From Responsibility to Response: Assessing National - Brookings

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CHAPTER 3 Translating National Responsibility into Response: Further Observations test this hypothesis, and we recommend further research in assessing national responsibility in such countries. Yet, even among the fifteen countries selected for this survey, there is a broad range of numbers of IDPs: from just over an estimated 200,000 IDPs in the Central African Republic at the peak of displacement there to millions in, for example, Sudan and Colombia. Examining those cases could provide at least preliminary findings until a wider range of cases can be examined. Moreover, in selecting the additional six countries to survey, consideration was given to the magnitude of the IDP population relative to the total population of the country. Especially with respect to raising national awareness and mobilizing adequate resources, the relative size of the IDP population would seem to be more important than the absolute number of IDPs. Yet, it also must be noted that the magnitude of an IDP population can change—often dramatically—over time. For example, the number of reported IDPs in Afghanistan fell from a high of 1.2 million in 2002 to around 350,000 in 2010 while the number of IDPs in Pakistan fell from a reported 3 million in 2009 to “at least 980,000” in 2010 (see figure 3-2 below). But all such figures need to be treated with caution. Both government and international statistics are estimates and, at best, a snapshot at a particular moment in time. Moreover, IDPs in general are a mobile population. Figures may either decrease or increase simply due to improvements in data collection methods rather than any objective change in the situation. Moreover, IDPs’ own experience tends to be highly dynamic—they may move back and forth between different host communities, return to their original communities for a while and then move back to host communities, or move to spontaneous settlements or other locations— which complicates the compilation of reliable figures. Returning to the question posited, the findings do not reveal any clear, reliable connection between the number of IDPs and the degree of national responsibility exercised. If anything, the magnitude of displacement has tended to be a precursor of poor government performance overall, as evident in particular in the cases of Sudan, Turkey and Colombia, all of which surpass the 1 million IDPs mark. That said, the size of the IDP population nonetheless may 306 indirectly help to develop the national response inasmuch as a large number of IDPs often is a major trigger of international concern and pressure (for example, in Sudan, Turkey and Colombia), which may trigger a better government response. Duration of Displacement In chapter 1 of this study, we posited a possible correlation between duration of displacement and government response, noting that governments might be unable to implement all or many of the benchmarks in the immediate emergency phase of displacement but that as displacement became protracted, they would be more likely to take measures to address IDPs’ needs. However, we also noted that it could be that a protracted displacement signaled poor performance in terms of the exercise of national responsibility. Figure 3-3 indicates the time when the first known major internal displacement first began. Analysis of internal displacement in the fifteen countries assessed in this study reveals that the process of fulfilling national responsibility to IDPs tends to be dynamic. It also tends, in general, to be gradual, with incremental steps taken toward implementing the benchmarks over time. However, it is not necessarily a linear process: while generally there tends to be gradual progress, there also are examples of “backsliding” caused, for instance, by a change in the political context, such as change in government. In other cases, a certain “compassion fatigue” may set in as displacement becomes protracted, especially if resource constraints increase. Internal displacement may be protracted for various reasons: conflicts drag on, peace processes are nonexistent or become stalled and durable solutions are elusive. 2 About two-thirds of the world’s IDPs have been 2 See Elizabeth Ferris, Resolving Internal Displacement: Prospects for Local Integration (Washington: Brookings- LSE Project on Internal Displacement, June 2011); Alex Mundt and Elizabeth Ferris, “Durable Solutions for IDPs in Protracted Situations: Three Case Studies” (www.brookings. edu/papers/2008/1028_internal_displacement_mundt. aspx).
CHAPTER 3 Translating National Responsibility into Response: Further Observations Figure 3-2. For the 15 countries assessed in this study: Basic IDP population estimates c Country Number of IDPs Percentage of total population Peak number (year) Afghanistan At least 352,000 At least 1.2 1,200,000 (2002) Central African Republic 192,000 4.30 212,000 (2007) Colombia 3,600,000 – 5,200,000 8 – 11.6 3,600,000 – 5,200,000 (2010) Democratic Republic of the Congo 1,700,000 2.5 3,400,000 (2003) Georgia Up to 258000 Up to 6.1 Undetermined Iraq 2,800,000 9.00 2,840,000 (2008) Kenya About 250,000 0.60 650,000 (2008) Myanmar At least 446000 At least 0.9 Undetermined Nepal About 50,000 About 0.2 200,000 (2005) Pakistan At least 980,000 At least 0.5 3,000,000 (2009) Sri Lanka At least 327,000 At least 1.6 520,000 (2006) Sudan 4,500,000 – 5,200,000 10.5 – 13 Darfur: 2,700,000 (2008); Southern Sudan: 4,000,000 (2004) Turkey 954,000 – 1,201,000 1.3 – 1.6 1,201,000 (1992) Uganda At least 166,000 At least 0.5 1,840,000 (2005) Yemen About 250,000 About 1.0 342,000 (2010) c As of December 2010, for displacement due to conflict, generalized violence and human rights violations. Source: IDMC, Internal Displacement: Global Overview of Trends and Developments in 2010, March 2011 (www.internal-displacement.org). Figure 3-3. First major wave of displacement for current IDP caseloads d Country Date Afghanistan 2001 Central African Republic 2005 Colombia 1960 Democratic Republic of the Congo 1996 Georgia 1992; 2008 (S. Ossetia); 1994, 2008 (Abkhazia) Iraq 1968 Kenya 1991 Myanmar 1962 Nepal 1996 Pakistan 2006 Sri Lanka 1983 Sudan 1983 (S. Sudan); 2003 (Darfur) Turkey 1984 Uganda 1988 Yemen 2004 d Of the 15 countries assessed in this study. Source: IDMC, Internal Displacement: Global Overview of Trends and Developments in 2010. 307
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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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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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