From Responsibility to Response: Assessing National - Brookings

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CHAPTER 1 Assessing National Approaches to Internal Displacement: Findings from 15 Countries Figure 1-1. National institutional focal points on internal displacement Afghanistan For conflict-induced IDPs: Ministry of Refugees and Repatriation (MoRR) For disaster-induced IDPs: Afghanistan Natural Disaster Management Authority (ANDMA) Central African Comité National Permanent de Concertation et de Coordination pour la Gestion de la Protection Republic Déplacées à l’Intérieur du Territoire de la République Centrafricain (June 2009–present) Previously: Ministère de la Famille, des Affaires Sociales et Solidarité Nationale (2006–2009) Colombia Agencía Presidencial para la Acción Social y la Cooperación Internacional (2005–present) (incorporating the RSS and SNAIPD and working with the Presidential Adviser on IDPs) ■■ Red de Solidaridad Social (RSS) (1999-present) ■■ Sistema Nacional de Atención Integral a la Población Desplazada por la Violencia (SNAIPD) (1997-2005) ■■ Presidential Adviser for the Displaced (1994–present) ■■ Previously: Ministry of Interior (1994–97) Democratic Republic Ministère des Affaires Sociales, Action Humanitaire et Solidarité Nationale of the Congo Georgia Ministry of Refugees and Accommodation (MRA) Iraq Countrywide: Ministry of Displacement and Migration (MoDM) Kurdish Regional Government: Directorate of Displacement and Migration (DDM) Kenya Ministry of State for Special Programs (MoSSP), Department of Mitigation and Resettlement Myanmar None Nepal Ministry of Peace and Reconstruction (MoPR) Pakistan National Disaster Management Authority (NDMA) Sri Lanka No focal point institution. However, the Presidential Task Force for Resettlement, Development and Security in the Northern Province is the current primary coordinating mechanism for government and international assistance to IDPs. Established in May 2009, the task force, which is chaired by Basil Rajapaksa, a member of Parliament and brother of the president, comprises some twenty ministerial and military officials. Sudan Countrywide: Humanitarian Aid Commission (HAC) South Sudan (prior to independence in July 2011): Southern Sudan Relief and Rehabilitation Commission (SSRRC) Turkey For conflict-induced displacement: Ministry of Interior For development-induced resettlement: General Directorate of State Hydraulic Works, General Directorate of Rural Services, and GAP Regional Development Administration Uganda Office of the Prime Minister, Department for Disaster Preparedness and Refugees (DDPR) Yemen Executive Unit for IDPs, headed by a minister Previously: Ministry of Health government reform. In Colombia, for instance, since 1994 the institutional framework for addressing internal displacement has evolved considerably. There was no national institutional focal point on IDPs until the post of Presidential Adviser for the Displaced was created (a post, initially assigned to the Vice Minister of the Interior, that remains today), followed by the 90 designation in 1999 of the Red de Solidaridad Social (Social Solidarity Network) as the focal point agency. The Red de Solidaridad Social was later incorporated under the Agencía Presidencial para la Acción Social y la Cooperación Internacional (Presidential Agency for Social Action and International Cooperation), which is now the official designated focal point state entity.
