NOHAWINTERSCHOOLHumanitarian- Development

NexusUniversityofPavia- Italy

28November2017

Humanitarian – Development nexusincomplexemergencies:thecaseofDiffacrisis inNiger

(SandroDeLuca)

Man-madedisasters/complexemergencies

….................................................................• Situationsinwhichhumansufferingandhumanitarianassistanceneedsaregenerated(orconditioned)byapoliticalcontextcharacterisedbyarmedconflictandwidespreadviolence.

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MajorRecent TrendsinViolent Conflict…...........................................................................

• After declining formuch ofthe1990s,majorcivilwars have almost tripled inrecent years

• UNpeace operations areincreasinglydeployed tosituationswhere there is nopeace tokeep

• Theconflict resolution cases ontheUN’s agendaarebecomingmoredifficult,increasing theaveragelife-span ofUNpeace operations.

• Conflict resolution /peace enforcement initiativesbyother actors (ex.Regional organisation)

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SebastianvonEinsiedel,MajorRecent TrendsinViolent Conflict.http://i.unu.edu/media/cpr.unu.edu/attachment/1558/OC_01-MajorRecentTrendsinViolentConflict.pdf

• Conflicts moreintractable andless conducive totraditionalpolitical settlements– Internationalization ofcivil wars– number ofdisplaced people duetoviolence is thehighestsince decades

– Thepresence oforganized crimeexacerbates thesituation– Growing presence ofviolent extremist groups– Someforms ofviolence against civilian populations inwartime areincreasing

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• Theconcept ofdevelopment has expanded toincludehumansecurity.

• Human security“freedom fromthreat tothecorevalues ofhumanbeings,including physicalsurvival”but also tocommunity,economic,environmental,food,health,personal,andpolitical securityandtohealth andaccess toeducation.

• it parallels theexpanded notion ofprotectionevident inboth thehumanitarian andhumanrights worlds.

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Protection fromaHDNexus perspective…..........................….......................................

• Protection: all activities aimed at obtaining fullrespect fortherights oftheindividual inaccordance withtheletter andspirit oftherelevant bodies oflaw,namely humanrightslaw,international humanitarian lawandrefugee law.Inter-AgencyStandingCommittee, 1999

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• Responsiveaction:activities undertaken torespond toanabuse,aimed at stopping it,preventing its recurrence,oralleviating itsimmediateeffects

• Remedial action:activities aimed at restoringpeople’s dignity andadequate livingconditionsupholding all rights oftheindividual

Any activity carried outbyahumanitarianorganization inthefield could beconsideredprotection

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Protection delivery?…...........................................................

.• Protection is morethan aserviceoragood tobedelivered byexternal actors.It is theoutcome ofaprocess andas such canbesupported andpromoted

• Localunderstandings ofprotection is oftenquite different fromhow theconcept is usedbyinternational humanitarian agencies.

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LocaltoGlobalProtection inMyanmar(Burma),Sudan,SouthSudanandZimbabwe,HPNODINetworkpaper,2012

• Localpeople have strongunderstanding ofthethreats they face

• Andbuild self-protection onthebaseoflocalresorces,socialcapital,group bonds

• Social,religious andculturalvalues,localrights frameworks arecrucial

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• Localcommunities build their own protectionarchitecture

• Sometimes inacomplex andcontraddictoryway:– Individual rights vs.community/familyvalues– Negativecoping strategies– Trade offsecurity- livelihoods

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• TheFragileStates Indexis anannual rankingof178nations based ontheir levels ofstabilityandthepressures they face.12key political,socialandeconomic indicators.

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Fragilestates…...........................................................

FragileStates index 2015

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Jointmultilateralandintegratedapproachestocomplexcrises

…..................................................................• JointeffortsofdifferentStatestosolveaconflictthroughacombinationofhumanitarian,development,military,political,diplomaticandpoliticalefforts

• Structuredmuchbetterinthepost9/11phase.

