A Community-Based Approach in UNHCR Operationss3.amazonaws.com/inee-assets/resources/doc_1_80... ·...

A Community-Based Approach in UNHCR Operations

Provisional Release June 2007

Table of Contents

Table of Contents

1. Introduction and overview .............................................................................................. 1 1.1 Background ......................................................................................................................................................................................................................................................... 1

1.2 The aim of this manual ................................................................................................................................................................................................................................ 2

1.3 Audience ............................................................................................................................................................................................................................................................... 2

1.4 Structure ................................................................................................................................................................................................................................................................ 3

2. The context, concepts and guiding principles ....................................... 5 2.1 The context .......................................................................................................................................................................................................................................................... 5

2.2 What is a community-based approach? ........................................................................................................................................................................................ 7

2.2.1 Community ....................................................................................................................................................................................................................................... 7

2.2.2 A community-based approach .......................................................................................................................................................................................... 8

2.3 Guiding principles .......................................................................................................................................................................................................................................... 9

2.3.1 A rights-based approach ........................................................................................................................................................................................................ 9

2.3.2 Meaningful participation ..................................................................................................................................................................................................... 10

2.3.3 Age, gender and diversity analysis ................................................................................................................................................................................ 11

2.3.4 Empowerment ............................................................................................................................................................................................................................ 12

2.3.5 Ownership, solutions and sustainability ................................................................................................................................................................... 13

2.3.6 Transparency and accountability ................................................................................................................................................................................... 14

2.4 Why use a rights- and community-based approach? ....................................................................................................................................................... 15

3. Implementing a community-based approach ....................................... 17 3.1 Situation analysis .......................................................................................................................................................................................................................................... 17

3.1.1 Information analysis ................................................................................................................................................................................................................. 18

3.1.2 Stakeholder analysis ................................................................................................................................................................................................................ 20 3.1.3 Establishing contact with the community .............................................................................................................................................................. 26

3.1.4 Participatory assessment, expectations, time and resources .................................................................................................................... 28

3.1.5 Participatory planning ............................................................................................................................................................................................................ 34

3.2 Community mobilization and empowerment ....................................................................................................................................................................... 36

3.2.1 Community mapping of management structures ........................................................................................................................................... 37

3.2.2 Community-based representation ............................................................................................................................................................................... 39

3.2.3 Community-based protection responses and solutions .............................................................................................................................. 42

3.2.4 Community strengthening and capacity building ........................................................................................................................................... 50

3.2.5 Community action planning............................................................................................................................................................................................. 54

3.2.6 Community action teams ................................................................................................................................................................................................... 56

3.2.7 Community-based monitoring and evaluation .................................................................................................................................................. 58

A Community-based Approach in UNHCR Operations, Provisional Release

4. Knowledge, skills, attitudes and multifunctional teams .............. 61 4.1 Knowledge ........................................................................................................................................................................................................................................................ 61

4.2 Skills ........................................................................................................................................................................................................................................................................ 62

4.3 Attitudes ............................................................................................................................................................................................................................................................. 62

4.4 Multifunctional teams ............................................................................................................................................................................................................................... 64

5. Considerations for specific contexts ............................................................... 67 5.1 Emergencies .................................................................................................................................................................................................................................................... 67

5.2 Urban situations ............................................................................................................................................................................................................................................ 69

5.3 Return and reintegration ........................................................................................................................................................................................................................ 70

5.4 Internally displaced persons ................................................................................................................................................................................................................. 71

1. Introduction and overview

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1 Introduction and overview This section explains the background to the manual and outlines its aim, the intended audience and its structure.

1.1 Background In recent years, UNHCR has gradually changed its focus, from individual service delivery to a greater emphasis on building on the knowledge, skills and capacities of people of concern1 and their communities. This change requires UNHCR staff to recognize that people of concern are resourceful, active partners who play a fundamental role in their protection as outlined in UNHCR’s 2001 Community Development Policy.2 This approach is based on the understanding that placing people of concern at the centre of operational decision making and building protection strategies in partnership with them will lead to their improved protection, the strengthening of their capacities to build and sustain solutions and a more effective use of resources based on the priorities of those to whom we deliver our services. It is also based on the premise that persons of concern have a right to information and transparency and to participate in the decisions affecting their future. These principles are central to a rights- and community-based approach, and underline the accountability of UNHCR and partner staff to the people of concern for delivering effective programmes. Agenda for Protection, Goal 3 “States, UNHCR and other partners to put in place or mobilize community-based systems and networks, including in particular for the protection of women and children, at the outset of the emergency phase through to the attainment of durable situations.” UNHCR, 2003

This overall shift in emphasis requires that UNHCR and partner staff move from perceiving people of concern as dependent beneficiaries, who are to be “saved and assisted”, to seeing them as equal partners who take an active role in protecting themselves and providing for their basic needs even in emergency situations. A 2002 evaluation of the community services function in UNHCR highlighted many of the institutional challenges to effective community work and the need for an attitudinal change within the institution.3 The evaluation recommended the revision of the community services guidelines and manuals to reflect a vision of people of concern as partners with capacities, the critical relationship

1 “People of concern” is used throughout this manual to refer to asylum seekers, refugees, returnees, stateless persons and internally displaced. 2 “Reinforcing a Community Development Approach”, UNHCR, EC/51/SC/CRP.6, 15 February 2001. 3 “Towards Community-Based Solutions: Evaluation of UNHCR’s Community Services Function”, EPAU/UNHCR, (Casa Consulting, Geneva, 2002).


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between community services and UNHCR’s protection mandate, and the need to clarify concepts and terminology. This manual has been developed as a follow-up to the recommendations of the 2002 evaluation as well as to support the implementation of UNHCR’s policy on community development, the Agenda for Protection and the Age, Gender and Diversity Mainstreaming Strategy.4 The manual should be used in tandem with the “UNHCR Tool for Participatory Assessment in Operations”, which is an important element of the community-based approach.

1.2 The aim of this manual The overall aim of this manual is to guide UNHCR and partner staff in implementing a community-based approach in our operations to ensure that people of concern are placed at the centre of all decisions affecting their lives, and thus improve their protection and support them in exercising their rights and finding longer-term solutions.

The manual’s aims are: – to build a common understanding among UNHCR and partner staff of the community-based

approach, its role in protection, its relationship to a rights-based approach and the underlying principles of participation, inclusiveness and equality;

– to increase staff capacity to mobilize and support community structures which represent women, girls, boys and men of all ages and backgrounds and build community-based protection responses and sustainable solutions;

– to provide practical guidance and examples on the implementation of a community-based approach in operations to enable the mobilization and participation of all persons of concern in the development of common goals and action plans to deliver protection, assistance and solutions; and

– to strengthen a multifunctional team approach in operations, highlighting the required knowledge, attitudes and skills to implement a community-based approach.

Each situation of displacement is unique, and there is no simple blueprint for applying a community-based approach, but there are common guiding principles. UNHCR and partners will always need to undertake an in-depth analysis with all the community members in order to agree on the best strategies.

1.3 Audience This manual has been developed for all UNHCR and partner staff. A community-based approach requires the understanding, cooperation and coordination of staff at all levels, including senior management as well as programme, protection, community services, logistics, technical services and public information staff. The manual should be reviewed, read, understood and put into practice by everyone at policy, operational, advocacy and monitoring levels. The manual should be read in conjunction with other manuals which provide additional guidance for particular contexts, such as the UNHCR Handbook for Repatriation and Reintegration Activities, May 2004.

4 The UNHCR 2005 Age, Gender and Diversity Mainstreaming Strategy builds on a rights and community-based approach, as it is fundamental to analysing community dynamics and promoting the rights of women, the rights of children and the rights groups who are traditionally marginalized.

1. Introduction and overview

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1.4 Structure The remainder of the manual is organized as follows. Section 2: Context, concepts and guiding principles. This section describes the operational context, defines a community-based approach, highlights the underlying principles which should guide activities and explains its relevance to UNHCR operations. Section 3: Implementing a community-based approach. This section provides detailed and practical information on the main elements of the approach. It outlines the different steps required, from situation analysis to community mobilization and empowerment. As the different elements are presented, suggestions on how to proceed are highlighted in the form of a checklist with “tips”. Section 4: Knowledge, skills, attitudes and multifunctional teams. This section highlights the required knowledge, skills and attitudes that staff must adopt in order to be consistent with the principles of the approach. It explains why multifunctional team work is necessary for implementing a community-based approach and provides practical guidance on establishing first contacts with a community. Section 5: Considerations for specific contexts. This section looks at some factors that will need to be taken into consideration in different operational contexts. It starts with issues to be considered in all situations and then looks at those arising in emergencies, protracted refugee situations, internally displaced settings, self-settlement, urban settings, return and reintegration. Throughout the manual examples and case studies are given to illustrate points being made, to show difficulties that can arise, and to provide ideas and suggestions of good practice. These are based on the experiences of displaced communities, staff and partners. The systematic development and use of a community-based approach is an ongoing learning process, and new examples will continue to arise. These will be documented and incorporated in revised versions of this manual. Annex 1: Toolkit. This section contains a number of practical tools which can be used in working with the communities or directly by the communities themselves. The tools are gathered from a variety of other agencies. Annex 2: Reference materials. A list of reference materials is provided for further guidance. Annex 3: Terms of reference for community services officers and tips for working with community members as part of the team. Annex 4: Sample documents are provided which might be helpful for the different activities required, such as a sample mapping of partners from Jordan.

2. The context, concepts and guiding principles

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2

The context, concepts and guiding principles

This section outlines the context in which we work, defines a community-based approach and explains its relevance to UNHCR operations and highlights the underlying principles which should guide our activities.

2.1 The context UNHCR is mandated to provide international protection to persons of concern. Protection includes physical security and the restoration of human dignity. This requires supporting communities to rebuild their structures and to attain psychosocial wellbeing and respect for their rights, as well as to find durable solutions. Protection encompasses all activities aimed at ensuring equal access to and enjoyment of their rights by women, girls, boys and men of all ages and backgrounds, in accordance with the letter and spirit of the relevant bodies of law, including international refugee law, international human rights law and international humanitarian law.5 Forced displacement has severe effects on people’s lives and will affect women, girls, boys and men in both similar and different ways. The immediate trauma and disruption experienced can lead to individuals feeling confused, insecure and isolated in a strange and sometimes hostile environment. Separation from or loss of family members, the loss of material resources and a lack of community support can add to the emotional stress experienced. Social, economic and cultural changes brought about by violent displacement may contribute to and create critical protection risks and psychosocial distress. The protection risks and levels of distress will vary depending on a wide range of factors, including the age, sex and background of the affected persons. For example, women and girls are traditionally less likely than men and boys to have access to their fundamental rights to, for example, food, health care, shelter, documentation and resources, and often do not participate in decision-making structures. Moreover, women and girls are more likely than boys and men to be subject to sexual and gender-based violence. Women with disabilities and older women are exposed to sexual and gender-based violence and yet their situation is frequently overlooked. Groups or persons with specific needs,

6 See Sexual and Gender-Based Violence against Refugees, Returnees and Internally Displaced Persons: Guidelines for Prevention and Response, UNHCR (May 2003). This definition of protection has been derived from the Third Workshop on Protection, Background paper, ICRC (7 January 1999), which states, “The concept of protection encompasses all activities aimed at obtaining full respect for the rights of the individual in accordance with the letter and the spirit of the relevant bodies of law (i.e. HR law, IHL, refugee law).”


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such as persons with mental health challenges or unaccompanied and separated children, may be further marginalized due to their apparent ‘invisibility’, particularly in the emergency phase. Despite the chaos and trauma, people have remarkable coping capacities, even under extreme circumstances. In a relatively short period community structures can reappear or new ones emerge as people begin to deal with day-to-day living and the need to provide for and protect their families and dependents, young and old. Identifying and understanding these realities, barriers, capacities and coping mechanisms are essential components in the application of a community-based approach. It is important to be aware of the broader political context, to recognize and understand changes in roles and power shifts between women and men, young and old, and majority and minority groups, and to work with leaders and all members of the community to ensure respect for rights and equality rather than creating parallel community structures. This will ensure that external interventions do not undermine traditional community structures while working to ensure the protection of all the members. The new dynamics within the community will often lead to change and provide important opportunities for strengthening democratic and equitable structures. In the operational context, working with the community to understand the roles, dynamics and politics of the different members is essential in order to be informed about the protection risks faced by different groups in a particular situation of displacement, depending on their age, gender and diversity.6 Close collaboration is required by UNHCR with government and non-government partners and national and international agencies in partnership with persons of concern in order to deliver protection and assistance using a rights- and community-based approach to empower people to claim their rights.

6 “Age” relates to children, adolescents or youths, and older persons, and helps one to consider how risks and needs change according to where people are in the life cycle. “Gender” refers to the roles assigned to girls and boys, women and men in any given society and how these influence and determine their status and their access to and control over resources and power and decision making. “Diversity” refers to differences among people which can lead to discrimination in areas such as disability or impairment, ethnic or religious background, etc. Age and gender could be included in diversity and age and diversity could be included in gender. For the sake of clarity UNHCR refers to all three, since experience has demonstrated that failure to do so leads to certain groups being overlooked.


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Ten tips on changes to look out for in the context of displacement

With loss or separation from family members, older persons might take responsibility for their

grandchildren in ‘grandparent-headed households’, adolescents might become sole carers of

younger siblings or women might become single heads of families.

Older persons may be marginalized if their traditional sources of power, such as respect for the

elderly, control over land and property, or a leadership role in resolving disputes, are

undermined.

Dependent persons, particularly older persons, persons with disabilities and unaccompanied

and separated children, who have lost traditional support from family and neighbours, might be

left out of food distribution or other essential services.

Persons with disabilities can be placed at higher risk of sexual abuse if they have lost family

support.

Unaccompanied and separated children might be subject to abuse and exploitation and/or

military recruitment.

Educated young people may rise to positions of authority because they can speak English or

French – which are often the main languages of the agencies – and this can undermine

traditional leadership roles while also providing an opportunity for change.

New leaderships can be created on the basis of issues such as control over resources, control of

arms or political affiliation, and have a negative impact on the community.

Agencies may channel their assistance exclusively through women to ensure that it reaches the

whole family. As a result, the decision-making role of women in the home might be increased, or

women may take up tasks such as paid work when previously they have never worked outside

the family. These changes may be supported by the family and community, but can sometimes

also lead to different protection risks.

Men who traditionally derived their status from providing for their families may experience low

self-esteem and loss of control.

Changing roles can bring positive and negative consequences; it is essential to analyse the

different protection risks which result from loss of power, marginalization and changing status,

and to be aware of the potential for the misuse of information and power, especially in the initial

stages.

2.2 What is a community-based approach? For the purposes of enabling a common approach and understanding at an operational level, UNHCR has adopted the following working definitions of “community” and “community-based approach”.

2.2.1 Community

“Community” can be described as a group of people that recognizes itself or is recognized by outsiders as sharing common cultural, religious or other social features, and a common background and interests, forming a collective identity with common goals. However, what is externally perceived as a community


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may in fact be an entity with many subgroups or communities, divided into clans or castes or by social class, language, religion and so on. A community might be inclusive and protective of its members, but it might also take the form of increased social control with imposed norms, making it difficult for sub-groups, particularly minorities and marginalized groups, to express their opinions and claim their rights. In refugee and displacement settings, where people are often very diverse, with different nationalities, religions, languages, ethnicity, and backgrounds, they may not have a sense of belonging to a community. People may find themselves living in a temporary “community” due to flight from persecution, conflict, statelessness and other such circumstances. These situations might be more evident in camp settings, transit and reception centres, or urban dwellings, where lack of economic options, restrictions on freedom of movement and/or external decisions on accommodation can dictate who the next-door neighbour will be. In some urban situations, especially for internally displaced persons, people may even prefer to keep their identity hidden. In these contexts it can be particularly challenging to identify a group of individuals, mobilize people and create a sense of common purpose to work towards resolving protection risks and finding solutions. Such situations will require a pro-active outreach strategy by staff to identify informal networks and mobilize people to come together to develop common goals or tasks and mechanisms to support their participation in the design, implementation and monitoring of services and solutions. In some cases, particularly urban ones, displaced people may have assimilated well into existing sub-groups and will not actually require this kind of support. Working with displaced persons inevitably means learning about the host community, seeing them as actors and addressing their concerns as far as possible.

2.2.2 A community-based approach

A community-based approach is a way of working that is based on an inclusive partnership with communities of persons of concern which recognizes their resilience,7 capacities and resources. It mobilizes and builds on these to deliver protection, assistance and solutions while supporting community processes and goals. A community-based approach requires UNHCR and its partners to build an equal and active partnership with women, men, girls and boys of diverse ages and backgrounds in all areas of work. It demands both an understanding and consideration of the context, the receiving population, gender roles, community dynamics, protection risks, concerns and priorities and working with the people of concern during the various stages of UNHCR’s programme cycle. It calls for the recognition of our facilitation role as external actors and our limitations in terms of capacities, resources and the temporary nature of our presence, as well as the longer-term impact of our interventions. The community-based approach reinforces the dignity and self-esteem of the people of concern and seeks to empower all the actors8 to work together to support the different members of the community in exercising and enjoying their human rights. The community-based approach is not limited to a particular function or sector of work; it forms an

7 “The concept of resilience is founded on the observation that under traumatic or otherwise adverse circumstances, some people cope relatively well while others fail to do so … When applied to people, it describes the capacity of the person to ‘bounce back’.” Community Mobilization, ARC Resource Pack, January 2001, p. 11. 8 The term “actors” is understood to include the community.


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overarching way of working that should guide and inform all UNHCR staff and partners in the work with persons of concern. Using a community-based approach will increase our understanding of existing community structures and dynamics, power relations, coping mechanisms and main protection risks, and enable us to ensure that planned activities are relevant and strengthen community capacities. It supports persons of concern in re-establishing familiar cultural patterns and support structures. This approach can help communities to work to prevent social problems and to deal directly with those that do arise, rather than undermining these capacities by having external actors step in and assume these responsibilities. However, where traditional support mechanisms are discriminatory or contravene human rights standards, UNHCR and all agencies will need to work in partnership with the community to change these. An IDP working-group paper, Community-based Protection in Somalia,9 highlights the challenges faced by agencies such as UNHCR when adopting a community-based approach, which ideally requires maintaining an “open” menu whereby the community freely defines how it works and what it prioritizes. For UN agencies and rights-based partners, this poses a particular challenge in view of our specific responsibilities for upholding rights, particularly in the areas of protecting women and children and for which we are held accountable by governments. It calls for a delicate balance between respecting the will and ideas of individuals and the community, while not undermining individual rights. Our responsibility to respect individual human rights and the goals of our agencies may not coincide with community practices or priorities; UNHCR and partner staff should therefore work with the community to find ways both to combine the priorities of the community and to ensure the protection of all its members and the equitable delivery of assistance. In our daily work this can translate into introducing new practices such as the vaccination of children, the education of girls, mechanisms for the fair distribution of food and assistance items, equal participation of women in decision making and the prevention of sexual and gender-based violence. We must be open and transparent about our goals, obligations and responsibilities, listen closely to those of the community and build mutual understanding and common ground. For UNHCR, which is mandated to ensure the protection of all members of the community, these considerations are paramount, and the guiding principles outlined below should always be at the forefront of our work.