Institutional mandate and responsibilities When a national law, policy or strategy on IDPs has been adopted or at least drafted (see Benchmarks 5 and 6), it typically reconfirms the focal point designation or, when a focal point has not yet been designated, it clarifies the assignment of institutional responsibility for leading the national response to internal displacement (as in Colombia, Georgia, Kenya, Nepal, Turkey and Uganda). The Uganda National Policy for Internally Displaced Persons (2004) spells out the responsibilities of the national-level focal point institution as well as of central and local coordination mechanisms in considerable detail. Similarly, in Kenya the draft national IDP policy and in Yemen the draft national IDP strategy both devote considerable attention to defining the role and responsibilities of the focal point institution. When there is a national institutional focal point for addressing internal displacement, in many cases the mandate of the body is concerned mostly with and in some cases explicitly restricted to IDPs due to conflict or violence (as in the Central African Republic, Colombia, Nepal, Sudan and Turkey). 4 Moreover, in some cases, the mandate for conflict-induced IDPs is limited to certain groups of such IDPs. For instance, in Kenya the mandate of the focal point ministry (Ministry of State for Special Programs) with respect to conflict-induced IDPs is restricted to IDPs resulting from the post-election violence of 2007, excluding IDPs resulting from other forms of conflict or violence. 5 In some of the cases studied, the lead government agency for IDPs has a mandate that covers displacement due to conflict as well as disasters (as in Georgia, Kenya and Uganda). In other cases, separate government agencies cover IDPs due to 4 In Myanmar, the situation is the reverse: the only government agency for responding to internal displacement mentioned was the Ministry of Social Welfare, Relief and Resettlement (MoSWRR), which is responsible for disaster risk-reduction activities; it coordinated the relief efforts in response to Cyclone Nargis of 2008. Even so, it appears that the MoSWRR activities were not specifically focused on displaced persons but on relief and recovery of the affected population in general. 5 See the Kenya case study in chapter 2 of this volume. Benchmark 7 Designate an Institutional Focal Point on IDPs 91 conflict and IDPs due to disasters (as in Afghanistan) or IDPs due to conflict and IDPs due to development (as in Turkey). In one case, Yemen, the mandate of the previous national focal point for IDPs officially was restricted to camp-based conflict-induced IDPs, leaving aside the many IDPs who found temporary refuge with host families or in informal settlements. Reportedly that restriction was not strictly observed in practice and it has been lifted in the new draft national strategy on IDPs. The tasks and functions assigned to the national institutional focal point for addressing internal displacement vary, both within each individual case as well as across the case studies. In a number of the countries reviewed, the mandate of the lead agency explicitly states that its responsibilities include protection and assistance (for example, the Central African Republic, Georgia, Iraq, Nepal and Uganda) and in some cases refers to “protection of rights” of IDPs (the Central African Republic and Georgia). Key functions and activities may include registration of IDPs ( as in Colombia, Georgia, Nepal and Yemen); provision and coordination of humanitarian assistance (as in Afghanistan, the Central African Republic, Colombia, Georgia, Kenya and Sudan); the management of IDP camps and/or collective settlements (as in Georgia); coordination with other government institutions and with the international community; and the development of national legislation and policy on IDPs (as in the Central African Republic, Georgia, Kenya and Yemen). When a national policy on internal displacement does exist (see Benchmark 6), the designated national institutional focal point tends to be assigned responsibility for coordinating and monitoring implementation of the policy (as in Georgia, Nepal, Uganda and Yemen). Beyond responsibilities relating to protection and assistance during displacement, in many cases the formal mandate of the institutional focal point refers explicitly to supporting “durable solutions” for IDPs (as in Kenya). This responsibility may refer to the broad range of possible solutions—that is, to return, local integration or resettlement elsewhere in the country—and to reintegration assistance (as in Iraq, Sri Lanka and Yemen). Or
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The Brookings Institution - London
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From Responsibility to Response: As
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CONTENTS Acronyms .................
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ACRONYMS AIHRC Afghanistan Independ
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FOREWORD It is with great pleasure
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ACKNOWLEDGMENTS Given the large num
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It is a central tenet of internatio
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legislation relevant to IDPs. Still
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amend existing ones, in line with t
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Background and Aims of the Study In
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displacement persists for several y
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operationalizing the responsibiliti
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Therefore, it is not surprising tha
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Azerbaijani, Chinese, French, Portu
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National Initiatives In Iraq, IOM p
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of the country. 62 In addition, six
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in French and Spanish depending on
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serves only to supplant and absolve
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CHAPTER 1 Assessing National Approa
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Benchmark 1 Benchmark 1 Prevent Dis
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Benchmark 1 Prevent Displacement an
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Benchmark 2 Raise National Awarenes
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Benchmark 10 Establish the Conditio
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Benchmark 11 Allocate Adequate Reso
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also ordered the National Council f
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In Sri Lanka, 16 it is difficult to
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Conclusion As indicated in the intr
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Benchmark 12 Cooperation with Inter
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North Darfur, Sudan/ A woman collec
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CHAPTER 2 Case Studies Georgia, Ken
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Georgia From Solidarity to Solution
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Kenya National Response to Internal
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Afghanistan Internal Displacement i
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Sri Lanka Gaps in the Government Re
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Domestic Financing Foreign financin
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This study seeks to shed light on h
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CHAPTER 3 Translating National Resp
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For each country case study, the ex
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5 6 Ensure a Legal Framework for Up
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9 9 a) Facilitate IDPs’ Participa
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12 Cooperate with International Com
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The Brookings Institution - London
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