlight gaps in protection mechanisms, enforcement, compliance, and harmonization.
• Document
  progress made towards ending FGM, and scalable best practices implemented by SADC member states and diverse stakeholders, in line with existing literature on efforts that work to prevent FGM, including the extent to which existing laws have protected individuals, if at all.
• Develop proposals for SADC member states’ consideration to strengthen law and policies on FGM aligned with the SADC Model Law on GBV and integrating FGM elimination into national gender-based violence (GBV) strategies.
• Identify and evaluate the current and potential roles of key stakeholders, including parliamentarians, National Human Rights Institutions (NHRIs), civil society organizations (CSOs), and international partners, in coordinating anti-FGM efforts in Southern Africa.
• Identify and evaluate the impact of FGM on the long-term SRHR behaviour and socio-economic integration of women in the African society.

3. SCOPE OF THE ASSIGNMENT

Under the supervision and overall guidance of the Secretariat of the SADC PF and the End GBV  team at Equality Now, the Consultant  will be expected to undertake the following tasks:

• Inception Phase: Develop and submit to Equality Now and SADC PF a concise inception report and plan that includes proposed methodology, work plan, data collection tools (including ethical clearance protocols), layout, and division of topics for the research report.
• Desk Review: Conduct a comprehensive literature review of academic papers, NGO reports, SADC PF resolutions, and the specific HSDSP Committee report to the 55th Plenary Assembly, as well as an analysis of the legislative frameworks addressing protection mechanisms for survivors of FGM in the Southern Africa region.
• Field Data Collection & Stakeholder Engagement:

 i)Conduct key informant interviews (KIIs) and focus group discussions (FGDs) with traditional leaders, survivors, civil society organizations (CSOs), judicial officers, and healthcare professionals.

ii)Engage with relevant parliamentary committees within selected SADC focus countries.

• Data Analysis: Synthesize qualitative and quantitative data to identify regional trends, cross-border dynamics (e.g., girls being moved across borders to undergo FGM), and legal loopholes.
• Drafting and Validation: Draft a comprehensive research report and present findings at a joint SADC PF and Equality Now validation workshop.
• Finalize the research based on feedback from Equality Now and SADC PF technical teams and validation, and present the final report at the HSDSP Committee of the SADCPF or any other relevant organ.

4. METHODOLOGY, REPORTING LINE, AND DELIVERABLES

The methodology to be employed will encompass a mixed-methods approach, combining qualitative and quantitative data collection from primary and secondary sources. The data collection will involve a review of relevant member states' laws and policies, and other relevant sources. Given the sensitive nature of FGM, the methodology must strictly adhere to do-no-harm principles, ensuring absolute confidentiality, informed consent, and psychological safety for all participants, particularly survivors.

5. DELIVERABLES AND TIMELINES

The key deliverables of the consultancy are:

i)Inception Report.

ii) Draft report.

iii)Final report, with feedback integrated from Equality Now and SADC PF.

6. QUALIFICATIONS AND EXPERIENCE

The consultant or research team who will be recruited for this task must have the following qualifications and experience:

• An advanced degree (Master's or Ph.D.) in Human Rights Law, Gender Studies, Public Health, Sociology, or a related social science field.
• Minimum of 7 years of demonstrable experience in conducting human rights research, with a specific focus on FGM, Gender-Based Violence (GBV) or Harmful Traditional Practices (HTPs) in Southern Africa and and of the SADC Model Law on Gender Based Violence.
• Deep familiarity with the SADC regional integration agenda, parliamentary processes, and the SADC PF structures.
• Excellent writing, analytical, drafting, and communication skills in English (working knowledge of French or Portuguese is a distinct advantage).

7. COMPENSATION AND TERMS

This consultancy is a home-based assignment with the potential for consultative meetings. The consultant will report to the SADC PF Secretary General and work closely with Equality Now staff in delivering the report. SADC PF and Equality Now will provide necessary background documents, facilitate introductions to national parliaments/stakeholders, and oversee the quality assurance of all deliverables. We expect the report to be fully completed within a period of two months from the date of signing the contract with the selected Consultant. A total of 30 payable working days is allocated for completing the Research  Report, with the schedule to be agreed upon by the Consultant, the SADC PF, and Equality Now. The timeline for completion of the deliverables will be from 1 August  2026 to 30 October  2026.