• Based ontheideathat theanswer toglobalchallenges andinsecurities would lie inexternal stabilisation/statebuildingsupport

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• External ‘Stabilisation’interventions are“both aconservative andpotentially transformative,comprehensive andlong-term project,involvingsubstantial social,political andeconomicchange”*

• Basicservices deliveryinhealthcare,educationorwaterandsanitation areconsideredcriticalbuilding-blocks indeveloping astate’s legitimacy

• Insomecases utilisation ofhumanitarian actionas partofapolitical /military agendatogainlegitimacy orto“Win hearts andminds”

*States ofFragility.Stabilisation andits Implication forhumanitarian Action,HPGODI,2010 14

BacktotheH-Dnexus…...........….......................................

• Humanitarian actionShortterm measure:save lives,alleviatesuffering,based ontheprinciples ofhumanity,impartiality,neutrality,independence,service-deliveryresponse,direct hand-outofgoods,focusonmaximising impactvs.cooperativeprocessesthat could weaken theprinciples,saving lives vs.savingsocieties

• DevelopmentassistanceLongterm oriented,reducepoverty,promoting humanrights,good governance,civil society…tends tocooperatewiththegovernement,long-term system building,transformativeapproach

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States ofFragility:stabilisation andother policyspheres,HPGWorking Paper,May2010 16

WHYAFOCUSONDIFFACRISIS…......................................................• Protracted displacement impacting ondevelopment processes

• Cronic crisis• Fragilestate• Constraints toHumanitarian Principles• Overlapping crises• Nexus at test

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BackgroundoftheDiffa crisis…......................................................• Niger:lastpositionofthe2014HumanDevelopmentIndex(HDI).

• GDPpercapitain2013is estimatedat USD778(PPP)-two times lower thanMali,six times lower thanNigeria.

• Very highfertility rate(7.6children perwomanofchildbearing age in2013)

• Annual populationgrowth rateof3.9%(3%inMaliandChad,1.9%inAlgeria)

• 75%ofthepopulationlivesbelowthepovertyline.• Thepovertyratehigherinruralareaswhere82%ofthepopulationlives.

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BackgroundoftheDiffa crisis…......................................................• Areasubjecttointensegeopoliticalinstabilityandconflict

• Atleast5overlappingcrises– Sahelchronic foodinsecurity– Recurrent internal conflicts– Nigerpositioned atthecenter ofcurrentmigratoryflowstowardsNAandEurope

– Djiadism intheSahel– SaharaRegion– BokHaramCrisisinNorther Nigeria– LakeChadBasin

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TheSahel- LakeChadrefugee/IDPs crisis…......................................................

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• Violence andinsecurity related toBokoHaram

• Villages andfarmland abandoned across theLakeChadBasin (Nigeria,Niger,Chad,Cameroun)

• Military operations reduced raids andkillings,but attacks persist.

• Insecurity is still limiting humanitarian access• Morethan 2.4million people fled their

homes;7million people inneed offoodassistance;morethan 480,000children areseverely acutely malnourished.

• Many civilians suffered andremain exposedtoviolations.

• Around 11million people requiredassistance in2017.

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Sahelchronic food insecurity…......................................................

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Migratory hub towards NAandEurope…...........................................................

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Diffa region…......................................................• RegionalcapitalmostdistantfromNiamey• Sparselypopulated.Lessthan600.000inhabitants.Concentratedintwoareas:thebanksofKamadougou riverborderingNigeria;aroundLakeChad.

• Notapoorregion:Kamadougou river,LakeChad,proximitytoNigerianmarket

• TraditionaltraderoutesconnectingNigeria,Libya,Chad,Sudan

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Diffa region…......................................................• StrongandhistoriclinkwithNigeriaandBornustate(Maiduguri)• Ethnicallydiversereality(Kanuri,MohammedanErders,Tebu,

Buduma)• Complexrelationshipswithcentralstateinstitutions• Longtermlocalconflicts:forcedpopulationmovements,

transumance /conflictsfarmers- herders,intercommunalherders• Since2000ideological impactofBokoHaramfromNorthNigeriain

Diffa regionandradicalattitudespreadingwithinyoungpeople• From2009escalationinNigeria,BHfollowerslookingforrefugein

Niger(fundraisingandprofitfromsmuggling)andgrowingnumbersofNigerienyoungpeople joiningtheorganisationasanopportunity

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Evolution ofthecrisis…......................................................• In2013declaration ofthestateofemergency inNorthern Nigeriawhile BH

extends control• After2014Nigerinstitutions assumedastrongerapproachtowardsBHjoiningthe

regionalMultinational JointTaskForce(Niger,Nigeria,ChadandCameroon)andaskingformilitarysupportfromWesterncountries

• Nigerarmyconfrontedwiththreaths ontheborderswithMali,withLybia andwithNigeria

• InFebruary2015violentattacksbyarmedgroupsonNigerterritoryBosso andDiffa)ledtomassive internaldisplacement inthesameregion.

