Problems and Purpose

The Rapid Research Agile Policymaking (RRAP) project in Uganda (2021-2024) aims to boost inclusive, data-driven policies. It empowers marginalized subgroups for self-advocacy, contributing to data processes and policy recommendations. Participation in the “Rapid Research for Agile Policymaking” project was imperative due to its goal of amplifying the voices of the frequently marginalized LGBTQIA+ (lesbian, gay, bisexual, transgender, queer, questioning, intersex, asexual, and the + is for other) community and other key populations (KPs) in Uganda. These groups face the challenge of not having enough data governance and advocacy skills to effectively shape policies that pertain to their well-being. Involving them in the project served the purpose of closing this knowledge gap and enabling them to exert meaningful influence on policies that directly impact their daily lives. The initiatives described below took place between 2021 and 2023 in Uganda, where the need for inclusive policymaking was acutely felt, especially among the LGBTQIA+ community and KPs.

Background History and Context

The Rapid Research Agile Policymaking (RRAP) project in Uganda (2021-2024) aims to boost inclusive, data-driven policies. It empowers marginalized subgroups for self-advocacy, contributing to data processes and policy recommendations. Participation in the “Rapid Research for Agile Policymaking” project was imperative due to its goal of amplifying the voices of the frequently marginalized LGBTQIA+ (lesbian, gay, bisexual, transgender, queer, questioning, intersex, asexual, and the + is for other) community and other key populations (KPs) in Uganda. These groups face the challenge of not having enough data governance and advocacy skills to effectively shape policies that pertain to their well-being. Involving them in the project served the purpose of closing this knowledge gap and enabling them to exert meaningful influence on policies that directly impact their daily lives. The initiatives described below took place between 2021 and 2023 in Uganda, where the need for inclusive policymaking was acutely felt, especially among the LGBTQIA+ community and KPs.

Background History and Context

Uganda has a complex history when it comes to LGBTQIA+ rights. The country's colonial legacy left a mark on its legal and cultural landscape, with colonial-era laws influencing attitudes towards non-heteronormative identities including stigmatization, exclusion, or lack of legal recognition for individuals outside traditional gender and sexual norms.1 Under Uganda's Penal Code, and Current Anti-Homosexual Act 2023, homosexual acts were deemed illegal and punishable with up to life imprisonment.2 This colonial legacy created an environment where discrimination and persecution of LGBTQIA+ individuals became deeply entrenched.

The political climate in Uganda added further complexity to the challenges faced by LGBTQIA+ individuals and KPs. The government, at various points, has taken a hostile stance towards the LGBTQIA+ community, using them as scapegoats in political rhetoric. During elections, LGBTQIA+ communities became targets of disinformation campaigns, exacerbating their vulnerability.

Below are examples of some of the disinformation campaign/s

Several factors caused the situation the dire situation facing LGBTQIA+ individuals and KPs in Uganda, including:

• Legal barriers: The existence of laws criminalizing homosexuality created a hostile legal environment for LGBTQIA+ individuals.
• Social stigma: Widespread social stigma and discrimination against non-heteronormative identities further marginalized these communities.
• Data and advocacy gaps: Lack of data and advocacy skills among LGBTQIA+ groups hindered their ability to advocate effectively for their rights and influence policymaking.

Opportunities for participation were limited by systemic inequities, power imbalances, and the challenging political climate:

• Power relations: The government held significant power and often used it to suppress LGBTQIA+ rights, making it challenging for these communities to engage in meaningful participation.
• Systemic inequities: Systemic inequities were a barrier to participation, as LGBTQIA+ individuals and KPs faced discrimination in various aspects of their lives. For instance, LGBTQIA+ individuals and KPs faced exclusion from formal institutions and decision-making processes due to discriminatory policies and societal attitudes. For example, discriminatory laws and social stigma may have deterred potential partners from joining the RRAP project, fearing reprisal or marginalization.3
• Changing context: Despite these constraints, there was an unexpected opportunity emerging in the form of willingness among some local government officials and technocrats to better understand the needs of LGBTQIA+ communities. This change in context provided a window for engagement.