2.3 Guiding principles There are a number of guiding principles which must be understood, since they provide a common legal and ethical basis for our work and provide for a successful community-based approach.

2.3.1 A rights-based approach10 A rights-based approach is a conceptual framework11 that integrates the norms, standards and principles of the international human rights system into the policies, programmes and processes of development

9 “Community-based Protection in Somalia, a study to examine the role of protection in community mobilization”, IDP working group, Nairobi, Somalia, November 2006, p. 38 10 Adapted from the Draft Interagency Handbook on Internally Displaced Persons (2007), ch. 1, “The Foundations of Protection”. 11 The concept of a rights-based approach has featured prominently on the international agenda and in inter-agency dialogues since the United Nations Secretary-General, in the 1997 UN Programme for Reform, called on all agencies of the United Nations to integrate human rights into their activities within the framework of their respective mandates.


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and humanitarian actors. It therefore focuses on both outcomes and processes.

One of the most important roles of … organization is to support rights-holders to claim their rights. This

requires major shifts in the way many agencies are working. Rather than delivering services and doing

advocacy work on behalf of poor and disadvantaged people, a rights-based approach requires

organizations to support people to demand what they are entitled to. … A rights-based approach

demands that agencies work together to support broad processes of change in society. Supporting

participatory processes that bring together government and civil society is one of the most effective ways

to change relationships between rights holders and duty bearers.

Joachim Theis, “Challenges for a Rights-based Approach”, Children’s Rights Information Newsletter, no. 18, March 2005, p. 28.

Using a rights-based approach requires that our policies, programmes and activities are based on international legal standards and further the realization of the rights of women, girls, boys and men of all ages and diverse backgrounds. It also requires community leaders, as well as community members, to consider their roles as both rights holders and duty bearers. A rights-based approach identifies rights holders (women, girls, boys and men of concern) on the one hand and duty bearers (principally the state and its agents) on the other. It seeks to strengthen the capacities of rights holders to make their claims and of duty bearers to satisfy these claims. This also requires reviewing national legislation relevant to displaced persons and advocating with other agencies, particular UN sister agencies, for changes to bring them in line with human rights instruments. It is founded on the principles of participation and empowering individuals and communities to promote change and enable them to exercise their rights and comply with their duties. This requires an attitudinal shift in how we work with and for persons of concern and communities, who are no longer viewed as beneficiaries of aid but as rights holders with legal entitlements. Hence a rights-based approach is integral to a community-based approach, and they are founded on common principles and goals; this manual therefore supports the implementation of a rights- and community-based approach.12

2.3.2 Meaningful participation

“Participation” refers to the full and equal involvement of all members of the community in decision-making processes and activities in the public and private sphere that affect their lives and the lives of the community. For it to be authentic, we must first recognize that true participation means that as an organization we really have to create a space for this process, in terms of both time and human resources. It may also require that many of us move away from “informing and deciding for people” to listening and inviting them to determine outcomes and priorities based on their knowledge and capacities. Active participation by women, girls, boys and men of all ages and diverse backgrounds is an essential part of

12 Many would argue that it is sufficient simply to refer to a rights-based approach. Nonetheless, within UNHCR there is a need to emphasize both a rights- and a community-based approach until there is a better understanding of the concept. It also requires visible application of the term “protection” in its fullest sense and is an important means of strengthening the links between protection and community services staff and supporting a multifunctional team approach.


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meaningful community participation and is necessary to ensure age, gender and diversity analysis and effective planning for protection. For further guidance on how to undertake participatory assessment refer to the UNHCR Tool for Participatory Assessment in Operations (UNHCR, 2006) and Section 3.1.4.

Meaningful participation will often require the provision of additional support to ensure that those traditionally marginalized, such as women, children, older persons, persons with disabilities and minority groups are provided with specific opportunities to participate and to build on their capacities. In addition to giving these groups the necessary support and training to enable them to take full advantage of these situations, work with the traditional leaders may well be necessary to create space for participation and to ensure active support from the leaders. The latter is essential to avoid token participation and failure and thus reinforcement of the marginalization and discrimination.

A number of international legal standards emphasize the importance of the right to participate, in particular of women and children,13 and it is closely linked to the right to information. Participation is sometimes framed narrowly as a method of improving project performance, rather than a process of fostering critical consciousness and decision making as the basis for active citizenship.14 Instead, the meaning of effective participation is to work with all segments of the community as active partners throughout the implementation of programmes to achieve protection as well as to support their goals.

Participation – is a right.

– promotes protection and reduces feelings of powerlessness.

– enables UNHCR to draw on the insights, knowledge, capacities and resources possessed by people of

concern.

– empowers women, men, girls and boys of different backgrounds to rebuild self-esteem and self-

confidence.

– supports people of concern to cope with the trauma of forced displacement.

2.3.3 Age, gender and diversity analysis

Full consideration of issues relating to older and younger persons including children, the power relations between women and men and the subsequent inequalities, and the situation of diverse groups, which because of their differences such as ethnicity, religion, physical and mental status, can lead to exclusion and discrimination, is an integral part of applying a rights- and community-based approach. Experience has demonstrated that it is important to redouble efforts to incorporate explicitly and proactively proper age, gender and diversity analysis in our daily work to ensure that we do focus on promoting rights for all and gender equality. Too often inadequate analysis, which fails to take into consideration the particular reality of each group, leads to actions which are not thought through and can unintentionally lead to exclusion or reinforcing discrimination. To address this, UNHCR adopts a two-pronged approach to promoting gender equality and rights for all: age, gender and diversity

13 Art. 21, Universal Declaration of Human Rights; Art. 25, International Covenant on Civil and Political Rights; Arts. 7, 8, 14, CEDAW; and Arts. 12, 13, 14, 15 and 17, Convention on the Rights of the Child. 14Adapted from Lisa Veneklasen, Valerie Miller, Cindy Clark and Molly Reilly, Rights-Based Approaches and Beyond: Challenges of Linking Rights and Participation, IDS Working Paper 235, Institute of Development Studies, Brighton (December 2004).


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mainstreaming and targeted action. This requires (i) age, gender and diversity analysis and corresponding actions in all areas of our work; and (ii) when the analysis indicates inequalities, the implementation of targeted actions to support and empower discriminated groups to exercise their rights.

2.3.4 Empowerment

Power can be defined in terms of the ability to make informed choices: to be disempowered, therefore, implies to be denied choice. Empowerment is therefore linked to the condition of disempowerment and refers to the processes by which those who have been denied the ability to make informed choices acquire such ability.15 People are empowered when they are able to become active and informed agents in their own processes and to influence

decision making around them and claim their rights. For such change to achieve meaningful and sustainable empowerment, it must encompass both individual awareness and transformation at the structural level.

Working with people of concern in a mutual partnership of empowerment requires an understanding of the power relations in a given community. Some individuals are always more powerful than others and there can be many reasons for this: age, gender roles, ethnicity, political affiliation, economic situation and so on. We should analyse with communities the benefits of equitable power sharing. Generally, however, men have more power than women and adults have more power than children, while persons with disabilities are often completely excluded. In displacement, power relations change and these shifts must be well understood. Working with men and women on power relations will require considering the multiple roles men have as well as women, and how they can both benefit from changes in those gender roles which may be limiting their capacities to enjoy their rights. For example, for some men the way in which they “learn and are taught” to be fathers can be a restrictive experience. This can be an interesting entry point for exploring their role and power.16 Empowerment is thus a process by which women, girls, boys and men of diverse backgrounds gain increased access to knowledge and resources and the capacity to claim their rights, and their capacities and skills are recognized by others. It requires traditional power holders to revisit their position and open up to broader participation, greater sharing of information, resources, decision making and transparency. The process also enables individuals and communities to analyse their situation, increase their control over their environment and participate in decision-making processes and better exercise their rights.17

Empowerment of the community can also result in the positive empowerment of humanitarian workers. The working dynamic can be transformed from one of apparent mutual dependence and an

15 Adapted from Naila Kabeer, Resources, Agency, Achievements; Reflection on the measurement of Women’s Empowerment, Page 19 Sida Stidies No 3, Discussing Women’s Empowerment – Theory and Practice 2001. 16 For more information on working with men and masculinities refer to www.womenscommission.org 16 Adapted from Veneklasen et al., Rights-Based Approaches and Beyond, above note 15.

Sonke Gender Justice, a South African

NGO, has worked towards empowering

persons with HIV/AIDS by teaching them

about its consequences and about which

medication is appropriate for each person.

The objective is to ensure that people can

exercise their right to adequate medical

attention and that they will not be

dismissed or poorly treated by doctors. As

a result affected individuals felt

empowered to insist on asking for the

correct medication, and doctors became

more accountable for their services.


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often overwhelming sense of incapacity experienced by many humanitarian workers18 to meet the numerous needs and competing demands, to one of being realistic about one’s limited role and placing things in perspective and recognizing the roles and responsibilities of members of the community. This can give rise to a more constructive relationship with persons of concern, based on respect for their capacities and views, and enable UNHCR staff and partners to be more effective in supporting the community in the delivery of protection and solutions.

2.3.5 Ownership, solutions and sustainability

Ownership is achieved when the persons of concern in the community assume full responsibility for the continuity of the work and are managing the activities and services; this is the overriding goal of our work. Support and assistance from external actors may still be required due to the absence of resources or access to opportunities (e.g. markets, raw materials, etc.), depending on the circumstances surrounding the crisis that has affected persons of concern. Ownership is the end result of a process that has respected the principles of meaningful participation and empowerment. Too often the mode of working established in an emergency phase transforms into a longer-term approach, rather than seeking from the outset a focus on solutions. Over time this becomes increasingly detrimental to all the stakeholders, and unmanageable protracted displacement situations arise with no solutions in sight. A community-based approach requires building on people’s capacities and skills, not just in relation to the immediate protection risks, but also in the search for longer-term solutions. Sustainability aims at fostering and maintaining the achievements of any support provided to the community to ensure effective protection and solutions. The work will only be sustainable if the principles of the community-based approach are applied systematically throughout the operation by all partners with all actors. UNHCR has a key role in ensuring a consistent approach to build sustainability. If, for example, one partner applies a community-based approach in the health sector, but the partner responsible for camp management does not follow the same principles, there will soon be conflicting messages to the community as well as competition between the agencies. Likewise, if the health authorities are not engaged early on in ensuring a link to the national health system, solutions will be difficult to sustain; consideration of the situation of the host community is also important, since it also may require access to the services provided. In an urban setting, if one agency sets up a centre which provides assistance and cash grants while another fosters the mobilization and organization of the

18 Mark Walkup, “Humanitarianism at Risk: From Threatened Aid Workers to Self-Deceiving Organizations”, in Yael Danieli (ed.), Sharing the Frontline and the Back Hills (Baywood Publishing Company, New York, 2001).

Whose expectations?

In the process of undertaking participatory

assessments in 2005 and 2006, many UNHCR

staff have expressed a fear of not being able

to meet expectations and obtaining “long

shopping lists” from persons of concern. It is

important to understand that such results

are not the final outcome of participatory

processes, but rather the symptom of an

absence of a culture of true participation on

both sides. The solution is not to end the

dialogue and retreat to the safety of our

computers, but rather to intensify and build

a relationship of true partnership and

openness. This means overcoming our fears

and improving our dialoguing skills.


14

community and the need to build on the members’ resources, it is likely that people will only visit the agency which provides quick results, and, in the longer term, the capacity of people to protect themselves will not have been strengthened. When funds run out the agency will find itself with far greater challenges in terms of delivering protection to those most at risk. Sustainability is about community development – that is, building on the skills of community members to manage democratic and fair structures which can effectively respond to both immediate and long-term protection risks and needs, and to develop solutions while upholding individual rights. The dependency–autonomy paradox, often caused by charity-oriented interventions rather than a rights- and community-based approach, can be overcome by applying appropriate policies and strategies that have been developed with the active participation of the affected communities and are implemented by the communities themselves. The support of governments and local authorities and carrying out an analysis with the host community are essential when devising solutions with the displaced community. Their roles, concerns and views should not be overlooked, whatever any preconceptions regarding the position they will adopt. UNHCR and partners, including other UN agencies, can play a catalytic role in bringing local authorities, government partners and the receiving population together to support those displaced and overcome any differences.

2.3.6 Transparency and accountability

Transparency refers to “the provision of accessible and timely information to stakeholders and the opening up of organizational procedures, structures and processes to their assessment”.19 It requires informing people of concern and duty bearers about UNHCR’s protection mandate, policies and capacities and being open about what the organization is able to provide and its human and material resource constraints. Based on an open and systematic dialogue, persons of concern are then in a position to undertake informed decisions on what they would like to prioritize and what results they can reasonably expect, as well as the monitoring and evaluation of the implementation process. Transparency entails building a relationship of trust through mutual efforts to know and understand each other and the provision of continuous feedback to all stakeholders, above all persons of concern, including, but by no means limited to, the leaders. Such a process is essential to minimize the risk of hostility or violence which is often the result of unmet expectations and a lack of information. We often collect information from the community and their leaders without their being clear what the outcomes might be, and then we implement activities without checking to see if they agree to the priorities set. People have a right to understand why we are seeking their participation and what will be the longer-term outcomes. Their participation must be guaranteed throughout the process and not limited to certain aspects defined by us. Accountability is the process through which an organization makes a commitment to respond to and

19 The definitions of transparency and accountability were developed by an initiative known as the Global Accountability Project (GAP), see Monica Blagescu, Lucy de Las Casas and Robert Lloyd, Pathways to Accountability: The GAP Framework (One World Trust, London, 2005), available at http://www.oneworldtrust.org.


15

balance the needs of different stakeholders in its decision-making processes and activities, and delivers against this commitment. UNHCR’s accountability for the delivery of protection requires staff and partners to ensure that individuals of concern are able to participate meaningfully and be informed of their protection risks and monitor the progress made in addressing them.20 It involves raising awareness of rights and responsibilities and developing the capacities of duty bearers such as community leaders, local and national authorities, and UNHCR staff and partners to fulfil their obligations. Understanding and ownership by duty-bearers can be built through their involvement in participatory assessments, protection risk analysis, planning, implementation and monitoring.21 Improving the status of persons of concern as claims holders vis-à-vis the different stakeholders places their interactions with UNHCR and others on a more equal footing.22 In the settings in which UNHCR works, it is necessary to take into consideration the limitations which persons of concern might face in terms of freedom of expression in the presence of authorities, particularly in IDP contexts. It is also important to be clear about who is responsible for what, particularly in terms of the role of the state in providing protection and the limitations which might exist. An essential component of accountability and empowerment is to create the mechanisms for people of concern to evaluate directly our services and attitudes, and then to act on the recommendations (see section 3.2.7, ‘Community-based monitoring and evaluation’).

2.4 Why use a rights- and community-based approach? Establishing an equal partnership and a collaborative way of working with the community through meaningful participation and empowerment based on the principles of international human rights standards and the recognition of rights holders and duty bearers is important for the following reasons. It builds or strengthens the capacities and autonomy of individuals and communities – Community members take responsibility for analysing protection risks and jointly developing

protection strategies, assistance responses and solutions. – Recognizes and supports the ways in which persons of concern protect themselves through their

own social networks and community resources while ensuring individual rights. It promotes respect for rights and the accountability of leadership structures, agencies and states – Community members see that their systems are recognized, reinforced and respected. – Persons of concern learn about their rights and can support a gradual change process where

practices that violate human rights are identified and openly discussed, particularly in relation to women and children.

– Clarifies roles and responsibilities in relation to rights holders and duty bearers, including different agencies and governments.

20 Benjamin Dalle, “Transparency and Its Significance for Enhancing Accountability at UNHCR”, August, 2006. 21 See “The Human Rights-Based Approach to Development Cooperation. Towards a Common Understanding Among the United Nations Agencies”, Annex II in Frequently Asked Questions on Human Rights-Based Approaches to Development Cooperation (Office of the United Nationals High Commissioner for Human Rights, Geneva, 2006). 22 Mark Pallis: “The operation of UNHCR’S accountability Mechanisms” IILJ Working Paper 2005/12, Global Administrative Law Series (2005), p. 2.


16

It underpins age, gender and diversity mainstreaming – Improves understanding of the relations between women and men, different generations and the

diverse groups within the community. – Requires participation of all groups in decision-making and representative structures which respect

the rights of individuals. – Provides for age, gender and diversity analysis of the situation and for protection and programme

responses, as well as targeted action to address discrimination. It improves the quality and effectiveness of UNHCR operations – UNHCR staff and partners are more likely to be alerted to protection problems in a timely fashion

if a relationship of trust is built up. – Ensures activities are of direct relevance to the communities and will meet their various protection

needs – neglecting to understand a community and its ways of working can lead to inappropriate interventions which fail.

– Reduces opportunities for exploitation and abuse. – Generates an attitudinal change whereby refugees and other displaced persons rather than external

actors are at the centre of decisions, responses and solutions, and their skills and contributions are recognized.

– Improves UNHCR’s accountability to people of concern through participatory evaluation. It provides a base for sustainable responses and durable solutions – Improves understanding of the local context and enables the UNHCR programme to be more

closely linked with other development initiatives23 and work with government structures. – Creates a focus from the outset on solutions in partnership with the community and can therefore

reduce the potential for protracted displacement situations. – Involves the community – and subgroups of the community – and thus leads to effectiveness and

greater long-term sustainability.24

23 Framework for Durable Solutions for Refugees and Persons of Concern (UNHCR, Geneva, 2003), p. 23. 24 Handbook for Self-Reliance (UNHCR, Geneva, August 2005).

3. Implementing a community-based approach

17

3 Implementing a community-based approach

This section gives an overview of the different stages of the community-based approach, beginning with situation analysis, including stakeholder analysis and participatory assessment and planning. It then explains the different aspects of community mobilization and empowerment, from mapping leadership and management structures to community-based action planning, monitoring and evaluation.

Refugee, internally displaced and returnee communities all have social and cultural traditions, religious practices, economic activities, associations and networks, and protection mechanisms as well as political structures, which existed prior to displacement. The displacement and resulting changes create upheaval and disrupt much of these, but they provide communities with an opportunity for learning new skills and incorporating new knowledge, activities and structures into their daily lives. Communities and culture are not static, they are constantly being transformed by events around them and influences such as the media, education, climate changes, politics, and economic progress or setbacks. Implementing a community-based approach in the context of humanitarian crises is about working with individuals and communities to mobilize and support them in their decisions about how to cope with the upheaval, to re-establish their structures and to ensure protection and solutions with respect for individual rights.

