Matching response to context in complex political emergencies: 'relief', 'development', 'peace-building' or something in-between?

There is an ongoing debate over the value and pitfalls of the policy and practice of 'linking relief and development' or 'developmental relief' in aid responses to complex political emergencies (CPEs). Driven by concerns about relief creating dependence, sometimes doing harm and failing to address root causes of emergencies despite its high cost, pursuit of both relief and development has become a dominant paradigm among international aid agencies in CPEs as in 'natural' disasters. In CPEs a third objective of 'peace-building' has emerged, along with the logic that development can itself help prevent or resolve conflict and sustain peace. However, this broadening of relief objectives in ongoing CPEs has recently been criticised on a number of counts, central concerns being that it leads to a dilution of commitment to core humanitarian principles and is overly optimistic. This paper addresses these issues in the light of two of the CPEs studied by the COPE project: Eritrea and Somalia/Somaliland. It is argued that the debate has so far suffered from lack of clarity about what we mean by 'relief', 'development' and, for that matter, 'rehabilitation' and 'peace-building'. The wide spectrum of possible aid outcomes does not divide neatly into these categories. The relief-development divide is not always as clear-cut, technically or politically, as the critics claim. Moreover such distinctions, constructed from the point of view of aid programmers, are often of little relevance to the concerns of intended beneficiaries. Second, there has been insufficient attention to context: rather than attempting to generalise within and across CPE cases, a more productive approach would be to examine more closely the conditions under which forms of aid other than basic life support can fruitfully be pursued. This leads to consideration of collective agency capacity to respond effectively to diverse needs in different and changing circumstances.     

Rehabilitation in Complex Political Emergencies: Is Rebuilding Civil Society the Answer?

The paper examines the challenge of rehabilitation from complex political emergencies (CPEs) and identifies a strategy that is characterised as a civil society rebuilding approach. It focuses on Somalia and a case study of a CARE project that aims to build the capacity of local NGOs. The paper argues that civil society in CPEs is simultaneously being undermined and contested by warring parties and emerging after state collapse. The scope of the paper is limited to one case study and that case study examines only a single aspect of civil society: national and international NGOs. The paper therefore presents tentative and preliminary results based on limited research. However, in reviewing the literature and presenting a way of approaching the subject, it aims to suggest a starting-point for developing a theoretical framework for such research. The paper finds that international agencies have tended to focus on civil society institutions simply as conduits for aid money and that this has tended to create organisations which lack downward accountability, are dependent on donors and are not addressing the wider roles for civil society envisaged in the approach. Rebuilding civil society does hold out the promise of giving non-military interests a stronger voice and starting a process of changing the aid delivery culture. Achieving these objectives, however, will be a slow and largely indigenous process and there is a need for lowered expectations about what outside assistance can achieve     

An outbreak of scurvy in Somali refugee camps*

Between June and October 1982, an outbreak of scurvy occurred in the refugee camps of Somalia. An epidemiologic investigation eventually detected more than 2,000 cases. The outbreak came at a time when the relief programme had been well established and the general health status of the refugees had otherwise stabilized. We report on 72 of the cases. Joint pain of the lower extremities and gingivitis were prominent features in the majority. Hemorrhagic phenomena were not observed and no deaths occurred. The outbreak primarily affected the poorer refugees who were unable to purchase locally available Vitamin C-containing foods. This outbreak demonstrates the vulnerability of a large population of displaced persons who are dependent on imported relief supplies for survival.     

Monitoring and reporting attacks on education in the Democratic Republic of the Congo and Somalia

The United Nations' Monitoring and Reporting Mechanism is charged with documenting six grave violations against children in a time of conflict, including attacks on schools. Many of these incidents, however, remain unreported across the globe. This study explores whether or not a local knowledge base of education and child protection actors in North and South Kivu Provinces, Democratic Republic of the Congo, and in Mogadishu, Somalia, could contribute to a more complete record of attacks on education in those areas. Hundreds of semi‐structured interviews were conducted with key informants across the three settings, and in total 432 attacks on education were documented. Purposive samples of these reports were verified and a large majority was confirmed. Local non‐governmental organisations and education institutions were most knowledgeable about these incidents, but most never reported them to a monitoring authority. The study concludes that attack surveillance and response were largely insufficient, and recommends investing in mechanisms that utilise local knowledge to address these shortcomings.     