The “Rapid Research for Agile Policymaking” (RRAP) initiative was not the first of its kind in Uganda. Projects like the Many Coloured Sky initiative supported LGBTQIA+ young people, providing a year of vocational education, inclusive housing, and apprenticeships for independent living. Similarly, the Queer Youth Uganda (QYU) project empowered the LGBTQIA+ community with skills to combat human rights violations in the challenging context where both the state and society make operating LGBTQIA+ networks in Uganda challenging. However, RRAP marked a significant departure from previous approaches. In the past, there were limited efforts to involve LGBTQIA+ communities and KPs directly in research and policy making. This initiative represented a more comprehensive and collaborative approach, drawing insights from the community while engaging various stakeholders.

Organizing, Supporting, and Funding Entities

The "Rapid Research for Agile Policymaking" project is a consortium spearheaded by four primary partners: Freedom and Roam Uganda (FARUG),5 Icebreakers Uganda,6  TranzNetwork Uganda,7 and a fourth organization that opted for anonymity due to security concerns linked to the Anti-Homosexuality Act (AHA 2023). These organizations unified under a shared commitment to promote rights and address the unique challenges faced by the LGBT community in Uganda.

Icebreakers Uganda has a profound history in serving the LGBT community, focusing on areas like sexual health rights advocacy, HIV/AIDS awareness, and prevention. FARUG, established in 2003, is Uganda's pioneer organization dedicated exclusively to the Lesbian, Bisexual, and Queer (LBQ) community. Standing firm on feminist values, FARUG works to reinforce the rights and equality of womyn, as set forth in various international human rights instruments. On the other hand, TranzNetwork Uganda, previously known as UNTGNC, formed in 2014, has been influential in elevating the concerns of the trans community in Uganda, aiming for mainstream acknowledgment.

Voice Global4, an innovative grant facility emphasizing inclusivity and the principle of 'Nothing About Us Without Us', has extended monetary support to this project. This funding originates from the Netherlands Ministry of Foreign Affairs and is administered jointly by Oxfam Novib and HIVOS. This financial backing is a testament to the global attention and collaboration required to address LGBT rights in regions facing profound challenges. The funding organization provided over €190,000, facilitating the implementation and success of the project.

Through this consortium, each entity has synergistically complemented one another, with a mutual vision for a more inclusive Ugandan society. Their collaborative approach likely involved regular interactions and methodical decisions on engagement strategies, with each organization leveraging its unique strengths and expertise.

The Ugandan government had a limited role in initiating or leading the RRAP project. Engagement with government entities, specifically the key population desk at the Ministry of Health and the Uganda AIDS Commission, was temporarily halted due to the restrictive Anti-Homosexuality Act in 2023. 

Partner organizations, notably Icebreakers Uganda, TranzNetwork Uganda, and Freedom and Roam Uganda (FARUG), played central roles in implementing the project. Their active participation across project phases demonstrated a collective effort to empower marginalized LGBTQ+ subgroups.

Citizens, community groups, and NGOs were instrumental in initiating and leading the project. The LGBTQ+ community, especially rights holders and marginalized groups, actively participated in various activities.

Participant Recruitment and Selection

The participant recruitment and selection process for the RRAP initiative in Uganda was designed to be inclusive and representative of the LGBTQIA+ community and key populations (KPs) while also involving experts and stakeholders.

The primary participants were individuals from the LGBTQIA+ community, KPs, and representatives of LGBTQIA+ partner organizations in Uganda, notably Icebreakers Uganda, TranzNetwork Uganda, and Freedom and Roam Uganda (FARUG). These individuals were directly affected by the issues addressed by the project.

The initiative aimed to ensure the participation of a diverse range of LGBTQIA+ individuals and KPs. Recruitment was not limited to specific demographics, but rather, the focus was on inclusivity. Local networks and community outreach played a crucial role in reaching out to those communities through the support of the consortium members. The decision to focus on these demographics stemmed from a commitment to ensuring representation and inclusiveness within the LGBTQIA+ and KP groups.

Participants were informed and invited through a combination of community outreach, workshops, and meetings. The consortium members played a key role in spreading awareness about the project and inviting individuals to participate.

To encourage participation, participants were offered stipends or other incentives, such as covering transportation costs. These measures aimed to remove potential financial barriers and ensure that a diverse range of voices was heard.