3.1 Situation analysis Its purpose. Situation analysis enables humanitarian workers and the community to understand the overall context in order to determine the most appropriate course of action and prioritize the work and plan operations accordingly in order to deliver effective protection. What it is. Situation analysis in UNHCR comprises three closely interlinked phases: (i) information analysis; (ii) stakeholder resources and capacity mapping; and (iii) participatory assessment to gain a common understanding of protection risks, capacities and solutions. These can lead to a participatory planning process (sometimes referred to in UNHCR as a strategic planning exercise) to establish UNHCR country operation plans, inter-agency humanitarian appeals or work plans, or community action plans. It is a crucial aspect of working with a community and should be undertaken regularly, regardless of the stage of the operation.


18

How it is carried out. The analysis is undertaken through a desk review of existing information, including data gathered on the population profile, and reaching out to the different stakeholders to learn about their interests and priorities and mapping their activities, resources and expertise. A participatory assessment is carried out with the different members of the population to understand their protection risks, capacities and proposals and to test the validity of the existing information and analysis. Then all the actors come together to analyse the final results, the protection risks and proposed solutions and the resource implications in order to determine priorities and prepare action plans.

3.1.1 Information analysis25

This phase helps to determine what is already known about the persons of concern and their situation, and gives us an opportunity to analyse prior information. It enables us to prepare for participatory assessments and consultations with a protection focus. A review of the existing information using an age, gender and diversity perspective will begin to highlight what we know about the following:26

– The profile of the community, including capacities and skills, and who is most at risk. – How the community is organized, its formal and informal structures and the roles these play in

community life. – The power relations between the different community members – who has power over whom,

how is it exercised and to whose benefit? – The extent to which women, girls, boys and men of all ages and diverse backgrounds, including

those with disabilities, are participating in community management and decision making, and who might be excluded and why.

– Community protection mechanisms to support persons with disabilities and others at risk, and identify those who are at heightened risk.27

– Resources available to people such as land, tools, skills, informal markets and so on. – The main protection challenges and the perspectives for durable solutions. – The interaction between host population and persons of concern, and points of tension. – The services and facilities available within the host community and local government to persons

of concern. – The situation in the place of origin and the changes due to displacement. – Which topics and individuals should be the focus of the participatory assessment phase.

It is important to gather all the relevant information and documentation available on the persons of concern prior to and after displacement, on the area where they live, on the host population and on all other stakeholders, and to validate their interpretation with the populations concerned. The following information should be analysed with regard to the points highlighted above. – Country operation, annual protection, standards and indicators and mission reports (including

child protection, community service, gender, Inspector General and sexual and gender-based violence (SGBV) reports) to identify protection incidents, security challenges and assistance needs, to highlight persistent problems and gaps, and to identify community coping mechanisms and solutions initiated.

25 UNHCR’s Strengthening Protection Capacities Framework (2006) is a protection gaps analysis tool which provides a useful framework and links to participatory assessment. 26 See steps 1 and 2 of the UNHCR Tool for Participatory Assessment (UNHCR, 2006). 27 Executive Committee of the High Commissioner’s Programme Conclusion No. 105 (LVII), 2006, on Women and Girls at Risk.


19

Where have the older Afghan women

gone?

An analysis of the progress data for returnees in

Afghanistan highlighted that men represented

over 60% of the population. This meant that there

were three men for every two women, which is not

the usual pattern. When the data analyst asked

why, everyone had a theory and each one was

different, but no one really knew for sure. Now the

office is asking women and men in the community

what they think the causes might be.

– Existing assessments and analyses: food basket monitoring reports, joint WFP-UNHCR food assessments, health studies, environmental assessments, economic surveys and feasibility studies for livelihoods. These will give indications about the feeding habits and purchasing power of people in the local area, as well as the impact of displacement on the use of natural resources.

– Studies of national legislation and provisions relevant to the persons of concern in order to understand aspects such as freedom of movement, the right to work, access to services, and family and child protection law to identify provisions for unaccompanied and separated children, as well as gender analyses of national legislation.

– Government reports on national health, education and other services to see how they incorporate the needs of persons of concern, particularly in the case of internally displaced persons and returnees.

– Political analysis documents reviewing the situation in the areas of displacement and country of origin, reports from non-government organizations, universities, human rights organizations and other civil associations, such as local women’s groups, that provide analysis of the human rights situation, and ethnographic and anthropological studies.

– Maps of the area of origin and the area of displacement. Note the proximity to the border or conflict area, resources available and, in the case of urban populations, where people reside.

– Note factors such as land availability, plot sizes and the location of key infrastructure, natural resources, local markets, services and known zones of conflict, violence, exploitative practices and insecurity, and specific places or routes that are known to present a danger to persons of concern. This map can be used later within participatory exercises with focus groups to stimulate discussion about protection and related problems within the host area. In urban areas, note the distance to services, including partners and UNHCR offices, as well as centres to which resources could be directed the better to reach those of concern.

– ProGress data base and all other information related to the registration of persons in order to understand the population profile in terms of age, sex, family composition, ethnic/religious origins and specific needs.28

Such knowledge about the culture and community protection mechanisms prior to flight, and an analysis of data, for example the number of unaccompanied children, single-parent-headed families, single women, persons with disabilities, older persons and grandparent-headed households, will indicate some of the potential protection challenges and specific assistance needs to be addressed. The analysis will help bring to light such issues as children who have lost their family and the possibility of their being taken in by another family and who will monitor their welfare, whether women who have no male

28 UNHCR/IOM/028/FOM/030/2007: Guidance on the Use of Standardized Specific Needs Codes.


20

relatives face particular risks, whether the community has adequate coping mechanisms to support persons with disabilities, and who will be particularly exposed to the possibility of recruitment into the military. This analysis can then be shared with the community and further discussed during participatory assessments to gain their perspective. It can also serve to identify who might be a priority for focus group discussions in addition to the broader population.

Ten tips for analysing and following up registration data

Study what percentage of the population comprises the different groups according to sex, age and

other diverse important factors, and consider:

Is it the same as the local population? Does it coincide with the data from the country of origin?

Is there a higher than average percentage of women? Children? Older persons? Persons with

disabilities?

If a group seems under- or over-represented, e.g. adult men or young children, find out why.

Have groups with specific needs been registered in detail? If not, why not and when will this be

done?

Have those responsible for registration understood the criteria for unaccompanied and

separated children?

Has the registration team been trained on how to identify and register groups with specific

needs?

Does the profile indicate potential protection risks for any particular group?

Who might be at heightened risk? Why? What immediate action is being taken to protect these

groups?

Do you have data on the leadership structure? Are any groups, especially minorities and women,

not represented? If so, why?

How does the socioeconomic status and ethnic, linguistic and religious composition of the

refugee population compare with that of the local host population?

3.1.2 Stakeholder analysis

Stakeholder analysis involves identifying all those individuals or groups which might be affected by any particular action and therefore have a particular interest in participating in the planning of activities or can influence an operation by their interventions. Stakeholders include operational and implementing partners, national and local authorities, and different members of the community, as well as their leaders or traditional chiefs, civil society (local NGOs, women’s groups, human rights groups), school board members, religious organizations, and host communities and their organizations. We should document their level of influence, map their activities29and engage them in planning, since they have a right to

28 UNHCR/IOM/028/UNHCR/FOM/030/2007: Guidance on the Use of Standardized Specific Needs Codes. 29 See annex 4 for a sample mapping of partners from Jordan.


21

participate and to be heard.30 Effective partnership among stakeholders is essential to establishing a community-based approach and to ensure that we reinforce each other’s work. Some important stakeholders are given below. Governments in the country of asylum and country of origin National governments of the country of asylum and country of origin have primary responsibility for providing protection to refugees and to IDPs and returnees respectively. However, in practice, states vary in their ability or willingness to fulfil their obligations. They might impose restrictions such as limited or non-access to employment, education or other essential rights or insist that persons of concern be confined to a restricted area or a controlled environment that affect the protection of persons of concern. Some governments have established a clear framework to ensure provision of protection, security and assistance services to persons of concern through relevant national departments, while others may be willing to extend their services as part of their responsibilities under the 1951 Refugee Convention. For IDPs and returnees, state responsibilities need to be reviewed in the context of international human rights law and the national legislation. It is important to coordinate with authorities from the outset and make maximum use of their expertise and structures, where feasible, to implement programmes to support persons of concern instead of developing parallel services.

Line ministries can provide valuable expertise and support

Democratic Republic of Congo. During the influx of Angolan refugees into Kimvula, nutritionists from

the Ministry of Health guided the operational response. The Ministry of Education has incorporated the

peace education modules into the national curriculum.

Mozambique. Health facilities in the refugee camp are under the supervision of the Ministry of Health,

which also provides drugs and monitors the recruitment of national and refugee health personnel.

Liberia. The Ministry of Education leads an interagency group which is integrating the Peace Education

programme into its national programme.

Chad. The Ministry for Social Welfare supported the operation in the emergency through the

secondment of national community services staff.

Colombia. The Colombian Law 387/1997 provides for the adoption of measures to prevent forced

displacement and for the provision of assistance, protection, socioeconomic consolidation and

stabilization of persons internally displaced by the violence. The ministries of Education, Health and

Interior form part of the National System of Integral Attention to Displaced Persons (SNAIPD) affected

by the violence. UNHCR works with the system to ensure equal access to and enjoyment of rights for

IDPs.

Afghanistan. The Ministry for Rural Development and Rehabilitation and the Ministry for Refugees and

Displaced played a key role in disseminating UNHCR’s community- and village-based information to

other actors.

30 A toolkit for child protection, “How to implement the standards”, Keeping Children Safe Coalition (Save the Children , 2006), p. 18.


22

Any additional structures or services set up by humanitarian actors should be planned in such a way as to ensure that they complement and can immediately or eventually be absorbed into national systems (e.g. education systems, child protection mechanisms, health, shelter reconstruction, etc.). This should be the norm for internally displaced and returnees on the basis of the principle of non-discrimination among nationals. For refugees we must ensure government support for any additional alternative services, through activities such as chairing refugee education and health committees. Local authorities can also play a key role in defusing tensions with the host community and should become key players from the beginning of the operation.

Ten tips for international staff working with governments

Remember that you are a guest in their country and are there to support and work in

collaboration with them. It is our job to achieve cooperation with them.

Be humble and respectful and learn from your hosts.

Your attitude and negotiation skills are your best assets in establishing a relationship of mutual

respect.

To ensure sustainable programmes assess refugee access to national services and work to

incorporate their needs into government services and micro- and macro-planning.

Ensure non-discriminatory access to basic services for internally displaced persons and

returnees.

Provide support to national structures for the integration of the needs of persons of concern into

existing services in preference to establishing separate services.

Analyse the impact of national legislation on persons of concern and advocate adherence to

international legal standards.

From the onset of the operation explore all possibilities for supporting experts in different

national and local ministries (with them taking the lead coordination role) in setting up and

providing services to persons of concern (ministry of family welfare, child protection, gender,

health, education, environment, sports and culture, among others).

Encourage national authorities to participate in the assessment, planning and implementation

of community-based activities, taking into consideration freedom of expression and security.

Promote direct contact between the displaced and host community and authorities to facilitate

mutual understanding and strengthen the displaced community’s advocacy capacities.

The host community Host communities are affected by the influx of refugees, displaced persons or returnees. Mass arrivals in rural areas have a heavy impact on the environment and the often already scarce resources. There are many examples, particularly in IDP settings, where host families have provided the best support and protection and taken displaced persons into their homes, such as in Daghestan and Bosnia, and have shared their scarce supplies. But there can also be negative outcomes: in urban areas rents can be pushed up and accommodation provision can run out, and wages can go down in the informal sector if the


23

labour market is saturated. While some in the host community may see the potential benefits of new arrivals, such as being able to work and trade with the newly arrived persons, others may see them as responsible for any deterioration in their overall situation. It is important not to fuel tensions between the different communities. Continuous dialogue with the host community, keeping them informed of what is happening and supporting them in any way feasible to ease some of the burden will create an enabling environment. Whenever possible, the host community should be included in participatory assessment exercises and their situation should be factored into the humanitarian response.

Ten tips on working with host communities

Analyse the impact of displacement, new arrivals, additional or outstanding protection gaps

and all interventions on the host community.

Identify their formal and informal leaders, including women representatives, and establish

contact as early as possible.

Include the host community in participatory assessment exercises.

Analyse with them the protection risks facing the displaced community to gain their insights

on how to prevent them as well as the impact of displacement on their resources and

community life.

Discuss plans with the host community and seek their inputs or perspectives.

Ensure that interventions do not exacerbate tensions between the different communities.

Encourage the establishment of a joint host/refugee committee to analyse the situation and

resolve conflicts.

Include local leaders in training in areas such as human rights.

Where possible, ensure that the local community also benefits from services, and address host-

community concerns in a timely manner.

Monitor the dynamics with the receiving community.

UN and other agencies It is important to identify all the different UN and partner and non-partner agencies that are or could be involved in the operation. Map their activities to avoid duplication and ensure that any gaps are adequately addressed. The process should involve an assessment of the agency’s strategy, capacities and contributions and the extent to which they support community participation and a community-based approach. Often partners working in the communities are some of the best sources of background information and can clarify many queries or delicate issues, for example health staff will know about practices such as female genital mutilation and forced underage marriage, while education staff are likely to have some knowledge of military recruitment and the situation of children with disabilities. The mapping process will enable the identification of those partners which will be most interested in supporting participatory assessments and in some cases, particularly among NGOs and some UN agencies, highlight their facilitation and expertise in leading participatory assessment. It should also consider non-traditional partners such as the private sector, since some might be able and willing to support development activities and so on.


24

Many agencies have mandates (children, health, agriculture, employment) which cut across issues of displacement, and they can therefore be strong partners in ensuring that displaced persons are included in the national strategies agreed with governments. UNHCR can act as a catalyst and raise awareness on the protection implications of certain interventions (or the lack thereof) for displaced communities. Work with national and international partners as well as UN agencies to learn about their participatory methods and ways of working, and agree on coordination mechanisms using multifunctional31 teams to support the implementation of a community-based approach. This will enable coordination and the pooling of resources and expertise for the benefit of the operation and the strengthening of local capacities. This in turn will allow for a smooth and progressive handover to communities, national organizations and development agencies when it is time to withdraw. In settings where the interagency cluster approach is being implemented, UNHCR staff will need to ensure their active commitment and participation in the different areas of work, as well as support for the general principles, including a community-based approach (see section 5.4 for further information).32

Ten tips for working with UN and non-government national and international partners

Focus on building mutual respect and common goals.

Avoid overlaps, turf wars and competition.

Focus on filling in the protection gaps.

Build equal relationships, especially with non-government partners and seek their advice,

expertise and views.

Make sure you understand the mandates and roles of other UN organizations and explain clearly

that of UNHCR.

Promote multifunctional team participatory assessments and learn from others how they

implement a rights- and community-based approach

Inform the community both verbally and in writing who is doing what to minimise confusion

and inefficiencies.

In situations of internal displacement, ensure that you have a full understanding of the inter-

agency dynamics, in particular the cluster approach and its principles

Identify key civil society agencies working on human rights, women’s rights, community-based

psychosocial support, employment for young people and so on.

Encourage them to extend their national programmes to areas hosting persons of concern and

advocate the inclusion of the needs of persons of concern in their planning.

31 A multifunctional team approach is fully explained in section 4.4 of this manual. 32 Inter-agency IDP Protection Handbook (forthcoming, 2007).


25

The donor community Donors often operate with global strategic priorities and will focus their support on programme activities that clearly relate to these priorities. Where these priorities do not match those expressed by the community of concern, UNHCR has to act as a mediator between the two sets of interests and represent the priorities expressed by persons of concern to the donors. This will only be possible if a participatory procedure has been carried out to assess the community’s priorities. UNHCR should facilitate direct discussions between persons of concern and the donors by organizing field visits, facilitating donors’ participation in assessments and planning meetings, and increasing donor interest in the operation and the priorities of the people of concern. Explore, encourage and support persons of concern’s own contacts with donors and other agencies for fund-raising and material support. Above all, it is important to include donors in the analysis of the protection gaps and challenges rather than focus on “showing” what UNHCR is doing. Their inclusion in the participatory assessments, analysis and planning process will facilitate support for people of concern. Formal and informal leaders Identify the leaders within the community of persons of concern and the host community, whether democratically elected, self-elected or informal. If they are largely male, check if there are female leadership structures, such as those of midwives, female elders, traditional healers and so on. Find out about any norms (meaning expected behaviour) and be respectful of these as you establish contact. Take note of those who might be helpful in establishing contacts with the wider community. Clarify the role and objectives of the organization and ask for their collaboration. Explain that you will soon be undertaking participatory assessment with all members of the population and ask for their guidance and support in arranging it. Failure to meet in advance those people recognized by the community as leaders can result in hostility and mistrust, and this may block the implementation of good initiatives as well as the relationship with the rest of the community. (Tips are highlighted in sections 3.1.3, “Establishing contact with the community”, and 3.2.1, “Community mapping of leadership and management structures”.)

There are often other important community figures who can be very influential in the wider community by taking important decisions that affect people’s lives. The identity of these informal leaders may at first not be known, but will be discovered as the team spends time with the community and builds up confidence.

In Colombia, UNHCR has a local direct fund

raising strategy that foresees regular up to date

information on protection and assistance for

IDPS. This includes information to news media,

donor government representatives, and

humanitarian agencies, through all available

channels (Internet, local newspapers and

televisions, leaflets, posters, etc). Regular

individual meetings are organized with donors

and potential donors (internationals and

nationals) at the beginning of the year to analyse

planned activities. Throughout the year, the

donors are also notified of the progress of

implementation.

Donors are invited on field missions to increase

their awareness on the protection concerns of

the displaced persons and to jointly monitor the

implementation of projects.


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It is important to be aware as far as possible of the potential or actual presence of armed groups and of different political tendencies within the community. This knowledge is basic to understanding community dynamics and will often influence the outcome of many humanitarian interventions. While frequently difficult to obtain, the information must be gathered and documented over time and factored into all work within the community and with governments, as it is essential to the delivery of protection.

3.1.3 Establishing contact with the community Establishing contact with the community in a constructive manner is essential, since these first efforts may set the pattern for the evolution of the relationship between UNHCR, its partners and the community. How to make contact with persons of concern will depend on the community and the context. There are no fixed rules, and individual staff and the multifunctional team members must use their experience, relevant skills and knowledge to decide

which are the groups or individuals that can be approached and by whom, and which issues to bring up. National UNHCR and partner staff and host communities might be an important source of support in this regard, as well as the local authorities, since some contact may already have been established. However, and in the context of internal displacement in particular, these relationships are highly complex and we should bear this mind to avoid security problems and acting on preconceived ideas or prejudices. First contacts in emergency situations are likely to be focused on working with the community to collect and analyse basic registration data in order to assess their situation in terms of protection risks and their most urgent needs. Physical security, safety, shelter, health, food and non-food items, education, water and fuel are most likely to be the priority concerns for all members of the community. As these are common concerns they can be useful as starting points for informal discussion with small groups of women, girls, boys and men of diverse backgrounds and ages around who does what and how assistance should be distributed. Meetings with women, including older women and also girls, will also provide an opportunity to explore issues, including access, relating to health and education, and to gain information regarding their preferences in areas such as sanitary materials and fuel supplies. Meetings with boys can be valuable in learning about potential forced recruitment, for example, while information about their mobility, the scope of any discrimination and their access to services will be gained from meeting persons with disabilities.