• Inruralareasthepopulationcaughtinthecross-fire• Estimatednumberof2/300.000NigerianrefugeesandNigerienmigrantsreturning

fromNigeriafledtoDiffa RegioninNiger(nearly35%ofthetotalpopulationofthearea)

• March2016- registereddisplaced inDiffa Regionare145.192,ofwhich99,849internaldisplaced,34,644refugeesand10,699returnees(datanotexhaustive)

• Spreadovervariousrefugeecamps,spontaneoussitesalongRN1closertoKamadougou andLakeChadorhostedbyrelatives

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Impactofthecrisis…...........................................................• Harsh policytodeprive Boko Haram ofpotential economic

resources:curfew,banned motorbikes,limited movements,closed marketforagricultural products

• Blocked theadvance ofthemovement inNiger• Deeply affected Diffa Region:people without occupation

andincome,forced displacement inparticular inareasclose toLakeChad

• Localconflicts exacerbated (cattle ownership,land tenure)• Accusation ofcollaboration withBHforthepopulation

close toLakeChad• Actions ofthelocal militias

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…...........................................................

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Different perspectives.MSF:unmet needs

…...........................................................“Greatmany oftheneeds oftheaffected populationarenot beingmet”(MSF,November2016)• Aiddistributedindifficultanduncertainconditions

– Successivewavesofdisplacement– Difficulties inidentifyingandgettingaccesstothebeneficiaries duetomobile

andunstablepopulation– Lowleveltensions amongethnicgroups– Accessconstraints(inparticularinthenorthernareapastKabelewa)

• Humanitarian standards not met

• Disabling factors foramoreeffective humanitarian response:– Counterinsurgency measures– Accessdenied bysecurityforces

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Different perspectives.MSF:unmet needs

…...........................................................• Insufficient capacity oftheestablished aid communities toshift

from“normal”humanitarian anddevelopment interventions toemergency response

• Bureaucratic utilisation ofdataandinflexible models ofdatacollection

• Lack ofcapacity offlexible andquick reaction• Competition not coordination

– “Individual organisations withindividual objectives,needs andmotivations”

– Competition and“flag planting”pledging alevel ofactivity toattractdonors

– Coordination heavily reliant ontheUN(dual role:donor andcoordinator)

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Different perspectives.MSF:unmet needs

…...........................................................

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• “Difficulty tochange fromadevelopment modeofthinking toanemergency mode”forthose already implementing developmentprogrammes”Ex.Freeaccess tohealthcare vs.cost recovery policies consistent withnational policies

• Lack ofcapacity oflocal actors andHRtomanage emergencyresponse

• Lack offunding andsupport inparticular for“highprofile”interventions (ex.Watersupply)andfocusonmoreaccessible sites

• Restricted access tocertain areas ex.Kamadougou river borderareas,lack ofindependent securityassessments,risk averseness.

Different perspectives.MSF:unmet needs

…...........................................................

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“Thetechnical content found underDistaster Risk Reduction,preparednessandresilience fields […]isnotapplicabletoconflict-relatedemergencies [...]Allactors,MSFincludedmustcreatespacetoplanspaceforthemorelikelyfuturescenarios”

“Thecurrent humanitarian system will continuetobetested inNiger.Thoseagencies somewhat outside ofthesystem,like MSFandtheICRC,will also betested interms oftheir abilities tocontinuetoadapt anddeliver effectiveemergency response whilst buildinginmoresustainable strategies whichmeet theneeds inamoreprotracted context”

“All actors will bechallenged tomaintain apostureofdefiance inthefaceofhumanitarian need, toinquire,topush andtopressuresothat if there aretobeongoing failures toaccess those inneed ofhumanitarian relief it will notbebecause noone tried”.

Different perspectives.Developmentactors:looking farther fromshortterm relief

…...........................................................................