The collaboration also extended to include experts and stakeholders from diverse fields. Invitations were extended to individuals with expertise in areas such as software development, academia, and government officials. The inclusion of these experts and stakeholders was deliberate and strategic. Their valuable input and perspectives significantly contributed to shaping the design and methodology of the project. Drawing on their diverse backgrounds, these contributors brought a wealth of knowledge to the table, ensuring a comprehensive and informed approach to addressing the challenges faced by LGBTQIA+ individuals and KPs. By incorporating a multidimensional perspective, the initiative aimed to enhance the effectiveness and relevance of its outcomes, fostering a more holistic understanding of the issues at hand.

Methods and Tools Used

The primary method used in the "Rapid Research for Agile Policymaking" project was participatory research, supported by various tools and techniques. Participatory research is a collaborative approach that involves active involvement and contribution from the individuals or communities being studied. It acknowledges the expertise of those directly affected by the research topic and seeks to empower them as co-researchers in the process. This method was chosen because it allowed for the active involvement of the LGBTQIA+ community and KPs and enabled them to contribute their insights, needs, and challenges directly to inform various stages of decision-making.

This approach aimed to go beyond traditional research methodologies by engaging the community as active partners rather than passive subjects. During project planning, community members participated in co-creation workshops, where they played a pivotal role in shaping the project's goals, design, and interventions.

Throughout the implementation phases, participatory research involved continuous collaboration with the LGBTQIA+ community and KPs. This included active participation in data collection, analysis, and the development of a Data Leadership Curriculum. The method facilitated a two-way exchange of knowledge, ensuring that the research process was inclusive, culturally sensitive, and truly reflective of the community's needs and experiences. The participatory research approach not only empowered the community but also strengthened the validity and relevance of the project's outcomes by incorporating diverse perspectives and insights

What Went On: Process, Interaction, and Participation

The "Rapid Research for Agile Policymaking" project in Uganda took the following steps when implementing the project:

• Inception meeting: An initial meeting was held to finalize the work plan, timeline, expectations, and roles and responsibilities of the participants. This tool helped set clear guidelines and expectations for the project.
• Mapping of available data sources and resources: Identifying and mapping data sources and stakeholders involved participants in understanding the existing landscape, contributing to data collection and sharing processes.
• Participatory design meeting: Convening various stakeholders, including consortium partners, designers, software developers, academics, data scientists, and government stakeholders, allowed for the design of the data collaborative exchange platform to be collaborative and inclusive.
• Development of Data Leadership Curriculum: Data collected from the design phase informed the development of a curriculum tailored to the needs of LGBTQIA+ organizations, providing them with the skills to analyze data and engage in policymaking effectively.
• Testing of Data Leadership Curriculum: A six-month-long training program was conducted to test the curriculum's efficacy. This allowed participants to engage with the material and provide feedback for improvement.
• Ethical Data Use training: Training on ethical data use, rigor, accountability, data protection, and privacy were conducted to ensure responsible data handling.
• Evidence-based policy and advocacy convenings: These gatherings involved broader civil society organizations (CSOs) and government stakeholders to engage in evidence-based policy discussions.

Throughout the steps outlined above, the discussions and deliberations encompassed crucial aspects and aimed at addressing the specific needs and challenges faced by LGBTQIA+ individuals and KPs. Overall, approximately 15 individuals engaged in physical data literacy training, with an additional 25 participating in online training, acquiring skills in research methodologies, policy brief writing, and data analysis. Their proactive involvement in co-creation workshops and data leadership training showcased their commitment. 

Through the use of various tools and techniques, LGBTQIA+ individuals and KPs were thus able to shape and influence the project and its outcomes:

• Inception Meetings and Participatory Design: These face-to-face interactions allowed stakeholders to collaboratively design the data collaborative exchange platform. For instance, during participatory design meetings, LGBTQIA+ community members actively contributed to shaping the structure and functionality of the platform.
• Training Sessions on Ethical Data Use:  Both online and offline sessions were conducted to ensure accessibility. These sessions equipped participants with practical skills for engaging in policy making discussions. For example, attendees gained insights into manipulating and analyzing data, enabling them to actively participate in evidence-based advocacy.