Gaining access to women

In eastern Chad, UNHCR deployed a gender

expert to support gender mainstreaming

and initiate activities for the numerous

women survivors of sexual abuse. The

refugee community was very conservative

and identification of survivors was a delicate

issue. By ensuring the regular distribution of

soap, an issue which was of interest to the

community, the gender expert managed to

negotiate easy access to women and was

welcomed by the men. This was the start of

an ongoing interaction between the gender

officer and the refugee men and women in

this particular community, and it provided

an important first step in building the

confidence of the women in the

community.


27

In some cases there may be no organized groups with whom UNHCR and its partners can work. This is likely when people have just arrived at a camp or a transit centre from different areas and nobody knows each other or they are in urban displacement situations. Nonetheless, people are likely to start interacting around some common interests, such as health, religion or business opportunities. If there really are no representative groups, the team may need to start by identifying individuals to guide and support or cooperate with for the purpose of community mobilization. In an urban context, persons of concern may be scattered. However, groups are generally concentrated in specific areas, with poor living conditions, and often have informal networks. There may be also specific meeting points, such as religious and charity institutions or community-based host organizations, where information can be provided on how to establish contact with persons of concern, and which may in fact already be providing support and services. It is important to highlight that in either urban or rural contexts a clear outreach strategy must first be developed in coordination with stakeholders, based on the mapping exercise undertaken as part of the situation analysis.

In a protracted camp situation or in settlements it can be useful to work with organized interest groups or existing community associations, such as religious groups, farmers’ groups, trade associations, women’s groups, youth clubs and other social groups, as an entry point into the community. Key members of this kind of group or structure will help to explain the community structure and indicate ways of establishing contact with those of its members who may not have regular access to humanitarian workers, such as persons with disabilities and older people.

Internally displaced scattered over wide areas The internally displaced Chechnians placed with host

families and in collective centres were scattered over wide

geographical areas so that it was impossible for a small

emergency team to undertake proper assessment and

monitoring. A system was set up in coordination with a

partner for each collective centre to elect male and female

representatives, who then collected data on age and sex,

together with skills profiles which facilitated the

identification of health staff and teachers. The

representatives undertook weekly monitoring of numbers

and oversaw the cleaning and maintenance of collective

centres. The partner then focused on establishing

educational activities for the children in each centre by

working with those people with an educational

background, while health partners were able to use the skills

of the identified health staff. The system also enabled

identification of those most at risk and requiring additional

support. Five months after the emergency began, the same

system enabled the collective centre representatives to

come together and discuss their concerns regarding issues

of a return to Chechnya, go-and-see visits and security.


28

Ten tips for entry points and first meetings

Take every opportunity informally to discuss and meet with persons of concern (at the health

post, during registration, at distribution points, in the queue for water).

Identify an existing committee (generally self-established or traditional leaders) through whom

you can access the community and begin to pass on messages. Meet the host community and

the authorities.

Be aware that these messages may only reach certain groups, e.g. other community leaders,

and not all members of the community until you discuss strategies with the leaders to ensure

that everyone is informed.

Arrange meetings at mutually convenient and agreed times and make sure that you turn up

on time for meetings – never assume that persons of concern can wait, as if they have nothing

better to do.

First impressions matter! Those groups or persons in the community who do not directly meet

UNHCR or its partners may draw their own conclusions about the organization based on who

staff choose to meet with, how they behave and what happens after their visit.

First contacts may become “gatekeepers”! The first group humanitarian workers meet with in

the community may happen to be in a strong position to influence the way in which staff

perceive the situation and the community. Those who manage to establish the first contact

might not mention other groups who they think may compete with them for resources.

Understanding community practices and traditions prior to establishing contacts can help to

identify the appropriate approach for engaging with different groups and members of the

community in dialogue. Focus on learning and listening, particularly at the beginning.

Transparency, respect and consistency are essential in building trust, confidence and

constructive collaboration between UNHCR and its partners, including persons of concern.

Ensure in particular that after the first contacts immediate follow-up action is taken and things

are seen to happen.

Make sure that messages and the information are delivered in language and phrasing that

everybody can understand, are culturally sensitive and are correctly perceived and understood.

3.1.4 Participatory assessment, expectations, time and resources

Participatory assessment is a process of building partnerships with women and men of all ages and backgrounds by promoting meaningful participation through structured dialogue with the concerned groups with the purpose of identifying and analysing the protection risks they face and agreeing on priority areas for action. It is important at this stage to jointly identify capacities and resources to prevent protection risks and provide solutions to them within the community, as well as to identify what is required of external stakeholders33.

33 Tool for Participatory Assessment in Operations (UNHCR, 2006)


29

Participatory assessment in an urban context: South Africa – The Participatory Assessment (PA) in South Africa was preceded by several discussions between

UNHCR, NGO partners and the government; a coordinator ensured a smooth flow of information

among all actors.

– The multifunctional team34 was as inclusive as possible. Efforts were made to ensure the

participation of UNHCR staff and implementing and operational partners, as well as key

government counterparts working in the areas of documentation, security, health and education.

A balance between genders and national and international staff was considered.

– Due to the vast and diverse areas in which refugees reside, four MFTs were established, each one

covering the main urban locations (namely Johannesburg, Pretoria, Cape Town and Durban).

– A workshop was organized before the roll-out of the PA to ensure that all actors were on the same

page and understood the process and its aim.

– The subgroups were selected not only by age and gender but also by nationality, specific needs

and level of risk.

– Complementary meetings were organized with banks, police, refugee community leaders, the

Department of Health, refugee women’s association, etc. This was with the aim of identifying

possible protection concerns and risks and discussing with the concerned authorities how they

could be resolved.

– The findings from the four MFTs fed the discussion of the final workshop, where all the actors came

together and jointly analysed the results and agreed on the way forward. Key areas included

improvement in document issuance and access to services. These related to procedures

rather than the need for increased funding.

– UNHCR ensured that the concerns and the specific recommendations made at the workshop were

given follow-up with their eventual incorporation into UNHCR and IP’s 2007 projects submission.

– UNHCR and MFTs ensure that adequate, up-to-date and constant feedback is giving to the

refugees and that the channel to convey further concerns is open.

From “managing expectations” to real partnership “All we see of the humanitarian workers is the dust from their 4x4 when they drive through our settlement.” “Re-establishing the equilibrium between humanitarian aid organizations and affected populations is therefore central to participation…it often comes down to one’s personal approach, mindset and attitude”.35 It is important to realize that how a humanitarian agency and the staff are perceived will determine the nature of the relationship between persons of concern and external humanitarian workers. The image projected through the way we operate can and does generate expectations. The big white cars, the increase in rents in the towns where we set up and often our own manner of entering into relationships with people can generate an image of power and money.

34 A multifunctional team approach is fully explained in section 4.4 of this manual. 35 Practitioner’s handbook, Participation by Affected Population in Humanitarian Action: Active Learning Network for Accountability and Performance in Humanitarian Action (ALNAP, 2003).


30

Humanitarian workers will always have an impact on the political and power dynamics within the community and we must monitor it carefully. Staff must be able to recognize the importance of building trust, speaking to all and being transparent, and of understanding how they as external actors are affecting the dynamics within the community simply by whom they speak or do not speak to during their visits. Contrary to what some humanitarian workers might think, people of concern are not always expecting a wish list to be fulfilled, and they might be more realistic than we are. It is normal for people to present a list and see “what we can come up with”, and our way of establishing dialogue may in fact invite a list, rather than an analysis of protection issues and seeking their perspectives on and contributions to the solutions. As humanitarian workers we tend to focus on the list, given our organizational culture of “we are here to save and protect you” rather than a partnership with people and discussing how to approach jointly the most important issues. We need to build our skills in facilitating dialogue and a process of prioritization, identifying areas which require changes in procedures, guarantee regular feedback and move to joint community-action planning (see section 3.2.5, ‘Community-based action planning’), where we are facilitators, not leaders or sole decision makers. We must be honest and open about our limitations. Getting beyond immediate expectations requires a humble approach, systematic dialogue and feedback, an exchange of ideas, building on people’s capacities and jointly finding solutions and providing support for them. When we only visit a community sporadically and have a discussion once a year, it is unlikely that we will learn to work through expectations on all sides in a constructive manner. The participatory assessment in South Africa highlighted above demonstrates how this exercise can be conducted to ensure not only the satisfaction of immediate needs and concerns but also the enjoyment of more long-term strategic needs as a consequence of changes in procedures.


31

Ten tips for shifting from “managing expectations” to real partnership

Be aware of how your own behaviour can send the wrong messages. Think about first

impressions – does the white car create dust and make children and adults scatter – do people

see you walking about and showing an interest in their lives? Ask questions in a pleasant but

serious manner, and do not make assumptions.

Explain who you are and why you are there. Share your objectives and why you think your

presence can support people. Have a sound reason for any meeting or activity, explaining its

benefits for both those organizing it and the community. Always ask “why should people

come to this event?”, rather than assuming that they should.

Explain what you can and what you cannot do, the procedures and techniques you adopt and

the limitations you or the organization may face in responding to their questions and wishes.

Do not make false promises or provide inaccurate information.

Ask people to share their knowledge and discuss their protection risks, concerns and

expectations with you. Be frank about your limitations in terms of capacity and knowledge and

be very open to listening and learning about their capacities and resources. Explain delays and

difficulties as they occur. Be consistent.

Discuss how follow-up actions will be undertaken and how you will report back to the

community. Clarify the links to the planning, programming and budgeting process in

appropriate language.

Make sure you provide ample time for people to speak and that your approach is in keeping

with their cultural expectations. If you have doubts seek clarification. Simplicity and humility

are essential to creating space for communication and participation.

Do not immediately propose solutions to problems; let people digest the information and

then propose ways of responding, the resources they can invest and what they require from

your organization or elsewhere.

Jointly with the community and partners, agree on the rules of the game, lines of responsibility

on each side, establish joint problem-solving mechanisms with a particular focus on the value

of the contribution and queries of all groups in the community.

The level of participation and interest is linked to the amount of information received. Partial

information will be quickly detected and may lead to distrust, especially if it relates to

resources, and can lead to false expectations and an inability to respond adequately.

Be aware of discriminatory behaviour by international and national staff and community

workers.

Time and resources To build trust and an inclusive partnership with the community of concern does take time and resources. These will vary depending on the context – such as the diversity of the community – whether you are in an urban or rural setting, geographical dispersion and the size of your team.


32

A community-based approach is often perceived as a time-consuming activity, since it does not always show a quick and visible impact. Nonetheless, it is this investment in a strategy and joint partnership which will enable us to deliver protection and sustainable solutions effectively and get beyond the quick fix which often present problems later. We must also remember that persons of concern are often under stress and face economic difficulties, and therefore it is important to take into account their own schedules, working hours, other obligations and priorities vis-à-vis their families.

Take time to understand the community organization and procedures and to pass on information, and give people time to understand the messages you are sharing. Time is essential for capturing their priorities and to develop common objectives and agree on how they wish to participate and who will be responsible for what. If these are carried out properly with respect for the pace of the community, difficulties in the long term, such as security problems due to poor communication, will be avoided. An investment of time at the beginning can actually change how we do things and save us time in other areas, for example working with the community to gather and analyse data rather than trying to do it ourselves. Mistakes are costly and those over protection can cost lives; therefore spending time with the community at the beginning to ensure the right responses will save a great deal of time later and make the operation more effective in the long term. We will never have sufficient resources to meet all the needs of the people of concern, but neither will we plan effectively if we do not understand their priorities and resources. Furthermore, an in-depth understanding of the community and solid joint planning will lead to better advocacy strategies with donors and host governments. And in emergencies? While in emergencies rapid responses are needed to address life-threatening situations, thus limiting space for consultation and negotiation, some initial steps should be taken to ensure proper understanding of protection risks and concerns as well as building on the community’s response capacity. Recent experiences, even in highly challenging security environments, such as Somalia, have shown that it is possible. When the UNHCR Emergency team reached Galkayo, Somalia in January 2007, it was the first time an international agency had been present on the ground for quite some time. As this was an emergency and an IDP operation, participatory assessment was adapted to the specific context as follows:

UNHCR needed to ensure that other agencies in the IDP cluster approach were on board with the methodology and for all agencies to coordinate their programming based on the results instead of each undertaking parallel assessments.

As UNHCR was the only actor on the ground and with limited staff covering several areas of the operation, the multifunctional team approach was difficult to achieve. Instead a team was recruited locally and trained to do the assessment. DRCPROFILING CHECK SARA

In Mexico City and in Spain, the

multi-functional teams realized

that in view of the working

commitments of people of

concern to undertake a good

participatory assessment, they

would have to do it at the

weekend.


33

The political context was highly sensitive. It was therefore decided not to include the “local authorities” in the focus group discussions as the IDPs would not have felt safe or free to express all their concerns.

Relations among the different IDP sub-groups were particularly complicated due to power structures, group protection systems and clan differences, so IDP committees were consulted separately in order to distinguish the members in the committee from the rest of the community.

Time constraints resulted in only three age groups of each sex were covered in the initial consultation. Therefore, it was necessary to go back and follow up on groups with specific needs.

In the Timor Leste emergency IDP operation in 2006, participatory assessment was conducted in six sites through both individual and group discussions. Participatory assessment was part of a larger protection strategy and not considered as a one time exercise. In follow-up to the initial discussions, teams would return to the same IDPs on a weekly basis to monitor their protection concerns and the responses provided. This allowed the staff and the persons of concern to form a trusting relationship and obtain more in-depth information.

Ten tips on time and resources

Before doing anything, check whether you are doing it in the most efficient manner

Discuss the approach or action with the community to see if they have better ideas and/or

agree with your approach.

Respect “their” time, it costs them too, so be on time!

Check to see if any schedules for meetings, trainings, etc., accommodate the schedules that

women and children may have due to domestic work, school, etc.

Remember that people in the community may have answers to many things that will save

organizational time and resources.

Building on the skills and capacities in the community may save the need to bring in external

experts.

Working with the community in partnership from the outset will facilitate a solutions approach

and reduce some of the negative impacts of protracted expensive refugee situations.

Invest in participatory assessment. Once it becomes a way of doing business, it will facilitate

planning and improve the justification for programmes and budgets.

When writing up a project or country operation plan, record any contributions by the

community and calculate the costs, e.g. women providing food for a workshop, community

members interpreting. Provide this feedback to the community so that they can place a value

on what they do.

Coordinate with all other agencies and partners to identify resources and advocate solutions,

e.g. education and provision of birth certificates with UNICEF, marketing studies and skills with

ILO.


34

3.1.5 Participatory planning

Participatory planning36 in UNHCR brings the various stakeholders together to undertake a final analysis of information gathered through the desk review, the study of the context and the population profile, the stakeholder analysis and the participatory assessments. The priority protection risks, needs and preferred solutions are analysed from an age, gender and diversity perspective and this should form the basis of the planning exercise. Through the exercise common goals and actions are agreed which should also highlight the different rights holders and duty bearers. The capacities and contributions of the community members and the other stakeholders will be assessed jointly in order to determine what areas are adequately covered and where gaps exist. The final outcome should include any budgetary requirements and agreements on what efforts will be undertaken to meet these and by whom.

We should ensure that persons of concern are well represented at the planning stage and provided with appropriate and timely information in order to participate meaningfully. This will mean working with the community so that it identifies women and men, including younger and older, and persons with disabilities, to participate in the planning exercise and the provision of information, training and logistical support and so on. It will

also require greater disposition on the part of UNHCR and other agencies to adapt procedures and make them more transparent. In some IDP situations this might be difficult if there are security concerns with government partners, and it might be necessary to have separate planning meetings to address the problem.

The participatory planning process (also referred to as the strategic planning workshop in UNHCR, which is normally held in January or February) closes the situation analysis cycle and ensures that the findings are linked to operational design. These final outcomes will vary in format depending on the goals of the participating stakeholders. For example, the result for the community could be a Community Action Plan to be supported by different agencies; for the interagency IDP team, the process may lead to a Country Humanitarian Action Plan (CHAP) or the Needs Assessment Framework, where community and interagency priorities and goals are merged. It can also include broader planning exercises such as national recovery and reintegration plans in the context of return. For UNHCR, in addition to the above, the outcome will be the Country Operation Plan, which is the mechanism used by each country to solicit funds from headquarters for the following year. The UNHCR Country Operation Plan will normally be a merging of community, partner and UNHCR

36 Participatory Planning in UNHCR – A Practical Guide (January 2002).


35

priorities and should not preclude support to both the Community Action Plan and the CHAP. The situation analysis process then continues through the gathering of further information, assessment, monitoring and evaluation by all stakeholders, particularly the persons of concern.

Remember

As we spend more time in the community, we will build up stronger working relationships with individuals

and representatives of all sections of the community, who will feel more at ease with them. As a result

operational planning will improve and, consequently, our delivery of protection. Monitoring and evaluation

requires continued dialogue with the community to know whether responses are adequate, whether they

are involved in implementation and whether we are really building on their capacities and jointly finding

solutions.

Ten tips for ensuring adequate participatory planning

Invite all the relevant national and local ministries, civil society actors, UN agencies, operational

and implementing partners and community structures.

Work with the community to identify the women and men, young and old, who will represent

them at the participatory planning process.

Identify what preparation is required for community members to be able to participate

meaningfully, including training on the planning process.

Provide community representatives with the mapping of the population and of agencies and

their activities.

Share with all participants the results of the stakeholder mapping, the information analysis and

the findings from the participatory assessment analysed from an age, gender and diversity

perspective.

Agree on protection strategies, overall objectives, activities and coordination mechanisms.

Review the objectives to ensure that these are rights- and community-based and include

targeted action to address any identified discrimination.

Provide community leaders with the outcome in summary format so it can be shared with the

community as a whole and include which agency will do what and the role the community

will play.

Ensure that community representatives have transparent channels for feeding the outcomes

of the participatory planning to all the members of the community and participate in the

feedback process.

Remember to support the leaders and other community structures and evaluate the longer

term results with them.


36

Mobilising opportunities

A therapeutic feeding programme,

where mothers and their children

spend a lot of time, may generate

unity, and they can become a group

working together to address some of

the root causes malnutrition through

agricultural projects.