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• “Sofar,funding forDiffa has comeintheform ofshort-term emergency relief.But now it is timeforthehumanitariancommunitytoshift,[…]tolookfartherthan emergency funding”

• Targetingandlabeling is complex inaregionwhere thehost communitywas alreadydisadvantagedbeforewelcoming refugees andinternally displacedpopulations.

Ex.Localpopulation has been thefirsttoassistthepeople hitbythecrisis andrefer tothem as “people ofthehegira”,not identifying theminterms oforigin oraid categories

• Aid actors risk creating asort ofhumanitariangovernance bypassing local institutions

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• Evolution ofhostingspaces,mobility strategies,localcriteria ofvulnerability andentitlement/rightarenotconsistentwiththecategoriesguidingHA

• Aid is focused onindividual andpunctual needs.Weneed toshift toalogic ofautonomisationandrecovery

• “Donors lookat humanitarianaid anddevelopmentworkas two separateworlds,but CRSdoes not seethem that way,”Agalheir said.“Thesame communitieswiththose urgent humanitarianneeds also need longerterm development assistance.”

Different perspectives.Developmentactors:looking farther fromshortterm relief

…...........................................................................

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• Aid actors should looktothelongterm andincrease their capacity ofanalysis

• Diffa’s is alivelihoods crisis causedbyaconflict.Humanitarian interventions could not impactsufficiently ontheeconomicenvironment

• Social/protection interventions canbeasourceofeconomicempowermentandrevitalisation oflocal economy

• Risk ofdistortingdevelopmentaid towards theobjective ofpreventingviolent extremism

Different perspectives.Developmentactors:looking farther fromshortterm relief

…...........................................................................

Protection andlivelihoodimprovement through durable

accomodation forforcibly displacedandvulnerable host population inDiffa…...........................................................

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• InDiffa regionmixedrefugeesituation,withaprevalenceofdisplacedpeoplelivingoutsidecamps

• Largefamilygroups (upto20persons),female-headed households (38%ofthetotal,according toUNHCRreport2016)

• Householdswithmanychildrenarethemostvulnerabletoprotectionrisks.

Projectcontext…......................................................................................

• Thecapacitiesofhostingfamiliesappearoverstretched

• Creationofghettosandinformalcamps• Necessitytointegrateemergencyinterventionswithmorestableanddurablesolutions

• thattakeintoaccount protection,shelter,livelihood,waterandsanitationaspectsinaholisticway,ensuringdurableimprovedlivingconditionsforrefugees,returneesandvulnerablehostcommunitymembers.

40https://www.youtube.com/watch?v=gPODJibjZBE

• CISPworksincollaborationwithUNHCRandotherdonorsonawideurbanizationprogrammeclaimingtherighttohousingfordisplacedpeopleinDiffaRegion.

• Theinterventionincreasereceptioncapacityofmunicipalitiesandenhancedrefugeeandlocalcommunityresiliencethroughurbanizationplans,sitepreparation,sub-divisionofplotsforconstruction,socialhousingwithearthenarchitecturetechniques.

• TheurbanizationplanwasbuildinsuchawaytoavoidghettosandensureintegrationofrefugeesandIDPswithlocalhostcommunities.

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Sites ofurbanization plan,sitepreparationandsub-division ofplotsforconstruction

…..................................................................

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Objectives…...........................................................

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• Improved protection andlivelihoodthrough durable accommodation forforcibly displaced andvulnerable hostpopulation inDiffa

• Objective 1:Toimprove lifeconditionandprotection ofrefugees,returneesandvulnerable host communitymembers inN’Guigmi andChetimarimunicipalities, Diffa Region,throughtheprovision ofdurableaccommodation andwashfacilities.

• Objective 2:Toenhance economicinclusion ofrefugees,returnees andvulnerable host communitymembersinN’Guigmi andChétimarimunicipalities, Diffa Region,throughcapacity buildingandjobcreation inthebuildingsector.