Deliberate efforts were made to include a diverse range of voices. Through collaboration with local networks, the project organizers ensured that different perspectives within the LGBTQIA+ community and KPs were considered. This inclusive approach aimed to prevent any one viewpoint from dominating the discourse.

Final decision-making regarding outcomes or recommendations was a collaborative effort involving organizers, government officials, and other participants. Recommendations and evidence generated from the project were communicated to various stakeholders, including public officials and leaders, with the aim of influencing policy changes and service delivery improvements

Influence, Outcomes, and Effects

The RRAP initiative has yielded notable outcomes and effects, although some challenges hindered the full realization of its intended impact.

Overall achievement: The initiative's primary intended goal was to empower marginalized LGBTQA+ subgroups by enhancing data literacy, promoting evidence-based advocacy, and fostering inclusive policymaking. Significant strides were taken in various aspects of the initiative. Notably, the creation of a data leadership curriculum, transformed into an accessible online self-teaching platform, marked a substantial advancement. The project placed a strong emphasis on enhancing skills, specifically in research and advocacy, with the overarching goal of empowering the community to formulate effective strategies for influencing and instigating policy change. Moreover, a collaborative platform was devised for enduring use, directed at supporting data-driven activities and advocacy. This strategic move aimed at fostering inclusivity in the policymaking process, ensuring a more comprehensive and participatory approach. The project played a pivotal role in establishing relationships and coalitions between LGBTQ+ organizations and key government agencies, fostering a more inclusive ethos in the policymaking arena.

In achieving the above, specific outcomes related to the methods and tools used are worth highlighting: 

• Tools like participatory design meetings provided structured approaches that facilitated meaningful dialogue. LGBTQIA+ community members, by actively engaging in these sessions, contributed to the collaborative design of the data platform, ensuring it met their specific needs.
• The training sessions on ethical data use and data leadership were designed to enhance participants' capabilities. This not only empowered them with essential skills but also positively impacted the overall quality of discourse, ensuring a more informed approach to addressing the challenges faced by the LGBTQIA+ community and KPs.

However, challenges such as the enactment of the Anti-Homosexuality Act in 2023 disrupted the project, particularly in engaging with government entities and implementing planned activities.

Changes and decisions: Participation in the initiative led to tangible changes within the LGBTQ+ community and key population groups. The development of a data leadership curriculum, online learning platforms, and collaborative data-sharing tools equipped community members with essential skills and resources for advocacy and policy engagement. The initiative facilitated policy engagements and the production of policy briefs, indicating a concerted effort to influence public policy and advocate for LGBTQ+ rights.

Influence on policy and community dynamics: The initiative influenced public policy discussions, although the full extent of its impact remains to be seen. While direct changes in official government policy may not have been immediately evident, the initiative fostered dialogue and collaboration between LGBTQ+ organizations, government agencies, and other stakeholders. The project's emphasis on data-driven advocacy and community empowerment set a precedent for future initiatives aiming to address LGBTQ+ issues in Uganda.

Encouragement of community action: The initiative encouraged grassroots activism and community-driven initiatives. Citizens, NGOs, and residents took proactive steps to address challenges faced by LGBTQ+ individuals, motivated by the need for data-driven solutions and inclusive policy making. The project's emphasis on peer-to-peer learning and capacity building empowered community members to advocate for their rights and mobilize support for LGBTQ+ causes.

Unexpected outcomes and influence on similar initiatives: The project's collaborative approach and emphasis on sustainability set a valuable precedent for future initiatives addressing LGBTQ+ issues in Uganda and beyond. The initiative laid a foundation for continued advocacy and engagement in the LGBTQ+ community, inspiring similar efforts in the future.

Analysis and Lessons Learned

The following reflections outline some of the lessons learned, including some key success factors:

• Building relationships and networks: The initiative demonstrated notable success in building robust relationships and networks across various levels. There were collaborative efforts between LGBTQA+ organizations and key government entities, particularly the Key Population desk at the Ministry of Health and the Uganda AIDS Commission. 
• Inclusive design process: The project's emphasis on an inclusive design process proved effective. Actively involving various stakeholders, particularly the LGBTQA+ community, in shaping project outcomes ensured that the outputs were tailored to community needs, increasing relevance and value and sustainability.
• Flexibility and adaptability: The project's flexibility and adaptability to changes in the operating environment, especially in response to the enactment of the Anti-Homosexuality Act, demonstrated resilience. Quick adaptations, such as work plan revisions and budget variations, enabled the project to navigate challenges effectively.
• Peer-to-peer learning and mentorship: The adoption of a peer-to-peer learning and mentorship approach, including the training of trainers, facilitated widespread knowledge transfer. This approach allowed the community to cascade the learning to a wider audience, thereby ensuring sustainability and community empowerment.

