From Responsibility to Response: Assessing National - Brookings

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Khobi, Georgia / Rusudani, aged 27, stands with her child in one of the dark rooms at the Khobi Swimming Complex. Rusudani and her children live with 10 other families in the swimming complex. Photo: UNHCR / P. Taggart / October 2008
Georgia From Solidarity to Solutions: The Government Response to Internal Displacement in Georgia person of the commission. 112 The resulting strategy designated the MRA as responsible for performing “the leading role, responsibility and coordination function for the elaboration of programs and monitoring outcomes of their implementation” related to the State Strategy on IDPs. 113 In December 2008, the MRA’s responsibilities for the State Strategy were updated and elaborated to include developing a revised action plan for implementation of the strategy with an emphasis on its second goal, improving the living conditions of IDPs in their place of displacement. 114 Historically, however, the MRA has underperformed as the national institutional focal point for addressing internal displacement. In particular, the ministry has been constrained by weak institutional capacity and limited political leverage within the government. Indeed, until only very recently, the MRA could have been described as a “caretaker” ministry, focused mainly on care and maintenance issues—namely disbursing IDPs’ monthly allowance and supervising management of the collective centers—even more than a decade after displacement first occurred. In line with government policy emphasizing exclusively the right to return, MRA was inactive in advocating for more durable solutions for IDPs—for instance, improved shelter and socioeconomic conditions, enhanced self-reliance, and the possibility of local integration. At the same time, the MRA’s role as the focal point institution for IDPs was undermined by the strong and active role played until recently by the so-called Abkhaz government in exile. Following the mass displacement from Abkhazia in 1993–94, the government, including elected officials as well as administrative staff, that had 112 Government of Georgia, Decree No. 80, On Establishing Government Commission for Elaborating the State Strategy for Internally Displaced Persons–Persecuted Persons, 23 February 2006. 113 Government of Georgia, State Strategy, Chapter VII. 114 Government of Georgia, Decree No. 854, On Making Additions to Ordinance No. 47 as of 2 February 2007 on Approving State Strategy for Internally Displaced Persons, 4 December 2008. 203 been in place in Abkhazia effectively was reconstituted, now based in Georgia proper. The Abkhaz government in exile was actively involved in supporting the statelevel response; in fact, each ministry or department of the central Georgian government allowed its counterpart from the government in exile to use its facilities. Activities in which the Abkhaz government in exile actively engaged included disbursing the monthly stipend to IDPs; facilitating family tracing; allocating shelter to IDPs; distributing humanitarian assistance; and providing health services and education, including through “exile” schools that reconstituted schools based on the children’s place of origin and even employed the same teacher. The Abkhaz government in exile also maintained its own military commissariat, tax authorities, police force, and so forth, 115 although some of these entities, including the police force in exile, were disbanded after the Rose Revolution of 2003. That parallel system of services had certain advantages in terms of preserving IDPs’ links to their community of origin as well as providing employment for displaced civil servants, including teachers, but especially after displacement became protracted, it did not facilitate IDPs’ integration into the local communities in their place of displacement. The government in exile also exerted strong political influence, on both IDPs and the central government, advocating a hard line approach that emphasized return only, and until 2004, the central Georgian government officially recognized the exiled government of Abkhazia as the political representative of the displaced (see Benchmark 9b). In practice as well as perception, it supplanted the MRA in terms of several core responsibilities toward IDPs and eclipsed the MRA in terms of leading the government response 115 UN Commission on Human Rights, Report of the Representative of the Secretary-General on Internally Displaced Persons, Mr. Francis Deng—Addendum: Profiles in Displacement: Georgia, 2001, paras. 19, 53, 55; Julia Kharashvili, “Georgia: Coping by Organizing. Displaced Georgians from Abkhazia,” in Caught Between Borders: Response Strategies of the Internally Displaced, edited by Marc Vincent and Birgitte Refslund Sorensen (London: Pluto Press), pp. 234–35.
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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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vote is by no means consistent (for
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Benchmark 10 Establish the Conditio
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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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From Responsibility to Response: Assessing National - Brookings

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