HCR 1 HCR 2 HCR 3 Prevision TFA HCR

Région Communes He 2015 He 2016 He 2017 TF Diffa 2017-'19 totalDiffa N'guigmi 50 50 100Diffa Chétimari 50 50Diffa Diffa 15 100 115Diffa Kabalewa 26 26Diffa Bosso 50 50Diffa Toumour 15 50 65Diffa Gueskerou 20 50 70Diffa Maine Soroa 120 120

TOTAL HECTARES 100 76 150 270 596

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Parcelled hectares permunicipality (Ha)…..................................................................

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UrbanplanninginChétimari…..................................................................

HCR 1 HCR 2 HCR 3Prevision TFA HCR

Région Communes

N°Parcelles

2015

N°Parcelles

2016

N°Parcelles

2017

N°Parcelles2017-'19

total parcelles

Diffa N'guigmi 937 1.000 1.937Diffa Chétimari 945 945Diffa Diffa 435 2.000 2.435Diffa Kabalewa 697 697Diffa Bosso 1.000 1.000Diffa Toumour 488 1.000 1.488Diffa Gueskerou 534 1.000 1.534Diffa Maine Soroa 2.400 2.400

TOTAL PARCELLES 1.882 2.154 3.000 5.400 12.436

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Parcelspermunicipality…..................................................................

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Parcels permunicipality (sharebeneficiaries /Municipality)

…......................................................................................…..................................................................

Sites Parcellesrevenantauxcommunespourlavente Parcellessociales Totaldesparcelles

2014

MaineSoroa 1050 420 1470

2015

Chétimari 479 458 937

Nguigmi 512 433 945

2016(encours)

Diffa 240 160 400

Kabelawa 1320 880 2200

Toumour 240 160 400

Assaga 300 200 500

Total 4141 2711 6852

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Parcels permunicipality (sharebeneficiaries /Municipal

........................................................................................

Beneficiaries…...........................................................• Displaced people coming fromNigeria(refugees and

returnees)andvulnerable host communitymembers livinginmunicipalities inDiffa Region.

• vulnerable groups,children,youth,female-headedhouseholds andother categories ofpeople withspecialneeds,including persons withdisabilities andpersons withimportant medical conditions.

• Selection onthebasis ofvulnerability,withparticipationmechanisms andtheinvolvement oflocal authorities,mayors,relevant stakeholders andidentified communityandrefugee leaders.

• workers intheconstruction sector trained inbestpracticesforearth-architecture.

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Beneficiaries…...........................................................• indirectbeneficiaries.Thewholecommunity,includinghostcommunity,benefitsfromtheimprovementofservices(enhancedenvironmentandurbanplanning,increasedwaterpointsandlatrines,enhancedconstructioncapacities).Theprojectcontributestotherevitalizationoflocaleconomythroughthepurchaseofneededmaterialsandservicesfromsmalllocalsuppliers.

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N°bénéficiaire

s 2015

N°bénéficiaires 2016

N°bénéficiaires 2017

N°bénéficiaires TFA

HCR 2017-'19

total bénéficiai

res

N° bénéficiaires minimum (7 personnes par famille)

13.174 15.078 21.000 37.800 87.052

N° bénéficiaires maximum (9 personnes par famille)

16.938 19.386 27.000 48.600 111.924

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Beneficiaries…..................................................................

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Plotslegalisation process…..................................................................• Filing thedossierintheRegional DirectorateofUrbanism ofDiffa andrequests forcorrectionsandtransmission totheMinistry ofPlanninginNiamey,

• Follow-upofthefileuntil obtaining theparcellingauthorization

• Onceobtained,implantationoftheparcels bythedemarcation (bornage)andestablishmentoftheacts ofcession tobefinished withthedeliveryoftheacts totheowners

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Targeting andbeneficiaries identification…..................................................................

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Topographic measurement…..................................................................

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Boundary signs creation…..................................................................

Assignment acts ofsocialhousing lots

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Assignment acts delivery…..................................................................

Constructionofhouses…...........................................................• Constructionofearthenarchitecturehousesof25m2 eachintheframeworkoftheurbanizationplanofmunicipalitiesuseofmudandlateriteaslocalavailablerawmaterialsforamodernandsuitablehabitatintheSahel.

• Earthenarchitectureononehandcouldbelocatedinabroaderhistoric,politicalandculturalcontextandontheotherhand,asasourceofinnovation,couldhelptodetectresponsestoaconceptofdecenthousing,bioclimaticarchitectureandrespectoftheenvironment.