Building on the above, some of the successes could be expanded through the following:

• Future initiatives could replicate the inclusive collaboration models that enabled successful partnerships between political and civic actors, LGBTQA+ organizations, and government agencies. For instance, they could establish formalized networks or coalitions that facilitate ongoing dialogue and collaboration among stakeholders, similar to the partnerships forged during the project. 
• The project's emphasis on participatory design, peer-to-peer learning, and mentorship offers concrete strategies for empowering communities and building capacity. Future initiatives could adopt similar approaches by implementing structured training programs, workshops, and mentorship schemes tailored to the specific needs of the target community. 
• Sustaining legal reforms and fostering engagement with diverse stakeholder groups are critical for long-term impact. Future initiatives could advocate for policy changes or legal reforms that support the rights and inclusion of marginalized communities, drawing on lessons learned from successful advocacy efforts during the project. 

Aligned with the above, participants reported a high level of satisfaction from the initiative:

• The end-of-project evaluation report highlighted that participants were generally satisfied with the outcomes of the project, particularly in terms of building relationships, enhancing data literacy, and fostering advocacy for inclusive policymaking. Participants expected the project to fill the void of limited LGBTQA+ data in community interventions and policymaking processes. The end-of-project evaluation report indicated that the project met participants' expectations by providing valuable tools, resources, and knowledge to address the challenges associated with the lack of comprehensive LGBTQA+ data.
• However, challenges arose due to the enactment of the Anti-Homosexuality Act in 2023. Legal constraints prompted a recalibration of project priorities, with a paramount focus on ensuring the safety of LGBTQA+ community members. This led to a shift in delivery methods, suspending or transitioning physical engagements to online platforms. 

Finally, the following key learnings and methodological insights are noted:

• From this experience, the project organizers learned the importance of adaptability and resilience when confronted with external challenges such as legislative changes and societal sensitivities. It underscored the necessity of fostering inclusive dialogue while navigating polarizing topics within cultural contexts.
• This experience underscores the significance of methodological frameworks that incorporate participatory design principles to empower marginalized communities effectively. It highlights the importance of incorporating contingency measures to address unforeseen obstacles and ensuring the sustainability of project outcomes in dynamic environments.

See Also

References

1. Mofokeng K. D. (nd) Ongoing Impact of Colonial Laws on LGBT Human Rights: A Global Perspective with a Focus on the African Context. Retrieved on 26th September 2023 from  https://www.ohchr.org/sites/default/files/documents/cfi-subm/2308/subm-colonialism-sexual-orientation-oth-mofokeng.pdf
2. Reuters. (2023, May 30). Uganda enacts harsh anti-LGBTQ law including death penalty. Reuters. https://www.reuters.com/world/africa/ugandas-museveni-approves-anti-gay-law-parliament-speaker-says-2023-05-29/
3. Strand C. and Svensson. J. (2022): Towards a Situated Understanding of Vulnerability – An Analysis of Ugandan LGBT+ Exposure to Hate Crimes in Digital Spaces, Journal of Homosexuality, DOI: 10.1080/00918369.2022.2077679  

External Links

1. https://voice.global/ 

Consortium members

1. Freedom and Roam Uganda (FARUG) https://www.faruganda.org/  
2. Ice Breakers Uganda (IBU) https://twitter.com/IbuUganda   
3. Tranz Network Uganda https://twitter.com/TranzNetwork 

Notes

The organization involved in this initiative has chosen to remain anonymous due to security concerns associated with the Anti-Homosexuality Act (AHA 2023). As a result, specific links or identifying information cannot be provided to ensure the safety and security of those involved. The decision to maintain anonymity shows the challenging and sensitive environment in which the project operates, where legal restrictions and societal attitudes necessitate caution.