3.2 Community mobilization and empowerment Its purpose. Community mobilization is a key component of the community-based approach and is the process through which UNHCR and partners can build up their relationship with people of concern and establish ways of working together. The overall aim is to empower communities to develop their own action plans and enjoy their rights by addressing protection risks and finding solutions supported by agencies. Communities will mobilize when there is trust and confidence and when they see an added value and benefits emerging from the process.

What it is. In practice community mobilization involves establishing contact with the community and its leaders, building an understanding of the community dynamics and structures and agreeing on the best and most acceptable ways of working in partnership with people. To work towards empowerment and ownership, UNHCR and partners will work alongside the community, building on the capacities and strengths of its members, in the common search for solutions to the priority concerns and support their implementation.

Reviewing existing information as outlined in Section 3.1on Situation Analysis supports the community mobilization process. It provides helpful background information on community structures and leadership patterns, which is verified through participatory assessment with the community. Participatory methods are important for working with the community in the mobilization process. Annex 1 contains a number of helpful tools with details on how to use them. How it is carried out. A community mobilization process in the context of conflict, displacement and humanitarian crises, can involve the following steps, further elaborated on below:

– community mapping of management structures; – community-based representation; – community-based protection responses and solutions; – community strengthening and capacity building; – community action planning; – community action teams; and – community-based monitoring and evaluation.

All these steps feed into each other and will not necessarily follow the order provided here. For example, you may need to strengthen community capacities in order to undertake community-based analysis of protection responses and solutions. Our responses should be flexible and dynamic in order to meet the demands of quickly changing operational scenarios.37

37 For example, the situation in eastern Chad has gone from an emergency influx situation in 2004 to a stable refugee situation in 2005 to an emerging internal and cross-border conflict in 2006–2007. These realities pose severe challenges to supporting community structures, but at the same time make them all the more relevant to delivering protection, particularly when humanitarian agencies are required to evacuate suddenly.


37

Those who identify themselves as having a common interest may mobilize and join together in community-based organizations. They may work together around specific activities, often with the aim of improving their living and economic conditions, around political issues or to provide protection for their members. There may be a need to encourage individuals to mobilize and join hands to achieve better results, especially in urban settings. It might be helpful to raise awareness among concerned members of the benefits of working together while promoting respect for each member’s rights and gender balance. Support for the formation of interest groups offers a good way forward for groups with specific needs to access leadership and decision-making processes.

3.2.1 Community mapping of management structures

Every community has its own management system, structures and coping mechanisms, either traditional or newly emerging, to deal with their own problems, events and politics. In the context of UNHCR operations, persons of concern are generally displaced in family, groups or village communities, although there are situations, especially in urban contexts, where people arrive on their own, particularly young single men. In IDP settings, in addition to the above, there may also be displacement to a relative’s house in another region, although families hosting IDPs are often not connected. Those in a community setting may easily identify themselves to their traditional leaders and feel protected by them if they are around or supported by the host community. This can be positive, and it is important to build on these systems as well as those of the receiving community. During the conflict in ex-Yugoslavia, in Bosnia and Herzegovina, the role of local authorities and communities in facilitating shelter and the reception of the internally displaced was fundamental to their protection and well-being. However, we must be aware that leadership structures can also be a window for exploitation and abuse of power and status, particularly if these are not monitored over time. Humanitarian assistance can exacerbate discriminatory practices such as the exclusion of minority groups from accessing services, resources and decision-making processes, and lead to heightened protection risks. It can also lead to self-interested individuals assuming leadership roles by default as a result of the attention given them by outside actors, or a whole community might become coerced by a minority. It is important to understand and then enhance and improve existing positive structures to ensure fair representation of the community and that they enable meaningful participation of women, adolescents, persons with disabilities and other marginalized groups. Mapping and documenting the different kinds

Community centres

In Lebanon, the idea of a community

centre came after a discussion with

refugee women who were complaining

of the lack of facilities to gather together

and of difficult access to UNHCR and its

partners. Through participatory

assessment, boys, men, women and girls

were able to identify their strengths and

ways to expand services and activities

offered by the centre. Skilled refugees

volunteered and organized language, art

work, painting, music, handicrafts,

literacy and computer classes. The centre

also became a venue for counselling,

social support, exchange of information

and networking. The overall positive

impact on the refugees was evident:

children for example, were no longer

housebound, but had a place to socialize

with other refugee as well as hosting

children.

The centre has also played an important

role in building trust between UNHCR

and the refugees.


38

The power of leadership

In Chad, the leaders of one refugee camp opposed any

income-generating activity since, based on an earlier

experience, they believed that any such activity was the first

step to UNHCR and partners withdrawing. They threatened

and discouraged refugees from participating in projects and

even destroyed coffee shops and other refugee initiatives.

Some of those leading the negative response were from the

earlier refugee group which had been considered to be

locally integrated when UNHCR had in fact phased out its

programme. The lack of trust even led to a tragic security

incident in 2004 in relation to a reforestation exercise, and

highlighted the importance of good mapping and the need

to spend time building trust and understanding around

projects before they are introduced.

In a camp in Tanzania it was observed that the elders’ committee used a “talking stick” to communicate: people

could only speak if they were holding the stick. This procedure clearly enhanced listening skills, eliminated

interruptions and enabled an orderly process. Unfortunately, only men formed the committee, but women were

working hard to gain access.

of community structures and identifying leaders with the people of concern are important for gaining a full picture of how the community works.38 If you rely on your first contacts and a few leaders problems will inevitably arise, not only because the leadership might not be representative, but also because if people observe that all the interaction takes place with a few and other structures are ignored, accusations of corruption can arise.39 To support structures which are representative of all, teams will need to spend time in the community discussing with different people those whom they consider to be leaders and

why, and which structures they think function best and why. This can be done through participatory assessment. Participatory exercises offer excellent opportunities to learn with the community and can in turn serve as awareness-raising exercises on participation, democracy, human rights and leadership (see Annex 1 for practical tools). The mapping of community structures such as committees of elders, midwives’ committees and traditional justice systems, their scope of action and the ground rules which they use to function will help inform teams how to work well with the community and assist in identifying human rights issues. As we undertake the mapping with people, we must obtain a clear understanding about the role of each committee and their rules and how the different committees interact with each other. Also, be sure to understand how people access these committees in terms of presenting problems or providing ideas.

38 In Bangladesh not only did very visible corrupt structures control the community, with a very negative impact, but there were also less visible ones which at times prevented people from freely participating in different activities. These even led to some families in one camp refusing to allow their children to participate in a ‘Clown without Borders’ performance. Mapping structures enables ongoing dialogue with all groups to ensure that any interventions have the support of the community. 39 The challenge of first establishing contact with the community is further explored in section 3.1.3, “Establishing contact with the community”.


39

Ten tips for community mapping of management structures

Observe the composition of groups who come forward to interact with the humanitarian agencies and note their age, gender, ethnicity, religion, political affiliation, etc. Check with other agencies and community members whether these are the usual leaders and whether there are others you may not have met.

Identify the different leadership styles and note those who are particularly respected and open and who interact with all members of the community.

Work with the community to map all the different structures, noting which areas they cover. Ask different members of the community who they turn to for support when they have problems and who they might expect to organize the response.

Hold discussions with minority groups to assess their level of participation in leadership.

Note how groups with specific needs, such as persons with disabilities, older persons and child-headed households, are supported

Find out from young people, particularly adolescents, how they participate and at what level, e.g. education and training committees.

Hold discussion groups with women on who is a leader and why. If women are not represented identify with them and with the men leaders in the community the root causes, and seek their opinions on the situation.

Note how leaders and other structures deal with taboo issues and individual rights and if possible use these issues as discussion points to assess people’s awareness of their rights.

Discuss with leaders whether any groups are excluded in order to understand why and whether there are particular obstacles to their participation or whether the situation can change.

Remember to give the community the information back in the form of maps that they can use as a reference point for discussions in the community.

3.2.2 Community-based representation

Regardless of the existing leaders’ attitudes, humanitarian workers must understand that it is important to find ways to work with them in order to ensure access to the wider community and opportunities for continuous dialogue. It is not particularly helpful to establish parallel structures at the leadership level, as these might be undermined by existing leaders. In the long term they may well sabotage any such systems or the community may simply pay lip service to them and important protection issues might be pushed “underground”. If the mapping of structures highlights the fact that groups are excluded, work with partners and progressive community members to define strategies to gain the support of leaders to introduce change.


40

Share information with partners and the community on UNHCR40 and UN policies,41 so that they understand why it is necessary for us to discuss these issues and take action with them.

Undertake exercises with the community to identify those of their values that support inclusiveness and participation. Analyse with them the obstacles, protection risks and consequences that under-represented groups face when wishing to access or influence decision makers. Through a process of dialogue and awareness raising, support the community to consider the benefits of adapting their existing structures to make them representative of all. Where a leadership structure is being established, we can take advantage of change to work with the committee to ensure that the structure is as representative of the wider community as possible. For example, advocate clear selection criteria for candidates, support

the meaningful representation of women in the committee, highlight why it is important for persons with disabilities and the youth to be represented, and ensure that discriminated groups have the support and capacity to participate fully and equally in any meeting. If this is not the case, negotiate or mediate on their behalf. In an urban setting, pre-established formal committees may not exist, and it might be helpful to establish such committees to strengthen informal networks and enable regular mechanisms for outreach work. Observe carefully and identify people who may be able to influence the more “hardline” leaders and encourage progressive and committed members interested in representing their group. Build up their skills as well as those of the more traditional leaders. Encourage these people to work jointly with the overall traditional or established leadership and support them in persuading traditional leaders of the benefits of sub-committees and sub-area leaders or representatives, or more democratic and representatives structures through the integration of new members in the existing leadership.

40 UNHCR’s Five Priorities for Children, 2001, UNHCR’s Five Commitments to Women, 2001 41 UN Security Council Resolution 1325 (2000) on women, peace and security; UN Security Council Resolution 1612(2005) on children in armed conflict.

Camp elections, Damak, Nepal

In 2005, refugee women raised the problem of the

election procedure, since elections were held in a

public manner where people were asked simply to

line up behind the preferred candidate. A secret

voting system was introduced for the formation of

committees from the sub-sector level to the

executive level, making the election procedures more

democratic. A code of conduct was introduced to

increase accountability towards a functioning camp

management committee. In order to identify the

diversity in the camp and cater to the needs of all

groups, caste and age were also added to the

selection criteria for the committees. (CMC election

2006 report, UNHCR sub-office, Damak, Nepal)


41

Where specific groups are not represented or their needs are not being addressed by committees, it is necessary to work more directly with these groups and ensure visibility of their situation and work. Specific groups can be supported to organize separately and they will later join others once all parties feel confident enough to work together. It is important promote the right of children to participate, particularly those with disabilities and adolescents, using participatory processes which will give them the opportunity to express their concerns and their priorities for action. These can include using photography, drawing or art competitions as a means of representing particular issues, taking affirmative action to include children with disabilities in focus group discussions, establishing peer-to-peer support groups with training, promoting sports activities and play areas, spending a day with children to learn about their activities and challenges and interviewing those who care for children with disabilities.42

Whilst it is important to work with communities through their representatives and committees where they exist, or to support the establishment of new ones, it is also important to realize that committees will always develop their own internal dynamics. They may tend to serve the interests of particularly strong or well-established persons within the community. A committee elected at the start of an operation might not be so popular or representative of the community ten years later. All committees need monitoring by the community members and fair and transparent election processes. It is important for staff to find ways of bringing these issues to the attention of the community so that they reflect on them and support them in finding ways to bring about positive change. For example, community members could systematically record the profile (age, sex, background) of the people who attend the meetings and note who contributes to the discussions. One can then discuss what this might mean in terms of the rights and needs of those who are excluded. Regular participatory assessments can help in monitoring and promoting leadership structures or committees that are inclusive and representative. The efforts suggested above also apply to traditional judiciary systems, to be considered in the following sub-section.

42 See www.savethechildren.net/arc (Action for the Rights of Children, Save the Children, OHCHR, UNHCR, UNICEF, October 2002) for practical ideas on how to work with children, as well as the UNHCR/CDGEC’s Internet site.

Overcoming exclusion in Chad

In Chad, one group of refugees, the blacksmiths, were

considered by the other refugees to be from a lower

class. They were excluded from decision making and

were not even allowed to participate in gatherings

organized by the community leaders. The blacksmiths

were supported by humanitarian workers in organizing

themselves and restarting their work, and they quickly

became one of the first groups to be productive and

generate an income. Visitors to the camp were

encouraged to meet them and as the community

leaders accompanied the visitors, they began to

discover what the group was doing. Having realized

that their work was valuable and served a purpose, they

encouraged the blacksmiths to come to community

meetings. This gradually led to their direct participation

in camp leadership discussions.


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Ten tips for supporting representative structures

Work with the leaders and community to identify what methods are used to transmit

information and to ensure that everyone is informed – women and men of all ages and

backgrounds.

Discuss with the leaders how they promote a caring, protective environment and ensure those

at greater risk, such as unaccompanied and separated children, persons with disabilities, single-

female- headed households, are supported by the community. Analyse the consequences of

exclusion with the leaders and with those groups who are left out.

Analyse with the community the ground rules for interaction with any of the leaders and

committees and how representative they are, who attends meetings and who speaks or is

allowed or feels able to speak up and give their opinion.

Identify community values which support inclusive approaches and bring these into

discussions to highlight the fact that inclusiveness and participation are part of their approach

and not “alien” concepts.

Support the community in elaborating their expectations of good leadership and the kind of

people who can provide that, and discuss with them why they might exclude groups such as

women, for example, and work with them to change these perceptions,

Do not just promote 50 per cent participation by women’s or the participation of young

people without preparing the ground for a positive reception by the leaders. Provide all of

them with opportunities to build their leadership capacities, particularly women in contexts of

gender discrimination.

Hold workshops with the community on governance to ensure support for fair and

representative elections, including rotating and time-limited leadership, as well as human

rights and gender equality.

Facilitate a process whereby community volunteers organize fair election procedures and

invite observers if necessary, such as local authorities and humanitarian workers, provide

material support for the elections and support the community in monitoring the ballot to

ensure fairness and prevent intimidation.

Be careful of creating “committees for the sake of committees”, work with people to agree on

clear goals and ensure that the traditional leaders are informed and supportive of the initiative.

Work with partners and community-based organizations and committees to build ground

rules which are transparent, guarantee fair access for all and representative participation, and

promote accountability of the leaders and their role as duty bearers in the community.

3.2.3 Community-based protection responses and solutions

As highlighted, an important part of community mobilization is working together with the community to gather information about their situation and analysing it as a prerequisite to developing action plans. One can work with the community to analyse a number of issues. UNHCR’s particular focus, because of its mandate, is on responses to protection risks in the context of a rights framework. UNHCR’s Tool


43

for Participatory Assessment in Operations promotes the analysis of the protection risks people face, their capacities and the solutions they propose using a human rights framework. Protection requires using participatory methods with the broader community in areas such as data gathering, mapping high-risk security areas and analysing problems, such as access to markets for the sale of goods, support to older persons, how people are using assistance and whether everyone is receiving it, and prevention of teenage pregnancy and alcohol abuse in the community. The UNHCR People Oriented Planning framework is another helpful tool to analyse with the community what has changed since displacement in terms of people’s roles and their access to protection and assistance activities, as well as to identify the resources they have brought with them and how these are managed.43 Understanding these changes will help identify the risks that may be associated with, or exacerbated by, the actions of outside agencies which are not carefully thought through.44 Normally communities and individuals develop mechanisms to respond to most of the protection issues they face, and in many situations they will already be dealing with the problem adequately, although people may welcome additional support. For example, spend time learning what the traditional methods were for responding to unaccompanied and separated children. If children’s rights are respected, replicate their practices rather than bringing in a different system. However, there may be situations where the community members do not recognize the issues as protection risks or violations of human rights, and there will be no effective community response. This is often the case for SGBV. One may need to find out discreetly what happens to a woman with a child born as a result of rape, how such an issue is perceived by the community and what will be the reaction of the community towards the woman and/or child. In some cases, the community response may be inadequate from a human rights perspective. A community-based approach will bring some of these issues to the forefront; assist over time in providing a means to change responses which do not meet human rights standards. Facilitating the analysis of community-based protection responses A first step is raising awareness of human rights with the community through participatory workshops and discussions. Use these opportunities to analyse with the community their practice in respect of human rights – which rights are being respected and by whom. It can be helpful to compare human rights standards with the community values and identify areas where they coincide. Discussion points can include: which rights are not being met and why, whether all people can exercise their rights or certain groups are excluded and why, who a rights holder is and who is a duty bearer. This can lead to exploring what actions they may wish to take as a community to improve people’s enjoyment of their rights. Finally, this provides a basis for agreeing on what constitutes a protection risk and on standards for assessing the appropriateness of any protection response, using those shared values which respect individual rights.

43 Mary B. Anderson, Ann. Howarth and Catherine Overholt, A Framework for People-Oriented Planning in Refugee Situations Taking Account of Women, Men and Children: A practical Planning Tool for Refugee workers (UNHCR, Geneva, December 1992). 44 Mary B. Anderson, Do No Harm: How Aid Can Support Peace – Or War (Lynne Rienner, Boulder, February 1999).


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The criteria for reviewing a protection response could include the following: Compatibility: does it uphold the values of the community and human rights standards? Coverage: does it extend to all individuals in the community? Comprehensive: does it address the root causes?

Supporting community responses which meet human rights standards – Assist the community in building up a

store of good practices from their own experience.

– Help document them as a way of guiding future decisions and establishing precedents to which they can then refer back when later faced with similar situations.

– As good practices are identified agencies should provide active recognition, visibility and support if required.

– Find ways of extending these examples to support other area of the community’s work.

– Agree on complementary actions to support any gaps, e.g. access to loans for housing, credit schemes, and meetings with authorities.

Addressing community responses which do not meet human rights standards – Meet those individuals or groups who are

negatively affected by the practice and ensure that they recognize the negative impact.

– Discuss alternative responses with the concerned community members and find ways for including these in future community discussions and plans.

– Facilitate discussions with other community members about the negative consequences for the affected individuals and reflect on the impact on the family and community.

– Analyse where the practice came from and why it is considered important or of value. – Identify small entry points for change and awareness raising, and provide support to individuals

and groups who are willing to work for change. – Make sure that they understand which practices are unacceptable to UNHCR and why. – Ensure that UNHCR or its partners do not support such practices. – In those cases where there is no recognition by the community of the problem and it is harmful to

Education In a camp in Uganda the refugee men explained

clearly that they considered it to be the responsibility

of the children to get up early and go digging in

return for money or in-kind payment to ensure food

for the family. Once the children had covered this

family need, and if sufficient money was available for

school fees the children were then entitled to attend

school (if they had the energy and managed to arrive

on time and take firewood for the supplementary

feeding programme).

Iraqi refugees in Jordan Meetings with young women revealed that they had

not been to school for the previous four to five years

of exile in the city. Their parents had been hoping for

a resettlement solution and therefore had not

wished to enrol them. Five years later, their

daughters were very angry with them as their friends

in Iraq had completed their schooling.