Lessons in logistics from Somalia

By February 1981 the refugee relief operation in Somalia was close to breakdown. The Governor of Somalia and the United Nations High Commission for Refugees (UNHCR) contracted the agency CARE to manage the logistics of the operation. By August 1981 over 99 % of food received at Mogadishu was reaching the camps. Here we describe this apparent success, and attempt to diagnose the contributing factors. Chief among these are dynamic leadership, 'systems' management, adaptability of personnel, the use of professional Indian food monitors in the camps, and the support given by the Government. The chief qualification on the success of the operation has been the continued dependency on expatriate expertise.
General conclusions are offered relating to the management of logistics in relief operations. The most important conclusion is that there is a prime need for logistics to be centralized in a single organization at the start of major emergencies. We point to the current inadequacy in an international relief system which fails to ensure this, and suggest that a new or existing part of the United Nations family be given a 'brief for in-country logistics' to become a UN Emergency Logistics Office.     

Matching Food Security Analysis to Context: the Experience of the Somalia Food Security Assessment Unit

This case study reviews the experience of the Somalia Food Security Assessment Unit (FSAU) of operating a food security information system in the context of a complex emergency¹ In particular, it explores the linkages between selected features of the protracted crisis environment in Somalia and conceptual and operational aspects of food security information work. The paper specifically examines the implications of context characteristics for the establishment and operations of the FSAU field monitoring component and for the interface with information users and their diverse information needs. It also analyses the scope for linking food security and nutrition analysis and looks at the role of conflict and gender analysis in food security assessment work. Background data on the food security situation in Somalia and an overview of some key features of the FSAU set the scene for the case study. The paper is targeted at those involved in designing, operating and funding food security information activities.     

A general assessment of the environmental impact of refugees in Somalia with attention to the refugee agricultural programme

This paper attempts to examine the broad features of Somalia's harsh physical environment into which several hundreds of thousands of refugees, with mainly a nomadic or semi-nomadic life style and culture, dramatically descended six years ago. The thirty-six rural camps in which at least half of them live are described as is the refugee agricultural programme which is training several thousand families so that they may be "self-supporting." The four regions where the camps are located are each briefly summarized in terms of their soils, their climates, their natural vegetation, and the type of agriculture which the refugee farmers practice. A more detailed analysis is then given on the following critical environmental concerns: Vegetation and erosion on refugee farms, the growing problem of refugee livestock, the destruction of trees, and irrigation practices and salinity on refugee farms. The paper concludes with an argument to preserve Somalia's environment from careless and destructive exploitation, which is leading towards desertification, and calls for an in-depth study of the situation.     

Do farmers need relief seed? A methodology for assessing seed systems

This article outlines a methodology to help agencies better determine whether or not relief seed is needed by farmers affected by disaster. A brief review of current seed needs assessment procedures in southern Somalia and Mozambique illustrates problems of knowing which crops and households are affected, the importance of seed access (not just availability) and the need to plan interventions earlier than at present. The development of a Seed Systems Profile (SSP) is proposed to understand better both the socio-economic and agro-ecological aspects of farmers' seed systems. A five-step framework for assessing seed systems in disaster situations is also presented. These tools are currently being tested and further refined in Mozambique. A better understanding of farmers' seed systems will allow for the development of relief and rehabilitation interventions that effectively enhance the resilience and reduce the vulnerability of these systems.     

The livelihoods gap: responding to the economic dynamics of vulnerability in Somalia

A 'livelihoods gap' has become evident in international aid delivery to Somalia. Existing aid interventions do not address the economic dynamics of vulnerability resulting from Somalia's long history of predatory development and asset stripping. To prevent poor households' regular return to sub-subsistence income levels after a brief period of plenty, this paper argues that aid agencies should reorient and expand existing interventions to assist poor households to capitalise on temporary improvements in environmental and security conditions. As a corollary to emergency relief and efforts to construct state institutions, it is necessary to devise country-wide interventions that will rebuild household asset bases by protecting savings during times of stress and ensuring that markets benefit poor producers.     

Educational,psychosocial, and protection outcomes of child‐ and youth‐focused programming with Somali refugees in Dollo Ado,Ethiopia

Child‐ and youth‐friendly spaces have become a common feature of emergency humanitarian provision. This study reports on the outcomes of child and youth learning centres (CYLCs) in Ethiopia's Buramino Camp established for those fleeing conflict in Somalia. Eighty‐five youths completed baseline assessments shortly after arrival and follow‐up assessments three to six months later. Caregivers of 106 younger children completed similar appraisals. 693 children attending the CYLCs completed pre‐ and post‐educational assessments, which indicated major gains—significant at p<0.0001—in both literacy (younger children, t=9.06; youth, t=13.87) and numeracy (younger children, t=13.94; youths, t=17.10). Children's CYLC attendance increased reports of met needs among caregivers (t=2.53, p<0.05) and youths (t=2.57, p<0.05), and, among caregivers but not youths, significantly moderated protection concerns (t=2.39, p<0.05, and t=?1.90, p=0.06, respectively). There was general improvement in psychosocial well‐being over time for all children; CYLC attendance predicted greater reductions in reported difficulties only among younger children (t=2.51, p<0.05).