A total of 30 payable working days is allocated for completing this research, with the schedule to be agreed upon by the Consultant, the SADC PF, and Equality Now. The budget available for this consultancy is a total of USD 9000  at a daily rate of USD 300 per day. The consultant will be paid 50% of the consultancy fee upon signing the contract and will be paid the remaining 50% upon satisfactory completion of the assignment and submission and presentation of the final report.

8. DEADLINE FOR APPLICATION

Interested candidates or firms should submit a technical proposal (detailing understanding of the TOR, methodology, and work plan), CVs of the research team, and two samples of similar previous work by 20 July  2026.

ANNEX 1: BRIEF OVERVIEW -  SCOPE OF RESEARCH STUDY

CONTEXT & BACKGROUND

UNICEF estimates that 230 million women and girls globally are affected by FGM. A recent report by Equality Now, the US End FGM/C Network and the End FGM European Network (2025) demonstrates that there is evidence of FGM taking place in 92 countries across the world. Within the SADC region, Tanzania is the only country with national prevalence data on FGM. However, though data is scarce, anecdotal evidence, media reports, and small-scale studies have indicated that FGM may be present in other countries in the region. The information from the 2025 report indicates the presence of FGM in the following countries in the SADC region:

• Tanzania: FGM prevalence at 8%
• Zambia: The Sexual Behaviour Survey 2009 demonstrated a prevalence of 0.7%, but more recent data is not available
• DRC: FGM has been known to take place in the Equateur province, though there is no recent data available
• Zimbabwe: News reports document “circumcision” among the Tonga community in Binga where it was used to facilitate conception in women who had trouble getting pregnant, though there are also reports of a wider existence of the practice within the community. In the past, infibulation (Type III FGM/C) has been documented within the small Remba ethnic group in Midlands province.
• Malawi: The UN Human Rights Committee in 2014 expressed concern about “reports on the prevalence of the practice of female genital mutilation in some regions”. Media reports indicate that FGM takes place among some small ethnic communities in Southern Malawi. Most girls are cut between the ages of 10 and 15, and the type of FGM which takes place is reportedly the cutting of the tip of the clitoris (Type I).
• South Africa: There is evidence of FGM taking place among a few ethnic groups, including the Venda people in Limpopo Province and some ethnic communities in the Eastern Cape region, and also diaspora communities in South Africa.

AREAS REQUIRING FURTHER STUDY

1. Current and updated information on FGM within the countries highlighted in the desk research: The desk research undertaken for the 2025 global FGM report revealed media reports and anecdotal evidence of FGM taking place within certain small regions or isolated communities within countries such as DRC, Zimbabwe, Malawi, and South Africa. However, there is a lack of current or in-depth information on these aspects, calling for further study.
2. Other types of FGM, such as Labia Elongation: Labia elongation, a form of Type IV FGM, is practised in a number of countries in Southern Africa, including reportedly in Mozambique,  Zimbabwe, and Zambia, amongst others. Some of the reasons behind labia elongation include purportedly increasing sexual pleasure for men and involving social pressure on girls to permanently modify their genitals. However, there is not enough research on the potential health impacts of this practice. Additionally, there is anecdotal information about practices similar to FGM potentially being part of initiation ceremonies in certain countries, which requires further examination.
3. FGM within migrant communities in Southern Africa: The practice of FGM amongst migrant communities has received a lot of attention in Western countries, including in Europe and North America. However, not enough attention has been paid to programs towards addressing FGM within refugee and migrant populations in Africa, including in Southern Africa. For instance, South Africa,  Angola, Zambia, and other countries often host migrant populations from countries with high FGM prevalence, including Somalia, Ethiopia, etc. However, there is little to no research on this issue.