Chad Due to lack of treatment facilities persons with

mental health challenges were chained to a fixed

place to restrict their movement and eliminate any

threat they might represent to themselves and

members of the community.


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an individual, UNHCR will need to intervene directly. This requires careful consideration to ensure that a real response and solution is provided beyond immediate safety and/or the restitution of rights, as well as avoiding negative consequences for those affected and those intervening.

Sometimes the lack of response is due to a lack of resources or knowledge of potential options, and with external support and facilitated discussions positive progress can be made. Gaps in community responses There are a number of areas where experience has shown that when traditional mechanisms have broken down due to displacement, the community does not necessarily give priority attention to groups who may have specific protection problems. When this is the case, these gaps need to be discussed openly with the community so that mechanisms can be developed whereby the community re-establishes its role as a duty bearer in the protection of the different community members. In an urban context this is more challenging and, if there is no strong community network, will normally require additional support from local associations or religious or other organizations. Examples include the identification, protection and monitoring of

– unaccompanied and separated children, especially child-headed households – persons with disabilities – older persons – persons with mental health and psychosocial problems – single persons.

Serious gaps can arise in the delivery of assistance when community leaders do not work with the different members to ensure that frail older persons with no family support have community help for the collection of fuel, water and during the distribution of food and non-food items. The same is true of single persons with disabilities. It is important to discuss these gaps with the community leadership and members so that collective action is taken to resolve the problems. There is a tendency for external actors to step in and solve the problem; this might be easier in the short term, but it often leaves people with specific needs more exposed later, when there is no humanitarian agency to fill the gap. It may be appropriate as a broad form of community mobilization to facilitate the setting-up of particular structures to address certain issues. For example, as duty bearers towards children, parents, together with teachers, students and the local education authorities, could be supported to create an education committee. Such a committee could expedite the setting up of schools and encourage a sense of community ownership of the school system, including the monitoring of school attendance and the analysis of causes of absenteeism. This can help to support the prevention of military recruitment and sexual exploitation and abuse, and will strengthen community protection mechanisms.45 Such a committee could also consider broader child welfare issues, such as unaccompanied and separated children, and be responsible for ensuring their school attendance.46

45 UN Security Council Resolution 1612(2005) on children and armed conflict. 45 Summary Note, UNHCR’s Strategy and Activities Concerning Refugee Children, UNHCR 2005. 46 www.savethechildren.net/arc, above note 41.


46

Ten tips for supporting community-based protection responses and solutions

Study with the community and how it responds to the protection risks the different members

face. Are these issues discussed in community meetings?

Identify those community cultural norms and values which uphold human rights and give

these high visibility while facilitating an understanding of which practices will violate individual

rights. Focus and build on good examples rather than only discussing negative points.

Agree with the community on criteria for analysing protection risks and responses.

Is the community receptive to the work and are you engaging more members in the process?

Be wary of working with only a few, since you will not build a broad support base or real

ownership and it could expose people to security problems.

Train community members in documenting good practice and participatory methods, as well

as in data collection and analysis if relevant.

Ensure participatory methods are used and all sectors of the community are involved,

reflecting the diversity within the group.

Leave information with the community at the end of any meeting, workshop, etc., so that it

can be reviewed and further discussed – e.g. in the form of flip charts, tables, diagrams,

photographs.

Agree with the community what mechanisms (committees, targeted support, change in

procedures, etc.) will be established to address identified protection gaps and ensure follow-

up monitoring and support as required.

Remember, do not force results – they will be achieved with time

Keep an open dialogue and maintain the momentum of commitment.

In addition to raising awareness of protection gaps and working with the community to re-establish traditional responses (provided they respect human rights), it is also necessary to bring in national agencies to provide additional expertise and assume their responsibilities as duty bearers. In some cases, local authorities will even be obliged under their own national legislation to assume a formal role, for example legal guardianship in the case of unaccompanied and separated children. Only once all these options have been explored should UNHCR and others intervene to fill gaps. Human rights and culture As highlighted by UNHCR’s Executive Committee’s Conclusion on Women and Girls at Risk, “each community is different and … an in-depth understanding of religious and cultural beliefs and practices is required to address the protection risks women and girls face in a sensitive manner while bearing in mind obligations under international refugee, human rights and humanitarian law”.


47

Our capacity to understand and learn about the culture and dynamics of the community is key to using a community-based approach, and persons of concern should guide us as to the best way. In some cases the international human rights standards may not coincide with the cultural norms and practices, while the latter may play a central role in the lives of the population of concern. These must be identified early on and team discussions and dialogue with relevant community members initiated as soon as possible to consider solutions. A well-thought-through strategy must be developed with members of the community who may be more sensitive to the issue, in order to gradually develop dialogue on the issue rather than simply denouncing it. Identify areas of leverage, where community structures and culture may work in favour of the protection of individuals and minority groups, particularly women and children, and strengthen these. Teamwork is particularly important throughout to ensure that the community members understand that the organizations do adhere to a rights framework. Staff are presented with numerous challenges when bringing these issues to the attention of the community and finding common solutions. This is can be the case with incidents of sexual and gender-based violence (SGBV), which may be publicly denounced to “keep UNHCR happy”, as in the case of female genital mutilation, but the practice may continue “underground”. As a result those requiring assistance are less likely to access it and may even be punished.47 The universality of human rights can be challenged by members of the community on the grounds that local culture and tradition should take precedence. Some UNHCR staff have resisted taking action to promote and protect on the grounds that it would interfere with local culture. It is important to get beyond some of our own attitudinal limitations and simplistic responses such as “that’s their culture” and understand our responsibilities as UN staff members. Furthermore, cultural beliefs are not homogenous and they are continually being renewed and reshaped, including by conflict and

47 Sexual and Gender-Based Violence against Refugees, Returnees and Internally Displaced Persons, Guidelines for Prevention and Response (UNHCR, Geneva, May 2003).

Traditional justice systems

We may find that a community has a well

established and respected system of justice

based on traditional leadership, but this has no

means of appeal and fails to recognize the rights

of women or children. The same system may

force women who are raped to marry the rapist

to defend family honour, in violation of the

woman’s rights. Or the system may have nothing

to say about the practice of fostering children in

households where they are then treated as virtual

slaves, or older persons sentenced to death by

the traditional justice because they are accused

of witchcrafts. Thus, a traditional justice system

may provide an important starting point as a

system for settling disputes within the

community and petty crimes, but may not

provide an acceptable basis for responding to

issues such as rape or abuse. In such cases, staff

are expected to intervene with the authorities,

leaders and other community members to

discuss appropriate legal action, but based on

the wishes of the survivors and with full respect

for confidentiality. As humanitarian actors, we are

required to respect and promote the rights of all

and gender equality in our daily work.


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displacement, the media, education, the Internet, etc.48 Change also results from deliberate efforts to influence values through revisions of law or government policy.

Education in Guinea In a Guinea camp with refugees from Sierra Leone, parents were sending their children to Koranic boarding

schools. The children were not receiving formal education; instead they were providing services for the

teachers. As this was clearly an exploitation of children, UNHCR decided to put an end to it by denouncing

the practice as a human rights violation. This perspective was not shared by the community, and as a result

the practice continued underground and UNHCR could not again get hold of the teachers or the children.

It was only after a proper analysis of the community structure and improved dialogue with the community

that UNHCR was able to identify relevant means of working with the community, through a culturally

acceptable team (of imams). They were willing and able to persuade the Koranic teachers that the children

had to be released for formal education. Koranic classes were then conducted in the evenings. Literacy

classes focusing on human rights were also introduced. Thus the community members became aware of

children’s right to education and also learned how they could align their traditional practice to

international human rights standards.

48 Adapted from “Addressing Cultural Relativism in Relation to Gender Equality and Women’s Rights: An Approach by CIDA”, in Gender Training Kit on Refugee Protection (UNHCR, Geneva, 2002), pp. 175–80.


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Ten tips for working with the community on sensitive issues

Clarify from the beginning UNHCR’s position on human rights. Emphasize that UNHCR’s

responsibility is to protect the rights of women and men, girls and boys, regardless of ethnic,

religious and social background.

Do not imply that taking a community-based approach means to do everything that the

community suggests or refrain from highlighting the organization’s position in a situation

where human rights are not upheld.

Avoid appearing judgemental about community practices, show respect and understanding

and keep the dialogue open and be culturally sensitive, and ensure that you are familiar with

international legal standards.

Remember that in every community there are individual(s) who are open to new ideas (young

people, women, religious leaders, older persons). Identify such individuals in the community,

especially among leaders, and explore means of having a constructive dialogue with the main

decision-making body.

With the right support advocates on the inside are far more effective than external actors such

as UNHCR staff, but do not expose them to security risks.

Assess the situation carefully; if an action violates individual rights is it a response that has been

developed recently or is it a long-standing practice? Discuss with the community any negative

practices and seek to understand their importance for the community, their value and the role

they play in upholding tradition, culture and beliefs.

Focus on the reasons behind the practices, the consequences for, or effects on, women, men,

boys and girls, older persons and persons with disabilities, and other marginalized groups.

Jointly look at opportunities for change in the practice, who should be involved and who

should be talked to and why and how to go about the process.

Work with the community to identify small areas for change, such as alternative practices

which uphold values without violating rights, rather than trying to introduce radical overnight

changes, and above all spend a great deal of time in the community.

When working towards the empowerment and equality of women, engage men and mobilize

them into focus group discussions on issues such as masculinity, gender equality, reproductive

health, HIV/Aids, and sexual and gender-based violence among others.

With the community leaders organize mass-information campaigns, awareness-raising

activities, training, theatre activities with the different groups in the community to ensure that

everybody is aware of their rights and obligations.


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3.2.4 Community strengthening and capacity building

Capacity-building support should be designed in coordination with the members of the group, so that it builds on their strengths. It should be based on a joint analysis of their skills and capacities and what they would like to achieve. Such opportunities should be created in a transparent manner so that others can understand why certain groups are accessing them and what other options will be available later. The training of community members in participatory methods, if required, should take place as soon as possible. Simple tools such as transect walks and timelines can be easily shared, although more analytical methods such as ranking and problem trees require more preparation and time.49 One of the best ways to undertake these exercises is first to train community members in the methodology through practice, with the aim that they then facilitate the same exercises with the community. This will create longer-term capacity in the community for ongoing data analysis and avoid institutional gaps through rotation systems among humanitarian workers. Over time, it is also likely to enable greater ownership of any outcomes and will support efforts towards building representative structures which support high levels of community participation. There are three particular areas of capacity building that are important to support community structures as well as the community at large:

(a) Organizational, leadership, communication, participation and analytical skills to promote governance and respect for human rights.

(b) Data collection, project design, planning, management, administration and evaluation. Depending on the community basic literacy and numerical skills might also be a requirement.

(c) Technical skills around specific areas such as business creation, micro-credit schemes, basic accounting and savings systems, agriculture, vocational training, marketing analysis and feasibility studies.

The strengthening of capacities can take many forms, such as short awareness-raising sessions, coaching small groups, on-the-job training, taking up responsibilities and new tasks, workshops, the provision of material support, access to information exchange with other groups, e-learning, Internet access, networking opportunities, exposure to and participation in public events and so on. As far as possible, these opportunities should be extended to the host community. In assessing with the community the different needs it is important to agree on who is the target audience and ensure that the different groups are equitably represented. Depending on the dynamics and the gender power relations, it may be important to organize separate opportunities for women and marginal groups, while also sensitizing men to the benefits of meaningful participation by women, particularly in decision-making structures. In a community where women are not usually allowed to speak in public, establishing a 50 per cent quota on committees without providing targeted capacity-building support will make it difficult for women to take advantage of these opportunities and sustain them. It may in fact even increase social prejudices regarding their abilities in leadership. Ensure that the training schedule allows for proper participation and that facilities are accessible for those with disabilities. Arrange for community childcare so that parents, particularly women, can attend.

49 See Annex 1 for detailed information on these methods.


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In a Sudanese refugee community, the Refugee Central Committee was composed of men only. As

UNHCR requires 50 per cent representation of women, there was concern that the leaders would comply

to be politically correct, but that the women would not be able to participate meaningfully. UNHCR

persuaded the groups of the importance of regular elections to the committee, and took the opportunity

to negotiate space for women’s representation. An agreement was reached between UNHCR and the

refugee leaders for four of the 15 positions to be allocated to women. To ensure the meaningful

participation of women, the women were provided the opportunity to elect their representatives

separately. The women were supported to build up their self-confidence and their leadership skills. As

formal meetings between men and women were a new event, neither men nor women felt comfortable.

Therefore UNHCR negotiated for four additional women to accompany the four representatives as

observers, to provide moral support. The increase in number created a feeling of security among the four

women representatives, as they were able to benefit from the advice of the additional four women before

taking the floor to intervene. Over time, the regular attendance of the four women representatives and the

four observers led to people becoming more relaxed with the system and allowed for any one of the eight

women to participate. Through this process, the number of women representatives was doubled.

When organizing capacity-building activities ensure that the selected facilitators are sensitive to age, gender and diversity issues and the promotion of a rights- and community-based approach. As far as possible, bring in local or regional organizations to deliver the training, including academic action/research bodies. Language can also be an important challenge, and interpreters need to understand beforehand the training content and the overall objectives. Whenever possible, promote a process by which those who have had an opportunity to be trained will undertake to train other community members. The following are some helpful considerations when working with communities to strengthen their capacities. Raise awareness on a rights-based approach and the community as a rights holder and as a duty bearer. The clarification of these two points will facilitate the dialogue between the community members and the humanitarian agencies in terms of roles and responsibilities, and will support the establishment of ground rules for the working partnership. Encourage groups to chart their own course. Empowerment leads to success, which also undoubtedly lies in the pursuit of the group’s own plans and ideas, as long as they are in line with international legal standards. Groups and their individual members know their priorities best. The groups should establish their own agenda and contribute their own skills, and external actors should provide information and support as required. Build up strong communication skills. Leaders, both women and men, young and old, need to communicate effectively, not just to mobilize and motivate their members, but also to communicate outside the group. This may include sharing successful experiences and information so that others may follow suit or to appeal to external parties. It may even include skills to negotiate better terms with other stakeholders. Often such skills are transferred through alternative techniques, such as theatre groups, audio-visual material and other entertainment techniques to which local people can easily relate.


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Lectures and seminars should be avoided. Develop action research. In deciding what course of action to pursue, a group needs reliable, good information. Since many displaced communities are unlikely to have such access, people may need support in devising their own research capacity and the development of community-based data-collection techniques. UNHCR and partners can support this work through the provision of information on policies, including protection, assistance and durable solutions, and facilitating access to a variety of local, national and international actors and related information. Such actions will increase group awareness and will allow them to take necessary and informed actions based on the knowledge they have gained about these issues. It promotes a culture of transparency which in turn will facilitate strong leadership. Build awareness raising and empowerment into all activities. Group meetings can be an occasion for debate about the causes of protection problems and possible paths to address these causes. For instance, functional literacy activities for women will not only enable them to read and write, but could also raise awareness about the root causes of their problems. Legal literacy classes can combine raising awareness on rights and national laws with literacy skills. The radio is often an excellent medium for sharing information, and supporting groups in running their own radio programmes can be an empowering process as the groups gain visibility while offering an important service to the community. Foster strong leadership. The real leadership must be chosen by the group or community members, while promoting age, gender and diversity balance. Informed choice is the single most important factor in determining success. UNHCR and its partners can help by providing whatever support might be needed, such as training opportunities and support structures, and advice that the community-designated leaders might request. One way to provide structured support to community representatives will be training on literacy – if needed – leadership, communication and management, covering subjects from empowerment techniques, gender awareness and women’s rights to government and UNHCR policies. Tackle internal as well as external injustice. Many depend on the traditional leadership for their support and protection, particularly for organizing people to assist in the delivery of assistance. Forging unity between the different segments of the community, based on common problems and issues, but also on common solutions, is one way to overcome differences and increase participation in decision-making processes. Use capacity-building opportunities to reflect on the skills needed and to build these skills to address such situations.

Forge alliances with other local groups. Large numbers of similar interest groups coming together in coalitions and networks can overcome bigger challenges and achieve wider goals, by supporting each other’s struggle and action. Build connections with local associations for young people, women’s rights groups, trade unions and so on.


53

Avoid early failure. While groups must determine their own goals, UNHCR and its implementing partners should help them to guard against actions which are unlikely to succeed, especially in the early stages. An accurate assessment of the situation – including access to local employment market, possible marketing for products that might be produced as a result of income generation projects, access to government policies in relation to drinking water or land allocation to build a community centre, and international and national rules and regulations and policies in relation to relief distribution, or similar issues – must be carried out prior to taking an action. Networking with similar local groups will increase chances of success and allow exchange of experience and information between them. Use participatory assessment to evaluate lessons learned and incorporate them into capacity-building activities. Balance external and internal contributions. External funding, whether from foreign donors or from local or national host governments and NGOs, should be understood to be a temporary measure to assist communities of concern in the initial stages of their displacement. Experience shows that most communities become stronger, independent and grow when they are self-reliant. Create the context for learning through transparency and information sharing. For communities to participate, they need a flow of information. Various means can assist in information sharing: public meetings, notice boards, leaflet distribution, public announcements via the media. Whichever means of communication and information are used, it is important to check how the message is interpreted and perceived, and not assume that because it has been passed on or handed over it is understood. Communication should flow both ways, from humanitarian workers to the communities and vice versa, from community representatives to community members and vice versa. Use random checks to ensure that all community members have received information, especially those who are housebound or speak a different language from the majority.


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Ten tips for capacity building

Train several community members in the use of participatory methods and ensure age, gender

and diversity balance among participants.

Raise awareness and understanding of values such as inclusiveness and respect for all, gender

and diversity awareness, and the rights of children and older persons.

Work with community leaders to inform all members about their responsibilities as duty

bearers as well as rights holders.

Work with the community to identify the different capacities and skills of the members and

agree on the gaps where training and other capacity building opportunities are needed.

Monitor how different people are accessing the various training and capacity-building

opportunities and whether any particular group is being excluded, e.g. persons with

disabilities, young mothers. If so, why?

Build on the creative ideas of different age groups to deliver messages while fostering their

leadership skills.

Identify appropriately skilled partners to deliver the training and ensure that they will transmit

values in keeping with a rights- and community-based approach.

Follow up how people are applying the skills acquired and are training others.

Discuss with people responsible for managing community projects how they are coping and

whether they require particular support or training. Promote transparent accounting

mechanisms.

Have people been trained on participatory monitoring and evaluation?

