From Responsibility to Response: Assessing National - Brookings

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Revaz, aged 73, stands in front of the Khobi Swimming Complex, which has been a “collective center” for IDPs from Abkhazia since the conflict in the 1990s. The building is structurally unsound, has no running water and no functioning heating during the winter. Photo: UNHCR/ P. Taggart / October 2008
Georgia From Solidarity to Solutions: The Government Response to Internal Displacement in Georgia From Solidarity to Solutions: The Government Response to Internal Displacement in Georgia Overview of Internal Displacement in Georgia Internal displacement in Georgia is predominantly the result of conflict. As of May 2011, there were some 256,100 conflict-induced internally displaced persons (IDPs) in Georgia, amounting to 5.5 percent of the country’s population. 1 Displacement has resulted from two different conflicts, centered in and around the regions of South Ossetia (also known as Tskhinvali) and Abkhazia. In both cases, conflict and consequent largescale displacement have occurred in two main phases: first, with the outbreak of conflict in both regions in the early 1990s; and second, with the renewal of hostilities in and around South Ossetia that also have affected Abkhazia, for five days in August 2008. Between the two peak phases of conflict have been extended periods of several years characterized by the absence of active hostilities but also by lack of peace, leading to their classification as so-called “frozen” conflicts. The IDPs resulting from these two distinct periods of displacement commonly are referred to as the “old” and “new” IDPs. “Old” IDPs refers those affected by the internal displacement that occurred in the early 1990s. Following the disintegration of the Soviet Union and Georgia’s resulting declaration of independence in 1991, conflicts broke out in South Ossetia and Abkhazia over their claims to self-determination. Combined, the two conflicts displaced some 300,000 people during the period of active hostilities, from 1991 to 1992 in South Ossetia and from 1992 to 1993 in Abkhazia. Most of the displacement 1 Figures current as of end May 2011, provided to the author in July 2011 by the Government of Georgia, Ministry for Internally Displaced Persons from the Occupied Territories, Accommodation and Refugees. For further discussion, see analysis under Benchmark 3, below. Erin Mooney 179 occurred within the internationally recognized borders of Georgia, and the patterns of displacement showed a strong ethnic dimension. The vast majority of the IDPs are ethnic Georgians displaced from Abkhazia. In addition, some 20,000 IDPs, ethnic Ossets as well as ethnic Georgians, resulted from the conflict in South Ossetia, of whom half remained within South Ossetia while the other half fled to Georgia proper. 2 Additional, smallerscale displacement in connection with these conflicts took place several years later, following a resurgence of hostilities in May 1998 in Abkhazia and in July-August 2004 in South Ossetia. During the several years of socalled “frozen” conflict, a certain amount of return to these areas took place. An estimated 45,000 to 50,000 people spontaneously returned to the Gali region of Abkhazia—returns that officially are unrecognized by the Georgian government (see Benchmarks 3 and 10)— while the organized return to South Ossetia of several thousand IDPs as well as refugees—of whom 5,735 were assisted by the UN High Commissioner for Refugees (UNHCR)—occurred between 1997 and 2005. 3 2 The conflict in Abkhazia displaced some 240,000 people, the vast majority of whom are ethnic Georgians who were displaced from Abkhazia into other parts of Georgia; smaller-scale short-term displacement also occurred within Abkhazia, though even approximate figures are unknown. The conflict in South Ossetia displaced an estimated 60,000 people, of whom approximately 20,000 became IDPs: some 10,000 ethnic Georgians fled the conflict region into areas of the country under the control of the government of Georgia while 5,000 ethnic Ossets were displaced within South Ossetia and were joined by a further 5,000 Ossets who fled into South Ossetia from other parts of Georgia. In addition, some 40,000 people, mostly ethnic Ossets fleeing the conflict in South Ossetia, crossed the border into the Russian Federation region of North Ossetia. 3 UN Commission on Human Rights, Report of the Representative of the Secretary-General on Internally
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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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Conclusion Benchmark 2 Raise Nation
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Benchmark 3 Data Collection on Inte
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—Current location and location of
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its registration rolls intra-urban
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and profiling of three types of IDP
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the government of Afghanistan under
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Benchmark 4 Training on the Rights
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actions of DRC authorities and nong
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the provision of technical support
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Justice, National Cohesion and Cons
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February 2010; one outcome of the t
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Benchmark 5 Ensure a Legal Framewor
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Conclusion Benchmark 5 Ensure a Leg
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Benchmark 6 Develop a National Poli
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Benchmark 7 Designate an Institutio
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not necessarily influence such chan
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Institutional mandate and responsib
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this body include preparing “stra
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lead state agency may turn to other
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a division of functions being made
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Benchmark 8 Benchmark 8 Support NHR
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Benchmark 8 Support NHRIs to Integr
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Benchmark 9 Facilitate IDPs’ Part
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The process of participation is gen
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Georgia represents an especially in
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about the national policy. 16 Sudan
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and reinforce durable solutions. 27
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was 12 million, or 62 percent of th
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displacement. 52 In the run-up to t
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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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