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• Housesandwaterpointsconstructedbybeneficiariesthemselvesusinglocallyavailablematerials,ensuringownershipandsustainabilityoftheproject.

• Latrines,oneforeachhouse,constructedbybeneficiariesfollowingtheapproachATPC-Assainissement TotalPiloté parlaCommunauté,CompleteSanitationLedbyCommunity

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CONCLUSIONS…...........................................................• Dialogue among actors withdifferent mandates helps both

humanitarian anddevelopment actors tobemoreaware ofthepolitical andsecuritycontext (“frequently ovelooked bydevelopment practitioners”)

• Crucial tobeaware oftheconstraints oflabeling needs• Inany caseit is achallenge toengage inlongterm /long

perspective/development programmes intimes ofcrisis:theintervention is consistent withthepriorities andprogrammes ofNigerien institutions.

• Support local actors andinstitutions that areaware ofthedifferent dimensions ofthecrisis

• Crucial thequality oftheanalysis oftheinterests andpositioning oftheactors

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CONCLUSIONS…...........................................................• Crucial aproper understandingofthedinamicsthat,particular intimes ofcrisis,govern states,societiesandcommunities andhow theyrespond.It is acontext-specific /tailor-madeexercise.

• Crucial adaptability andcapacity toidentifyexisting capacity ofresilience (norms,institutions,practices)

• It is atransformativeexercise that impliespositioning as organisations towards societies,institutions andcommunities

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Readinglist…...........................................................• TheCentralSahel:APerfectSandstorm,AfricaReportN°227,25June 2015https://d2071andvip0wj.cloudfront.net/227-the-central-

sahel-a-perfect-sandstorm.pdf• Collinson,S.,Elhawary ,S.andMuggah,R.(2010),States ofFragility:stabilisation andother policyspheres,HPGWorking Paper

https://www.odi.org/sites/odi.org.uk/files/odi-assets/publications-opinion-files/5978.pdf• Edwards,J.,Casestudy.NigerJan2015– Aug 2016,November 2016,Medecines SansFrontieres

https://arhp.msf.es/sites/default/files/Case-Study-02-ENG.pdf• Kelli Rogers,Nigerconflict highlights humanitarian aid,development fundingdivide,DevEx,23February2017

https://www.devex.com/news/niger-conflict-highlights-humanitarian-aid-development-funding-divide-89696• TheLakeChadBasin:anoverlooked crisis?,HumanitarianExchangeMagazine,October 2017https://odihpn.org/magazine/lake-chad-

basin-overlooked-crisis/• NigerandBokoHaram:BeyondCounter-insurgency,InternationalCrisis Group,AfricaReportN.245,27February2017• OECD(2014),“AnAtlasoftheSahara-Sahel:Geography,Economics andSecurity”• OECD(2016),States ofFragility2016:UnderstandingViolence,OECDPublishing,Paris.http://dx.doi.org/10.1787/9789264267213-en• ProtectionofInternallydisplacedPersons,Inter-AgencyStandingCommittee PolicyPaperNewYork,December 1999

https://interagencystandingcommittee.org/system/files/legacy_files/FINALIDPPolicy.pdf• REACH,Evaluationdes mécanismes deredevabilité existants dans les sites dedéplacésàDiffa – août 2017

http://www.reachresourcecentre.info/system/files/resource-documents/reach_ner_report_evaluation_mecanismes_de_redevabilite_dans_la_region_de_diffa_aout_2017_0.pdf

• SDSSahelNiger(2011),Strategy forDevelopmentandSecurityinSahel-SaharanAreas ofNigerwww.sds-sahelniger.net• South,A.andHarragin,S (2012),LocaltoGlobalProtection inMyanmar(Burma),Sudan,SouthSudanandZimbabwe,HPNODI

Networkpaper https://odihpn.org/resources/local-to-global-protection-in-myanmar-burma-sudan-south-sudan-and-zimbabwe/• VonEinsiedel,S.,MajorRecent TrendsinViolent Conflict.UnitedNationsUniversityCentreforPolicyResearchOccasional Paper 1,

November 2014http://i.unu.edu/media/cpr.unu.edu/attachment/1558/OC_01-MajorRecentTrendsinViolentConflict.pdf

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