3.2.5 Community action planning

Community action planning is participatory planning at community level. This is an ideal stage at which to consolidate ownership and, depending on circumstances, it may include the host community and other stakeholders. A community action plan is drawn up from the analysis of rights and the ranking and prioritization of the protection risks, assistance needs and solutions identified during participatory assessments and other participatory activities. The plan is based on what the community feels able and willing to do to contribute to addressing the issues identified. When reaching this final stage of analysis and prioritization it is important to ensure that all the interests of the different groups in the community have been represented. If not, it will be necessary to discuss what arrangements will be made to address these concerns, especially the protection risks of traditionally marginalized groups, such as action to prevent SGBV, improving shelter conditions for older persons and persons with disabilities, or improving assistance to child-headed households. While the information collection and analysis should involve a large number of people, it may be more practical for the community action plan itself to be drawn up by a smaller group, such as a planning committee. This group may take responsibility for developing the action plan and monitoring its implementation. This does not mean that there will not be a role for members of the community who


55

are not on the planning committee, since the implementation of the plan will depend on the wider community. The community process for the selection of the planning committee members should reflect considerations outlined in section 3.2.2, “Community-based representation”.

Community action plans start from identifying the protection problems and assistance needs which have been prioritized by the community, and they should address the following questions:

– What actions are required to deal with the problem? – What outcome or change is desired and will this remove the cause or the symptom? – Who will benefit and are we being inclusive? – Does the project meet our protection response standard criteria? – What resources are needed from the community itself and from outside? – Who will provide these resources (expertise, human resources, material and financial)? – How will the resources be administered and who will keep the accounts? – Who will carry out the project or activity? – What is the timeframe for implementing the project? – Who will monitor the project and how will the results be evaluated?

Depending on the circumstances, the community may be able to use its own resources and make direct contact with donors or find other means to implement its plans. If this happens it is an indicator of community development/ownership, as people take charge of decisions affecting their lives. At the same time, UNHCR needs to ensure that any community action plans adequately respect and address the rights of all sectors of the population. This should be carefully monitored through close communication with the community. If some groups are being excluded, it may be necessary to intensify the activities highlighted under section 3.2.3, “Community-based protection responses and solutions”, to ensure that their interests and priorities can be addressed. The resources needed for implementing the community action plan will have been identified as part of the planning process. The community group will need to negotiate with external donors, local government, etc. for any outside resources they may need. In some circumstances it might be through a joint action plan with the host community (for example in IDP contexts) or with the local authorities, especially in returnee contexts. UNHCR, its partners and other relevant institutions can support the community group in this negotiation process. They should suggest potential sources of support that community groups can approach and advise on appropriate ways of negotiating for resources. UNHCR should also work with the community on the implementation of the projects it has agreed on with the community to ensure their involvement and ownership, and should reflect this in its priority setting and country operations plan.

In a refugee camp in Sierra Leone, UNHCR staff provided

information to the community on the available budget

in the form of a coloured pie chart to show what

proportion was spent on each sector (health, water,

education, etc.). The pie chart was then used to discuss

with the community their priorities and how UNHCR

should divide up the budget the following year.


56

Ten tips for supporting community action plans

Ensure those participating have had an opportunity to be trained in participatory methods and

that they have the backing of the community

Encourage representation which reflects the age, gender and diversity of the community.

Work at the pace of the community rather than imposing the timelines of external agencies as

far as possible and remain flexible.

Provide support to the participants/leaders to share the action plan with the community to

ensure agreement.

Respect the ideas/wishes of the community, while providing support/inputs as required

Monitor for adherence to human rights standards.

Provide visibility to the achievements of the community.

Advocate for support for the action plan among different external stakeholders.

Ensure that the UNHCR or interagency funding mechanism provides support to the action

plan if required/appropriate.

Promote transparency and accountability among those responsible for the Community Action

Plan.

3.2.6 Community action teams

Mobilizing men in the community around individual rights As in many parts of the world, South African men often act in ways that contribute to domestic and sexual violence, and high rates of HIV/Aids. Spurred by the recognition that men’s attitudes and behaviours can either impede or promote sexual and reproductive health, the international NGO Engender Health, in partnership with the Planned Parenthood Association (PPASA), started the Men as Partners programme (MAP) in South Africa in 1998. In 2004 the MAP network decided to expand its programme of workshops, coalition building and advocacy with the launch of “community action teams” or CATs. Small, informal groups of volunteers, CATs provide an opportunity for men and women who have participated in MAP workshops to take action on gender- and HIV-related issues affecting their communities. The initiative was designed with the dual purpose of reaching a broader audience with MAP messages and helping CAT members sustain attitude and behaviour changes adopted while attending MAP workshops. By encouraging community members to get involved and take ownership of attempts to change social norms, it was also hoped that CATs would increase the sustainability of the MAP programme in general. CATs are free to adopt their own sets of goals and interventions providing they operate within the general MAP framework which aims to promote gender equity, reduce gender-based violence, improve sexual and reproductive health for both men and women, and increase male involvement in the treatment and care of people living with HIV/Aids. How these aims are interpreted depends on the context within which the CAT is operating and the interests of its members. In a community where unemployment is a major factor contributing to gender-based violence and high HIV infection rates, organizing a career fair may be the most appropriate course of action. For a CAT made up of artists and musicians, raising awareness through performance art may make more sense. Sonke Gender Justice, NGO, South Africa, 2006.


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As highlighted earlier, there are many issues which traditional community structures might not consider a priority or do not have the time to follow up. One way of fostering leadership skills among different groups and supporting change is to support small groups in setting up and developing their own particular activities through community action teams. In this way, interested people can come together to mobilize other community members through awareness-raising events and activities, providing training and working with the community at large, including the leadership structures. Community action teams can introduce new ideas in a non-threatening manner around such issues as child rights and participation, HIV/Aids, work with men to stop violence, masculinities, environmental action campaigns and improving living conditions, and on prevention and response to such specific threats to the community as violence against women and children when collecting firewood and so on. They provide an opportunity for more flexible and less hierarchical structures and can be highly motivating and attractive to young women and men and children, particularly if they use media such as theatre and music to transmit their messages. This facilitates the mobilization of broader community support for issues which may not have been addressed by more traditional structures.

Ten tips for working with community action teams

Identify particular issues of interest to certain groups which have potential for mobilizing the

groups, such as protecting the environment or reducing alcohol consumption.

Support and encourage the interest groups to come together to discuss the issue and potential

ways of addressing the problem.

Target an activity to which the refugees and other persons of concern can readily relate and

stimulate interest.

Encourage a modest beginning; many small-scale activities inspire community strength and can

lead to addressing bigger issues.

Encourage the group to undertake participatory research on the issue in their community.

Help the group to network with others facing a similar problem, particularly among local

associations.

Encourage the members to set criteria for the selection of the leading team, define the roles and

responsibilities of members, distribute tasks, decide on the resources they will contribute and

develop monitoring and evaluation systems.

Help the team to develop values and criteria which promote respect for individual rights,

diversity and tolerance.

Build their skills, if required, in project management, accounting and so on.

Facilitate, if possible, access to the “outside” world, the Internet and so on.


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Participatory assessment in one country

revealed that the school feeding

programme which had been put in place

to encourage children to attend school

was in fact having the opposite effect on

those most in need. Agreements had

been reached between the community

leaders (who were perhaps the wealthier

ones in the camp) and the school director

on criteria for covering incentives for the

cooks, cooking materials and firewood

provision. As a result, the poorest children

were even less likely to attend school,

since neither parents nor children were

able to meet even minimum

requirements. Children who did not

provide firewood were sent away. Some

parents were deterred from sending their

children to school because they did not

wish them to go hungry while others ate

in front of them.

3.2.7 Community-based monitoring and evaluation

Of all the activities we can undertake, community monitoring and evaluation are perhaps among the most essential, since they lead to transparency and accountability. Monitoring and evaluation also link back to participatory assessment as means of finding out what is or is not working. Regular participatory

assessment can be used to monitor the implementation of UNHCR, partner and community projects with the groups that are expected to derive benefits from the project so that timely adjustments can be made. Local authorities and host communities must also be consulted to ensure that things are working well. Participatory assessments have demonstrated that failure to monitor can lead to misdirected assistance as well as leave room for abuse and exploitation. Community-based monitoring focuses on the implementation of activities to ensure that they are going well and contributing to the overall goals. Planning processes are rarely perfect and situations change constantly, so that regular monitoring is important. It is best done in partnership with those who are responsible for the project, those who will participate and those who should receive the benefits. Agreeing on community monitoring mechanisms enables rapid solutions and can help avoid tense situations which can even give rise to security incidents, since people become frustrated when expectations are not met. Monitoring must include regular visits to those with specific needs to ensure that they are not being excluded. Systems need to be established early on with the community leaders for:

– identifying groups with specific needs and setting up community support mechanisms for the delivery of assistance to those who are housebound or frail or unable to collect their assistance;

– the community and UNHCR to monitor the provision of assistance to different groups to avoid abuse and exploitation;

– holding discussions with the women and young people who are expected to benefit; – regular home visits by leaders or other community members to housebound people, child-

headed households, unaccompanied and separated children and other groups at risk; – regular updating of UNHCR and agency staff on the status of these people; – receiving reports on project implementation; and – feedback from different members of the community on the quality of assistance and services.

Monitoring also requires a review process in order to agree on changes to the project or services and information sharing with the stakeholders.


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In addition, UNHCR and agency staff should also conduct random visits to distribution sites and home visits to monitor the situation of different members of the community. Community-based evaluation requires a review of the entire programme or project, with a view to seeing whether objectives are met and things really changed for the better. It can be done through participatory assessment, surveys and other complementary methods. It is important that the different stakeholders agree what project or services are to be evaluated, with whom and when. The following key questions might be helpful:

– What has changed for the group or the community? – Do the changes correspond with the desired outcomes? If not, why not? – Were the services delivered in an effective manner? Can improvements be made to procedures

to make them more efficient? – How were the project or services monitored and by whom? Does this need to improve? – Was anybody excluded and if so why? Was this detected quickly? If not, why not? – Were those people at risk and/or with specific needs contacted regularly to ensure that they had

received the right support or service? – Were people regularly informed of the progress of the project and how any relevant assistance

accessed? – Were mechanisms set up to enable people to make complaints or discuss problems? – Were the attitudes of those providing the services respectful and in keeping with organizational

values?

Who controls the cooking stoves? UNHCR was distributing one cooking stove to a group of families, but during the participatory assessment

it was discovered that in fact they were unable to use the stoves. Analysis revealed that families from one

ethnicity were considered to be of a “lower caste” and thus were prevented by the majority from using the

stoves. A lack of knowledge of the community dynamics had led to distribution mechanisms being

established which not only failed to ensure access to all, but also allowed one group to use UNHCR

assistance to further discriminate against another group.

Community-based monitoring and evaluation cannot take place unless written, verbal and visual information is provided to all members of the community in appropriate languages and a comprehensible manner. Information is vital to transparency and accountability. As part of their strategy to support a rights- and community-based approach, all agencies should ensure that staff carry visible identification, so that people of concern know who they are talking to, which agency they represent and what they are offering. This should be complemented with information provided on a regular basis to the community in poster form on what services each agency will provide and giving details of assistance programmes.

In Bangladesh, the team took photographs of the situation in the camp both before an agricultural project

was begun and after, so that the dramatic difference made by the project could be seen. Such

photographs are excellent visual tools for promoting discussion on what has changed and what is still not

resolved, as well as helping people to see the progress they have made.


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Individual case management committees must be established by offices and partners to provide a system to follow up, monitor and find solutions for those individual persons who are at heightened risk in the community. The system needs to be coordinated with the community, but any individuals at heightened risk50 should be regularly visited by UNHCR and partner staff, with due consideration to confidentiality, and the potential for placing such persons at greater risk. Such individuals may also be referred to appropriate channels based on agreements reached through SGBV standard operating procedures or those established for Best Interests Determination for children at risk.

Ten tips for community-based monitoring and evaluation

From the outset provide written, verbal and visual information on your projects and services

(or community action plans) including funding where appropriate.

Work with leaders to agree on effective monitoring systems by the community within the

community, and develop UNHCR and agency monitoring systems including the establishment

of an individual case management system for persons at heightened risk requiring close

monitoring.

Undertake regular participatory evaluations of UNHCR’s work and programmes using focus

group discussions and other participatory methods.

Keep evaluation tools simple and ensure participation by all the different groups in the

community.

Build on previously agreed plans and participatory assessment findings to note progress and

identify weaknesses.

Listen and learn, rather than “discuss or argue” and agree on what steps will be taken to

improve the situation.

Follow up and share the outcomes with the community.

Build any changes or learning into the project revision.

Document learning and good practice and share with other offices.

Ensure that all staff are wearing individual identification with photos and names, so that

persons of concern can monitor and evaluate attitudes and the quality of the services

delivered by the different agencies.

50 UNHCR and partners are currently developing and testing a tool for assessing which individuals are at heightened risk.

4. Knowledge, skills, attitudes and multifunctional teams

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4 Knowledge, skills, attitudes and multifunctional teams

This section outlines the most important knowledge, skills and attitude needed by humanitarian staff and the way in which a multifunctional team approach, which combines different professional skills and functions, can strengthen the implementation of the community-based approach. It also provides guidance on how a team can first establish contact with the community.

4.1 Knowledge

“Not to know is bad, not wishing to know is worse” Applying a community-based approach can pose challenges for UNHCR and partner staff in their role as facilitators. Humanitarian workers play an important role in helping to create the space and conditions for people of concern to achieve their goals in a manner that is as non-directive as possible. Such accomplishments lead to inclusive communication and the building of sustainable relationships based on trust and respect for human rights. A community-based approach requires knowledge of group processes, conflict resolution and mediation in order to develop a collective process which takes account of an individual’s or sub-group’s rights and ensures that institutional and community objectives are met.51 In this regard, the following points should be noted:

– An understanding of social sciences and expertise in communication techniques are essential to ensuring good participation and undertaking in-depth social analysis from an age, gender and diversity perspective.

– Knowledge of international, regional and national legal instruments is useful when working with members of the community on human rights issues and also helps staff to be clear about upholding standards.

– Time should be invested in gathering information about the community, its history and current dynamics.

– Humanitarian workers should understand how their own age, sex and background facilitates their engagement with particular groups and communities. Knowledge of oneself and one’s own weaknesses and strengths is useful in knowing how best to support community processes.

51 For an extensive list of resource material on, e.g., conflict resolution and ethnic and cultural differences see Inter-Agency Peace Education Programme, Analytical Review of Selected Peace Education Materials (UNHCR, UNESCO, 2005).


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4.2 Skills A community-based approach demands that staff and partners employ a number of skills to enable a successful participatory process with numerous actors, while ensuring that the process moves forward and people achieve their common goals. The following are the most important. Communication skills are crucial in enabling people to work together in a coordinated manner on a common task or towards a common goal. Communication is a two-way process: information is both received and transmitted through sharing and listening. Persons of concern can only participate meaningfully if they have access to the same, accurate information as the humanitarian workers. Listening is the most important part of communication. Active listening requires a demonstration of interest, to hear what is said, to clarify points and to be able to summarize information accurately. Communicating in a respectful manner with people means talking with them, not at them. Negotiation skills are important in facilitating complex processes with many different stakeholders in the community with varying levels of power and decision-making capacity. Persuasion and negotiation are constantly required to create entry points with communities on sensitive issues. Good observation skills and curiosity enable people to discover many things that are happening in a community which might not be spoken about, such as how children are treated and what activities they are engaged in, whether or not persons with disabilities are given a role in the community or are apparently absent from community life. Observation also allows us to pick up on non-verbal behaviour. This is essential when trying to learn about how those who have less voice, or feel less able, participate. It also helps one to be more aware of what effect we have on the community.

4.3 Attitudes One of the areas to which we most need to pay attention is our attitudes, since these and the values we transmit will, over and above everything else, determine the nature of our relationship with people of concern. It is these same attitudes which will enable good coordination and teamwork with other humanitarian agencies. Our attitudes towards members of the community and other peer workers are demonstrated in both verbal and non-verbal ways, and we need to be acutely aware of them to ensure that we maintain respect and impartiality in our daily work. It is all too easy to become burnt out and detached from the work, particularly when quick results are rarely forthcoming. Nonetheless, we must question ourselves and colleagues when we hear statements such as:

These refugees are seeking to meet only to talk about resettlement or incentives!!! These women always come with preset stories of rape…


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Therefore we have to bear in mind the following. – Non verbal messages. Remember that

body language is very culture-specific and that non-verbal messages can be perceived differently, for example facing people when you are speaking to them, showing sustained interest, making eye contact as appropriate (without staring, since it can be perceived as aggressive). Other messages are conveyed by looking at your watch when people are raising a point they consider of high interest, coming to a meeting with the community with your ready-made checklist, sitting with people as opposed to apart from them – unless this is part of the ritual if you are a guest – and walking through the camp meeting people instead of sitting in your car.

– Verbal messages. The tone we use and our opening sentences often transmit clear signals to people about how serious we are about engaging in true dialogue. Cutting off people who wish to raise points, and not staying after a meeting to see people who are seeking individual time or leaving without making appointments are all clear demonstrations to people regarding our priorities. The use of appropriate non-technical language and acronyms are basic measures of respect.

– Respecting traditions and customs will improve the relationship and build trust, and offering information about yourself can also be helpful in removing the distance between yourself and the community.

– Seeing people as human beings rather than “individual cases, populations or as caseloads” is an important step in treating people with respect and dignity. Regular direct conversations with people, individually or in a small group, also put a human face on complex problems and remind us of why we are humanitarian workers.53

– Avoid making assumptions about people. Just because someone falls into a particular group, this does not mean that (s)he will necessarily fit with your stereotype of that group. For example, if a woman is described as a widow, it should not be assumed that she is necessarily in need of particular support (vulnerable). Until more is known about her, all that can be assumed is that her husband has died.

– Remember that people will also make assumptions about you and observe your behaviour. You might for example be perceived as the external saviour or as the foreign interloper. You need to make an effort to clarify and define your role vis-à-vis the community by clearly and transparently outlining your contribution and your limitations.

– Maintain respect for the humanitarian principle of impartiality.

52 UNHCR Code of Conduct, June 2004. 53 Ibid., principle 1: 4.

UNHCR Code of conduct requires that staff

“always seek to understand the difficult experiences

that refugees and other persons of concern to

UNHCR have faced and survived, as well as the

disadvantaged position in which they – particularly

on the basis of gender, age or disability – may find

themselves in relation to those who hold power or

influence over aspects of their lives”.52


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Ten tips on communication and attitudes

Be aware of your verbal and non-verbal behaviour; you are being observed. Take time, listen to

people, to what they want to say. It may differ from what they told you earlier. Listen with your

eyes. Do not be afraid to remain silent – people may need to think before reacting.

Prepare well in advance with interpreters. Ensure that they understand the process and what

you are seeking to achieve. Avoid misunderstandings and second-guessing.

Do not make assumptions, but play a facilitation role. Be aware of traditional communication

ways and use them as appropriate. Communication should be adapted to the specific

community. Adopt traditional forms of dialogue if culturally appropriate. Find out from them

how they traditionally communicate. Relate theories and concepts to familiar life experiences.

Delivering protection requires that staff have internalized age, gender and diversity analysis

and reflect it in how they interact with communities, their reports, planning, training,

documents, etc. Awareness and willingness to address related issues is about your own

personal attitudes, values and being ready to take a stand and uphold human rights.

Value people’s time, capacities and resources. Make sure our demands do not create a financial

burden for people. Create the conditions for people to participate fully without imposing too

many new methods and procedures.

Be aware of what might distance people from you and what might build good relations. How

information is passed on is key to successful participation, so be sensitive to what is

appropriate for the group

Be enthusiastic and reflect it in your voice and attitude. Be welcoming and reflect this in your

facial expressions and body language. Pay attention to those who remain silent; include them

by using eye contact.

Recognize and document people’s contributions. Thank people for their availability, assistance

and hospitality.

Provide leaflets and find ways to share with those who do not read. Take time to explain and

help people understand. Being informed creates an understanding, a sense of ownership of

the new knowledge and thus encourages interest, useful contributions and commonly desired

results as well as empowerment

Stop by the teashop or market, walk around the camp and spend time talking to people; take

advantage of situations to give people a hand and get involved in conversations.

4.4 Multifunctional teams UNHCR has increasingly reaffirmed that international protection incorporates more than the provision of legal protection and that it encompasses all activities undertaken to uphold the rights of refugees and other persons of concern to UNHCR. It also includes the measures that persons of concern themselves take to ensure their own protection, and UNHCR operations must develop and build on these capacities. The three evaluations undertaken on women, children and the role of community services highlighted that protection was most effectively delivered when teams worked in a


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multifunctional manner.54 Reviewing and analysing protection risks, priorities and solutions through a community-based approach requires a multi-disciplinary perspective and taking advantage of a variety of different areas of expertise. In launching its age, gender and diversity mainstreaming strategy, UNHCR has promoted the establishment of a multifunctional team approach to its protection work, and this provides a useful model for working in the field.55 A multifunctional team brings together the expertise of management, programme, protection, field, public information and community services staff, national and international, as well as government and partner staff to enable a comprehensive analysis and planning process and to ensure common goals and approaches in our work. Rotation is important to expand expertise and avoid overloading certain team members. The multifunctional team approach is essential to implementing a community-based approach, since it harnesses the expertise that all the different specialists bring to an operation, and hence maximizes the benefit for the people of concern. If a team member or partner focuses narrowly on the task without taking time to communicate with and learn from others, the full benefit of adopting a community-based approach will not be achieved. There is also a danger that a community-based approach will not be applied throughout the operation and that therefore efforts by some will be undermined by others. Each functional area or partner can bring particular skills to the multifunctional team:

– Expertise in social work, communication techniques and facilitation skills will play a particular role in mobilizing and facilitating the participation of the community in urban and rural settings, building trust and confidence and developing action plans based on their capacities and priorities.

– The knowledge of the daily lives of persons of concern acquired by field officers is essential in helping other staff to understand community dynamics as well as gaining entry points.

– An understanding of legal and human rights instruments will be important in reviewing and discussing human rights with the community.

– Programme management, planning and monitoring skills will be crucial to ensuring that adequate support and follow-up is provided for agreements undertaken with the people of concern.

54 “Meeting the Rights and Protection Needs of Children – An Independent Evaluation of the Impact of UNHCR's Activities” (May 2002); “UNHCR Policy on Refugee Women and Guidelines on their Protection: An Assessment of Ten Years of Implementation” (May 2002); “The Community Services Function in UNHCR – An Independent Evaluation” (March 2003). 55 For more information on the multifunctional team see The UNHCR Tool for Participatory Assessment in Operations (UNHCR, 2006), p. 7.

In one refugee camp in Chad, the water

sanitation agency had established a

community-based system of refugee

community outreach workers, while the

camp management agency had

established a system of refugee workers to

implement camp management activities

such as overseeing food distribution. The

philosophy behind each was quite different

and this soon became evident, leading to

competing methods of working and

incentives and undermining efforts to

develop a community-based approach.


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– Skills in information dissemination and the design of appropriate material are important for information sharing and reaching all members of the community.

– Partners bring a range of expertise to different sectors such as health, education, water and sanitation and are important players in establishing a common approach.

– Government and local authority staff, in addition to their own expertise, have an understanding of the local situation and system and can facilitate processes and resolve many problems.

Considerations when forming the multifunctional team

• The nationality, age, sex, religion, ethnicity and combined skills of the team members should be

carefully considered. It is important that the members of the team are able to access and

communicate with the different sections of the community and facilitate the process well.

• The attitude and behaviour of team members is critical. The team might be the first contact people

have with UNHCR and other agencies and they should be aware of the role of each and create a

positive relationship without raising false expectations.

• The team must have respect for the community, enjoy spending time with the people and be

willing to build up relationships with members of the community.

• All team members should build up their skills in analysing the situation from an age, gender and

diversity perspective.

• The size of the team will depend on the situation; it is important not to overwhelm people with

large team visits, but to break up into smaller teams.

• All partners should participate.

• In an IDP setting a multiagency team should be established to facilitate coordination.

5. Considerations for specific contexts

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5 Considerations for specific contexts

This section discusses considerations to be kept in mind when applying a community-based approach in specific contexts, and provides some guidance on how to work with a community-based focus in different settings.

The community-based approach can be used in all types of UNHCR operations. However, there are some specific points which might need to be considered depending on the particular context of the operation. Since several types may coexist within one country operation, the field assessment and analysis should take into account all the different types of displaced populations and the specific protection problems that they face. For example, Sudan currently has internally displaced persons in Darfur and Khartoum, while it is also running a return and reintegration operation in southern Sudan.

5.1 Emergencies The nature of the emergency situation will determine the extent of community participation. However, as in other contexts, a significant level of community participation is possible and highly desirable. Quick action is needed to address life-threatening situations, so that the time for consultation and negotiation is very short. It is important to balance the time and effort spent on situation analysis, including participatory assessment and community mobilization, with the length of time for which the results of the assessment will be valid – in an emergency conditions are changing all the time, so that any analysis of the situation may rapidly be out of date. Take every opportunity to meet persons of concern. Although there may not be time to meet every group, it is vital that a range of representatives from the whole community is included in the assessments. Do not rely solely on the people whom it is easier to reach, such as existing leaders or young men who speak the humanitarian workers’ working language. As often as possible make sure to meet women, men, boys and girls of different ages and background to gain a proper understanding of the situation and the persons of concern.

– Through field assessments with people of concern map existing agencies, services and community structures.

– Do not wait to consolidate the priority needs of all groups. Start with one group and respond before moving to another. Since the situation is likely to change, assessments should be carried


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out every three months to ensure that activities are planned according to need, but be careful of “over-assessment”.

– The security of those consulted must be carefully considered. Individuals or groups communicating with aid agencies can become the object of resentment or even violence by other individuals or groups. Sources of information should therefore be kept confidential and in IDP contexts particular care should be taken when working with local authorities to ensure that there are no repercussions on individuals or communities when discussing human rights violations.56

– Early, quick assessments should review protection risks and human rights violations prior to and during the emergency. The root causes should be analysed with a view to taking speedy remedial action and avoiding further abuses or displacement.

– Quickly identify a team within the community who are able and willing to organize community support for those with specific needs.

– Set up community-based systems, bearing in mind respect for individual rights, to identify and provide protection and care, if required, for groups with specific needs: older persons, persons with disabilities, unaccompanied and separated children and so on.

– Take immediate action to prevent family separation, reunite families if possible and initiate family reunification procedures.

– Set up a mechanism for identifying with the community those persons who are at heightened risk.

– Jointly with the community develop an information and communication mechanism to ensure that all the population, including older women, persons with disabilities and other groups potentially excluded, have access to information on assistance and other issues. Post noticeboards in places people are likely to meet such as the water collection point, the community centre, registration points or wherever assistance is being distributed.

– Avoid establishing patterns of behaviour or relationships during the emergency that might be difficult to change later on. Instead, make temporary arrangements that are reviewed regularly. Make sure that people are aware that any arrangements made in an emergency situation might change later.

– Establish fixed points where staff can make themselves available at regular times to gather information on groups with specific needs, answer questions and/or provide counselling.

– Have specific emergency response plans established for responding to urgent cases, and with partners and the community, if appropriate, establish an individual case management system for all persons identified as being at heightened risk.

– Work with national and international partners all the time. – Where persons of concern are struggling to survive, UNHCR and partner agencies have a great

deal of power, since they are seen as the only potential lifeline. This can distort relations between people of concern and the humanitarian agencies, since people may be reluctant to raise complaints about or show any sign of disagreeing with activities that are implemented. Think about the future and consider the longer term implications of all decisions.

56 UNHCR’s Confidentiality Guidelines (IOM/71/FOM/68/2001) set out the regulations on the sharing of information on individual refugees with third parties. Not only must the sharing of information serve the execution of our mandate, but we must also ensure that the information that is shared is not subsequently used for other purposes than for which it was shared.


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5.2 Urban situations An urban context poses specific challenges for the community-based approach, since it is more difficult to oversee than a refugee camp. In an urban setting persons of concern are often dispersed over a wide area. Groups or individuals with specific needs are more difficult to reach and are therefore easily neglected. In most urban areas, persons of concern often consist of a mix of asylum seeker, refugees and migrants, and are sometimes illegally in the country. Often people do not come forward to seek assistance, since they may still have some resources, be uncertain of their rights and/or fear being sent back to their country of origin. Refugees, asylum seekers or IDPs who live in urban areas are susceptible to a variety of protection problems and threats associated particularly with an urban context.57 Women and girls are exposed to survival sex, sexually transmitted diseases, trafficking, labour exploitation and drugs. Persons of concern including single women and female-headed households often face problems in acquiring housing and can be at risk of various forms of exploitation and abuse from landlords.58 Urban programmes often have a higher number of young men and should be developed with due consideration of this particular profile and of their views and capacities. Dynamics among urban refugees or IDPs can influence relations with the host community and vice versa. Facilitating the development of a refugee or IDP community network may help to reduce social isolation and establish important means of mutual support between the hosts and the refugees. If there are benefits in engaging in community activities, this can influence a change of attitude among the host community. The following actions should be considered.

– Map people’s locations and which agencies (government and non-government) are providing particular services in each region.

– Protection and related support should start with information, so that refugees, asylum seekers, IDPs and returnees are made aware of their rights, obligations, restrictions and opportunities and on how UNHCR can support access to basic service and to claim their rights.

– Limit the isolation of persons of concern by supporting local-language teaching; create informal meeting places to provide opportunities for information sharing.

– Encourage the formation of interest groups such as traders, parents’ groups and childcare groups, as well as solidarity groups to assist newcomers. Involve the local community and civil society in joint projects with refugee groups and displaced communities.

– Make sure that meeting places such as community centres or other activities are located in neutral geographical areas so that groups of all backgrounds feel comfortable attending.

– Encourage improved relationships with host communities in order to change the perception of refugees, IDPs or returnees as a threat to the local economy and the stability of the host community.

– Identify partners and institutions that are working in the area, and ensure cooperation between the different actors and service providers. The situation of persons of concern should be

57 There is no international definition of urban areas promoted or used by the UN system. National definitions of cities, urban areas and localities vary considerably between countries, based on characteristics such as population size, density and socioeconomic activity. It should be noted that smaller refugee camps and collective centres may be located in urban areas. See UNHCR’s Policy on Refugees and Asylum Seekers in Urban Areas, Guide to Implementation (final draft, 2 August 2006). 58 UNHCR’s Policy on Refugees and Asylum Seekers, above note 57, includes all refugees and asylum seekers, whether of rural or urban background, who reside in an urban area.


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addressed in the context of the wider urban population whenever possible. – Decentralize services for areas hosting greater numbers of refugees and IDPs to minimize

transport costs.

5.3 Return and reintegration The planning and implementation of repatriation are usually governed by tripartite agreements between UNHCR, host states and the country of origin. As repatriation often involves delicate negotiation, it may be difficult to bring the refugees fully into the process. However, their views, collected through the community-based approach, should be an integral part of the discussions with governments.

The returning population may find it difficult to integrate into their old society in their country of origin. Social structures may have changed and deep differences in values may have emerged between those who moved and those who remained (if any), and tensions may have been increased during the crisis. This will require a careful and detailed situation analysis comparing the situation in the country of origin with that of exile,

including analysis of demographic data disaggregated by age and sex, educational and skills profiles acquired before and during exile and job opportunities and skills required in the country of origin as well as membership of social groups. The community-based approach will help to take into consideration the needs and interest of both local and returnee populations in order to build up a strong community that can develop and rebuild trust.59 Successful reintegration is a process that requires the active involvement of communities and a good understanding by UNHCR staff and partners of the new parameters which a community finds on its return. Returning refugee or internally displaced groups are of concern to UNHCR until minimum national protection mechanisms are in place to ensure the sustainability of return. UNHCR’s role is to contribute to the reintegration process by working with the community, the national authorities and other actors to support the re-establishment of national protection mechanisms. In particular, UNHCR promotes the active participation of returnee populations in recovery and transition processes, and women’s direct participation in accordance with UN Security Council Resolution 1325. The use of the community-based approach is thus very important at this stage for sustainable repatriation to succeed, and the following points should be taken into consideration.

Repatriation/return – Ensure through participatory assessments that people of concern are repatriating voluntarily

59 Handbook for Repatriation and Reintegration Activities (UNHCR, Geneva, May 2004); Voluntary Repatriation Handbook (UNHCR, Geneva).


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and that individual forms to this effect are signed by each adult. – Identify any groups, movements or individuals within the refugee or IDP community that

might have the power to influence for their own benefit decisions over whether or not to return or repatriation.

– With the authorities work with the population in areas of return to prepare the community for the reception of the returning groups. Facilitate dialogue between returnees, the receiving community and authorities. Ensure that women and men, young and old, are included.

– UNHCR has an important advocacy role to play and should pursue the liaison between humanitarian actors performing the repatriation operation and the development agencies, including government departments, that are to ensure sustainable development on reintegration.

Reintegration

– Bring in developmental actors from the start in the planning of return and reintegration activities, and promote a community-based approach. Coordinate with them to ensure the proper targeting of areas of return and consistency among programmes of different partners and to avoid duplicated efforts that could lead to imbalances in assistance and promote tensions between returnees and those who did not leave the area.

– Conduct common interagency situation analysis and assessments in the context of government recovery efforts.

– Promote efforts to foster confidence building, coexistence and reconciliation, such as inter-community bus lines,60 women’s initiatives and other community-based coexistence projects.

– Identify and strengthen capacities of the national society, especially by means of community-based organizations, to take the lead role in and ownership of the community-based approach in return areas.

– Introduce projects to reduce conflict and tension, especially among the youth, and to encourage positive communication and foster a community spirit.

– Support the development of a broader recovery strategy that integrates returnee communities.

5.4 Internally displaced persons UNHCR has fully committed to working in IDP contexts as outlined in its IDP protection policy paper.61 Increasingly, UNHCR’s role with IDPs is determined by the Inter-Agency Standing Committee (IASC) “cluster approach”, which aims to improve the coordination between the different UN agencies and other partners. In IDP conflict-driven situations, UNHCR is committed to taking the lead in three areas – protection, shelter and camp management – and applying a community-based approach.62 A community-based approach is also the guiding principle as outlined in the IASC guidance note “Using the Cluster Approach to Strengthen Humanitarian Response”, issued in November 2006. The approach also forms a part of the terms of reference for IASC sector leads at the country level. Even in

60 Support for minority returns by means of bus lines across boundaries has proved invaluable in areas such as Kosovo and Bosnia and Herzegovina. 61 IDP protection policy paper, DIPS, UNHCR, 2007. 62 Ibid.


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an IDP setting where there is no formal cluster arrangement, UNHCR is committed to working in a coordinated manner and using a community-based approach. An IDP operation often takes place in a sensitive political context or in unstable areas with security concerns for everybody involved. These can present the greatest challenges to the use of a community-based approach, since distrust between all national and local actors is often a common factor. Sometimes it is the government’s actions that causes displacement, and yet the authorities need to be consulted and engaged in the humanitarian response and some form of coordination mechanism needs to be put in place. IDPs are often dispersed over vast areas and often stay with host families rather than in camps, which means that there are specific protection concerns for both IDPs and host families. People may also be persecuted and pursued in their place of displacement, and visible interaction with outside agencies may not be in their best interests. IDPs will not, on the other hand, necessarily have their movements restricted, as is the case for many refugees, and would normally be legally authorized to work. This can provide many opportunities for them to re-establish themselves, provided that their physical safety is not under threat and the economic situation is reasonable. Supporting community-based organizations might be more feasible in IDP situations, but again the security situation will often determine what is possible.

– A rights- and community-based approach should guide the cluster work and our activities on the ground.

– Participatory assessment is a crucial first step to bringing the views of the IDPs and their representatives to the cluster. Cluster leads should ensure that the participation of all groups is achieved and ensure age, gender and diversity analysis in all areas.

– The security of persons of concern involved must be weighed up carefully and, likewise, those of staff to avoid exposing people to unnecessary harm.

– In an IDP context, national partners (governmental, non-governmental and civil society) are of particular importance. UNHCR and its partners must develop common capacity-building strategies and promote ownership by national actors.

– Authorities need to be involved and consulted, and a rights-based framework should be used for planning, although this might be difficult if a government is implicated in the causes of displacement.

– Information on service delivery by authorities should be verified to ensure services are non-discriminatory e.g. access to education, school curricula, etc.

– The situation of IDPs with host families needs to be monitored to ensure that the relationship between the IDPs and the hosts do not become exploitative. Also, host families need to be supported and included in any activities targeting the IDPs and participatory assessments.


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In Colombia, UNHCR interventions concentrate on ensuring that protection and programmes for

displaced populations have a rights- and community-based approach, with age, gender and diversity

analysis. As a result, in the case of older displaced persons, special emphasis was given to promoting and

strengthening the organizational capacity of older persons within displaced organizations to ensure their

active participation in the formulation of public policies and political agendas, income- generating projects

for older persons and advocacy of the design and implementation of age- and gender-sensitive public

policies.

Outcomes

– A technical working group on older citizens, organized by the Ministry of Social Welfare, included

the rights and concerns of older IDPs on the agenda..

– Some 4,800 older displaced persons benefited from the national registration programme

throughout the national territory.

– The Colombian Institute for Family Welfare, with UNHCR support, prioritized older displaced

persons in its socialization programme for the older Colombian population.

– In Apartadó, in the north, some 280 older displaced persons (100 men and 180 women) benefited

from an income-generating project.

– An NGO, A.R.T. (Art for Refugees in Transition), started a project called “Recapturing cultural identity

through the arts” to rebuild inter-generational relationships. The project was designed to enable

older people to teach younger generations their traditions and culture in order to ensure cultural

survival.

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